Germany and France Driving EU, to Distraction of Other Members

Two Say Close Relationship Does Not Harm Europe's Interests

French President Jacques Chirac, left, and German Chancellor Gerhard Schroeder chat after talks held earlier this month in Genshagen, Germany. (Michael Dalder -- Reuters)

GENSHAGEN, Germany -- Every six weeks or so, the leaders of Germany and France drop everything and get together for a meal.

This month, the place was this tidy village 10 miles south of Berlin. French President Jacques Chirac arrived by helicopter, then rode through the streets in a black Mercedes, waving to the locals. Ahead, up the cobblestone drive of a mansion that houses a French-German cooperation institute, his counterpart Gerhard Schroeder was waiting. Beaming, the two men embraced, bantered for a moment by the car, then disappeared inside amid a clutch of aides for lunch and private talk.

From the start of European integration a half-century ago, French-German cooperation has been the driving engine. Today the tie is so close, at both the personal and national levels, that elsewhere in Europe some people see too much of a good thing. In their view, France and Germany are sometimes crafting the new Europe on the principle that what's good for them is good for everyone.

In the past year, the two countries have stood firm against the United States in the Iraq war, ignoring sentiment in other European capitals. In efforts to restart their stalled economies, they have violated the fundamental pact of the five-year-old euro common currency. Now they are helping hold up the drafting of the first European Union constitution by insisting on a voting system weighted in their favor.

"The two cooks come from the kitchen and say they have already prepared the dinner . . . You can either eat it or not eat it, but this is what the dinner is," said Jan Truszczynski, who represents Poland, an incoming European Union member, in negotiations. Too often, he said, that's the unpleasant taste the two leave behind.

Spanish Prime Minister Jose Maria Aznar, another critic, recently summed up the constitutional deadlock: "There's one issue being debated -- who's going to be the boss in the Europe of the future?" he told Washington Post reporters and editors last month.

In Berlin and Paris, officials concede that such tensions exist, but they say that whatever others may say, Europe's interests remain at the heart of the cooperation. Hans Martin Bury, Schroeder's coordinator for relations with Europe, depicts agreement between France and Germany, countries that have vastly different cultures and a history of animosity, as a natural starting point for any decision to be made in the 15-country EU as a whole.

"If we can't get together, there won't be a consensus in Europe," he said in an interview in his Berlin office. "We bring different interests and traditions together. Our interest is not to dominate Europe but to create new solutions."

The partnership is overseeing a future that includes admission of 10 new member countries on May 1, strengthened rule of law, human rights and environmental protection and a progressive pooling of money and decision-making. The union sometimes functions as a counterbalance to U.S. influence in the world, though in foreign policy the two big partners don't always prevail. During the Iraq war, Britain, Spain and Italy led a faction siding with Washington.

The union is creating closer ties between all members, but nowhere are they closer than between Germany and France. Their cabinets hold joint meetings twice a year. Ministers meet to work on "road maps" on issues of mutual interest. French officials are stationed in ministries in Berlin, and Germans serve with their counterpart agencies in Paris. In a few countries, the governments have joint diplomatic offices and cultural institutes.

The heads of German states and French regional governments met in October to approve the exchange of more students and teachers and generally enhance people-to-people links; about 150,000 people already take part in youth exchange programs each year. Plans call for a 50 percent rise in the number of students studying the other country's language. Historians from both sides are meeting in an effort to draft a common textbook for use in French and German high schools.

As the war generation dies out, ordinary people on the both sides of the long-disputed border are acquiring warmer feelings toward each other. In a November 2002 survey of people aged 15-30, 88 percent of Germans described relations as rather good or very good; 94 percent of French respondents did.

French and German officials contend that each day that things go so smoothly is a miracle, in view of the rivalries and wars between the two peoples stretching back to the Middle Ages.

Preventing yet another armed conflict between France and Germany was the vision underlying the EU's founding in 1951 as a six-country common market for coal and steel. In subsequent years, President Charles de Gaulle acted as Chancellor Konrad Adenauer's patron in readmitting Germany to respectability in the postwar period.

