No one can foresee the political developments in the UK that will determine whether it stays in the EU or leaves. Anthony Giddens assesses the factors in play.
A flurry of articles and books suggest that Britain is on course to go it alone and desert the European Union – Brexit. Yet matters are nowhere near as clear-cut. ‘Brexit’ is a clumsy neologism, and it leads me to coin an equally awkward one of my own – ‘Bremain’, in which the UK stays in the EU and even contributes positively towards its evolution.
No one can say which of these is the more likely, as the backdrop in the UK, the EU and indeed the wider world is too volatile. The UK is heading towards a May 7 general election that is the least predictable in recent history. Neither the Tories nor the Labour Party has the support of more than a third or so of voters, while the country is itself in the throes of an identity crisis. Last September’s Scottish referendum on independence was supposed to settle the question of separation ‘for a generation’, but has instead stirred greater nationalist passions. Members of the Scottish National Party (SNP) could be in the UK’s House of Commons in substantial numbers after May, and may even hold the balance of power. All this has resulted in the emergence of identity politics elsewhere, with regional devolution rising on the agenda along with renewed stirrings of English nationalism.
“The eurosceptics are very clear about what they oppose, but not what they want instead. They must be pressed in debate to make explicit what they are for and what kind of Britain they envisage”
If Labour come to be in government, it would almost certainly be in a coalition. The party has ruled out a referendum on EU membership unless treaty change is involved, and its likely main coalition partners – the SNP, the Liberal Democrats and the Greens – would doubtless endorse this. There is talk of a ‘progressive coalition’ between these parties, of which an important plank would be active support for EU membership. Labour’s backing for the European project has, in recent months, become much more open and positive.
It is equally possible that May’s election result is so inconclusive that any government formed will lack legitimacy and be short-lived. That might provoke even more rhetoric around Britain’s membership of the EU, but no in-out referendum could be introduced until after fresh elections. If the governability issue became unmanageable, there is an outside chance of a grand coalition between the Tories and Labour, such as in some continental countries. In that case, a referendum would be very unlikely.
There remains a possibility that the Tories are re-elected, probably needing support once again from one or more of the smaller parties. David Cameron would remain Prime Minister, but dependent perhaps on the support of the United Kingdom Independence Party (UKIP). That would mean great pressure for an early referendum. Yet UKIP’s own support is highly dependent on the appeal of its leader, Nigel Farage, so it is intrinsically fragile and might very well drain away come election time. It is just conceivable that in spite of all the political vagaries, the status quo is maintained with the Tories back in power in coalition with their current partners, the Liberal Democrats. In that case, an EU referendum would certainly become problematic as the Liberal Democrats are strongly pro-European.
“The eurosceptics have been far more assertive in putting their case forward than have supporters of Britain’s continued membership, and it’s a bias that has to be corrected”
Most discussions of Brexit start from the point in which the Tories are back in power, with a clear mandate for a referendum. Although this may very well happen, it is far from a foregone conclusion. But if it turns out to be the case, what is likely to ensue? David Cameron’s commitment to an EU referendum doesn’t seem in the least bit driven by conviction. It is, on the contrary, almost wholly pragmatic. He came to power in 2010 determined to stop the Tories from, as he put it, ‘banging on about Europe’. He was unsuccessful, in part because once the euro crisis took hold he found himself subject to increasing pressure from the eurosceptics in his party.
In January 2013, he was driven by the need to appease them, and in effect offered a deal embracing his Tory eurosceptics on the one hand, and his European partners on the other. To appease the former, he held out the prospect of a referendum by 2017 and, although vague on the details, coupled this to reforms in the EU. To try and get other European leaders on board, he promised to campaign for continued British membership, but in return demanded that they would accept at least part of his reform agenda.
“There is much talk in UK media and elsewhere of ‘whether we should stay in the EU’, but it’s not clear who ‘we’ is. Euroscepticism is more an English phenomenon than a British one, and varies regionally within England”
He succeeded in neither. Rather than gaining support from the rest of Europe, he took an assertive, bullying approach that had the opposite effect. Although he hedged his ‘deal’ with reservations and qualifications, it was still too pro-European for his party’s right-wingers, whose anti-EU agitation if anything increased.
For all these reasons, Cameron’s position shifted once again for political considerations rather than anything to do with principle. Driven by the increasing success of UKIP and coupled with growing disquiet among some sectors of the public, immigration rose sharply up the UK’s political agenda. So much so that it became almost the sole basis of Cameron’s attempts at renegotiation with EU partners.
That’s where matters now stand, with no clear resolution in sight. Other European leaders have made it clear that the principle of freedom of movement for EU citizens is inviolable. And there are unlikely to be any concessions that would demand treaty changes, so if there were to be a deal it would have to be limited in scope, and perhaps even confined to welfare benefits, not least because most aspects of welfare in fact remain in the hands of the member states. What David Cameron has not made clear, meanwhile, is whether in the event that he doesn’t get what he saw as a satisfactory offer he would actively campaign for leaving the EU.
“The outcome of a referendum would plainly be affected by events in the UK and beyond. Perhaps crucially, what happens in the rest of Europe could have a major impact”
Should there be a referendum, the outcome is as difficult to call as the results of May’s general election. Most observers see it depending mainly on the deal he and his fellow European heads of government might come up with. But I myself don’t think so. Matters are likely to be far more complex than that because of the diversity of the factors in play. Cameron is likely to remain caught between the devil and the deep blue sea. Whatever deal is reached it will not be enough to assuage the passions of Tory eurosceptics; he has to be seen to ‘talk tough’ to his European partners, yet progress with those partners depends on conciliation and dialogue.
