POLICY

BRIEF

THE GERMAN
ELECTION: WHAT
EUROPE EXPECTS
AND WHAT GERMANY
WILL NOT DO
Ulrike Gurot

SUMMARY

Europeans expect a lot from Germany. Fed

up with Germanys euro crisis management,
which seems capable only of tackling the most
immediate emergencies, they want a vision
for Europe that goes beyond Chancellor
Angela Merkels step-by-step approach. But
the Germany that many in Europe hope for is
not on offer. There is a gap between European
expectations and Germanys capacity to meet
those expectations. Whoever is in charge after
22 September, Germany is likely to continue
with the same pragmatic approach to the crisis
that it has taken so far. Above all, Germany
does not have the same need to push for more
integration as its European neighbours.
Germany is limited by specific constraints,
many of which are overlooked by the outside
world. The German domestic debate is
increasingly focused on income disparities
and growing poverty at home, especially
for retired people. Berlin simply lacks the
political ambition to provide clear leadership
in turbulent times. Germany may be central
to European politics but it sees itself as a role
model rather than as a power with an obligation
to lead. It hopes to influence events by force of
example and by getting others to transpose
the German model of competitiveness abroad
into their own economic and political cultures.

Europeans expect a lot from Germany. They want it to accept

transfers of resources and, if necessary, of power required
to sustain the long-term viability of the European integration
project. Pro- and anti-integrationists alike fear Germanys
growing power. Germanys election is no longer primarily
a national affair: depending on the outcome, residents in
other member states of the European Union and especially
in the eurozone might feel the economic, social, and political
impact of the result even more keenly than German voters
themselves.
Many leading politicians in other EU member states share one
overriding expectation.1 They want Germany, the largest and
most powerful economy in the EU, to accept responsibilities
of political leadership commensurate with its economic
heft. They want Berlin to put its money where its mouth
is and accept in deed as well as in word the necessity for
deeper European integration. They want whatever German
government emerges from the election to propose some longterm perspective for Europes future.
It is in many ways a surprising catalogue of demands. Fulfilling
it could easily put much of the design of the new Europe
largely into German hands. Yet European politicians seem

1 F
 or this policy brief, the author conducted 15 interviews with well-known European
policymakers from both the left and the right of the political spectrum. Three simple
questions were posed: What is your expected outcome of the German elections? Which
policy changes do you expect after the elections? If you had a three-point wish list for the
new German government, what would it include? Unless otherwise stated, quotes are
from those interviews, which were carried out in July 2013.

THE GERMAN ELECTION: WHAT EUROPE EXPECTS AND WHAT GERMANY WILL NOT DO

fed up with Germanys reluctance to assume an adequate

leadership role and with a German approach to European
crisis management that seems capable only of tackling the
most immediate emergencies. They want a vision for Europe
that goes beyond Chancellor Angela Merkels step-bystep approach and a single-minded insistence on austerity
policy. As Polish Foreign Minister Radek Sikorski said in
Berlin in November 2011: I fear German power less than I
am beginning to fear German inactivity. (Many in Germany,
on the other hand, think France holds the key. They see
French weakness as an obstacle to effective Franco-German
co-operation and as the trigger for exaggerated demands on
German leadership and German resources.)
However, the Germany that many in Europe hope for is not on
offer. It is hard to imagine any new government coalition or
the old one, if it is returned to power providing enlightened
leadership of a kind that accepts significant short-term
sacrifice to buy into a far more uncertain vision of long-term
political stability. Germany lives in a different world, with
its own constraints and worries, many of which are largely
overlooked by the outside world. Fears of impoverishment
fuelled by a faltering demography co-exist with a new national
momentum that has emerged since the fall of the Berlin Wall
in 1989. There is a gap between European expectations of a
more forceful and constructive German role and the German
capacity to meet these expectations.
The biggest risk, therefore, is of European post-election
disillusion because Germanys approach to Europe is unlikely
to change. Berlin quite simply lacks the political ambition
to provide clear leadership in turbulent times. Rather, it
hopes to influence events by force of example, getting others
to transpose the German model of thriftiness at home and
competitiveness abroad into their own financial, economic,
and political cultures. This, most Germans believe, is the only
way for Europe to succeed in an increasingly competitive and
globalised world.