National needs have often helped smooth over personal differences between German and French leaders in the past, as is happening today. Chirac is a highly cultured man who attended France's elite schools and leads a right-of-center government. Schroeder has blue-collar roots and governs from the left. But by all outward signs, there is a personal rapport, and officials on both sides say it is real.

Relations between the two leaders were not always smooth. At an EU summit in Nice in December 2000, France and Germany clashed over a new framework for governance of an expanded EU. But a month later the two met for dinner at a restaurant in the French village of Blaesheim, on territory that had changed hands four times in 130 years. They decided to meet every six weeks or so, just to keep up. The lunch in Genshagen on Feb. 9 was the 17th such get-together.

The first big sign of parallel thinking came in 2002, when France and Germany reached a deal on restructuring EU farm programs, the largest single drain on the EU's $120 billion annual budget.

As the Iraq war approached, the two leaders again stood together, in opposition. Their reasons were different. Chirac sought to assert France's independence in the world, political analysts say, while Schroeder found he could save a failing reelection campaign by playing to antiwar sentiments among German voters. But the positions were the same: no support at the United Nations, no troops.

In the meantime, both countries' economies were stagnating as part of the global slowdown that followed the terror attacks of Sept. 11, 2001. Both governments tried to stimulate their economies through deficit spending, at levels supposedly outlawed by a pact that laid down rules for countries using the euro.

In theory, they became liable for fines equivalent to billions of dollars. In November, finance ministers from the euro countries voted 8 to 4 to forgive the transgression. Dutch Finance Minister Gerrit Zalm, a dissenter, complained that other ministers "had been intimidated by these two big countries."

France and Germany have also stood firm in the unsuccessful negotiations on the EU's first constitution. They and other countries say that to pass, a measure must have the backing of a majority of countries that represent at least 60 percent of the expanded EU's population of nearly 500 million people. That would make it hard for smaller countries to gang up against the big ones.

People in other countries sometimes see hints of coercion in statements from Germany, the biggest net contributor to the EU budget, that without agreement on the constitution it will be hard to settle on budgets.

The new style of business has also drawn criticism at home. In Germany, a debate broke out last year on whether the country was squandering trust and friendships built at great effort since 1945. "There is less willingness by people to think that France and Germany act in the interests of Europe," said Christoph Bertram, chairman of the German Institute for International and Security Affairs. "The Germans have lost something very important."

In France, said Jean-Luc Parodi, an analyst at the IFOP polling institute, the political elite is committed to the German ties. But among ordinary citizens, feelings can differ. Some "see a little risk in giving too much importance to this alliance and not enough to the total European alliance."

Officials in the two countries promise to try harder to consult, but some say that at times there's just no pleasing the critics. At the constitutional convention, said a senior French official, who spoke on condition of anonymity, delegates from other countries frequently asked: " 'What will France and Germany do?' They were waiting for the initiative from France and Germany . . . In other cases, they said, 'be careful, we don't want you to impose your views.' "

Bury said that Germany and France work hard to include other nations in consultations. British Prime Minister Tony Blair periodically attends three-way summits with Chirac and Schroeder, most recently Wednesday in Berlin. In addition, Germany and France are developing European military policy with Belgium and Luxembourg, and strengthening ties with Poland.

But in their public words and body language, Chirac and Schroeder seem to try to show there is no relationship like theirs. At news conferences, they talk about holding identical views. At times, each publicly grants the other a sort of political power of attorney -- the right to speak for both.

In Genshagen, dressed in similar gray suits, they stepped into a ballroom to deliver that message again to reporters.

Schroeder said: "The close, friendly French-German cooperation that has brought very, very pleasant personal experiences is truly fit to make progress for both countries, to make progress for Europe and to let the weight that we have together be clearly known in international discussions."

Chirac chimed in: "On the European topics that we have discussed our positions are absolutely identical. We have the same views." He went on to say that later in the day Schroeder would present those views on behalf of both men to Irish Prime Minister Bertie Ahern, whose country holds the rotating presidency of the EU.

But one French reporter managed to zero in on discord. France wants to lower the EU-regulated value-added tax that restaurants collect; Germany is opposed. Chirac replied that France understands Germany's position, and Germany understands France's. Smiling, he added that on this issue France will not budge.