Autonomous decision-making

For Spain, strengthening ties with China is a coherent extension of a more balanced foreign policy that supports multilateralism

The fourth visit in four years of the Spanish Prime Minister Pedro Sanchez to China was not an isolated event. Rather, it was the expression of a foreign policy line that Spain has been consolidating within the European Union: an active defense of strategic autonomy in an increasingly polarized international context.

While some other European countries have hardened their stance toward China or aligned themselves more closely with the United States, Spain has opted for a more nuanced approach. This is a foreign policy that seeks to preserve its own margin of decision-making. In geopolitical terms, this means that Spain seeks to avoid being caught in the US’ logic of rigid blocs in the trade war it is waging against China.

This stance takes on particular relevance at a time when the US administration is pushing an international agenda marked by confrontation, unilateralism and a more transactional view of alliances. In response, Spain has maintained a critical position toward pressure tactics and the US’ militaristic adventurism, advocating the need to preserve spaces for cooperation and strengthen multilateralism.

In this context, the relationship with China is a key element. China is an essential player in trade, technology, the energy transition and global governance.

Sanchez’s commitment to strengthening relations with China is better understood in light of Spanish domestic politics. For years, broad sectors of Spanish society have been critical of the US’ military interventions and shown a clear preference for Spain to pursue an independent foreign policy, which is less subordinate to the US. This sentiment, rooted in episodes such as the opposition to the Iraq War, continues to influence public opinion and the government’s room for maneuver. In this context, the pragmatic approach to China responds not only to economic or strategic interests, but also to a domestic social demand to diversify partnerships, embrace multilateralism and avoid automatic alignments in the dynamics of international confrontation.

During Sanchez’s third official visit to China in April 2025, the two sides signed several sectoral agreements aimed at facilitating the export of Spanish products — especially food, health products and cosmetics — to the Chinese market, as well as expanding cooperation in culture, science and education.

These agreements were part of the action plan on strengthening the comprehensive strategic partnership, agreed upon in September 2024 and developed in the lead-up to the 20th anniversary of the comprehensive strategic partnership in 2025. This year’s visit reinforces the desire of the two sides to expand exchanges and consolidate their stable relationship in an uncertain global environment.

This environment is marked, among other factors, by the redefinition of China’s role in the international system. The outline of the 15th Five-Year Plan (2026-30), approved by the 14th National People’s Congress on March 12, insists on a commitment to multilateralism and a law-based international order, under the umbrella of the United Nations. Beyond political interpretations, this discourse opens areas of convergence with the European position, particularly in defense of international law and global institutions.

In this context and within the EU, Spain is beginning to outline one of the most progressive and coherent approaches among the bloc’s major economies. In contrast to the vacillations of some European countries that are wavering between strategic caution regarding China and economic interests, and in contrast to other states more aligned with the US, Spain is developing a clearer proposal: strategic autonomy based on dialogue with China, cooperation in key sectors and active defense of multilateralism. This position strengthens its international profile and also resonates with a growing demand among European citizens, who are calling for a Europe capable of making its own decisions, less dependent on the US, and more focused on stability, peace and the continent’s own interests.

This coherence is not without its tensions. The EU defines China simultaneously as a partner, a competitor and a systemic rival. This threefold categorization necessitates a constant balancing act. This is where strategic autonomy ceases to be an abstract concept and becomes political practice. For Spain, it means being able to make decisions that respond to its national interests without breaking its European commitments. It also means contributing to a more self-reliant EU, less dependent on the US on key issues.

In this sense, direct criticism of more confrontational approaches — such as those promoted by the US — is not only ideological but also strategic. An escalation of tensions between major powers limits the room for maneuver of countries such as Spain and reduces the space for global cooperation. Conversely, an environment based on rules and dialogue expands opportunities for middle-income countries.

Strengthening ties with China must therefore be understood within this framework. This is not presented as a geopolitical shift, but rather as a coherent extension of a foreign policy that seeks to diversify partnerships, strengthen multilateralism and protect economic interests. Domestically, it reinforces the government’s popular support.

For this strategy to be sustainable, Spain must rely on three elements. First, clear coordination with the EU, avoiding any dissonance that could be interpreted as weakening the common position. Second, a firm defense of reciprocity in economic relations. And third, the consolidation of an informed public opinion favorable to this line of strategic autonomy, which strengthens the domestic legitimacy of a more active, balanced foreign policy that is less dependent on the US.

At the same time, there are areas where cooperation with China can be particularly fruitful. The energy transition is one of them. China is a leader in the development of renewable technologies, while Spain excels in their implementation. Collaboration in this area is logical and necessary in the context of the climate emergency.

So is global governance. In a fragmented world, maintaining open channels of dialogue is a strategic asset. Spain, given its diplomatic profile, can play a constructive role in this regard.

Strategic autonomy, in this context, translates into decision-making power. And at a time of rising global tensions, this power is becoming one of the most valuable assets of Spanish foreign policy.

The author is an economist, an adviser at the Cátedra China Foundation, Spain, and the author of the book Why China Is Winning.

The author contributed this article to China Watch, a think tank powered by China Daily. The views do not necessarily reflect those of China Daily.

Contact the editor at editor@chinawatch.cn.