There is much talk in UK media and elsewhere of ‘whether we should stay in the EU’, but it’s not clear who ‘we’ is. Euroscepticism is more an English phenomenon than a British one, and varies regionally within England – it is not the majority view in London, where most surveys place Britain’s relationship with the EU quite low down among voters’ concerns, even if a majority also believe that a referendum on membership would be desirable at some point.
The outcome of a referendum would plainly be affected by events in the UK and beyond. Perhaps crucially, what happens in the rest of Europe could have a major impact. The UK has returned to growth, even if its rewards are hardly being equally shared and no one can say whether it will last. Elsewhere in the EU, a few states are performing well, but overall the risk of stagnation looms large. Will the interventionist policies now being put in place bear fruit? A return to a healthier overall economic environment across Europe would almost certainly have a positive impact on an unfolding referendum debate in Britain, but the reverse also applies.
Referendums are, on the face of it, among the most effective forms of democratic decision-making. In some senses that’s true, yet experience from around the world also shows they are far from free of problems and uncertainties. The outcome of a referendum can be strongly influenced by transient events of the moment, while much depends on the precise wording of the question being asked.
The Scottish referendum result seemed all the closer because the question was ‘Should Scotland be an independent country?’ rather than ‘Should Scotland remain part of the UK?’ Those who favoured change somewhat perversely became the ‘Yes’ campaign, which normally carries an advantage because of its positive overtones. There was little debate in Scotland about the issue of wording, but that’s highly unlikely to be the case with an in-out EU referendum. There could be an almighty battle about the wording, and also about whether a minimum turnout should be set for the result to stand. It seems unlikely that turnout will get anywhere near the stratospheric 80%-plus in Scotland. There is also the question of who would get to vote; UKIP has said that only British citizens should take part.
I am myself a pro-European. I want Britain to remain in the EU and to play a positive part in shaping its future. That’s the outcome that is plainly in the interests of the Union as a whole. Britain may have long been among the more awkward so far as the rest of the EU is concerned, but if it were to leave that would greatly diminish the Union’s standing economically and geopolitically.
Let us suppose that there’s going to be an in-out referendum in the UK. How, in that case, should pro-Europeans seek to influence the debate? The implications of leaving the EU must be brought home to the public. Brexit would be a huge leap into the unknown, very different from the eurosceptics’ rosy portrayal of a nation set free. Britain would be out of the EU, but still within its orbit. Its destiny will remain irretrievably European, the same being true of Switzerland, Norway and Iceland. Most of Britain’s trade would continue to be with the EU, but not under conditions that it could directly influence. The notion that the UK could turn to the Commonwealth, or suddenly spread its trading net far and wide, is a whimsical fantasy. There are, after all, no real barriers to doing so at the moment, and it has not happened. Germany now has a proportionately higher level of trade with India than does Britain.
A Britain outside the EU would not magically regain its sovereignty, for the term is meaningless if it can’t be defined as a nation’s real control over its own affairs, not simply paper rights. In today’s increasingly interdependent world, Britain has more influence as a member of the EU than it would otherwise, even when in some cases it is acting alone. The United States would clearly start to bypass Britain if it were outside the EU, and so too would other major states around the world.
To prosper, the country would have to be almost the diametric opposite of the image portrayed by UKIP and its leader Nigel Farage – a nation turning back to the 1950s. It would have to be more outward-looking and cosmopolitan, and of course be more open to immigration. The possibility that it is Scottish and Welsh votes that might keep Britain in the EU if there is a referendum is very real. If, though, Britain as a whole voted to quit, the Scots would this time probably decide to break away and seek to join up with the European Union.
Eurosceptics make a great play of the “burden” of bureaucracy imposed by EU membership. Yet viewed dispassionately, membership almost certainly reduces rules and regulations rather than multiplying them. And from trade right across to security, a country outside the Union would have to negotiate separate deals with countries inside and outside Europe, as well as with Brussels. Switzerland and Norway are in precisely this situation, and whatever advantages they might get, freedom from bureaucratic entanglement is not one of them.
If it turns out there is a UK referendum, there’s a range of possible Brexit and Bremain scenarios. First, there’s the ‘sleepwalking scenario’. Either because it is a rushed affair, or because the public remains largely indifferent, Britain leaves the EU without most citizens having understood what is at stake. Then there is the ‘wide awake’ scenario in which after a full and informed debate with a high turnout, the country nevertheless exits the EU. Scenarios for remaining in the Union range from ‘somnolent acceptance’ in which the majority of voters remain largely disengaged, but nevertheless vote to stay in, to the ‘positive endorsement’ one that sees a full and informed public debate, a high turnout and a clear vote to stay in. The last is obviously the best-case Bremain scenario in which citizens are more fully informed than before and are persuaded of the positive benefits of EU membership.
