On May 25, Spain convened representatives from European, Arab, and other countries in its capital, Madrid, to call for a ceasefire in Gaza and increased humanitarian aid. This meeting was dubbed the “Madrid+” Group Meeting. At the event, Spanish Foreign Minister José Manuel Albares stated that the international community should consider sanctions against Israel to force it to halt its military operations in Gaza.
Since the outbreak of the latest round of Israel-Palestine conflict, Spain has maintained a distinct and relatively tough diplomatic stance, leading to multiple diplomatic disputes with Israel. From the 1991 Madrid Conference on Middle East Peace to the 2025 “Madrid+” meeting, Spain has long harbored ambitions to play a role in the Middle East issue and serve as a mediator between Europe and the Arab world.
What national interests and political-diplomatic calculations underpin Spain’s position? What advantages does it have to realize these ambitions? And what practical obstacles does it face?
“Gaining Greater Moral Visibility”
According to Spain’s El Mundo newspaper, the “Madrid+” meeting was held at a time when the international community is increasing pressure on Israel. Chairing the meeting, Foreign Minister Albares emphasized that the gathering of 20 countries showed a shared principle: violence must not be accepted as the norm in Israel-Palestine relations. He reiterated that the “two-state solution” is the only viable path forward—there is no alternative. He added, “We are not targeting Israel, but the peace and security rights enjoyed by the Israeli people should be equally enjoyed by the Palestinian people.”
Some analysts point out that historically, Spain and Israel have not had particularly close ties. After World War II, Israel opposed Spain’s entry into the United Nations due to former Spanish dictator Franco’s connections with Nazi Germany, and the two countries did not establish official diplomatic relations until 1986. Since the outbreak of the latest Israel-Palestine conflict in October 2023, Spain has adopted a clear and firm pro-Palestinian stance, which has led to repeated diplomatic friction with Israel.
On May 25, El Mundo published an article outlining the situation. In November 2023, Sánchez was re-elected as Spain’s Prime Minister. Shortly after taking office, his first official visit abroad during this term was to Israel and Palestine. During this trip, he held a joint press conference with then-Belgian Prime Minister De Croo at the Rafah border crossing between Egypt and Gaza, where they criticized Israel’s attacks on civilians in Gaza—remarks that prompted strong condemnation from Israel.
In February 2024, the Spanish and Irish governments called on European Commission President Ursula von der Leyen to take strong action against Israel’s “possible human rights violations” in Gaza, including suspending trade with Israel. On May 28, 2024, Spain, along with Ireland and Norway, officially recognized the State of Palestine. Spain also pledged to halt arms trade with Israel.
“Supporting Palestine helps Spain gain greater moral visibility,” said Cui Hongjian, a professor at the Academy of Regional and Global Governance at Beijing Foreign Studies University. He noted that EU member states initially held divergent positions on the Israel-Palestine issue. While most leaned toward supporting Palestine, some backed Israel. Recently, however, pro-Palestinian sentiment has been growing across Europe, and even the EU has begun discussing potential sanctions against Israel—signaling a shift in the internal European stance. Spain’s actions reflect its awareness of this change.
On one hand, there is an unspoken understanding within Europe to share responsibilities, especially on Mediterranean and Middle Eastern issues. Spain sees itself as having a duty to contribute to the EU’s southern diplomatic and security efforts. On the other hand, Spain also hopes to use this opportunity to solidify the emerging pro-Palestinian trend within the EU and thereby expand its own influence in the European diplomatic arena.
From a pragmatic perspective, Cui analyzed that turmoil and deadlock in the Middle East harm Spain’s surrounding security and energy security. Spain’s position on the Israel-Palestine issue aligns with its national interests. It has economic and energy partnerships with several Middle Eastern countries, including Algeria. If the region becomes unstable, these collaborations are at risk. Additionally, conflict in the Middle East could trigger a large wave of refugees, and due to its geography, Spain already faces significant pressure regarding migration and asylum. Therefore, reducing war and chaos in the region serves Spain’s practical interests.
Moreover, El Mundo pointed out that Spain’s recent actions on the Israel-Palestine issue are partly driven by the left-wing leadership under Sánchez, who seeks to boost his political profile and use the Palestinian cause to raise Spain’s diplomatic standing on the international stage. The article noted that as right-wing and far-right forces gain momentum in Europe, Sánchez has found in the Israel-Palestine issue a chance to “enhance and consolidate Spain’s international image.” For instance, at the European Political Community summit on May 16, while the leaders of Germany, the UK, France, and Poland were meeting with Ukrainian President Zelensky and speaking with U.S. President Trump, Sánchez was instead hosting a meeting with leaders from Iceland, Malta, Norway, Slovenia, and Luxembourg to jointly oppose Israel’s blockade of Gaza. Recently, Sánchez also became the first European leader invited to attend the Arab League Summit.
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“A Deep Understanding of How to Address Challenges in the Middle East”
Several Spanish media outlets have noted that Spain’s ambition to serve as a bridge between Europe and the Arab world has deep roots—and it does indeed possess certain advantages in this regard.
