And who says that things need to be frozen? Federation is only one step away from Confederation. Like I said elsewhere in the thread, it's taken 30 years for the Spanish right wing to be comfortable with the "Autonomous Regions" to the point that they now defend the system as sacrosanct even though they didn't like it in 1978, and decri that the PSOE want to "break up Spain. Give the Basque question a Federal solution (for now) and it will take 30 years for the Spanish right to feel at home in it, when it will be time for confederation, or even a dissolution into a European entity.
The centre of the Basque spectrum is on the moderate edge of PNV, so if PSE and PNV can strike a deal that will be it, just like in Catalonia. guaranteed to evoke a violent reaction from police is to challenge their right to "define the situation." --- David Graeber citing Marc Cooper