ECFR/88

September 2013

www.ecfr.eu

No mood for change

All the opinion polls strongly suggest that Merkels centreright Christian Democratic Union (CDU) will emerge as the
overwhelming electoral victor. The main question therefore
appears to be not whether Merkel will remain in office, but
rather what coalition she will lead. Most outside Germany
assume that a grand coalition between the CDU (with its
Bavarian allies in the Christian Social Union) and the centreleft opposition Social Democratic Party (SPD) is the most
likely option. But although it is what a majority of voters want,
it is somewhat less likely than it appears: the junior partner
in the current government, the liberal Free Democratic
Party (FDP), might well make the threshold of five percent
of the overall vote required to enter parliament, enabling an
uninspiring but in some ways reassuring continuation of the
present government.

There is no real Wechselstimmung, or mood for change, in

Germany. Sensing this, Merkel has adopted the campaigning
style of Konrad Adenauer, who during the 1957 election
campaigned on a promise of no experiments. As many
voters see it, the adroit Merkel has steered Germany through
the crisis without running their country into trouble or
Europe into the ground. Voters want to keep her experience
and the stability she offers. They are swayed by her forceful
but drama-free personality and tastefully low-key style even
more than by her policies: up to 70 percent of Green voters
say they favour the chancellor.
This is one reason why the redgreen alliance preferred
by the two main opposition parties has spectacularly failed
to narrow the gap on Merkel. Peer Steinbrck, the SPD
candidate, is seen as mercurial and occasionally high-handed
in detrimental contrast to the preternaturally cool Merkel.
As a right-winger in his party, Steinbrck enjoys a reputation
for economic competence he was finance minister in the last
grand coalition, between 2005 and 2009. But his election
platform reflects the redistributive aims of the partys left
wing, with expenditure to be financed by a tax rise for higher
income earners. The tension between what the candidate is
known to stand for personally and the policy stance he has
had to espouse in public is another reason why SPD support
has failed to rise above 23 percent compared to around 40
percent for the CDU. Even with around 13 percent backing
for the Greens, the two centre-left parties alone are well short
of a majority.
The newly launched Alternative for Germany (AfD), the antieuro party led by economics professor Bernd Lucke, is the
newest unpredictable element. Currently polling around 3
percent, it could have a disproportionate influence. Even if it
fails to clear the 5 percent hurdle, it is fair to assume that AfD
will take precious votes from both the CDU and the FDP and
undermine the chances of a blackyellow coalition between
them. In that case, the final electoral result, the makeup
of the Bundestag, and perhaps even of the government
could all come down to technicalities linked to Germanys
complex electoral laws and in particular the so-called
berhangmandate, or surplus mandates.2 All firm bets must
therefore be off.
Despite persistent speculation about a blackgreen alliance
of the CDU and Greens, it has been vigorously rejected by
leaders in both parties. It should be ruled out and might
emerge as an option if an even further weakened SPD rejects
a new grand coalition as politically suicidal. Following the
last grand coalition, the Social Democrats slumped to 23
percent of the vote in the 2009 election their worst postwar result. Steinbrck has announced that he will not serve
as vice-chancellor in a new grand coalition, so it will be up

2 T
 he German electoral system gives voters two votes: one for the direct candidate, one for
the party. The percentages for each party in each state level determine how many people
from each party list enter the Bundestag. If there are more directly elected candidates
of a party than the regional percentage would accord, directly elected candidates
nonetheless can receive a mandate to compensate for it. In past elections, the CDU
tended to benefit from the rule. However, a recent change of the constituencies means
the CDU may lose 20 or so berhangmandate.

to party chairman Sigmar Gabriel and parliamentary leader

Frank-Walter Steinmeier to decide whether they will do so.
Importantly, a blackgreen deal would lack support in the
Bundesrat, the upper house of parliament that represents the
federal states. The CDU and the Greens share a fundamentally
pro-European attitude and, following Merkels Energiewende,
also now agree on nuclear power, but they would be forced to
make tough compromises.
Some think a traffic light coalition might work if the FDP
were to switch sides and back the SPD and Greens. The
liberals might be persuaded to jump if it gave them better
jobs in government. But it would be an uncomfortable deal,
with the FDP and Greens backing opposite economic agendas,
although with more common ground on socially liberal
policies, such as encouraging immigration.
Last but not least, a redredgreen coalition that is, one
in which the far-left Linke supported the SPD and Greens is
at least mathematically possible. The Linke are expected to
get around 8 percent of the vote. The party is well outside the
mainstream it is anti-EU and anti-NATO, and proposed
huge and largely unfinanced social spending programmes
in its election manifesto. But some observers in Berlin argue
that redredgreen is Merkels biggest nightmare. It would
allow the SPD to avoid being the junior partner in a grand
coalition. The hope would be that a coalition would crumble
fast, leading to new elections in which the CDU would run
without Merkel, its biggest asset. Blackgreen would then
be Merkels only feasible countermove, which would put the
Greens in the position of kingmaker.
The outcome of the German elections may only be decided in
the final stretch of a campaign that has so far lacked political
excitement. A key factor will be the degree to which the
main parties can mobilise their core supporters on polling
day. The latest economic data, which suggests that Germany
is doing even better than expected, might benefit the CDU.
But despite Merkels extraordinary personal popularity and
her partys overwhelming lead, the result in terms of the
full parliamentary arithmetic and the ensuing options for
government coalitions mean that the outcome is impossible
to predict.

