() f_ J.2't ;c First published in 1999 in Great Britain by FRANK CASS PUBLISHERS Contents Newbury House, 900 Eastern Avenue, London IG2 7HH

and in the United States of America by Introduction vii FRANK CASS PUBLISHERS c/o ISBS, 5804 N.E. Hassalo Street Regions and International Affairs: Motives, Opportunities Portland, Oregon 97213-3644 and Strategies Michael Keating 1 Website: www.frankcass.com Patrolling the 'Frontier': Globalization, Localization and Copyright c 1999 Frank Cass & Co. Ltd. the 'Actorness' of Non-Central Governments Brian Hocking 17

British Library Cataloguing in Publication Data Diplomacy and Paradiplomacy in the Redefinition of International Security: Dimensions of Conflict and Paradiplomacy in action : the foreign relations of Co-operation Noe Cornago 40 subnational governments. - (The Cass series in regional and federal studies; v. 4) The European Union and Inter-regional Co-operation Kepa Sodupe 58 1. Administrative and political divisions 2. Diplomacy 3. International relations 4. Negotiation - International cooperation 5. Central-local government relations Towards Plurinationai Diplomacy in the Deeper and I. Aldecoa, Francesco II. Keating, Michael, 1950- Wider European Union (1985-2005) Francisco Aldecoa 82 320.8 The Other Dimension of Third Level Politics in Europe: ISBN 0 7146 497t 6 (cloth) The Congress of Local and Regional Powers of the ISBN 0 7146 8018 4 (paper) Council of Europe Jose Luis de Castro 95 ISSN 1363-5670 The International Competence of US States and their Library of Congress Cataloging-in-Publication Data: Local Governments John Kincaid 111 Paradiplomacy in action : the foreign relations of subnational governments I edited by Francisco Aldecoa and Michael Keating. Federal-State Relations in Australian External Affairs: p. cm. - (The Cass series in regional and federal studies, A New Co-operative Era? John Ravenhill 134 ISSN 1363-5670 : 4) Includes bibliographical references and index. The Quebec Experience: Success or Failure? Louis Balthazar 153 ISBN 0-7146-4971-6 (cloth). - ISBN 0-7146-8018-4 (pbk.) 1. Subnational governments-Foreign relations. I. Aldecoa, The International Relations of Basque Nationalism Francisco. II. Keating, Michael, 1950- . III. Series. and the First Basque Autonomous Government JZ4059.P37 1999 99-20579 (1890-1939) Alexander Ugalde 170 327.l-dc21 CIP Making Sense of Paradiplomacy? An Intertextual Inquiry This group of studies first appeared in a special issue of Regional & Federal Studies (ISSN 1359-7566) Vol.9, No.I (Spring, 1999) about a Concept in Search of a Definition Ifiaki Aguirre 185 published by Frank Cass and Co. Ltd. Abstracts ' 210 All rights reserved. No part of this publication may be reproduced, stored in or introduced into a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, Notes on Contributors 215 photocopying, recording or otherwise, without the plior written permission of the publisher of this book. Index 219 Printed in Great Britain by Antony Rowe Ltd, Chippenham, Wiltshire BACKGROUND TO THE BASQUE PRESENCE ABROAD TODAY 171 The International Relations of Basque (Duchacek, 1986). These concepts are used to explain the role of nationalist movements, national minorities and ethnic groups not dominant within Nationalism and the First Basque International Society as actors in international relations (Esman, 1990 and Autonomous Government (1890-1939) 1995; Mayall, 1990; Heraklides, 1990; Smith, 1991; Chazan, 1991; Schechtennan and Slann, 1993; Moynihan, 1993; Ryan, 1995; Esman and Telhami, 1995). This subject is arousing more and more interest both in the ALEXANDER UGALDE ZUBIRI field of historiography (Nunez, 1996) and in the theory of international relations (Cornago, 1996) and it also appears in other studies dealing with nationalism in general (Beramendi, Maiz and Nunez, 1994). The year 1995 was the centenary of Basque Nationalism, if we take a5 a THE FOREIGN AFFAIRS OF BASQUE NATIONALISM AS AN OBJECT point of reference 31 July 1895, when the first Biz.kai-Buru-Batzar (General OF STUDY Council of Biscay), the embryo of the (Partido Nacionalista Vasco), was constituted. From this date it gradually consolidated This contribution examines from a historical perspective the background to its doctrinal, programme and organization, gaining social influence and the present-day Basque presence abroad, namely, the international relations electoral presence to become an essential component of the Basque of Basque nationalism (1890-1936) and the first Basque autonomous contemporary history; today it remains part of the complex Basque socio­ government (1936-39) .. The presence of the Basque Country in political reality, albeit divided into several ideological and political formations. contemporary international society, its role as another actor on