Some of the more vocal eurosceptics might be happy with the sleepwalking scenario, but by any token it is contrary to the public interest. It could only be justified by minimising the level of risk and readjustment that Brexit would involve, and by ignoring acceptable democratic process. Pro-Europeans might be satisfied with the ‘somnolent acceptance’ scenario, but again that would hardly be in the country’s best interests. Should the ‘wide awake’ scenario unfold, pro-Europeans obviously could not contest it, even though – because of the Scotland factor – the country that leaves may no longer be the UK. The key question for those who want Britain to stay in the EU is, therefore, if and how something close to the ‘positive endorsement’ scenario can be achieved.
“There are a good many pro-European groups across the country. They should suspend their differences and get together to shape the membership debate”
Right now, nobody can say whether Britain will stay in the EU; there are too many contingencies in play. What pro-Europeans can and should do is start preparing now for a possible referendum. To do so, a lot of innovations are needed. There are a good many pro-European groups across the country, of various persuasions in terms of what they see as the best models for the future evolution of the EU. They should suspend their differences and get together to shape the membership debate. The eurosceptics have been far more assertive in putting their case forward than have supporters of Britain’s continued membership, and it’s a bias that has to be corrected. Also, many of Britain’s leading europhiles are ageing, so up and coming younger figures must be found who can command attention in the public debate – and as far as possible they should span the political spectrum.
The eurosceptics are very clear about what they oppose, but not what they want instead. They must be pressed in debate to make explicit what they are for, what kind of Britain they envisage and how the country would, on its own, resolve the cluster of problems it would face. Exactly the same applies to pro-Europeans, as the Bremain campaign would have to be about far more than just a vote to stay in. It would have to be coupled to positive ideas about reform of the EU and Britain’s contribution to shaping those reforms. The question of British exceptionalism would also have to be faced up to, since unlike almost all other EU states the UK is not even formally on track to join the eurozone.
In pre-referendum campaigns, the role of the BBC would be crucial in promoting a full and fair debate. It is likely to come under enormous pressure from all sides, and if a referendum were to be held early on in the life of the next government, it could coincide with the renewal of the BBC’s Charter, itself a highly contentious and partisan issue. Strong leadership would then be needed from within the broadcasting organisation to ensure its impartiality. Britain is unlikely to be polarised in the way Scotland was during its referendum struggle, but there are nevertheless quite fundamental differences of outlook in play. It would certainly be far removed from the muted, low-key affair of the 1975 referendum that confirmed Britain’s membership. If it takes place, it will play out against a backdrop of increasingly fractious divisions within the EU, and of the national and regional fractures that now mark the United Kingdom of Great Britain and Northern Ireland.
This article first appeared in the Spring 2015 issue of Europe’s World. Reposted per author’s permission.
Tackling migration crises: Fighting corruption may help
Twenty-three-year-old Mohamed Rasheed was at a loss after returning to Iraq from a grueling failed attempt to cross the Belarus-Polish border. “There’s no life for us here. There are no jobs; there is no future,” he told a Washington Post reporter.
Another man, who had just disembarked from a repatriation flight from the Belarus capital of Minsk to Erbil in Iraqi Kurdistan, frowned and obscured his face with a scarf, according to the reporter, as he responded to a question about why he had left.
“Those words cannot leave my mouth. Who dares to tell the truth here?” the man said.
The two men were returning to a country whose population has largely been excluded from sharing in the benefits of its oil wealth. Youth unemployment hovers at about 25 per cent. Public good and services are poor at best. Security forces and militias crackdown on and fire live ammunition at protesters demanding wholesale change.
Mohammed and his fellow returnee could have been from Lebanon, a middle-income country in which three-quarters of the population lives under the poverty line thanks to a corrupt elite unwilling to surrender vested interests irrespective of the cost to others.
In fact, they could have been from any number of countries in the Middle East, North Africa, and their African and Asian peripheries.
Almost half of the youth from non-Gulf countries in the Middle East and North Africa want nothing more than to leave in the absence of opportunities and prospects. They are exasperated with corrupt, self-serving elites.
This is a part of the world where devastating wars have wracked Syria, Yemen, and Libya. More recently, these countries were joined by Ethiopia while others in the Horn of Africa and the Sahel reel from jihadist violence that feeds on social and economic grievances.
To primarily hold responsible for the migrant crisis, human traffickers and cynical authoritarian leaders like Belarus President Alexander Lukashenko, who are willing to play power games and turn a profit on the back of innocent men, women, and children is swatting at symptoms of a problem that goes to the root of instability in the Middle East and North Africa.
To be sure, Mr. Lukashenko and the traffickers are part of the problem. Moreover, many Middle Easterners on the Belarus-Polish border appear to be economic, not political refugees with a legal right to asylum.
One could argue that the European Union’s refusal to take in the refugees on humanitarian grounds led to their repatriation to Iraq and Iraqi Kurdistan, which may have shortened their ordeal. Many risked being ultimately rejected, even if they had been granted entry to the EU because they were not political refugees.
The jury is out on whether the refusal will serve as a warning to the many in the Middle East and North Africa contemplating ways to get to Europe by hook or by crook.
All of this describes the immediate aspects of a dramatic crisis. The danger is that the focus on the immediate will obstruct badly needed thinking of ways to prevent or reduce the risk of future such crises and human suffering, aggravated by the willingness of governments to fight their battles on the backs of the least protected.
The framing of the crisis as a security rather than a political, economic, and social problem further takes away from the development of policies and tools to tackle the root causes of repeated migrant crises – economic mismanagement; political, economic, and financial corruption; nepotism; and loss of confidence in political systems and leadership.
