Beyond the Spanish State

Beyond the Spanish State

Beyond the Spanish State Central Government, Domestic Actors and the EU Rachel Jones

Rachel Jones 2000 Softcover reprint of the hardcover 1st edition 2000 978-0-333-92125-8 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London W1P 0LP. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted her right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2000 by PALGRAVE Houndmills, Basingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N. Y. 10010 Companies and representatives throughout the world PALGRAVE is the new global academic imprint of St. Martin s Press LLC Scholarly and Reference Division and Palgrave Publishers Ltd (formerly Macmillan Press Ltd). ISBN 978-1-349-42473-3 DOI 10.1057/9780333981481 ISBN 978-0-333-98148-1 (ebook) This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Jones, Rachel, 1969 Beyond the Spanish state : central government, domestic actors and the EU / Rachel Jones. p. cm. Includes bibliographical references and index. 1. Spain Politics and government 1975 2. European Union Spain. I. Title. JN8210.J66 2000 337.4604 dc21 00 038234 10 9 8 7 6 5 4 3 2 1 09 08 07 06 05 04 03 02 01 00

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Contents List of Tables List of Figures Acknowledgements List of Abbreviations xi xii xiii xiv Introduction 1 Objectives 2 Key definitions 4 Case studies 5 Structure of the book 6 1 Approach to the Analysis 9 Spain and the EC/EU 9 The role of the central state 13 Beyond the central state? 18 Towards a framework for analysis: Spain and the EC/EU 19 Conclusions 23 2 Relations Between the Spanish Central State and Other Domestic Actors During the EC Accession Negotiations 24 EC application 25 Negotiations at interstate level 27 Relations between the central state and other domestic actors 32 Internal consensus in favour of EC entry 39 Internal opposition to EC entry terms 42 Conclusions 46 3 Changing Relations Between the Spanish Central State and Other Domestic Actors During EC/EU Membership 52 Institutional framework 52 Framework for EC/EU policy-making 62 Conclusions 79

viii Contents 4 The Role of the Spanish Central State in the Negotiation of Cohesion Policy 85 Development of cohesion policy at EC level 85 Development of regional policy at domestic level 86 Role of the Spanish government in interstate negotiations 88 Interaction between the domestic and EU arenas 95 Conclusions 99 5 The Input of Other Domestic Actors to Cohesion Policy 102 Reform of the structural funds 103 Institutional framework 105 Regional participation from 1986 to 1988 110 Development of regional participation since 1988 112 Comparison of the 1989 93 and 1994 9 funding cycles 116 The case of Andalusia 118 Regional participation in the Cohesion Fund 120 Access of socio-economic actors to the policy process 124 Conclusions 127 6 The Role of the Spanish Central State in the Negotiation of the EU Morocco Fisheries Agreement 133 Development of fisheries at EC/EU level 134 Role of the Spanish government in interstate negotiations 141 Interaction between the domestic and EU arenas 151 Conclusions 153 7 The Input of Other Domestic Actors to the Fisheries Agreement 155 Institutional framework 156 Opportunities for participation of key regional and sectoral actors 162 Input of key regional and sectoral actors to the 1995 negotiations 164 Reactions to the agreement and implementation 170 Conclusions 171

Contents ix 8 Conclusions: Beyond the Spanish State? 177 Evaluation of key findings 178 Changing opportunity structures 183 Concluding remarks 189 Appendix: A Study of Barbate 191 Notes 194 Bibliography 202 Index 222

List of Tables 1.1 Sets of conditions expected to influence the domestic opportunity structure 20 1.2 Sets of conditions during Spain s EC accession negotiations expected to encourage a closed domestic opportunity structure 21 1.3 Changed sets of conditions during Spain s EC/EU membership expected to open the domestic opportunity structure 22 xi