All eyes on Berlin

Once the dust from the election campaign has settled
and Germany has a new government, many European
leaders would like to see Germany move beyond its often
infuriatingly piecemeal approach to the eurozone crisis in
favour of a politically and institutionally coherent project
that can serve as a benchmark and perhaps even as a goalpost
in the further debate. In particular, they want substantial
German movement on three specific fronts: building a solid
banking union; a growth strategy; and a greater commitment
to European foreign policy. But whoever is in charge once
the new government is formed is unlikely to try to meet these
expectations. The divergences between Germany and its

partners run much deeper than disagreements on political

and economic tactics or the scope or sequencing of reform.
They are fundamentally the reflection of conflicting readings
of European and national reality.

Banking union now

Few other issues have recently caused as much aggravation
among European policymakers as Germanys perceived
resistance against the speedy establishment of a strong
banking union. Germany is seen as a foot-dragger that is
defending national controls and resisting the European
Commissions plans for a common banking resolution
authority as well as direct bank recapitalisation via the
European Stability Mechanism (ESM). According to this
view, the ESM should become the backstop for the European
Resolution Mechanism arguably the linchpin of any
effective banking union and the general assessment is that
Germany holds the key for this to happen. German officials,
on the other hand, argue that banking union is in reality the
biggest and most important integration project the EU has
ever seen, which cannot and should not be settled within a
few months.
Europeans have now largely accepted that, because of German
opposition, Eurobonds are not on offer. But many think the
proposal for a debt redemption fund should be reconsidered
in order to reverse the trend towards renationalisation of bond
markets. Although opinion varies on the common deposit
scheme and on debt mutualisation, many think that both
ideas and a bigger European budget should eventually
be considered. While German reluctance to accept full fiscal
union without political union is perfectly understood, this,
according to British MEP Andrew Duff, is the crux of the
matter: to lead the argument for deeper fiscal integration
means logically to prepare for European federal government.
Leading European policymakers accept that Germany does
indeed face specific constitutional hurdles when it comes to
the question of banking union and the ESM. Yet many suspect
that Germany is hiding behind its constitutional court on
this question, as former Spanish foreign minister Ana Palacio
puts it, and criticise Germanys perceived reluctance to
tackle the question of a change of its national constitutional
framework. Indeed, Europeans see the construction of
a viable banking union as an overriding priority both to
disentangle state from bank finances and to stabilise the
European project in economic and political terms.
From a German point of view, this argument ignores the need
to ensure that the banking union, with its potentially farreaching implications for state finances and parliamentary
sovereignty, is legally sound in constitutional terms and
politically sufficiently legitimated. For Germany, this is a
fraught debate. It was hard enough to set up the first pillar
of banking union, the Single Supervisory Mechanism, which
was placed under the surveillance of the European Central
Bank (ECB). The German Bundestag passed a new law to

THE GERMAN ELECTION: WHAT EUROPE EXPECTS AND WHAT GERMANY WILL NOT DO
www.ecfr.eu
September 2013
ECFR/88
4