“Addressing population challenges, the youth bulge, and refugee and migration pressure from natural or man-made crises will require measures to promote sustainable economic growth and enhanced educational and healthy capacities,” said George M. Feierstein, senior vice president of the Washington-based Middle East Institute and a former State Department official with multiple postings in the Middle East and North Africa.
Acknowledging that a broader US policy focus is likely to prove more challenging than one narrowly concentrated on security, Mr. Feierstein argued that the United States could “bring assets to the table that could potentially enhance its role in the region and strengthen its position as the preeminent outside power.” The former diplomat was referring to big power rivalry with China and Russia in the Middle East and North Africa.
Adopting Mr. Feierstein’s policy prescription would involve greater emphasis on regional approaches to global challenges, including climate change and public health; conflict management and resolution efforts to safeguard populations and minimize internal displacement and migration; and institutional capacity and resilience building; all backed by greater US private sector engagement.
Kyrgyzstan has potentially emerged in what could provide evidence that a de-emphasis of the security aspects of the migration crisis would not automatically surrender real estate and /or leverage and influence to China and Russia.
Part of a Central Asian world sandwiched between Russia and China on which the United States has seemingly turned its back with its withdrawal from Afghanistan in August, Kyrgyz President Sadyr Japarov is using his election pledges to fight corruption and offer financial rewards to whistleblowers to lure the US back.
Mr. Japarov’s proposition, designed to rescue Kyrgyzstan from the clutches of Russia and China, is the central theme of a document that he has sent to the US State Department. The document outlines proposals to revive a broad political, economic, and civic engagement with the US bolstered by anti-corruption measures and affirmation of democratic freedoms.
S. Frederick Starr, founding chairman of the Central Asia-Caucasus Institute, suggested that Mr. Japarov is providing a template for US reengagement with Central Asia and Afghanistan. In fact, the Kyrgyz president is offering a formula equally relevant to the Middle East and North Africa.
If adopted by the Biden administration, Kyrgyzstan “would become ‘The Mouse that Roared’ to cite the title of the droll 1959 British film. This time, however, the lesser power will have advanced its cause not by threatening military action…but with a sensible proposal by which a great power—the United States—…can once more become a serious presence in a major part of Asia that lies on China’s and Russia’s doorstep,” Mr. Starr said.
In contrast to Central Asia, the United States remains the dominant power in the Middle East and North Africa. But it’s a power seeking to redefine the role it wishes to play going forward in a region struggling to come to grips with an uncertain but changing US approach.
Kyrgyzstan could be showing the way for both United States and the Middle East. However, to make it work and reduce, if not stop, migration flows, the United States and its Western partners would have to prioritise confronting corrupt elites who will stop at nothing, including displacing populations, to preserve their illicitly gained privileges.
An election, another one, and yet another one: Will Bulgaria finally have a functioning government?
As of November, Bulgarian voters headed to the polls four times this year. Therefore, the news of a new election evokes little surprise — almost like in Israel before Netanyahu’s ousting. In both countries, the tension kept rising while expectations became more and more modest with each successive electoral round. However, the contests that took place on Sunday 14th were of the utmost importance for the country; and not only. In fact, Bulgaria is the EU’s and NATO’s south-eastern bulwark and hosts a tract of the South Stream gas duct. Moreover, Sofia is currently blockingthe next round of EU enlargement negotiations over North Macedonia’s disrespect of extant bilateral obligations. Finally, the Biden administration has manifested the US’s renewed interest in the Bulgaria’s internal politics and international orientations. Thus, the result of the vote has wider implication for the European and Euro-Atlantic political and geo-strategic stability.
Background — Two failed elections
April 2021: How the parties ‘hung’ the parliament
Last April, Bulgarians voted to renew the sitting parliament in the general elections. However, after a summer-long wave of protests against the Prime Minister and the Attorney General, established parties looked rather weak.
According to most experts, this new season of contestation has mobilised new voters, previously disenchanted about politics. As a result, the parties and the leaders who casted themselvesas supportive of the protests increased their votes. In particular, the neo-liberal coalition Democratic Bulgaria (DB) got the support of the well-educated and those residing in bigger cities. Meanwhile, the personal parties Stand Up! Bastards Out! (ISMV) and There is Such a People (ITN) fished across the board.
But they cannot persuadePM Boyko Borisov’s supporters that his removal from office is a precondition for societal improvement. Thus, despite the many corruption scandals involving Borisov’s cliques, all polls forecasted his party, GERB, would have won the election.
Or, to be more precise, GERB won the ballot count — but without a majority (see Figure 1). Moreover, the indignation did not spare the Bulgarian Socialist Party (BSP), which sometimes vents sympathies for GERB despite its corruption. In addition, the elderlies are overrepresented amongst the BSP’s voters, the party suffered from Covid’s increasing morbidity during the spring. Hence, the main traditional opposition party lost votes in favour of the abovementioned ‘protest parties’, weakening the wider anti-Borisov front.
Against this background, there was absolutely no chance of seeing a cabinet get through a vote of confidence. In fact, GERB won 75 seats and the DPS, an ethnic-Turkish party closely associated with GERB, got other 30. Meanwhile, the so-called “parties of the protest” had only 93 representatives on the 121 needed to form a government. True, the BSP managed to hold on to 43 seats — enough to make the protest parties’ eventual confidence motion pass. But DB and ITN refused to engage in serious negotiations with the socialists, forcing the parliament to disband.
