La Moncloa and the Moroccan Sahara: a diplomatic strategy of silence (2)
- The declaration in diplomatic communication
- The declaration as a performative act
- The Sahara in Spain's speeches at the UN
- The Sahara is Moroccan... Silence, we are managing it
- Patience and confidence
This process seems to be part of a measured and prudent diplomatic strategy which, while revealing internal contradictions within Pedro Sánchez's government coalition, also raises questions about Madrid's approach to translating the commitments made in the 2022 joint declaration into concrete actions, particularly with regard to Spain's explicit support for the autonomy plan proposed by Morocco.
In order to devote this second part to verifying the extent to which this solemn support for the Moroccan initiative, as formulated in the 2022 joint declaration, has been publicly implemented by Spanish diplomacy within international bodies, it is first necessary to clarify the specific meaning of the notion of ‘declaration’ in diplomatic communication, which will allow us to better understand the diplomatic challenge and the communicational scope of the joint declaration adopted in April 2022 at the end of the discussions between King Mohammed VI and President Pedro Sánchez.
The declaration in diplomatic communication
A declaration in diplomatic communication is a formal and official tool used by states, international organisations or diplomatic representatives to express a position, an intention or a reaction to an event. Its main function is to serve as a clear and public vehicle for conveying diplomatic messages. It is an essential form of discourse in diplomatic practice, functioning both as a performative act of language and as a strategic tool for communication and influence. Far from being a simple transmission of information, the declaration seeks to produce concrete effects on the international stage, fulfilling several key functions.
Often, a diplomatic statement seeks to express a state's official position on a given fact, situation or event (denouncing a situation, expressing support, affirming or reaffirming a position). Sometimes it constitutes a diplomatic signal insofar as it consists of transmitting to other international actors, such as allies, adversaries or the international community, a carefully calibrated and well-calculated message, both in terms of timing and content. Influence and legitimisation could be the main challenge of a diplomatic statement when it seeks to shape perceptions and attempts to legitimise the diplomatic actions carried out by the issuing State.
Declarations can take different forms, notably unilateral when they emanate from a single State, or joint when they come from two or more States, expressing an alignment of positions or an alliance on a given issue. Joint declarations solemnly translate a diplomatic interaction that formalises a bilateral agreement on shared principles or orientations, without necessarily constituting a strict legal commitment. However, the written and impersonal form gives the joint declaration a high degree of formality in diplomatic practice. It should also be remembered that a declaration, as an act of language, does not merely describe the situation, but acts upon it, creating obligations that are, if not legally binding, at least ethical, especially if it emanates from an authorised authority, is formulated in clear and precise terms, and is subject to strict rules regarding form, terminology and protocol.
The joint declaration established in Rabat in 2022, as an ambitious and lasting roadmap for revitalising bilateral relations between the two neighbouring kingdoms, emphasises that ‘Spain recognises the importance of the Sahara issue for Morocco and considers the Moroccan autonomy initiative to be the most serious, realistic and credible basis for resolving the dispute’. This text thus formalises a key diplomatic position, while remaining within the framework of international law and the UN process, combining recognition of the Moroccan initiative and a commitment to a mutually acceptable solution within the framework of the United Nations. This diplomatic articulation seeks to reconcile bilateral strategic interests while responding to the demands of the international community, thus defining a framework for action and a guideline for the future conduct of Spanish diplomacy in this sensitive dossier.
The declaration as a performative act
It is entirely legitimate to consider that the value of a diplomatic declaration lies essentially in its concrete and effective implementation, as this is what gives it functional and tangible meaning. However, this assessment is not absolute; a joint declaration can retain significant value as a signalling tool, a deterrent or a normative framework, even if it is not fully implemented. Everything depends on the geopolitical context, the underlying intentions and the reactions of other actors.
Furthermore, it should be remembered in the same context that a joint declaration in diplomatic discourse is primarily a performative act rather than a simple declarative message. Although not necessarily binding like an agreement or a pact, a joint declaration aims to commit states at the political and diplomatic level by expressing common intentions or principles that have an effect in the world simply by virtue of their enunciation.
When Spain, in the joint declaration that serves as a new roadmap, ‘recognises the importance of the Sahara issue for Morocco, as well as Morocco's serious and credible efforts within the framework of the United Nations to find a mutually acceptable solution’ and when, in this regard, Spain "considers the Moroccan autonomy initiative, presented in 2007, as the most serious, realistic and credible basis for the resolution of this dispute", it must be understood that this is not a simple declarative act that merely recognises or acknowledges a pre-existing situation, but rather a performative act that carries out an action by the simple fact of the declaration (in the sense of recognition and commitment).