mandate the German representative in the European Council

to vote in favour of the regulation on the basis of an article
of Germanys Basic Law. This unprecedented vote in the
Bundestag was a way to assert the political rights of the
German parliament and endow the European directive with
further national legitimacy.
The central unresolved question is the decision about who
should control the Single Resolution Mechanism: European
or national agencies. In an astonishingly public controversy,
German Finance Minister Wolfgang Schuble dismissed as
legally unsound the proposal by Single Market Commissioner
Michel Barnier, which gave the European Commission a
central role.3 The current German counter-proposal argues
for a network of national banking authorities. But it fails to
make clear what would happen if a national authority failed in
its duties and how effective moderation within the network
could function. The deeper issue is the unsolved issue of a
(common) European deposit guarantee, which faces stiff
German resistance. Without such guarantee, however, a
serious European stress test for banks might put national
public finances at risk and undermine market confidence.
The outgoing German governments view is that further
change of the EU treaties is required before the necessary
transfer of new powers to Brussels required for banking
union can be initiated. Aware that full European treaty
change is a risky endeavour, German officials have started
talking about a new amendment culture allowing limited
revisions whenever needed. Whichever the road, the end goal
is clear: in the official German view, a properly functioning
banking union with a single supervisory mechanism, a
single resolution mechanism, and a common resolution fund
only makes sense under a common European institutional
roof. It cannot be set up without giving up further national
sovereignty. In particular, Berlin fears that without formal
treaty change, banking union would be challenged in the
Constitutional Court in Karlsruhe, which is still considering
the legality of the ECB programme of Outright Monetary
Transactions and is expected to rule in October.
In sum, legal and political hurdles mean Germany is likely to
continue dithering on banking union even after the elections
even if it may at some point be forced to give in. Neither the
SPD nor the CDU refers extensively to banking union in their
election manifestos; the SPD at least provides some details
about financial regulation. But only the Greens mention
explicitly all three pillars of banking union as political goals.
Under these circumstances, it is hard to see where the political
drive could come from unless a resumption of dangerous
market instability were to force a reluctant Germany to act.

3 Eric Bonse Entzieht sich Deutschland der Bankenunion?, Cicero, 12 July 2013,
available at http:// www.cicero.de/kapital/europa-entzieht-sich-deutschland-derbankenunion/55040/seite/3.

A growth strategy
A second issue policymakers across Europe feel strongly
about is an overhaul of the budgetary policy mix in the
eurozone. Many, especially in the southern states of Europe,
want a new state spending push in those eurozone countries
where economic activity is weakest. They urge Germany to
take on a role analogous to that of the United States in Europe
after World War II in order to avoid an economic catastrophe.
Germany has to deal with its biggest challenge of history,
said former Greek minister and European Commissioner
Anna Diamantopoulou.
In particular, they want a rapid recapitalisation of banks
to provide the system with liquidity and thereby revive
investment and growth and further spending on education,
infrastructure, and innovation. Germany needs to take
responsibility to bridge the gap between rhetoric and
decisions, says Loukas Tsoukalis. In parallel, Germany
should do more to act as Europes economic engine and
boost domestic demand by encouraging higher wages and
consumer spending as well as raising social spending. In
short, the call is for a turnaround in German economic policy
both at home and in the eurozone as a whole.
However, such calls clash radically with three deeply held
German convictions about the current state of things in
Germany and the eurozone. First, Germans are convinced
that their own economy is doing very well thanks to hard
work and tough policy choices. Second, most of them believe
that, as painful as austerity may be, it is the only way for
the eurozones underperformers to get back to sustainable
prosperity. Third, they feel that they are far less well-off than
some of their southern neighbours seem to assume, that their
own long-term prospects might not be that rosy, and that
there remains much open or hidden wealth in countries such
as Greece, Italy, or Spain that should rightly be tapped before
Germans are asked to provide for their economically hardesthit neighbours.
The latest economic data bear out the narrative of German
success. Unemployment has fallen; tax revenue is flooding
state coffers, enabling Merkel to fund billions in electorally
motivated handouts to pensioners, mothers, and families.4
Germany sees these successes to a significant extent as
the consequence of the severe shrinking of its formerly
generous welfare state during the chancellorship of Merkels
predecessor, Gerhard Schrder. In the minds of most voters,
Sparpolitik the German term for austerity is what laid
the foundation for Germanys ability to make money from the
current phase of globalisation. If a policy of sound public and
private finances, temporarily lower wages, and a leaner and
meaner welfare state worked for Germany, it should work for

4 See Merkel kndigt Wahlgeschenke in Milliardenhhe an, Handelsblatt, 31 May

2013, available at http://www.handelsblatt.com/politik/deutschland/wahlkampfmerkel-kuendigt-wahlgeschenke-in-milliardenhoehe-an/8279484.html.

