October 31, 2014
German leadership has become the Holy Grail of European politics. There is not a single policy debate on EU affairs-be it about the euro, political union, a possible British exit from the EU, trade, or foreign policy-that does not end up being a discussion of what Berlin wants, should want, can do, and can't do. All solutions (and all problems, for that matter) seem to stem from German leadership-or a lack thereof.
But what is the right kind of German leadership in and for Europe?
Successful German leadership in Europe has traditionally rested on three pillars. Let's call them the Kohlian trinity, after former chancellor Helmut Kohl.
The first pillar was a rock-solid idea of what the European Union should be. Almost all members of the German political elite subscribed to the same vision of Europe: if in doubt, favor integration. This did not necessarily mean embracing the EU's founding principle of "ever closer union," but it was essentially a feeling that more Europe was a good idea.
This notion was not a lofty, postmodern, federalist pipe dream. It was very sensible politics that served German interests and the country's domestic zeitgeist well. It was also about a clear Ordnungsmodell: a rules-based system of conflict resolution that would make all EU members more affluent and more secure in return for partly surrendering national sovereignty.
The second pillar of German leadership was the willingness of all postwar German governments to give in just a little bit earlier and pay just a little bit more than other countries to forge compromise. Germany became a modern-day honest broker and reserve power of European affairs.
Being willing to give more than others to hold the EU together and to deepen integration was strongly in Germany's national interest. The country had most to gain from a functioning Europe. Not only did a well-oiled EU make the Germans immensely rich and turn former enemies into friends; it also enabled Germans to live at peace with themselves, a motivation that was (and still is) hugely underestimated by others when they assess German foreign policy.
The third pillar of the Kohlian trinity was a painstaking effort to attend to the fears, worries, and concerns of Germany's neighbors. Kohl's mastery came from the fact that he wasn't only interested in the big players like France, Britain, or Italy. That went without saying.
He was also particularly concerned about the smaller countries. He put an enormous effort into cultivating trusted relationships with the Netherlands, Denmark, Austria, and also, crucially, with Spain. Kohl knew that these states all had barely concealed nightmares about German size and dominance, and about their dependence on Germany's economy. So he made a point of visiting them disproportionately often and being their advocate, whenever possible, inside the EU.
Germany's extraordinary investment in these smaller players (a feat that consecutive French governments were unable to pull off) served a dual purpose. The move created the trust that Germany's neighbors needed and that the Germans themselves required to come to terms with their place in Europe. And the effort was eminently smart power politics in terms of organizing majorities in the EU institutions.
Today, Germany's dilemma is twofold. First, the three Kohlian pillars of leadership are still required, but they are only partly intact at best. Second, even if they were fully functioning, they would no longer be sufficient.
Europe now is structurally different from in Kohl's day. Germany, at least for the time being, is towering over Europe as it has never done in the postwar era. The EU itself is much larger and much more difficult to run. And foreign policy-including security questions, once a marginal aspect of EU politics-has grown to be a primary concern.