The European Finality Debate and Its National Dimensions, a CSIS publication edited by Simon Serfaty, provides a critical set of reflections about Europe’s future and insightful commentary regarding the importance of the finality debate to the transatlantic relationship. The opening chapter sets the context by clarifying the historical origins of the post-1945 European project. After centuries of fratricidal wars, community Europe “was not born out of a common vision of the future.” The impetus for its realization was “the shared vision of a failed past.”

Serfaty identifies the logic that led to peace on the Continent, which, although “ill-defined,” prevented the nation-state in Europe from destroying itself and its neighbors. The volume helps the reader to question Europe’s future in myriad ways. At least three merit our attention as we revisit Waltz’s images: human nature and popular identification with the European project; the changing nature of national leadership and its impact on coalition politics in Council negotiations; and questions of cooperation and conflict among member states in, or aspiring members to, a larger Union with redefined core-periphery relationships.

Europe’s failed past, including the Balkans’ ethnic conflicts, is one which forces the reader to confront issues fundamental in human nature. The Hobbesian side of humankind reveals a quest for power and a drive that leads to destruction or domination under a single authority. The Kantian liberal internationalist nature is born of the transformation of individual consciousness, republican constitutionalism and ties that bind humans together in commerce. Harmony of interests is the Kantian objective. The absence of war, the triumph of Community law over national legislation, and the adherence to negotiation and persuasion over force and domination characterize the Union as the world’s first post-national polity.

The persistent disregard for human life in the Balkans speaks to the darker side of human nature, however. Deadly ethnic skirmishes on Europe’s periphery stand in sharp contrast at present to the way in which conflicts and harmony of interests are channeled in Council negotiations. As we underscore this contrast in Europe’s finality debate, we must also inquire into the meaning of Europe for its peoples. What opportunities for identification and, more concretely, participation can European citizenship afford?

The chapters on Germany by Wolfgang Wessels and Spain by Carlos Closa Montero cogently assess the ways in which member state participation in community Europe has provided, as Lily Gardner Feldman concludes, “a channel for identity formation.” Gardner Feldman’s comprehensive analysis contrasts the importance of the community endeavor for France, the United Kingdom and Italy with integration’s “defining” significance for Germany, Spain and Poland. This chapter also highlights the “psychological need to belong” as a “powerful incentive” for Germany and Spain to seek EU membership. These countries sought to gain international acceptance and, along with Poland, to complete democratic transitions after the horrors of National Socialism, fascism and communism.

Yet, individual chapter analyses do not impress upon the reader that this psychological need resonates among the peoples in the Union’s member states. On the contrary, the evidence that addresses popular identification with the Union is mixed at best with populations’ support for the integration project declining in founding members such as Germany, France and Italy. In terms of citizen participation, existing channels remain difficult to identify. Instead Europe’s peoples are left confused by, indifferent to, or increasingly, angered within a system in search of a governance model.

Desmond Dinan’s chapter articulates that generating popular interest may be the greatest challenge to the European Convention and the 2004 intergovernmental conference (IGC). Dinan’s fundamental point is that “a democratic deficit exists because people feel alienated from the EU.” It is also evident to the reader that challenges to democratic participation in some national contexts, notably France, are critical to understand Europe’s evolution. Philippe Moreau Defarges explains that, in Chirac’s 2002 presidential election campaign, “the EU was almost a nonexistent issue.” The 28 percent abstention rate in the first round allowed Le Pen to defeat Jospin. The decline in voter abstention to less than 20 percent in the second round provided a wake-up call to democratic governments.

In the Alsace region, disputed historically between France and Germany and a home in Strasbourg, its capital, to the European Parliament and the Eurocorps, the most striking issue during the 2002 elections was the distrust of politics in general by the people. The high abstention rate translated into a protest vote or apathetic resignation in the face of boredom and frustration with the elitist political establishment centralized in Paris. The media’s coverage of Alsace focused on acts of violence, natural disasters, and crash incidents. There was little evidence of the constructive, positive re-enforcement to which citizens could point with local, national or European pride.

