Spain - Annual Foreign Action Strategy

List of Key Chapter Titles

1. Spain's Strategic Vision: A World in Transition and Three Systemic Shifts
2. 1. A Stronger Europe: Enhancing European Autonomy, Boosting Competitiveness, and Ensuring Economic Security
3. 2. A Spain Committed to Multilateralism: Upholding and Reforming the Multilateral System, Advocating for Development Cooperation, and Addressing the Climate Emergency
4. 3. A Spain for Peace and Security: Adapting to a World of Rising Conflict, Building Peace with Coherence, and Strengthening Democratic Resilience
5. Spain in the World: Strategic Environment and Regional Diplomatic Priorities
6. Pillars and Tools of Our External Action: Values as Assets, Comprehensive Policies, and a Future-Oriented Diplomatic Service
7. Appendix: Over 100 Specific Actions for 2025-2028

Document Introduction

This document is an official strategic paper issued by the Ministry of Foreign Affairs, European Union and Cooperation of the Government of the Kingdom of Spain. It systematically outlines the guiding principles, strategic priorities, and specific implementation pathways for Spain's external action during the period 2025-2028. Developed against the backdrop of profound global order restructuring and systemic challenges facing the international system, it aims to provide Spain with a distinctive and ambitious foreign policy framework to address intensifying geopolitical competition, economic fragmentation, and crises in democratic and societal resilience.

The report begins by diagnosing three core systemic shifts in the current international landscape: First, the international order is transitioning from a rules-based system to one driven by power dynamics, manifested in the decline of multilateralism, the erosion of international law, and increased conflict and impunity. Second, the global economic logic is shifting from the efficiency-first principle of the globalization era to a pursuit of resilience and risk mitigation, with economic security considerations increasingly embedded in decision-making, supply chain weaponization, and rising protectionism. Third, the societal psyche is moving from confidence in progress to widespread uncertainty, marked by increased social polarization, declining trust in democratic institutions, and external actors challenging democratic stability through information manipulation and hybrid threats.

Based on this diagnosis, the main body of the report is structured around three cross-cutting principles. The first part focuses on "A Stronger Europe," emphasizing the necessity of a European strategic awakening. Spain advocates for strengthening the EU's operational capacity and institutional effectiveness by substantially increasing the EU's long-term budget, advancing reforms for qualified majority voting, and supporting prudent enlargement. In the security domain, the report calls for enhancing European defense autonomy, including developing European defense technology and industrial bases, strengthening the EU's rapid deployment capabilities, and treating security as a European public good requiring joint financing. Economically, it aims to boost European competitiveness by deepening the single market, driving the green and digital transitions, and ensuring economic security.

The second part elaborates on "A Spain Committed to Multilateralism." The document reaffirms Spain's steadfast commitment to the United Nations-centered multilateral system, international law, and human rights. Specific actions include: active engagement during its 2025-2027 term on the UN Human Rights Council; implementing a feminist foreign policy to promote gender equality and women's rights; advocating for global ethical standards in technology governance and digital rights; addressing global challenges through development cooperation and humanitarian action, with a commitment to raising Official Development Assistance to 0.7% of Gross National Income by 2030. Simultaneously, Spain places the climate and biodiversity crises at the heart of its diplomatic action, promoting the goals of the Paris Agreement through green diplomacy and leading initiatives such as the International Drought Resilience Alliance.

The third part focuses on "A Spain for Peace and Security." The report acknowledges the end of the peace dividend era, arguing that Spain and Europe must assume greater responsibility for their own defense while contributing as security providers. Spain will continue active participation within NATO, the EU's Common Security and Defence Policy, and the UN framework, and will enhance international cooperation in arms control, non-proliferation, and counter-terrorism. Furthermore, the report emphasizes defending international law with coherence, combating impunity, and promoting conflict resolution through mediation and peacebuilding efforts. Facing internal challenges, Spain will focus on strengthening democratic resilience to counter disinformation, foreign interference, and social polarization threats.

The latter part of the report details Spain's strategic deployment across global regions, reflecting its dual geopolitical identity as a Euro-Atlantic and Mediterranean country. Key regions include: the European Union and its Eastern and Southern neighbors (with firm support for Ukraine); Latin America and the Caribbean (seen as an identity cornerstone and a priority economic partner); the Maghreb and the Middle East (committed to peace and stability, including advancing the two-state solution); Africa (aiming for a qualitative leap in relations through the "Spain-Africa Strategy 2025-2028"); Asia-Pacific (deepening economic and strategic engagement); and the Caucasus and Central Asia. Finally, the report examines the tools of Spain's external action, including its economic, cultural, and soft power assets, and pledges to modernize its diplomatic service to meet the challenges of the new era. The appendix lists over 100 specific actions planned for implementation between 2025 and 2028, translating the strategic vision into an actionable roadmap.