others too.
There is another side to Germanys collective narrative, one
that is much less well-known outside the country but nearly
as important. The Germany of wealth co-exists with a much
poorer and less visible country marred by painfully low
incomes, decaying infrastructure, empty local and regional
budgets, an aging population, and a shrinking workforce. The
German domestic debate is focused increasingly on income
disparities and growing poverty at home, especially for
retired people, and the social tensions it is producing.5
This debate explains why the SPD has chosen to focus on
social issues in the current electoral campaign and emphasise
its caring left side and not, as under Schrder, its closeness
to business. Other parties such as the Greens now also stress
the fragile social dimension of Germany. They say Germany
cannot spend more on others in Europe. Rather, each
country in Europe must be responsible for itself. Europe
should not become a transfer union with Germany as the
overtaxed paymaster. Thus Germany is unlikely to support
costly, credit-financed employment initiatives or European
infrastructure projects whatever the outcome of the election.
Even the left-wing parties are much more conservative or
ordo-liberal than their European counterparts.6
Europe is thus trapped between two rival and antagonistic
myths about how the continent got into the crisis in the
first place and how it should get out. Worse, the divergent
perceptions of the present each rest on a self-serving reading
of the past. The German public discourse obstinately
sticks to describing Europes fundamental ailment as a
Verschuldungskrise, a crisis of excessive indebtedness.
Saving is the only solution. Rare are German analyses that
differentiate between the situations in Greece, Ireland, or
Spain, that point to the disastrous pro-cyclical effects of
austerity, or that call for solidarity in the form of a European
Marshall Plan. In this sense, the German economic discourse
is surprisingly monolithic. A clear distinction is drawn
between guilty southern debtors and blameless northern
creditors. If, as Germans believe, reckless state spending
was the disease, it follows that public austerity must be the
cure. To see excessive austerity as part of the problem is the
reflection of a self-defeating mindset unwilling to overcome
the addiction to credit a sign that the cultural switch to a
financially sustainable lifestyle has yet to be completed.
Inconvenient facts that jar with this narrative are conveniently
omitted from the public discourse. Few German politicians
have told the public how much money the country has made
from the single market and the euro, how leading German

5 See Hans-Ulrich Wehler, Die neue Umverteilung. Soziale Ungleichheit in Deutschland

(Munich: C.H. Beck, 2013); Lebenslagen in Deutschland. Die vierte Armuts- und
Reichstumsbericht der Bundesregierung, Bundesministerium fr Sozales und
Arbeit, March 2013, available at http://www.bmas.de/SharedDocs/Downloads/
DE/PDF-Publikationen-DinA4/a334-4-armuts-reichtumsbericht-2013.pdf?__
blob=publicationFile.
6 On ordo-liberalism, see Sebastian Dullien and Ulrike Gurot, The Long Shadow of
Ordoliberalism. Germanys Approach to the Euro Crisis, European Council on Foreign
Relations, February 2012, available at http://ecfr.eu/page/-/ECFR49_GERMANY_
BRIEF.pdf.

banks helped finance and encouraged the spending splurge

in the south of Europe, or how Germany profited even out
of the euro crisis through the negative interest rates on its
bonds. The unfortunate role the German Landesbanken
played in the euro crisis has hardly been debated in public.
Few Germans were told then or remember today that the
sovereign debt crisis resulted to a decisive degree from the
need to rescue the financial sector and the real economy from
collapse.
Some room for flexibility remains: Germany enjoys being
tough on sinners but does not want to be seen as punishing
the innocent. When soaring youth unemployment in southern
Europe made headlines across the continent, including in
Germany, Merkel acted to head off criticism and hosted a
European youth unemployment summit in Berlin. But the
message was: We will help, but we wont change our policy.
Merkel, Schuble, and Foreign Minister Guido Westerwelle
have each flown to Greece on separate missions to express
respect, sympathy, and support but also to encourage
Athens to stay on the path of austerity and reform. Nothing
today suggests that Germany will be ready to change that
approach after the elections. Seen from Berlin, every positive
economic statistic to come out of France, Portugal, or Spain
strengthens the German argument that austerity is working.
All it needs is time, patience, and harder work for lower pay.

A commitment to European foreign policy

The third specific request from European policymakers is for
a clear German commitment to a common European foreign
policy. Europe cannot have a strategic focus without Germany,
but Germany itself lacks a strategic focus. According to
Charles Grant of the Centre for European Reform, Germany
is the big problem in the Common Security and Defence
Policy (CSDP) because it either pursues its national interest
or remains neutral. In particular, many blame Germany
for the failure in November 2012 of the proposed merger
between EADS and BAE Systems. Even if Europeans expect
Berlin to provide leadership in negotiations with the United
States on a Transatlantic Trade and Investment Partnership,
they want German foreign policy to be more than trade policy.
Germany should make more use of the leverage offered by the
EU and contribute to a coherent foreign policy debate within
it, for instance by pushing for what former Danish minister
Lykke Fries calls a European Ostpolitik.
However, these calls from abroad for Germany to engage more
fully with the management of international tensions, threats,
and conflicts find little echo in Germany itself. Although the
international community seethed with indignation about the
German abstention in the United Nations Security Council in
March 2011, 70 percent of Germans did not want to see their
country engaging militarily in Libya. Germans saw no need
to engage militarily at the side of France in Mali in January
2013 to prevent an immediate massacre in Bamako. Instead,
it made a symbolic gesture of support by loaning France
two Transall cargo planes. The EADSBAE Systems merger