List of Figures 3.1 Structure of a typical ministry in Spain 55 3.2 Official structure for EU policy-making in Spain 65 3.3 Development of the structure for EU policy-making in Spain 78 5.1 Structure of Directorate-General XVI (Cohesion and Regional Policies), European Commission 106 5.2 Organization of structural funding at central level 109 5.3 Organization of structural funding at regional level 111 6.1 Structure of Directorate-General XIV (Fisheries), European Commission, during the 1995 negotiations 138 6.2 Organization of fisheries at central level 141 7.1 Organization of fisheries at regional level 158 xii

Acknowledgements I am particularly grateful to Mike Smith for his constructive comment, and Linda Hantrais for her constant help and guidance, during the thesis on which this book is based. Others have helpfully commented on draft chapters, in particular Nacho Molina, Ian Bache and Uli Sedelmeier. A European Commission research fellowship in 1996 allowed me to carry out fieldwork in Spain which was facilitated by staff and officials at a number of institutions, libraries and government ministries, including Charles Powell, Martha Peach and Paz Fernández. Thanks are also due to my interviewees in Madrid, Seville, Brussels and the village of Barbate; among them, I am especially grateful to Luis Atienza, Ramón Rivera, Carmen Marfil, Luis Ortúzar and Miguel Ángel García. Many others have been supportive throughout. Special mention should go to Graeme Cameron, and the help of Diana Wallace and Huw Owen in the final stages was invaluable. Finally, for unwavering support and encouragement at every step of the way, I am for ever indebted to my parents. xiii

List of Abbreviations AEB ARPEBAR ASEMAR BOE CAP CCAA CCOO CEA CEOE CEPYME CFP CiU CNAG COAG CSF DG EAGGF EC ECU EFTA EMU ERDF ESF ETUC Asociación Española de Banca Privada (Spanish Banking Association) Asociación de Armadores de Buques de Pesca de Barbate (Association of Shipowners of Barbate) Asociación Profesional de Empresas Armadores de Buques de Pesca de Cádiz (Professional Association of Shipowners Firms of Cadiz) Boletín Oficial del Estado (Official State Gazette) Common Agricultural Policy Comunidades Autónomas (Autonomous Communities) Comisiones Obreras (Workers Commissions) Confederación de Empresarios de Andalucía (Confederation of Andalusia Business Organizations) Confederación Española de Organizaciones Empresariales (Spanish Confederation of Employers Organizations) Confederación Española de Pequeñas y Medianas Empresas (Spanish Confederation of Small and Medium-sized Enterprises) Common Fisheries Policy Convergència i Unió (Catalan Nationalist Party) Confederación Nacional de Agricultores y Ganaderos (National Farming and Livestock Confederation) Coordinadora de Organizaciones de Agricultores y Ganaderos (Coordinated Farming and Livestock Organizations) Community Support Framework Directorate-General European Agricultural Guidance and Guarantee Fund European Community European Currency Unit European Free Trade Association European Monetary Union European Regional Development Fund European Social Fund European Confederation of Trade Unions xiv

List of Abbreviations xv EU FCI FETCOMAR FIFG GDP IFA IGC INI IU MEP MP NATO OP PM PNV PP PSOE RDP SEA SME SPD SPR SSEU UCD UGT UNICE VAT European Union Fondo de Compensación Interterritorial (Interterritorial Compensation Fund) Federación Estatal de Transportes, Comunicaciones y Mar (Federation of Transport, Communications and Fisheries) Financial Instrument for Fisheries Guidance Gross Domestic Product Instituto de Fomento de Andalucía (Development Agency for Andalusia) Intergovernmental Conference Instituto Nacional de Industria (National Institute of Industry/state holding company) Izquierda Unida (United Left) Member of the European Parliament Member of Parliament North Atlantic Treaty Organization Operational Programme Prime Minister Partido Nacionalista Vasco (Basque Nationalist Party) Partido Popular (Popular Party) Partido Socialista Obrero Español (Spanish Socialist Workers Party) Regional Development Plan Single European Act Small and Medium-sized Enterprises Single Programming Document Spanish Permanent Representation Secretariat of State for Foreign Policy and the EU Unión de Centro Democrático (Union of the Democratic Centre) Unión General de Trabajadores (General Workers Union) Union of Industrial and Employers Confederations of Europe Value Added Tax