the There are some outstanding studies of Basque nationalism.' The international scene, is a very topical subject. This can be observed in the fact centenary has brought a further wave of studies (Granja, 1994 and 1995; that Basque foreign action grew more and more intense, taking shape in all Pablo, 1995; Pablo, Granja and Mees, 1998). Yet the international aspects of sorts of events - political, economic, social, cultural - as well as in other Basque nationalism have been rather neglected, with some notable activities showing 'features of internationality' (Truyol, 1987). I am exceptions. Granja ( 1989) covers the Galeuzca pact and the agreement of its referring to the foreign action promoted by the Basque government ~ignatories to combine their efforts in pursuit of 'propaganda and (bilateral and multilateral co-operation among regions, co-operation across mternational action'. Estevez (1991, 1992) deals with relations among the nations, co-operation for development, activities promoting the economy peripheral penninsular nationalisms, one of whose features was that they and culture, attention to Basque communities living abroad, trips, offices in thought of their alliances as 'international', and with nationalist presence in other countries, the creation by the Basque government of the General European congresses. Nunez's (1992a) doctoral thesis is about the Secretariat for Foreign Affairs), and to the activities carried out by social nationalities in Europe between the wars and the Catalan, Galician and organizations, such as political parties, non-governmental organizations and Basque 'protodiplomacy' at the Congress of European Nationalities. The municipal councils. It is not a recent phenomenon we are dealing with; there same author has written on the repercussion of Irish nationalism on the are some antecedents to be considered. This is why my study about the Iberian nationalisms (Nunez, 1992b) and on the international relations of presence of Basque nationalism abroad is made from a historical Basque nationalism (Nunez, 1995a, 1995b). Conversi (1993) deals with the perspective. This requires us to employ the expression 'international actor' consequences of the international events on Basque and Catalan nationalism, in the broad sense in line with the trend in international relations from state­ and Lorenzo (1992) with the influence of Irish nationalism on Basque centred formulae to more modern approaches which underline the ·=-. nationalism. San Sebastian (1991) is a compendium of the materials of the existence, alongside the state and international or supranational Basque Delegation in New York. With regard to international relations, we organizations, of a series of 'transnational forces' (Merle, 1988) or which can note Aguirre (1987), who has studied historical models of an integrated consider the presence of unofficial actors within the 'plurality of members' Basque space and its articulation with other international spaces. of International Society to be significant (Arena!, 1990; Garcia, 1993). This article focuses on the crucial period from 1890 to 1939 and asks This aspect of Basque nationalism must be placed within the frame of whether Basque nationalism followed a definite model for its action abroad reference of a broader international phenomenon captured in concepts such during the these years, looking both at the theoretical basis for the policy, as 'non governmental diplomacy' (Zorgbibe, 1982) and 'protodiplomacy' and its practical application. Three broad conclusions emerge: 172 PARADIPLOMACY IN ACTION BACKGROUND TO THE BASQUE PRESENCE ABROAD TODAY 173

First, Basque nationalism as a political and social movement, structured enable us to identify and specify the pattern followed by nationalism with through several political organizations in different phases, took its first regard to foreign action. These fall into three types: doctrinal (sustaining steps in the last decade of the nineteenth century, and its action abroad principles); platform (aims pursued); and instrumental and auxiliary. In all, increased until the late 1930s. Its activities were in the beginning weak there are ten indicators: and irregular but they reached a considerable level during the years of the Republic. Historical Context Second, projection abroad is something inherent in Basque nationalism. In order to examine the foreign action it is essential to make reference, in Its doctrine, its sustaining principles, its goals and its platform made it each phase, to the triple Basque, Spanish and international frame. For establish its project of a Basque political space in relation to the instance, the consequences of the First World War influenced the thought European frame and the international context. Basque nationalism had to and the