The President scheduled new election in July.
July 2021: How politicians (did not) made it through another hung parliament
Most Bulgarian parties and their leaders failed to understand the real meaning of the election results in July. In fact, for the first timesince its appearance in 2009, GERB failed to win the most votes. In part, this could be explained arguing that a large share of GERB’s constituency does not vote ideologically. On the contrary, researchers hypothesise that support for Borisov’s party stems chiefly from the networks of clienteleshe has established. Thus, it was relatively uncomplicated for the President-appointed caretaker government to disincentivise practices such as vote buying and controlled voting. Either way, subsequent sociological analyses and available data show that GERB’s voters demobilised more than other parties’ supporters in July.
Conversely, the so-called ‘parties of the protest’ were the main beneficiary of the disengagement of GERB’s voters. True, most of the ITN’s, DB’s and ISMV’s voters were not ideologically committed to their party of choice either. Nevertheless, the results showed that protest voting can be powerful enough of a force to uproot an already-destabilised party system. In fact, all three parties increased their share of the vote and number of seats (see Figure 2). In addition, ITN’s votes increased in absolute terms by 92,000 units despite an eight-percent reduction in turnout.
After having seen the results, Borisov’s adversaries, especially President Radev, imagined the parties could agree on a new cabinet. In fact, GERB and the DPS lost 13 seats. Meanwhile, the so-called “parties of the protest” had as many as 112 representatives and the BSP was left with 36. Eventually, strong of its 65 deputies, ITN came up with the offer for DB, ISMV and the BPS. Essentially, ITN would form a minority “cabinet of experts” following an agenda agreed amongst the four parties. In other words, ITN came up with a confidence-and-supply arrangement which would have denied its partners any post. However, the populist reason which drives ITN’s strategy led to a massive failure although there was a draft government programme. Namely, according to several rumours, DB requested to rediscuss some of the cabinet members’ nomination as part of the agreement. Predictably, ITN’s preconceived denial to negotiate on the names caused DB’s rebuttalof the entire confidence-and-supply mechanism. Obviously, the BSP and ISMV opportunistically abandoned ITN’s wretched locomotive before the egregious failure of its government in pectore.
The President scheduled new election in November.
Yet another parliamentary… and finally a cabinet?
Considering the previous two votes’ result, it is unsurprising that few analysts tried to call the last electoral round. Indeed, much of this unpredictability stemmed from the decision of two President-appointed caretaker ministers to form a new party. Actually, the names of former finance minister Kirill Petkov and former economy minister Asen Vasilev were little known until May. However, the former’s intense public activity in the revealing the corrupt practicesof Borisov’s administration made him very popular. Moreover, Petkov’s rhetoric emphasises, unlike that of most other Bulgarian political leaders, dialogue, trust and teamwork— especially with Vasilev. Lastly, Petkov and Vasilev made a wit choice in calling their party We Continue the Change (PP). In fact, the name underlines continuity with the caretaker government’s activity and suggests a connection with its appointer, President Radev. After all, the President remains the most popular Bulgarian politician and PP benefitted from his informal blessing (Figure 3).
Overall, the results are surprisingto say the least (Figure 4). Although the turnout fell again to slightly less than 40% of eligible voters, PP achieved a convincing lead over GERB. At the same time, the entire political panorama changed dramatically virtually overnight. After a months-long decline, ISMV failed to clear the four-percent threshold to enter the parliament and risks disappearing. Evidently, the BSP continued its decline, ranking fourth – even after the DPS – and losing 54 seats on its pre-2021 level. Interestingly, PP seems to have syphoned offso many votes from the protest party par excellence, ITN, to shrink it to 25 seats. The same dynamic drove votes from PP to DB, whose leader admitted the two parties’ self-evident ideological affinity recently. Finally, a nationalist ‘protest’ formationmanged to elect 13 deputies, remedying nationalists’ failures in April and July: Văzrazhdane (‘National Revival’).
Looking at the mere numbers of seats in the parliament, one would reach a simple conclusion. And some already say that the Bulgarians will soon have to deal with a new cabinet, with Petkov as PM. However, the most refined analysts have noted that the parties may fail to form a government for the third time.
Conclusion — What to look for in the next weeks and months
The most fascinating aspects of Bulgaria’s current election cycle is not new to those who follow Israeli politics, for instance. In fact, as it happened in Tel Aviv after Netanyahu’s failure to form a government, many feel changes coming. However, in Sofia like in Tel Aviv, there are still many unknown quantities to deal with in politics’ general equation.
Obviously, the reference is most directly to Văzrazhdane — this absolute newcomer to parliamentary politics. First, the party has adopted rather ‘atypical’ stances on, amongst other topics, Bulgaria’s NATO and EU membership. Curiously, most of the party’s propaganda material is freely and easily accessible online through social networksand Văzrazhdane’s website. Besides the fact that the majority of its activists and candidates are open to have an online chat with anyone. Hence, it is reasonable to expect that at least part of Văzrazhdane’s 127,568 voters is well aware of its ideals. Nevertheless, it may not be able to coalesce with a strongly pro-EU, neo-liberal and verticalized party as PP without denaturing. Second, the party’s modest success may be more sustainable in the medium to long term than that of PP. Differently from PP, ITN, ISMV and otherBulgarian leader-driven political projects, Văzrazhdane has been growing up for year. In effect, a few sociologists and analysts were already singling out the party’s positive trajectory in July. Thus, its ideas may turn into a long-lasting destabilising factor for Bulgaria’s usually dull foreign policy in the coming years.