In September 2004, then-Prime Minister José Luis Rodríguez Zapatero launched the “Alliance of Civilizations” initiative at the UN General Assembly, aiming to fill policy gaps in the UN and promote dialogue between the West and the Arab world. Zapatero is often seen in European media as the political mentor of Sánchez.
Spain’s favorable conditions include, first and foremost, its deep historical and cultural ties with the Arab world. Beginning in 711 AD, the Iberian Peninsula experienced a long period of Muslim rule, known as Al-Andalus. For nearly eight centuries, Arab culture brought agricultural technology, scientific and botanical knowledge, and fostered the growth of poetry and culture in Spain—especially in the southern region now known as Andalusia.
This cultural legacy continues to resonate today. According to a Global Times correspondent based in Spain, Spanish embassies in Middle Eastern countries actively pursue cultural diplomacy. The Cervantes Institutes established across the Middle East, along with initiatives by organizations such as Casa Árabe and the Mediterranean House, have all helped foster mutual understanding.
Second, Spain has long maintained good relations with Middle Eastern countries, particularly forming strategic partnerships with Qatar and the UAE. It has also consistently supported the EU’s presence in the region. Since the 1991 Madrid Peace Conference, Spain has actively participated in efforts to resolve Middle East conflicts, consistently backing the “two-state solution” both within the EU and on a bilateral level.
Javier Colomina, NATO Deputy Assistant Secretary General and Special Representative for the South Caucasus and Central Asia, said in an interview with Spanish political and economic website Agenda Pública that Spain has long played the role of mediator in the Middle East peace process because it “has a deeper understanding of the region’s challenges and how to address them.” He noted that Spain’s extensive diplomatic network in the Middle East makes it relatively easier for experienced Spanish diplomats to operate there.
In recent years, Spain’s economic ties with Middle Eastern nations have also grown stronger. Spanish companies have signed numerous commercial agreements and launched major projects in the region—such as the high-speed rail connecting Medina, Jeddah, and Mecca in Saudi Arabia.
As early as 2023, the Elcano Royal Institute, a Spanish think tank, analyzed that Spain, situated as a geographic bridge between Europe, the Americas, and Africa, maintains cultural and economic ties with much of the Global South—especially Latin America and to a lesser extent Africa—and enjoys a relatively positive image in regions like the Middle East and Asia. In an increasingly competitive and uncertain international environment, Spain aspires to become a “pioneer” among European countries in engaging the Global South.
The report also pointed out that Spain’s economic dependence on Europe, and both Spain’s and Europe’s reliance on the United States, highlights the importance of Spain formulating its own foreign policy within the European framework and building stronger ties with Global South nations.
“Spain Cannot Act Alone—It Must Move Forward With Europe”
Cui Hongjian emphasized that whether Spain can follow through on its diplomatic ambitions will depend not only on the platforms it builds within Europe, but also on how well it coordinates diplomatically with Middle Eastern countries and other stakeholders. The region is shaped by several key forces: first, the Gulf states, led by Saudi Arabia; second, Israel—despite Spain’s pro-Palestinian stance, solving the conflict without engaging Israel is unlikely; and third, Iran—how much influence Spain can exert there remains uncertain. If the EU can act collectively and Spain gains backing from France and Italy, its diplomatic efforts may be more effective. This would give Spain a stronger voice within the EU and improve the prospects for its foreign policy goals.
“Demonstrating political will is one thing—implementation is another. Spain cannot act unilaterally; it must move forward hand-in-hand with Europe,” a Spanish government official told El Mundo. Although Spain’s parliament voted last week to begin reviewing a proposal to impose an arms embargo on Israel—and Foreign Minister Albares has repeatedly urged partners to do the same—implementation still faces major obstacles.
According to 20 Minutos, sources revealed that parts of the proposed law may conflict with European legal standards, which could pose numerous technical hurdles during implementation, making it difficult for Spain to act on its own. Furthermore, since arms trade often hinges on business decisions by private companies, expectations for smooth enforcement of the bill are tempered.
Adding to the complexity, Spain’s Ministry of Defense said it would be “almost impossible” to impose a full embargo on Israeli weapons and related defense technologies—especially those involving cutting-edge systems and software. Defense Minister Margarita Robles cited the example of a helmet light used for night operations by soldiers, which can only be sourced from an Israeli company. Some companies headquartered and producing in Spain also hold contracts that involve Israeli cooperation. For instance, Spain has a contract to purchase rocket launchers that are developed and manufactured domestically, but their supply chain includes a key component from Israel’s Elbit Systems—which, at present, cannot be substituted.
As for what sanctions the EU might realistically impose on Israel next, Cui Hongjian suggested that based on past precedent, the first step would likely involve suspending certain cooperative projects, including those related to trade and economic ties. The EU might also restrict personnel exchanges with Israel. These are considered “soft” measures, but ones that could still have tangible impact—and are among the most feasible actions the EU might adopt in the near term.
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