activity of the Basque nationalists, which makes the relation establish itself in the Basque country, both as an organization and also as between local and worldwide events evident. regards political, social and electoral aspects; it had to raise its demands The International Context and Events before the central government and it had to make itself a place on the · '.;;: international scene following, to a great extent, the path of other :.i Finding out how and with what intensity and regularity Basque nationalism nationalist movements. All things considered, I think that the activities followed and kept a record of what happened abroad, mainly by means of of Basque nationalism abroad are consistent with its doctrine. its periodicals, it emerges that Basque nationalism was not a self-centred • Third, we can identify several indicators which, both separately and as a movement, but followed international processes such as the European whole, show that the foreign action performed by Basque nationalism nationalities movement. conformed to a well defined pattern with its corresponding chronological evolution. In this respect, it was the sort of foreign action Sustaining Principles typical of a political movement, that is to say, it consisted of diplomatic ,. Foreign action is usually based on ideological-political guidelines of a more relations of a non-governmental character which aimed at achieving the or less generic nature, which set the framework for concrete decisions and international recognition of nationalism itself as ·a political movement activities. The founder of nationalism himself, , demanded an and, in future, the international recognition of the Basque nation. independent Basque Confederation (Euskadi) with its own frontiers and international relations. Later on the official doctrine based on the recovery The constitution of the first Basque government in 1936 brought about of the old Basque fueros (statutory privileges) and subject to a number of a significant, qualitative advance as regards foreign action, since it meant interpretations ranging from autonomy to independence, implied that such the beginning of institutional, governmental action. Insofar as it had its own independence should be attained in foreign affairs too. government, the Basque country became an actor within international society, and its government, as a representative of the Basque people, The Goals of Foreign Action played a prominent role on the international scene. The activities carried out These were established little by little and by the 1930s they had been fully by the Basque government between 1936 and 1939 not only have historical elaborated. Among them we can underline: relations with other nationalist value, they also provide a precedent for the international activities of sub­ movements; presence at the international organizations of nationalities and state actors which are nowadays becoming so important (Duchacek, minorities; contacts with embassies and consulates; the establishing of Latouche and Stevenson, 1988; Duchacek, 1990). relations with governments; the tightening of the bonds of friendship with Basque communities living abroad; foreign propaganda and, finally, the presentation of the Basque 'national problem' on the international scene. INDICATORS OF THE MODEL OF FOREIGN ACTION AND THEIR APPLlCATION International Alliances The problem of processing and interpreting all the material gathered, The fact that they did exist and that they involved reaching agreements and basically coming from nationalist periodicals and texts written by acting in co-ordination with other interlocutors shows that international nationalist leaders, is solved by applying a number of indicators which links became highly developed. Some plans for activities abroad were never _,' 174 PARADIPLOMACY IN ACTION BACKGROUND TO THE B ASQUE PRESENCE A BROA D TODAY 175 fulfilled. Thus, Sabino Arana in 1901 thought of achieving the Basque international organizations; propaganda). Among many examples, we can independence 'under British protection' and his brother, Luis Arana, put a cite: a telegram from the Sociedad Euskalerria to William Edwart personal project to the British Foreign Office in 1938 for the establishment Gladstone, British Prime Minister, in 1894; the telegrams from Sabino of a British Protectorate in the Basque country. In 1924 a project was Arana to Theodore Roosevelt, president of the USA, and to Lord Salisbury, outlined for a 'League of Oppressed Nations' , an alternative to the League British Prime Minister (1902); the trip to Rome of a delegation which held of Nations, composed of the Basque country, Catalonia, heland, Egypt, interviews with the Vatican Secretary of State and with Pius X (1911); the Morocco, India and Philippines. Furthermore, the