THE GERMAN ELECTION: WHAT EUROPE EXPECTS AND WHAT GERMANY WILL NOT DO

was seen only as an inappropriate deal for German industry

rather than as an opportunity to build an industrial platform
for European defence.7
For half a century after World War II, Germany has been
taught and taught itself to avoid autonomous strategic
thinking on a global scale. The political and economic
restraints imposed on West Germany in 1949 strong regions
to prevent a strong central authority, the divestiture of heavy
industry, the independence of the constitutional court, the
Parlamentsvorbehalt (that is, the constitutional requirement
for parliamentary agreement) to send military expeditions
abroad, to name just a few have created a strategic vacuum.
The German elite obsesses about business rather than
diplomatic or military strategy. German citizens agree and
see nothing wrong with living comfortably in a larger version
of Switzerland.
German mercantilism the dominance of commerce over
diplomacy may be a problem in European eyes, but in
Germany it is a source of pride. While others engage in risky
and often misguided war-games and other foreign adventures,
Germany sells its excellent goods to the world and acquires
wealth and the respect that comes with it. Germans think
that, rather than chasing the pipedream of a global European
diplomatic or military power, they are showing by example an
alternative vision of Europes role in the twenty-first century.
While Anglo-Saxon newspapers publish article after article
about the conundrum of the reluctant German hegemon
and complain about the lack of a strategic vision in Germany,
Germans see this as a foreign and ultimately silly discussion
a distraction from the real issues facing Europe.8

ECFR/88

September 2013

www.ecfr.eu

The German debate

What, then, would a serious German draft for a European

to-do list look like? The first thing to understand is the
fundamental importance Germany attaches to constitutional
legality, both in terms of EU treaties and its own Basic
Law, and to full parliamentary legitimacy even at the
cost of creating suboptimal conditions for the economic
recovery and political cohesion of the eurozone and the EU.
Whether on banking union or European-wide spending
programmes, political function, far from dictating legal form,
must follow it. A single resolution mechanism, no matter
how urgent or desirable, therefore requires some form of
treaty amendment. Full banking union needs an openly
acknowledged and constitutionally sound renouncement of
sovereignty. The real question is whether other key partners
such as France are ready to swallow these terms.9

7 See Christian Mlling, EADS und BAE eine rstungspolitische Bruchlandung,

Stiftung Wissenschaft und Politik, 12 October 2012, available at http://www.swpberlin.org/de/publikationen/kurz-gesagt/eads-und-bae-eine-ruestungspolitischebruchlandung.html.
8 See Jochen Bittner, Matthias Geis, Jrg Lau, Bernd Ulrich and Ronja Wurmb-Seibel,
Wir tun doch nix, Die Zeit, 1 April 2013, available at http://www.zeit.de/2013/13/
Deutschland-Aussenpolitik.
9 See Ulrike Gurot, Berlin notebook: does France hold the keys to Europe?, European
Council on Foreign Relations, 9 July 2013, available at http://ecfr.eu/blog/entry/
berlin_notebook_does_france_hold_the_keys_to_europe.

At the same time, Germany has now come to accept and

indeed embrace the French argument that a big overhaul
of the European institutional system, complete with a
convention and ratification in all 28 member states, is a train
wreck waiting to happen. Thus full-blown treaty change
under Article 487 of the European treaties looks and is
simply impossible under current political conditions. If the
grand entrance to EU institutional reform is closed, the back
door is all that is left. Seen from Berlin, the EU is heading for
a silent revolution of its institutional system centred on the
eurozone, with the ESM as a nexus for further integration
and the European Commission a more marginal player.10
The result of this approach is likely to be an increase in
overall differentiation between the EU and the eurozone. Of
course, everybody will be invited to join this newly designed
Euroland-Europe the idea is to be inclusive. But everyone
knows that some countries such as Sweden and the UK will
want to stay out and that others such as Bulgaria, Hungary,
and Romania will have a hard time coming in any time soon.
Conditions for joining the post-crisis euro and participating
in the new contractual agreements to stabilise it will be more
exacting than at the time since the Maastricht Treaty in 1992
or the accession treaties in 2004 not least because they will
have to contribute to the ESM.
What makes all of this German thinking about the EUs and
the eurozones future so difficult to gauge is the inherent
tension between the countrys continued insistence on a
strictly legalistic approach to EU reform and its pragmatic
acceptance that major treaty reform is impossible in the
foreseeable future. This paradox has been central to Berlins
recent European policy and will remain so after the elections.
Grasping its full implications is the only way to understand
the policy choices Berlin has made of late and is likely to
make in the post-electoral future whatever the shape of its
new government.
Inasmuch as there is a debate about full and formal
institutional change in Europe, its focus has shifted
away from the old dichotomy between federalism and
intergovernmentalism. The new bone of contention is
between executivism (based on Frances political tradition
of executive-based discretionary approaches) versus
parliamentarism (based on the German parliamentarian
culture of accountability and rule-based decision-making).
There is much talk in Berlin of building a transnational
Europe based on networks of national authorities. The
European Parliament and national parliaments would
jointly control a redesigned eurozone executive of which
the nucleus would be formed by the ESM, a eurozone
treasury, and a finance minister the embryo of a future
European government. There is also discussion about how
to organise European democracy. A core idea, reflected in