Furthermore, one can argue at length on what these results say on the state of Bulgaria’s liberal democracy. Sure, neither PP nor GERB are a serious threat to democracy as a procedural rule involving elections. However, both parties pose an unmistakable menace to the country’s already fledging liberal institutions. In fact, both Borisov and, in his short tenure to nowadays, Petkovhave shown little appreciation of parliamentarism. Moreover, Petkov embraces a brand of neoliberalismwhich implies a few carrots(e.g., raising pensions) and much more stick. In fact, he has only criticised entrepreneurs whom others have already associated with Borisov and promised not to raise taxes. In addition, he has an open feud with the Constitutional Courtover his dual citizenship — which invalidated his ministerial appointment. Finally, Petkov and his associated have approached the pandemicas a common-sense matterdespite the ongoing compression of citizens’ freedoms.
Therefore, the future remains unpredictable. Especially assuming that a Petkov cabinet would have the support of both the EU and the President. In fact, left unconstrained by Brussels in the name of stabilitocracy and supported by Radev to finish off his archenemy, Borisov, Petkov and his associated may end up rewriting the rules of Bulgarian politics in an elitist way. After all, they have already done it by violating all constitutional customs on caretaker governments’ self-restraint. Why not to try again?
Engaging Morocco: A Chess Game Spain Does Not Want to Lose
In a game of chess, each player knows the type of game they are playing and takes turns moving the pieces. In addition to the relative advantage of making an opening consistent with your objectives, you must anticipate your opponent’s moves and plan accordingly.
Morocco moved pieces on May 17 and 18, 2021, when it let in 8,000 immigrants in the city of Ceuta, a Spanish territory in Africa and external border of the European Union. It did so without warning, neglecting its functions as border guardian and allowing the entry of a mass of migrants amounting to 9.5% of Ceuta’s population.
This episode is of unprecedented character: it occurred in the context of a geopolitical change in the Maghreb, within an unparalleled worsening of Rabat-Madrid relations, and it was of an unmatched magnitude. The particularity of the event demands an assessment of the relations between both countries and of Spain’s strategy towards Morocco. Does Madrid know that it is playing chess with Rabat? Is it capable of reading the moves of Morocco in advance? Does it have an effective strategy?
This act takes place during a period of dramatic change in the Maghreb area. Namely, hostilities over Western Sahara broke out again in 2019. Further, Morocco’s relations with Algiers have drastically deteriorated, while its relations with Europe have become more strained following the CJEU rulings in 2021 and conflicts with France and Berlin. Washington has increased its support for Morocco, recognizing its sovereignty over Western Sahara and providing arms supplies and military cooperation. In parallel, Rabat is making a pivot to Africa, strengthening ties with the Sahel and extending its diplomatic contacts with Nigeria, Senegal and other West African countries. These changes enhance the importance of Morocco’s movements and highlight the relevance of its interactions with its only European neighbor: Spain.
Relations between Spain and Morocco have always been conflictive and prosperous in equal parts. In addition to the positive aspects of trade relations, economic complementarity and cooperation in the fight against terrorism, there are also problematic aspects: territorial claims over Spanish possessions in Africa, maritime delimitation issues and immigration. Morocco’s rejection of the principle of Uti possidetis juris, seeking to change the borders inherited from colonialism, has brought conflict to its relations with its neighbors. With Spain, this is evident in events such as the Ifni War (Morocco-Spain), the Green March, the Perejil crisis and the events in Ceuta in May of this year.
In the media, relations between the kingdoms of Spain and Morocco are shaped by conflicts, such as the Perejil Crisis in 2002 and 2010-2011 without a Moroccan ambassador to Madrid. These confrontations, usually involving Spanish territories in Africa or issues of great public sensitivity such as migration or the Western Sahara, are short-lived and normally quickly resolved. As a result, relations between Madrid and Rabat are cyclical in nature and form part of Spanish domestic politics. This conditions that the high points in their relations never last long and that Spain’s responses in discussing the Sahara, Ceuta and Melilla publicly are avoidant rather than assertive. Within this framework, the events in Ceuta 2021 can be understood as a new setback in the development of complex relations.
These conflicts contrast with Spain’s deeply intertwined economic interaction with Morocco. Sectors such as automobiles, textiles and agriculture form part of the same value chain. Morocco is Spain’s second largest non-EU partner while Spain has overtaken France as the main supplier to Morocco. This responds to the concept of the “cushion of interests” put forward by Spain in the 1990s. The core idea of this strategy is that increased economic interdependence will reduce political tensions. According to this theory, since Morocco’s economy is more dependent on Spain than Spain is on Morocco, Rabat would be constrained in its political movements. However, given the frequency of conflicts between the two kingdoms, this liberal approach is of doubtful effectiveness.
The combination of frequent misunderstandings and growing economic interaction is not the only paradox to be noted in the relations of the two kingdoms. On the political level, the synchronization between the countries’ royal houses (mainly between Juan Carlos I and Hassan II in the past but also between Mohamed VI and Felipe VI at present) stands in contrast to the six years without the annual high-level meetings required by the Treaty of Friendship between the two countries. Moreover, Prime Minister Sanchez has broken with the Spanish tradition of paying the first foreign trip to Morocco, in place since the 1980s.