agreements signed by the nationalist official position for the Allies in the First World War (1914); Basque, Galician and Catalonian nationalists ('Triple Alliance' in 1923 and bilateral relations with other delegations (Lithuanian, Albanian, Caucasian) 'Galeuzca' in 1933) were considered by their signatories as 'international'. during the Third Congress of the Union des Nationalites in Lausanne Membership in international organizations is included under this heading, (1916); a telegram from several deputies and senators to Woodrow Wilson, the two most important events being attendance at the Third Congress of the president of the United States, acknowledging his doctrine (1918); Union des Nationalites (1916) and participation in the Congress of demonstrations in support of the Irish republican movement (1920); support European Nationalities (1929-30). There was also a trade union, Basque to the Riffean rebellion in Morocco (1921); the establishment of formal Workers' Solidarity, which joined the International Confederation of relations with the Sinn Fein (1922); a document sent to the League of Christian Trade Unions. Nations (1926); support for the Pan-European movement (1926 and 1929); memorandum to the representatives of the League of Nations (1929); the Means and Instruments visits of Ewald Ammende, secretary of the Congress of European It was when foreign action had already completed its initial phase that Nationalities, to the Basque country (1931and1933); regular contacts with Basque nationalists started to set the appropriate means and instruments to national groups such as Bretons and Flemish (1932); a tour of Argentina and reach their goals. Their achievements depended on how conscious they Uruguay (1934); a trip to Geneva during which some interviews were held were of the need to start some really effective devices and also on whether with the President of the Council of the League of Nations and with the they had at their disposal the organization, and .human and economic means Abysinian representative (1935); another trip to the Vatican (1936). necessary to support them. Such means did not appear in a proper, stable Geographical Area way until the 1930s and in relation to them we must underline the creation of a Basque General Secretariat by the Basque Nationalist Party, in charge In order to evaluate the presence of Basque nationalism abroad, one must of 'international propaganda'. bear in mind the areas at which its action was aimed and explain the reasons why some areas had priority over others. For reasons of geographical Foreign Delegations proximity, historical links and political decisions, most contacts took place These are concrete proof of international presence and denote their interest within Western Europe and with America. in keeping permanent links and relations with other countries. Although it We now need to consider how these factors operated over time, as was never done, in 1902 Sabino Arana thought of sending 'representatives Basque nationalism consolidated its position with regard to foreign affairs, to other nations'. From 1904-06 onwards nationalist delegates were from its formative years, until its culmination in the . appointed in Latin-American countries (Argentina, Cuba, Mexico) and in Philippines, and later on in Europe (Dublin and Paris). Nevertheless, the THE EVOLUTION OF FOREIGN ACTION great step forward was taken with the institutional delegations of the Basque government during 1936-39, which represented not only nationalists but During the five-decade period chosen, the nationalist activities abroad went, also other republican and left-wing political tendencies. in summary, through five important moments:

Activities and Ways of Showing Their Presence Abroad It was between the end of the nineteenth century and the beginning of Under this heading I have gathered several concrete initiatives and activities the twentieth, at the time when Basque nationalism was born and started (for example, trips and tours; communiques and manifestos; relations to expand, that its action abroad took its first steps, but nationalist established with other movements, diplomatic corps, governments and foreign action was slow at the beginning. We can see some of the 176 PARADIPLOMACY IN ACTION BAC KGROUND TO THE BASQUE PRESENCE ABROAD TODAY 177