10 S
 ee Piotr Buras, The EUs Silent Revolution, European Council on Foreign
Relations, September 2013, available at http://www.ecfr.eu/publications/summary/
the_eus_silent_revolution214

the Westerwelle report on the Future of Europe, is to create a

clearer distinction between legislative and executive power.11
However, there is another less benign reading of the
current German debate. Critics suspect that the focus on
transnational ways forward bypassing supranational
mechanisms for the governance of the eurozone is a hidden
strategy either to transfer competences back to the national
level or to keep them from shifting there in the first place.
Indeed, many leading voices in Germany, including Merkel
herself, have welcomed the British governments European
reform agenda. On the left of the political spectrum, some
prominent political economists have recently argued that
the social costs of the eurozone are too high, especially for
its southern member states, and that a return to national
currencies might be a better option.12
The fact remains that all these discussions amount to far
less than an attempt to work out a coherent economic and
political concept for the eurozone and the EU. The SPD and
the Greens do lay out a more coherent vision on Europe
in their manifestos, comprising among other things an
institutional design based on a supranational structure, more
social European rights, a clearer division of power in the EU,
and a directly elected EU president. But it is telling that it is
the CDU, which is the least outspoken party, that leads in the
opinion polls. Indeed, even many ardent German advocates
of further European integration argue that now is not the
right time for putting forward an encompassing vision.
For many in Europe, a clear vision would give their citizens
a perspective to explain where the current economic pain
is leading. But many Germans would see a grand plan as a
ploy to push the country into a full-blown transfer union
designed to sustain more than a dozen tottering economies
with German treasure. Even though German citizens are
still, despite the crisis, essentially pro-European, they are
increasingly defensive or distant. As it basks in praise for
its economic prowess, even from some in Italy such as the
philosopher Angelo Bolaffi, Germany might be said to be too
pleased with itself to devote itself to Europe.

11 S
 ee the final report of the Future of Europe Group, 17 September 2012, available
at http://www.auswaertiges-amt.de/cae/servlet/contentblob/626338/
publicationFile/171844/120918-Abschlussbericht-Zukunftsgruppe.pdf..
12 See, for example, Wolfgang Streeck, Gekaufte Zeit. Die vertagte Krise des
demokratischen Kapitalismus (Berlin: Suhrkamp, 2013), pp. 25 ff.
13 See Angelo Bolaffi, Il cuore tedesco. Il modello Germania, lItalia e la crisi europea
(Rome: Donzelli, 2013).

Conclusion
Germany cannot now put forward a coherent vision for
Europes future and comply with the strategic demands of its
partners. If it were to assume a more dynamic leadership role,
some of the same partners might see Germany as overbearing
in a different way. The task for the next decade will be, above
all, to work on developing a common understanding of the
key issue: where the others talk about politics, Germany
talks about law; where France and the UK talk about
strategy, Germany talks about business. This is why the
European debate that is taking place in Germany is so often
misunderstood or overlooked abroad: it does not fit into the
classical strategic patterns. Germany and the rest of Europe
are operating on different frequencies.
Germany may be central to European politics but it sees
itself as a leading role model rather than as a power with
an obligation to lead. The German intelligentsia remains
amazingly agnostic about the need to do more for Europe
and speed up the process of integration. Germany is listening
carefully enough to Europes demands, but only does the
minimum to ensure they do not upset the nations equanimity.
Whatever the outcome of the elections, they are unlikely to
usher in a change. Rather, the decisive time for the EU will
be after the European elections in 2014, when new leaders
take over and the UK holds a referendum on its membership
of the EU. This is when the European deck of cards might be
dealt anew with Germany neither the only player nor the
main one. It does no harm to remember this fact at a time
when German politics is being watched in Europe with much
trepidation in fact too much, given the years that lie ahead.