In short, the problems between Madrid and Rabat are cyclical and greatly affect Spanish domestic politics. Neither the strength of the commercial interaction nor the closeness between their kings are enough to smooth relations between the two countries.
The axes of the relationship between Spain and Morocco
The complexity of the relationship between Spain and Morocco revolves around six axes: migration, terrorism, energy, Sahara, Ceuta and Melilla, and the European Union. Each axis generates a series of opportunities and vulnerabilities for Spain, and it is the confluence of these axes that determines the ups and downs between the two countries.
The first of these axes is migration. Due to its sustained omnipresence in the media, it is the one that most concerns Spanish domestic policy. Sub-Saharan and Moroccan immigrants arrive to Spain through two different routes: by sea (to the peninsula and the Canary Islands) and by land (through the Spanish cities in Africa of Ceuta and Melilla). Since 1992, Madrid has increased cooperation with Rabat in this area.
Currently, the border externalization system is present in the repatriation of immigrants, the joint maritime police patrols, the joint police stations, the raids against massive assaults on border fences, and the construction and control of the Nador fence in Morocco. These projects are financed by European funds, which Morocco would like to see increase. This collaboration is asymmetrical: Morocco has sole control of the border, and Spain depends on its goodwill. Rabat, aware of this, does not hesitate to instrumentalize the issue.
The second axis is anti-terrorism and security cooperation. Collaboration in this area originated with the terrorist attacks in Madrid on March 11, 2004. Cooperation now extends to police, judicial and intelligence cooperation. In addition, with the aim of controlling radicalization, Rabat appoints part of the imams in Spain. Here again, the asymmetry is in favor of Morocco. The Moroccan imams could position themselves in favor of the interests of their country of origin. Moreover, anti-terrorist cooperation is essential for Spain’s national security, and its potential loss would put Spain at risk.
The third axis is energy. The Spanish presence in this field is extensive, with participation in Morocco’s solar and wind power development and in its combined cycle power plants. In addition, Spain exports electricity to Morocco through two interconnections with the Iberian Peninsula, which accounts for 20% of the Moroccan demand. Spain used to be dependent on the Maghreb-Europe gas pipeline, which passed through Morocco. Its closure in November 2021 has reduced this dependence but has posed a problem to guaranteeing gas supplies to Spain. In this field, Spain has the upper hand: it has vetoed the Mediterranean Solar Plan in Morocco (to avoid competition with Spanish renewable production) and has rejected a 3rd electricity interconnection requested by Morocco.
The fourth axis is that of Western Sahara. This former Spanish colony is of visceral importance to Morocco. In the heart of its territorial claims, the conflict remains ongoing since it began in the 1970s, and Rabat lacks international support on its position. Moreover, it is a topical issue, around which Morocco has recently won American support, French and German rejection, and on which it has declared that it will not sign trade agreements that do not include Western Sahara.
Spain faces a dilemma since it must choose between its public opinion (sensitive to the Saharawi cause) and its trade relations with Morocco. As a result, it maintains a dual position. Officially, Spain supports a solution through the UN, sends humanitarian aid to the Saharawi refugee camps in Tindouf, recognizes the Polisario Front as representative of the Saharawi people and rejects Moroccan claims to Canary Islands waters on the grounds that Rabat has no sovereignty over Western Sahara.
Nevertheless, it applauds the autonomy project proposed in 2007 by Morocco (which does not envisage independence), rejected the US initiative to extend MINURSO’s mandate to human rights monitoring in 2013, and defends Morocco’s interests (and its own) before the judgments of the CJEU on trade agreements involving Western Sahara. The complexity of this axis, which forces Spain to walk in two directions at the same time, is a threat to any constructive relationship with Morocco.
The fifth axis is Morocco’s claims over the autonomous cities of Ceuta and Melilla and the Spanish islands off the Moroccan coast. Rabat’s endeavor to re-establish its “authentic” borders does not end in the Sahara, further extending into these Spanish territories, over which it has a permanent claim.
These territories have four problems.
- Economically, they are dependent on Moroccan trade and on Spanish subsidies,
- demographically, the growth of the population of Moroccan origin causes changes in the social structure that can be a source of conflict,
- international protection is relative, since the Spanish territories are not explicitly protected by NATO, and although they are part of the EU and the Schengen Area, they are not within the Customs Union,
- the islands do not appear in the Spanish Constitution nor in the Spanish territorial organization.
Taking advantage of these weaknesses, Morocco has used different strategies to strengthen its claims: economic blockades, vetoes against further integration into the EU, a rhetoric of colonialism, and comparisons to Gibraltar, and even the Perejil crisis in 2002, in which a small group from the Moroccan navy occupied one of the Spanish islands. This axis has a latent presence in the relations between both countries: although Madrid avoids its public mention, Rabat’s claims may end up in direct confrontation Spanish national interests.