indicators already: the attention paid to international events; activities Jose Antonio Aguirre predicted such a process: 'Today we are proceeding such as trips or sending telegrams; the impulse given to extra-territorial toward a foreign life for our country'. Numerous articles were written in affiliation or the designation of delegates of the Basque Nationalist Party the nationalist press focusing on the international facet of the Basque (PNV) in America. Yet starting international relations was a secondary problem. The PNV created a Basque Secretariat General, for propaganda task, as there were more fundamental needs to meet regarding both abroad. There were trips to other countries. The PNV joined the Congress political and organization matters. The euskalerriaco (moderate of European Nationalities and attended their annual meetings, according nationalist) Eduardo de Landeta pointed it out in the weekly Euskalduna to Ramon Bikuiia this gave 'worldwide character to our case'. A new in 1909: 'Nobody took the trouble to establish relations with the world motto 'Euzkadi-Europa' was coined. outside'. It is, therefore, too early to talk about a pattern of foreign action. The final phase commenced in 1936 with the establishment of the • In the late 1910s and early 1920s, coinciding with the First World War autonomous Basque government and the simultaneous outbreak of the and the postwar period, foreign action underwent a considerable Spanish Civil War. Foreign action took a further step culminating the advance. The nationalist leaders became aware of the need to go abroad, process that began some decades before. It can now be described as and this involved a theoretical effort as well as a number of initiatives. Basque and institutional, going beyond international relations of a There were the first attempts to achieve international recognition, as can merely nationalistic nature and between political parties. For Basque be deduced from the attendance of the Basque Nationalist Party to the nationalism this was the culmination of its most deeply felt aspirations, Third Congress of the Union des Nationalites (Lausanne, 1916), asking and for the rest of the Basque republican parties it involved contributing, to be 'recognized as belligerent in this great fight of small nationalities'. despite disagreements, to a historical moment for the .Basque Country There were greetings and relations observed after the war; and the with regard to its presence abroad. The new way of managing foreign claims for a space on the international scene and even for a place at the affairs was the basis for the policy that the Basque cabinet would follow League of Nations. In this respect Jose Vilallonga talked about the in the 1940s and 1950s. 'international personality' of the Basque people, declaring that they cannot give up their relations with other countries (Hermes, 1918). Luis THE FOREIGN ACTION OF THE FIRST BASQUE GOVERNMENT de Eleizalde said: 'we must manage to take the Basque Nation, respected FROM 1936 TO 1939 by everybody, into the assembly of the cultivated people of Europe' (Hermes, 1919). The first Basque government was constituted in October 1936 after the In spite of the split between the two nationalist parties, Comuni6n Statute of Autonomy for the Basque country was passed. The cabinet, Nacionalista Vasca (CNV) and PNV, on a more aberriana political line, headed by Jose Antonio Aguirre, included a variety of political that is to say, more radical and secessionist, foreign policy activity representatives, all of them loyal to the Spanish Republic and opposed to increased in the early 1920s with, for example, contacts with the Irish Franco's party, including the Basque Nationalist Party (Partido republicans and expressions of solidarity with the Moroccan Rif, Nacionalista Vasco) and the Popular Front (Partido Socialista Obrero although it suffered a temporary interruption during the Primo de Rivera Espaiiol, Partido Comunista de Euskadi, Acci6n Nacionalista Vasca - Ieft­ dictatorship. Nevertheless, there were some notable events in the second wing Basque nationalist party, lzquierda Republicana and Union half of the 1920s, such as the assumption of Pan-Europeanism by the Republicana), with diverse ideological and political positions. comunionistas (Ugalde, 1994) and the sending of some memoranda to It developed its activities mainly in two fields: the Spanish Civil War the League of Nations by the aberrianos. and the complex international situation previous to the Second World War. Nationalist foreign action recovered and consolidated from the early It governed under special circumstances due to the military confrontation, 1930s, and into the Spanish Second Republic (1931-36), reaching almost so most of its means were put in the service of the needs raised by the complete consolidation in all respects. Despite the peculiarities of the conflict. In juridical terms, international relations were the exclusive different nationalist parties (PNV and ANV -Acci6n Nacionalista Vasca) competence of the Spanish central government, according to the Spanish and groups (Jagi-Jagi), the internationalist conscience and doctrine were Constitution of 1931 and the Statute of Autonomy of the Basque country of