Autonomous Communities, Central Government and their external action

"The CIDOB Foundation and the Observatory on Spanish Foreign Policy (OPEX) of the Alternativas Foundation organised a seminar designed to propose formulas for improving coordination and corporation between Autonomous Communities and the Central Government. 

During the past two years, a number of new autonomy statutes have been approved (for the Community of Valencia, Catalonia, Andalusia, the Balearic Islands and Aragon), the articles of which make mention − for the first time − of international action by the respective communities. While this is the first time that this activity has been included in such legal texts, in fact, the amount of European and international activity carried out by Autonomous Communities has increased exponentially since the 1980s. However, this proliferation of external action by the Autonomous Communities has generated conflict and difficulties with respect to coordination with the external actions of the State. During the seminar, the lecturer César Colino, a researcher with OPEX, presented his work The International Action of Autonomous Communities and their Participation in Spanish Foreign Policy, which served as a springboard for a debate that brought together representatives of the State's central government, autonomous communities and university experts. At this working conference, it was proposed that syllabuses and mechanisms be introduced in order to guarantee that Spanish diplomats possess a better knowledge and greater sensitivity towards Spain's plural reality. The example was given of Canada where, after having been appointed, new diplomats have to live in provinces other than their own for six months, so as to become familiarised with their country’s diversity. The seminar's participants also discussed the creation of a Conference on External Action, which would include the participation of all the Autonomous Communities. 

At this first session, measures were proposed that were especially aimed at increasing trust and at regulating processes that were subject to uncertainty or even arbitrariness, with particular emphasis being placed on the need to reform the diplomatic service. The participants also analysed cooperation and coordination carried out abroad, with respect both to permanent bodies (embassies, delegations and autonomous offices overseas) and official trips and missions. Other ideas that came up in the debate included the creation of figures such as an ""autonomous minister"", the possibility of having autonomous civil servants and delegations in embassies, and participation at bilateral summits and State visits. The reformation of a number of legislative elements also came under discussion, including the creation of a new Treaties Law, as well as creating participation mechanisms that would allow Autonomous Communities to take part in the preparation and monitoring of international State negotiations. The participants agreed that the existing European policy model of CARCE (Conference on Issues Related with European Communities) showed limitations, and bilateral formulas were discussed that would recognise the difference between authorities, but which could generate conflicts between different Communities. 

Furthermore, the participants analysed the agreements signed by the Autonomous Communities, the information mechanisms and the need to increase their transparency. Some experts proposed that the information be published in the official bulletin of the signatory Autonomous Community, as a way of lending transparency to a sector that is currently opaque. The seminar did not only tackle problems with coordination, but also the possibilities offered by collaboration, beyond the fields in which it has currently been consolidated, such as cross-border cooperation and European policy. Other possible opportunities were discussed, including the Autonomous Communities' ability to influence on Spain’s behalf abroad; the policy of cooperation with development in which Autonomous Communities provide not only money, but also valuable administrative experience and the skills required for coordinating local actors; the policy of presence and influence in the Mediterranean, where the efforts of Mediterranean communities have already produced significant results; presence in governmental international organisations, as well as support for Spanish communities abroad, for which some Autonomous Communities have created valuable social and cultural support mechanisms. 

All these recommendations have been recorded in a joint document produced by the CIDOB Foundation and the Alternativas Foundation, and which was subsequently sent to leaders, experts and media of the State and Autonomous Communities. This conference is the first in a series of three which, over the course of the year, will analyse the relation between central administration and autonomous executives in foreign policy. The next sessions will be dedicated to European policy (Madrid, January 2008) and cooperation with development (Seville, June 2008)."