The joint declaration as a discursive mechanism in diplomatic practice, although it may not create strict legal obligations, expresses a common will that has a pragmatic effect on bilateral relations and can politically commit the parties. Consequently, the 2022 joint declaration between Morocco and Spain constitutes a diplomatic performative act, which implies a moral and political commitment, even if it does not automatically create binding legal obligations as a treaty or pact would, This is because, in diplomacy, joint declarations invoke multiple acts of language and are manifested through the carefully chosen use of terms and expressions that are not only informative but also performative, i.e., they produce effects in diplomatic communication. These acts of language make it possible not only to formalise common positions but also to express intentions, commitments, support or calls for specific actions.
It is in this perspective that the joint declaration at the end of the in-depth discussions between His Majesty King Mohammed VI and Spanish Prime Minister Pedro Sánchez constitutes a performative act, which uses acts of language to construct a shared diplomatic reality between the two States, but also to express a willingness to act through language which, based essentially on trust, credibility and good faith, commits the parties concerned at least morally and politically.
To what extent have the commitments and performative acts contained in this joint statement, consisting of recognising the importance of the Sahara issue for Morocco and considering the Moroccan autonomy initiative as the most serious, realistic and credible basis for the resolution of this dispute, been effectively implemented and put into practice at the level of Spain's diplomatic action?
With the aim of verifying whether the commitments made by Spain regarding the Sahara issue and the Moroccan autonomy initiative have been translated into concrete actions in its diplomacy, this modest contribution does not seek to propose an exhaustive methodological evaluation of the diplomatic action carried out by the Spanish government over the last three years. Rather, it will briefly recall the positions expressed by President Pedro Sánchez during the United Nations General Assemblies in this post-2022 period, without seeking to measure the efficiency, relevance or overall impact of his interventions at the level of other international bodies.
The Sahara in Spain's speeches at the UN
During his speech at the 77th session of the United Nations General Assembly on 22 September 2022, five months after the adoption of the joint declaration in Rabat, President Pedro Sánchez referred to the Sahara issue as a priority of Spanish foreign policy in the following terms:
"We cannot drag on conflicts from the last century. And therefore, with regard to an area that is very important to Spain, namely Western Sahara, Spain supports a mutually acceptable political solution, within the framework of the United Nations Charter and the resolutions of the United Nations Security Council. In this regard, I believe that the work of the Personal Envoy of the United Nations Secretary-General is fundamental, and I would like to say that he has the full support of the Spanish Government."
Thus, the presidential speech, marked by a desire for diplomatic prudence, avoided publicly confirming the strategic shift in favour of the Moroccan autonomy initiative. The same notable absence of any explicit reference to the official Spanish position, confirmed in the joint statement in Rabat, would mark the presidential speeches during subsequent sessions.
When he raised the issue of the Sahara in his speech at the 78th session of the United Nations General Assembly (20 September 2023), the Spanish Prime Minister adopted the same reserved and cautious tone, while expressing particular interest in the situation of the population held in the Tindouf camps:
"With regard to Western Sahara, Spain favours a mutually acceptable political solution, within the framework of the United Nations Charter and Security Council resolutions. The work of the Special Envoy of the United Nations Secretary-General is fundamental and has the full support of the Spanish Government. Similarly, we will continue to support the Sahrawi population in the camps, as we have always done, maintaining our status as the main international donor of humanitarian aid in this context."
The same prudent and measured diplomatic line will be maintained during the 79th session of the United Nations General Assembly on 25 September 2024, when President Pedro Sánchez reaffirms that:
‘The work of peace missions is instrumental at this time and also in many other scenarios, such as Western Sahara, where my country, Spain, will continue to support the personal envoy of the United Nations Secretary-General to reach a mutually acceptable solution within the framework of the United Nations.’
Since announcing his support for the plan for autonomy under Moroccan sovereignty in 2022, Pedro Sánchez has never referred to Spain's new position on this issue in his speeches to the United Nations General Assembly. This is a matter of diplomatic prudence that reflects an almost traditional continuity in Spanish foreign policy, inherited from previous governments, which has always favoured an overly measured, even excessively calculated, approach to the Sahara issue, although this is strategically counterproductive.
This wait-and-see position is justified in certain political and media circles in Spain by the desire to avoid taking too strong a stance so as not to compromise the supposed regional diplomatic balance, notably between Morocco and Algeria. The only time this continuity has been partially broken was when President Pedro Sánchez omitted the usual reference to self-determination in his speech at the United Nations in 2019, thus marking a slight rectification of the traditional Spanish position. This presidential speech could thus be seen as a useful historical milestone for understanding the evolution of Spanish diplomacy with regard to the Sahara conflict.
During his first speech at the UN as head of government (September 2018), Pedro Sánchez had explicitly evoked the ‘self-determination of the Sahrawi people’ to resolve the conflict, in line with the traditional Spanish position on the matter. Newly appointed head of government on 1 June 2018, following a motion of no confidence against his predecessor Mariano Rajoy, leader of the Popular Party, the socialist leader travelled to New York two months later to represent Spain at the 73rd session of the General Assembly. It was the first – and last – time that Pedro Sánchez evoked the principle of self-determination at the UN. He expressed himself in these terms:
‘Spain, as you know, defends the centrality of the United Nations and wishes to contribute to the efforts of the Secretary-General and his Special Envoy to achieve a political, just, lasting and mutually acceptable solution that provides for the self-determination of the people of Western Sahara within the framework of provisions in accordance with the principles and purposes of the Charter of the United Nations.’