well established. Foreign affairs began to occupy a prominent place and 1936. However, the political and military circumstances of the period there developed a variety of relations and activities worldwide. In 1931 brought about the assumption by the Basque government of further 178 PARADIPLOMACY IN ACTION BACKGROUND TO THE BASQUE PRESENCE ABROAD TODAY 179 ,-· responsibilities in several matters (army and war direction, autonomous Agreements through the International Red Cross police, issue of currency, passports, foreign trade, Basque Red Cross, These were for the humanization of the war and the exchange of prisoners. enterprises of its own), surpassing what was provided by the law. In the same way, it was also able to establish international relations. Contacts with governments through messages and interviews The foreign action of the Basque government pursued several These included messages to French leaders Leon Blum and Edouard objectives: Daladier, President Franklin Delano Roosevelt of the Unitet States, British Prime Minister Arthur Neville Chamberlain, and Czechoslovak leader • the defence on the international scene of the legitimacy of the Republic, Edvard Benes. faced with Franco's rebellion, and the denunciation of foreign military intervention - German and Italian - in the Basque territory, which broke Economic initiatives with a foreign scope the non-intervention agreements; These included the purchase of arms, sending business agents to buy the implementation of a number of measures aimed at meeting the basic products, control of the foreign currency deposits, managing the activities needs arising from the location of the Basque territory, which was partly of the Basque merchant navy, the regulation of international airlines and the isolated from the other republican areas - in this regard, there were a setting up of enterprises in other countries, for instance, the 'Mid-Atlantic number of activities involving foreign trade matters, provisioning, air Shipping Company Limited' in London and the 'Societe Finances et and sea transport, evacuation and sheltering of refugees, which Entreprises' in Paris. doubtless had a foreign aspect; • the proclamation before the International Society that formally the Control of the international sea frontiers, immigration services, evacuation Basque country was already an autonomous region within the Spanish of the civilian population and control over the Diplomatic Corps state, despite the war sihiation; This included the dismantling of the Francoist spy ring, in which the consuls seeking a foreign presence for the Basque country, mainly in the of Austria, Hungary and Paraguay were involved, and expulsion of the political and cultural spheres; German, Italian and Portuguese consuls. and, finally, the aspiration of the Basque country and its government to be recognized by other states and international organizations. Granting of diplomatic asylum in the offices of the Basque delegations in , which acted as foreign legations. Within the Presidential Department, a Secretariat for Foreign Relations was created which was in charge of co-ordinating the foreign relations of Visits to the Basque country offoreign personalities, political work carried out by the different departments of the government, and of representatives, delegates, writers, religious authorities and journalists. guiding the work of the Basque delegations in other countries. That These included Reverend Helwett Johnson, Dean of Canterbury, and Leah Secretariat was directed by Bruno de Mendiguren, whom George Lawter Manning of the British organization 'Spanish Medical Aid' . There were Steer, a South African journalist working for the British newspaper The notes of support such as those sent from London by David Lloyd George Times, called the 'Mr. Eden ofEuzkadi' in his book The Tree ofGernika: A and Clement Attlee. Field Study of Modern War (published in London, 1938). The international activites performed by the Basque government Solidarity from other countries. between 1936 and 1939 can be summarized under twelve headings: This can be seen in the statements signed by French personalities, Pour le Contacts with embassies and consulates. peuple basque. Un appel a tous les hommes de coeur, and one by American The most important were those with diplomats from Great Britain personalities, 'An appeal to the conscience of humanity' . Incidents such the ( Henry Chilton), France (Ambassador Jean Herbette), the bombing of Guernica stimulated overseas interest and committees were United States of America (Ambassador Claude G. Bowers), the Soviet founded to deal with refugee issues, for example The American Board of Union, Argentina and the Vatican. Guardians for Basque Refugee Children. 180 PARADIPLOMACY IN ACTION BACKGROUND TO THE BASQUE PRESENCE ABROAD TODA y 181

