On Tuesday (8 December) Spain formally unveiled its priorities for its six-month presidency of the European Union (EU), which it assumes from current holder Sweden on 1 January 2010. Spain's minister for European affairs, Diego Lopez Garrido, presented four main policy areas where his government will seek to make an impact during the six-month presidency. Largely unsurprising given the economic crisis across the Eurozone and EU over the past 18 months, Spain has made the economy and job creation its main priority. Also making the list is implementation of the Reform Treaty (Lisbon Treaty), which came into force on 1 December; reconnecting with citizens and brining EU institutions closer to their everyday lives; and working to establish and expand the scope of the bloc's foreign policy reach.

Job Creation and Strengthening the Economy

Spain has made the bloc's economic policy its first priority. As a result it is already making statements on the policies it is planning to pursue during its six-month stint. The primary focus so far has been on plans to push through new rules to help member states tackle the economic crisis, with Garrido stating that the priority will be working "to obtain a recovery of the European economy". In order to accomplish this goal, Spain will be pushing for agreement on a new 10-year economic agenda for the bloc. The current Lisbon Agenda, which has come to be associated with missed objectives and a lack of member state ownership, is due to expire next year. Therefore, Spain will be under considerable pressure to push through a new agenda that is championed and followed by member states. In contrast to the Lisbon Agenda, in which compliance was based on the goodwill of national governments, Spain will be pushing for a more governance-based economic agenda. The new economic agenda is likely to tilt heavily in favour of promoting "green" technology and tailoring education and training to industry needs and promoting research. Spain is also likely to pursue the issue of financial supervision being enshrined in law during its presidency following an deal last week whereby EU finance minsters agreed on the creation of three new pan-European regulators to supervise banks, industries, and trading exchanges. The ministers also agreed on the creation of a fourth agency to supervise wider economic risks. Although these measures have been broadly agreed, the unenviable task of enshrining them in law and getting all 27 member states to ratify them will fall to Spain.

Implementation of the Reform Treaty

Spain's second priority is implementation of the Reform Treaty. Spain will have the difficult task of setting a precedent for the everyday impact of the newly implemented treaty. Although the treaty has created a president of the European Council and an EU foreign policy chief, the document is somewhat vague on the actual scope of these roles and the interaction between the holders of these positions and the well-established rotating presidency, which is responsible for the day-to-day running of the EU. As a result, Spain will be watched closely to see how it manages this interaction since its actions are likely to set a precedent for relations and help to better define the new positions.

"Citizenship" Coupled with an Ambitious Social Agenda

Somewhat vaguely, Garrido unveiled the third priority as "citizenship". The implication is that Spain will seek to bring the EU closer to its citizens. The core of this goal will be a push for a more ambitious social agenda. As a result, Spain will be pushing for an action plan to oversee the implementation of the Stockholm Programme on freedom, security, and justice, which is due to be adopted at the EU's two-day summit starting today. Garrido also brought the issue closer to home, stating that Spain will seek to oversee the adoption of a non-discrimination directive to combat violence against women. This goal is closely linked to Spain's domestic political scene, where strengthening criminal and legal provisions against violence against women is being championed by the socialist administration.

Strengthening and Expanding EU Foreign Affairs

The final distinct priority presented by Garrido is lifting the profile of the EU in the foreign affairs arena and making the bloc a "genuine global player". Spain will be looking to more clearly define the bloc's new instruments for foreign policy introduced by the Reform Treaty. The new foreign policy instruments include the newly created president of the European Council, who will have the authority to represent the bloc abroad, alongside the high representative for foreign affairs and security, and will represent the bloc in a similar capacity as national foreign affairs ministers. Finally, Spain will also be looking to expedite the formation of the European External Action Service (EEAS), a bloc-wide diplomatic service. Spain is looking to have the EEAS structure and organisation finalised by April, although that is contingent on an EU-wide agreement, which could be difficult to obtain given the reluctance of some nations to strengthen the bloc's foreign policy authority. This timeframe also contradicts statements made by the new high representative for foreign affairs, Baroness Catherine Ashton, who has said that she will present a proposal in the hope of securing approval from the European Council by the end of April. The EU's foreign policy is likely to be given a much higher profile in the first six months of 2010 given the sheer volume of bilateral summits expected during this time, including EU-U.S., EU-Russian, EU-Canadian, EU-Mediterranean, and the first ever EU-Moroccan gatherings.

Outlook and Implications

The legal and regulatory environment in the EU is shifting and Spain is being forced to take the bull by the horns in defining the new everyday reality of the bloc's functioning. Spain is looking to pursue an ambitious agenda during its six-month presidency, but uniform progress or focus on all the four areas cited is unlikely. The issue of establishing an economic agenda is pressing because of the expiry of the Lisbon Agenda and the recessions still being felt in some member states; as a result, progress can be expected in this area. However, the introduction of governance structures into the economic agenda is unlikely to be welcomed by all states, meaning that another agenda plagued by missed deadlines and a lack of ownership could be the best Spain can deliver. Furthermore, the plans to formalise the extensive financial regulation is also likely to cause tensions among some member states, meaning that negotiation and diplomacy are likely to feature highly during the Spanish presidency as it attempts to foster acceptance and understanding among all 27 member states. The second area that will undoubtedly be focused upon is establishing the EU's foreign policy gravitas; however this is something that is likely to take years to perfect, meaning that Spain will only be able to sow the seeds—and only to the extent that it can foster unanimity in institutions. The most interesting aspect of the Spanish presidency will be how the rotating presidency interacts with the EU's new president and high representative for foreign affairs and security.

Global Insight (Reino Unido)