Finally, the sixth and last axis is the European Union. Spain´s relationship with Morocco is based on the European Neighborhood Policy and on the Union for the Mediterranean. Besides, this relationship currently revolves around the provision of funds to Morocco for the externalization of borders, the agriculture and fisheries trade agreements, and the rulings of the CJEU on these, which since 2015 have complicated Brussels’ relations with Rabat. Indeed, Morocco has changed its attitude towards the EU since 2008, reducing its concessions, increasing its demands and adopting a more pragmatic discourse. In the framework of Madrid-Rabat relations, the EU has acted as an appeaser, reducing bilateral conflicts. However, Spain is limited within the multilateral structure, since it cannot impose its preferences and its power is confined to blocking initiatives (as it did with agricultural liberalization for example). Moreover, the judgments of the CJEU have poisoned the bilateral relations between Spain and Morocco.
What nowadays is cooperation in migration, security and energy, due to conflicts around the Sahara or Ceuta and Melilla may one day become an undesirable dependency. Too many issues related to Spanish national security are subject to Rabat’s goodwill. That is why the disagreements between the two countries cause so much commotion in Spain, even if they do not always revolve around each of the 6 axes described above.
Ceuta 2021 — Another crisis or a point of no return?
This article begins with the events of May 18, 2021, when Morocco loosened its border controls and allowed more than 8,000 undocumented migrants, mostly young Moroccans, to enter the city of Ceuta. The figure is unprecedented, around 10 times higher than what used to be received until then. It is worth asking whether this event is a simple downturn in the cyclical relations between Morocco and Spain, or whether it implies something different.
When the Ceuta crisis in 2021 is put into context, an extraordinary deterioration of relations between Morocco and Spain is observed, enhanced by unilateral actions by Rabat. In 2018, Morocco closed the commercial border with Melilla. In 2019, it toughened the fight against smuggling in Ceuta, hindering the border crossing and prohibited its officials from entering Ceuta or Melilla. To this day, this has subjected both cities to an unprecedented economic asphyxiation. In 2020, Morocco vetoed the entry of Moroccan fish into Ceuta and revived the dispute over the delimitation of maritime borders in Canary waters. In 2021, it installed a fish farm in Spanish waters near the Chafarinas Islands without permission. In recent years relations between the two countries have worsened gradually, camouflaged behind the Covid-19 pandemic and around issues of relative relevance, which only indirectly affect the 6 axes above mentioned.
In contrast, the Ceuta crisis is relevant in almost every aspect.
- Morocco is instrumentalizing immigration, leaving aside its obligations as border guardian.
- The Western Sahara conflict lingers in the background: the crisis was a form of protest by Rabat against the hospitalization in Spain of the Polisario Front leader Brahim Ghali, organized in an opaque manner by Madrid.
- Despite Rabat’s attempts to keep the crisis within the bilateral framework, it escalated to the European Union, where Spain received the support of the European Commission, the European Parliament (which issued a condemnation for violation of children’s rights against Morocco), and even of France.
- The crisis was followed by the reactivation of territorial claims over Ceuta and Melilla: The Moroccan Prime Minister compared the situation to Western Sahara.
Faced with the numerous and unusual vectors of this crisis, Spain must identify what objective Morocco is pursuing, and what its next steps will be. Rabat is obviously trying to capitalize on the momentum provided by the U.S. recognition of its sovereignty over the Sahara and its vigorous relations with some of its African neighbors.
Moreover, the deterioration of relations has coincided with a deterioration of Spanish domestic politics, while Morocco is taking advantage of independence, government instability, COVID-19, etc. Is Morocco pursuing a strategy against Spain? That is what the Spanish intelligence presumes, without knowing very well what strategy it is. In fact, the CNI considers the Ceuta crisis not to be an immigration problem, but an invasion that can be repeated again. Rabat could have taken the conflict into a gray zone, in which case it would be establishing the environment, waiting for opportunities.
The current situation is not part of the cyclical pattern that characterizes its relations with Morocco. Ceuta and Melilla are suffocating, Spanish intelligence fears losing anti-terrorist collaboration with Morocco, Rabat is in a strong position, and Madrid is unable to recognize what Morocco’s next step will be, limiting itself to trying to put an increasingly entrenched relationship back on track. The impetus with which Rabat is pushing for the recognition of its sovereignty over the Sahara, and its extrapolation of this to Ceuta and Melilla, suggests that the disagreements with Spain are not over.
In all this, Spain’s strategy towards Morocco is ineffective. The liberalism of the cushion of interests has failed. It was based on elements that were of national interest for Spain (migration, terrorism, etc.) but not for Morocco. The only sphere where Madrid has an advantageous position is energy: Spain exports electricity to Morocco, continues to refuse to establish a third electricity interconnection, and is receiving Moroccan requests for Spain to re-export Algerian gas. Moreover, Spain has learned that Morocco fears losing its reputation with the European Union and is trying to prevent the EU from getting involved in its bilateral relations. Thanks to the EU intervention, Morocco made a misstep during the Ceuta crisis this year.
However, everything suggests that Madrid is confident that the ups and downs will continue to prevail in its relations with Rabat and it accepts Mohamed VI’s invitation to inaugurate an unprecedented stage in the relations between the two countries. It is foreseeable, therefore, that Spain will keep Morocco as one of the two pilot countries of its Focus Africa 2023 plan, giving it and Senegal unparalleled attention in the development of constructive relations, and will export this experience to other African countries. In a game of chess, each player knows the type of game he is playing and takes turns moving the pieces. Spain knows that it is playing, but it has not realized that the game has changed, and that the chessboard is different. It has skipped several turns and, for too long now, its pieces have been sitting immobile.
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