ABOUT ECFR

Ulrike Gurot is a Senior Policy Fellow and Representative

for Germany at the European Council on Foreign Relations.
Previously she was Senior Transatlantic Fellow with the
German Marshall Fund, and prior to that Head of the
European Union unit at the German Council on Foreign
Relations (DGAP) in Berlin. She was also Professor for
European Studies at the Paul N. Nitze School for Advanced
International Studies and has worked for Jacques Delors at
Notre Europe in Paris. Gurot has written many publications
on European affairs and transatlantic relations including
After Merkozy: How France and Germany can make Europe
work (with Thomas Klau, 2012).

The European Council on Foreign Relations (ECFR) is the

first pan-European think-tank. Launched in October 2007, its
objective is to conduct research and promote informed debate
across Europe on the development of coherent, effective and
values-based European foreign policy.

Acknowledgements
A paper such as this cannot be written alone. First, and
above all, I am thankful to the ECFR Council Members and
(other) European friends who agreed to be interviewed for
and quoted in this paper: Ana Palacio, Teija Tiilikainen,
Andrs Ortega, Charles Grant, Pawe wieboda, Anna
Diamantopoulou, Giuliano Amato, Kalypso Nicoladis, Lykke
Friis, Ivan Krastev, Georgi Pirinski, Giuseppe Scognamiglio,
and Aleksander Smolar; and to others who did not want to be
named because they are in government positions. Thanks to
all of them for taking the time to be interviewed.
I am also grateful to Quentin Peel of the Financial Times,
who saw a first draft of the text and helped to improve it a
lot. Arndt Freytag von Lohringhoven of the German foreign
ministry gave helpful comments and criticism; so did Armin
von Bogdandy of MPI Heidelberg on some of the legal aspects,
and some other friends from the German foreign ministry, the
finance ministry, and the financial markets on the questions
of banking union, though they did not want to be quoted.

ECFR/88

September 2013

www.ecfr.eu

Finally, I am very thankful to Thomas Klau, my ECFR colleague

in Paris, who did a great job editing the paper. Hans Kundnani
gave a last critical look. Finally, my intern, Ana-Constantina
Kolb, helped me to get the footnotes right and assisted me with
all the emails, tasks, traffic, and organisation that go along with
such a paper.

My colleagues in Paris (Thomas Klau), Rome (Silvia Francescon),

Warsaw (Piotr Buras), Berlin (Olaf Bhnke), and Madrid (Jos
Ignacio Torreblanca), and their respective assistants (Pirro
Vengu, Teresa Coratella, Marta Makowska, Felix Mengel, and
Marisa Figueroa) helped to organise an advocacy tour of the
paper to various European capitals to present it before the
German elections. Thank you all very much!

ECFR has developed a strategy with three distinctive elements

that define its activities:
A pan-European Council. ECFR has brought together a
distinguished Council of over two hundred Members
politicians, decision makers, thinkers and business people
from the EUs member states and candidate countries which
meets once a year as a full body. Through geographical and
thematic task forces, members provide ECFR staff with advice
and feedback on policy ideas and help with ECFRs activities
within their own countries. The Council is chaired by Martti
Ahtisaari, Joschka Fischer and Mabel van Oranje.
A physical presence in the main EU member states.
ECFR, uniquely among European think-tanks, has offices
in Berlin, London, Madrid, Paris, Rome, Sofia and Warsaw.
Our offices are platforms for research, debate, advocacy
and communications.
A distinctive research and policy development process.
ECFR has brought together a team of distinguished
researchers and practitioners from all over Europe to advance
its objectives through innovative projects with a pan-European
focus. ECFRs activities include primary research, publication of
policy reports, private meetings and public debates, friends
of ECFR gatherings in EU capitals and outreach to strategic
media outlets.
ECFR is a registered charity funded by the Open Society
Foundations and other generous foundations, individuals and
corporate entities. These donors allow us to publish our ideas
and advocate for a values-based EU foreign policy. ECFR works
in partnership with other think tanks and organisations but
does not make grants to individuals or institutions.
www.ecfr.eu

The European Council on Foreign

Relations does not take collective
positions. This paper, like all
publications of the European Council on
Foreign Relations, represents only the
views of its authors.
Copyright of this publication is held
by the European Council on Foreign
Relations. You may not copy, reproduce,
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Council on Foreign Relations
ECFR September 2013.

ISBN: 978-1-906538-88-0
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