The work of the delegations of the Basque government. forced, given such exceptional situation, to perform sovereign functions These were appointed in the Spanish cities of , Barcelona, Valencia reserved for the state. Besides, the cabinet, widely supported both socially and AJicante; in Europe, in Paris, Bordeaux, -Antwerp and London; and politically, was representative of the Basque people of the time, which and in the Americas, in New York, Boise, Buenos Aires, Mexico, Santo undoubtedly had decisive consequences as regards foreign affairs, since the claim for legality and for democratic legitimacy would contribute to give Domingo, Caracas and La Havana. content to the Basque government's foreign policy arguments right from the Activities of propaganda. beginning. Books and magazines were published, such as Euzko-Deya. Official A decisive change was effected in the scope of international action, the spokesmen were located in the Basque delegations in Paris, London and tasks undertaken and the structure of the Basque government. The contacts and relations established, the official or semi-official recognition of the Buenos Aires. There was a Basque section in the Spanish Pavilion at the delegations and wider spread of propaganda represented a huge advance on Universal Exhibition in Paris. Tours were arranged for the Euzkadi football what had been achieved before by nationalism as a political movement. team and folk groups all over Europe and America. Euskal Herria (the Basque country), as a nation, with the first Basque Initiatives of a diplomatic nature. government of its history, entered international life by right. This course could be pursued in the following years, since the Basque government in These included attempts to mediate with several foreign interlocutors, exile did not dissolve or break up. The Basque country continued to be including diplomats from several countries, during the war. present on the international scene as a nation without a state but with a The creation of institutions. government that could still represent it abroad. This lasted for as long as the circumstances, conditions and configuration of international society, among These included the Basque Red Cross, International League of Friends of other reasons, allowed it. the Basques, Pro-Basque Inmigration to Argentina Committee, and a So we can see in this historic experience the antecedents of the present proposed Basque Worldwide Association. · external policy of the Basque nationalist movement and government.

THE QUALITATIVE CHANGE: FROM THE FOREIGN ACTION OF BASQUE NATIONALISM AS A POLITICAL MOVEMENT TO THE ACKNOWLEDGEMENTS GOVERNMENTAL INTERNATIONAL ACTION OF THE FIRST BASQUE GOVERNMENT The author wishes to thank Professor Michael Keating for his methodological advice, so helpful for the elaboration of this article, and Miren Villa for the translation of the same. So during the 1936-39 phase, foreign action underwent a qualitative change with the first Basque government under the presidency of Jose Antonio NOTE Aguirre. Yet, although this entailed a positive qualitative and quantitative change for the Basque country as regards its presence abroad; it built on the l. See Larronde, 1972; Payne, 1974; Solozabal, 1975; Lopez Adan, 1976; Apalategi, 1977 and foundations laid in the earlier period and represented a development of 1985; Elorza, 1978 and 1981 ; Corcuera, 1979 and 1991 ; Azcona, 1984; Douglass, 1985; Granja, 1986;_Letamendia, 1987; Pablo, 1988; Martinez, 1989; Heiberg, 1989; Waldmann, earlier trends. 1990; Mees, 1991 and 1992; Garcia de Cortazar and Azcona, 1991 ; Meer, 1992; Ugalde, Until 1936, with regard to specifically nationalistic foreign action, what 1993; Beobide, 1993; Chueca, 1996; Zabalo, 1996)_ we have is a political movement with a concrete ideology, which managed foreign affairs according to its sustaining principles, goals, alliances - that is to say, according to its own political criteria. Between 1936 and 1939, R EFERENCES however, what we have is a legal government with an institutional character Aguirre, liiaki (l 987) 'Nacionalismo vasco y relaciones transnacionales en el contexto de la and which, because of the historical situation, had to assume its frontera hispano-francesa: cuatro modelos hist6ricos' , in C. del Arena! (ed .), Las relaciones de vecindad (: Universidad del Pais Vasco), pp.73- IOL responsibility as a sort of 'acting state' and, therefore, exercised a shared Apalategi, Jokin (1977) Nationalisme et question nationale au Pays Basque 1830- 1976 sovereignty with the Republican government. The Basque government was (Bayonne: Elkar). 182 PARADIPLOMACY IN ACTION BACKGROUND TO THE BASQUE PRESENCE ABROAD TODAY 183

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