Juan Carlos: Steering Spain from Dictatorship to Democracy. Paul Preston
to a meeting which remained in session for three days, from 20 to 22 March. He brazenly informed his generals that Spain was so orderly and contented that other countries including the United States were jealous and planned to adopt his Falangist system. He tried to frighten his generals off any monarchist conspiracy by brandishing the danger of Communism for which he blamed Britain, Don Juan’s best chance of international support. It did not bode well for the Borbón family that, Kindelán aside, the generals seemed happy to swallow the Caudillo’s absurd claims.58The controlled press praised Franco for having saved the Spanish people from ‘martyrdom and persecution’, the fate, it was implied, to which the failures of the monarchy had exposed them.59 Even more space than usual was devoted to the annual Civil War victory parade. Slavish tribute was paid to Franco’s victory over the ‘thieves’, ‘assassins’ and Communists of the Second Republic – the barely veiled message being that these same criminals – and with them, Don Juan – were even now plotting their return with the help of the Allies.60
All this time, the young Juan Carlos had been brought up by nannies and tutors, seeing more of his mother than his father, who was absorbed by the struggle to restore the throne. Now he was seven and oblivious, as were his parents, to the momentous implications of Carrero Blanco’s report on the Lausanne Manifesto. Thirty years before the death of Franco, Carrero Blanco was proposing that his master’s eventual successor be Juan Carlos. For that to be a feasible option, it would be crucial, from the dictator’s point of view, that Juan Carlos received the ‘right’ kind of political formation, or indoctrination. Don Juan’s acquiescence was crucial, yet Franco made little effort to avoid unduly antagonizing him. When the chubby Martín Artajo returned from his mission to Lausanne, Franco grilled him on 1 May for two and a half hours about his conversations with Don Juan. Still furious about the Manifesto, Franco snapped, ‘Don Juan is just a Pretender. I’m the one who makes the decision.’ The Caudillo made it patently clear that he did not believe in one of the basic tenets of monarchism – the continuity of the dynastic line. In coarse language that must have shocked the prim Martín Artajo, he dismissed what he considered to be the decadent constitutional monarchy by reference to the notorious immorality of the nineteenth-century Queen Isabel II. He said, ‘the last man to sleep with Doña Isabel cannot be the father of the King and what comes out of the belly of the Queen must be examined to see if it is suitable.’ Clearly, Franco did not regard Don Juan de Borbón as fit to be King. He made critical comments about his personal life and dismissed Martín Artajo’s efforts to defend him – ‘There’s nothing to be done … He has neither will nor character.’ Franco would produce a law which turned Spain into a kingdom but that would not necessarily mean bringing back the Borbón family. A monarchical restoration would take place, declared Franco, ‘only when the Caudillo decided and the Pretender had sworn an oath to uphold the fundamental laws of the regime’.61
Nevertheless, the imminent final defeat of the Third Reich, together with Don Juan’s pressure, impelled Franco to make a crudely cynical gesture aimed at undermining the Pretender’s position among monarchists inside Spain. Over several days in the first half of April 1945, he discussed the idea of adopting a ‘monarchical form of government’. Monarchists within the Francoist camp were thus offered a sop to their consciences, together with an assurance that they need not face the risks of an immediate change of regime. At the same time, the cosmetic change would help the Allies forget that Franco’s regime had been created with lavish Axis help. A new Consejo del Reino (Council of the King) would be created to determine the succession. Grandiosely billed as the supreme consultative body of the regime, its function was simply to advise Franco, who would have no obligation to heed its advice. Moreover, the emptiness of the gesture was exposed by the announcement that Franco would remain Head of State and that the King designated by the Consejo would not assume the throne until Franco either died or abandoned power himself. A pseudo-constitution known as the Fuero de los Españoles (Spaniards’ Charter of Rights) was also announced.
Given his messianic conviction in his own God-given right to rule over Spain, Franco could never forgive Don Juan for trying to use the international situation to hasten a Borbón restoration. He believed that, if he could buy time from his foreign enemies and his monarchist rivals with cosmetic changes to his regime, the end of the War would expose, to his benefit, the underlying conflict between the Western Allies and the Soviet Union. His confidence was well-founded. On 19 June, at the first conference of the United Nations, which had been in session in San Francisco since 25 April, the Mexican delegation proposed the exclusion of any country whose regime had been installed with the help of the Armed Forces of the States that had fought against the United Nations. The Mexican resolution, drafted with the help of exiled Spanish Republicans, could apply only to Franco’s Spain and it was approved by acclamation.62 Within the Spanish political class, it was assumed that there would now be negotiations for the restoration of the monarchy.63 However, aware that, in Washington and London, there were those fearful that a hard line might encourage Communism in Spain, Franco and his spokesmen simply refused to accept that the San Francisco resolution had any relevance to Spain, making the most bare-faced denials that his regime was created with Axis help.64
Shortly afterwards, Franco would adopt a strategy aimed at reversing Don Juan’s advantage in the international arena. The Fuero de los Españoles was introduced with a speech that implied to Spaniards and Western diplomats alike that any attempt to remove or modify the regime would open the gates to Communism.65 Within one month, he reshuffled his cabinet in order to eliminate the ministers most tainted by the Axis stigma and brought in a number of deeply conservative Christian Democrats. They, and particularly the most prominent of them – Alberto Martín Artajo as Foreign Minister – permitted Franco to project a new image as an authoritarian Catholic ruler rather than as a lackey of the Axis.66
A fervent Catholic, Martín Artajo owed his appointment to the recommendation of Captain Carrero Blanco, with whom he had spent nearly six months between October 1936 and March 1937 in hiding in the Mexican Embassy in Madrid. He accepted the post after consultation with the Primate, Cardinal Plá y Deniel, and both were naïvely convinced that he could play a role in smoothing the transition from Franco to the monarchy of Don Juan.67 Franco was happy to let them believe so, but intended to maintain an iron control over foreign policy. The subservient Artajo would simply be used as the acceptable face of the regime for international consumption. Artajo told the influential right-wing poet and essayist, José María Pemán, a member of Don Juan’s Privy Council, that he spoke on the telephone for at least one hour every day with Franco and used special earphones to leave his hands free to take notes. Pemán cruelly wrote in his diary: ‘Franco makes international policy and Artajo is the minister-stenographer.’ In the first meeting of the new cabinet team, on 21 July, Franco told his ministers that concessions would be made to the outside world only on non-essential matters and when it suited the regime.68
While nonplussed by the clear evidence that Franco had no immediate intentions of restoring the monarchy, Don Juan was encouraged by the appointment of Martín Artajo, whom he trustingly regarded as one of his supporters. It was the beginning of a process in which Don Juan was to be cunningly neutralized by Franco. As part of a plan to drive a wedge between Don Juan and his more outspoken advisers, Gil Robles, Sainz Rodríguez and Vegas Latapié, Franco encouraged conservative monarchists of proven loyalty to his regime to get close to the royal camp. One of the most opportunistic of these was the sleekly handsome José María de Areilza, a Basque monarchist who had been closely linked to the Falange in the 1930s. Areilza had acquired the aristocratic title of Conde de Motrico through marriage and his impeccable Francoist credentials had been rewarded when he was named Mayor of Bilbao after