The speech delivered a year later by Pedro Sánchez at the United Nations General Assembly on 24 September 2019 marked a significant evolution in Spanish diplomatic discourse on the Sahara issue. This omission concerning the right to self-determination seriously disappointed Algeria and the Polisario, who saw it as a departure from Spain's historical neutrality. Although it has abstracted the principle of self-determination in its official discourse at the UN, since 2019, Spain has structured its discourse essentially around the centrality of the United Nations and a mutually acceptable political solution.
The Sahara is Moroccan... Silence, we are managing it
How, then, can we explain this recurring insistence in Spain's diplomatic discourse at the multilateral level, which emphasises a ‘mutually acceptable political solution’ without explicitly reiterating support for the Moroccan autonomy initiative? This cautious approach is all the more striking when compared to the more direct and assertive statements made at the bilateral level. How, then, can we understand this difference in tone and content between multilateral and bilateral diplomacy?
Indeed, in the bilateral context, it should be remembered that during his working visit to Morocco in February 2024, the Spanish Prime Minister reiterated to His Majesty the King Spain's position, contained in the joint declaration of April 2022, considering the Moroccan autonomy initiative as the most serious, realistic and credible basis for the resolution of this dispute. On this occasion, His Majesty the King wished to thank Spain for this new constructive and important position. In the same vein, Spanish Foreign Minister José Manuel Albares has repeatedly reiterated Spain's support for the Moroccan autonomy plan at every meeting with his Moroccan counterpart, Nasser Bourita, demonstrating Madrid's sincere commitment to the Moroccan proposal, which has been publicly reaffirmed on several occasions during their bilateral meetings. Thus, the diplomatic strategy adopted by Pedro Sánchez's government since 2022 appears to be particularly paradoxical. The Moncloa Palace, which recognises the importance of the Sahara issue for Morocco and considers the Moroccan autonomy initiative to be the most serious, realistic and credible basis for resolving this dispute, has chosen to navigate a position of measured silence at the multilateral level, avoiding any categorical public statements or new positions before international bodies, notably the United Nations. However, at the same time, at the bilateral level and before their Moroccan counterparts, Spanish officials clearly affirm their country's support for the Moroccan proposal for autonomy for the Sahara, thus translating an effective political commitment to Rabat.
This double discourse reveals a deliberate desire to reconcile several sensibilities: on the one hand, maintaining a certain public reserve before the international community, and on the other, preserving and strengthening crucial bilateral strategic relations with Morocco, a major partner in security, migration and economic issues. This is a diplomatic strategy in which silence is not simply an absence of words, but a thoughtful choice. Unlike the silence of those who say nothing because they have nothing to say, the diplomatic silence referred to here is an intentional and strategic decision, which serves to manage emotions, control communication, preserve room for manoeuvre, or simply avoid committing too much publicly on an issue as sensitive as the Moroccan Sahara.
Patience and confidence
Whether it is a means of stalling on an issue that divides Spanish public opinion while waiting for the situation to evolve, to avoid immediate controversy and unpredictable reactions, or to manage the issue through a visible withdrawal, while acting behind the scenes and preserving power, this deliberate choice seems to illustrate a pragmatic and calculated approach, where official silence, especially at the multilateral level, does not necessarily equate to unthinking diplomatic passivity, but rather to a form of discreet positioning, in which each word is weighed in terms of its context and political consequences.
It is a particularly prudent diplomatic communication strategy, which seems to pay sustained attention to the political risks associated with media coverage, notably negative reactions at the domestic level. It is a mode of political action based on restraint and calculated management of speech, apparently in order to dominate the political space and attempt not to reinforce the power of adverse discourse by refusing to give it too much visibility or media legitimacy. This is a course of action that ultimately seeks to combine governmental stability and diplomatic pragmatism in a national context, weighed down by the utmost caution.
Faced with this strategy of active silence adopted by Spanish diplomacy on the Moroccan Sahara, Moroccan diplomacy led by HM King Mohammed VI seems to be adopting a carefully calibrated strategic patience, based on a visionary approach that is both attentive to the current constraints of the Spanish government and open to the greater challenges of tomorrow.
Through this diplomatic approach of patience and trust, Moroccan diplomacy is demonstrating its ability to combine firmness in its strategic objectives with pragmatism aimed at establishing a lasting axis between Madrid and Rabat, in a complex and evolving geopolitical context. It is precisely in this context that His Majesty the King, in his speech on 31 October on the occasion of the adoption by the Security Council of Resolution 2797, wished to thank Spain, along with other friendly countries that have supported the Moroccan character of the Sahara.