In this volume, with the exception of David Allen’s chapter on Great Britain, the role of the media in shaping popular attitudes towards Europe is not analyzed. Daily media reporting about the Union and its influence on civil societies’ perceptions of Europe in national contexts warrant reflection. A chapter to analyze the Web-based media’s impact on the emerging views about integration, including transnational coverage at http://www.euobserver.com, would be useful. Of related interest is the exponential increase in Internet usage and the youth’s growing reliance on its communications applications across the Continent, including an assessment of these trends’ influence on the emergence of a European consciousness.

This volume’s chapters also reveal a striking development in the way leadership changes in Italy and Spain have led to a rethinking of traditional national views about integration. Gianni Bonvicini discusses Silvio Berlusconi’s second center-right government and its daily activities that differ radically from those of its predecessors. Italy’s fear of exclusion from key European decision-making processes and Spain’s concern about second-class citizens in a “two-speed Europe” foreshadow the limits, in a larger Union, to the “directoire” approach, in which a Europe of 25+ members is led by Germany and France in an intergovernmental system.

This fact complicates the dynamics of the Franco-German relationship, which is still in a difficult period of adjustment, the October 2002 bilateral farm subsidies deal notwithstanding. In terms of decision-making efficiency, the broader use of qualified majority voting (QMV) is essential in the eyes of Germany and the European Commission. A change of this scope is likely to interplay fundamentally with coalition politics in Council negotiations as the blocking minority’s usage increases within a more heterogeneous Union.

Of particular significance in leadership terms is the extent to which national politicians are accountable to citizens within the Union’s system. The fact that Europe is perceived in popular thinking as technocratic, not political, leads the majority of citizens to depict the European engine as running on its own steam instead of driven by leaders who are held responsible for its actions, as Moreau Defarges explains.

This not only leads to the scapegoat phenomenon, which places the European institutions, particularly the Commission, consistently in a negative light. Critically, it also makes citizens unaware of their national politicians’ input into European policy-making, the ways in which European policies intersect with national interests and the degree to which Union policies articulate citizens’ concerns.

The relations among the Union’s member states are likely to become more complicated with successive enlargements. While this is certain to make a multispeed Europe a necessity, more worrisome, as Fraser Cameron argues, is a “multivision” Europe. In the larger Union, conflict and cooperation are likely to re-emerge as center-periphery issues come to the fore. Jacek Saryusz-Wolski asserts that Poland would do well to “stay focused on the East and the South” as it becomes a leader in the region and a voice for those countries temporarily excluded from the integration process. The fact that geographical expansion will redraw the boundaries simultaneously in both directions lends credence to John Van Oudenaren’s argument that Russia is likely to prefer the emergence of a loose, intergovernmental Europe.

New frontiers raise old questions about the choices among egoism, equilibrium and equality in Europe. Neither the choice for egoism nor equilibrium has sustained peace on the Continent in previous centuries. A Union in which its member states are assured equality leads us to question the likelihood of general acceptance by 25 member states for a European federation. Is either the German proposal for an association of states or the French idea of a federation of nation-states a realistic model for Europe’s future?

This volume leads the reader to observe that the debate about Europe’s finality is more likely to achieve member state consensus if there is a shared approach to institutional organization and political decision-making. This must reflect a clear understanding of feasible integration objectives that emphasize the prudent use of limited financial resources. Attempts to use third parties, not only the United States, as counterweights to unite against are more likely to bring out divergent interests in a heterogeneous Union than convergent ones.

A pro-integration consensus to enhance cooperation and minimize conflict as Europe expands to the borders of war-torn zones requires the active support of populations. Europe’s citizens must identify at once with their national and the larger Union polities as part of a transnational civil society. The Newropeans Democracy Marathon is one initiative that aims to foster citizens’ debate across the Continent about Europe’s future.

Such initiatives must confront the weight of three traditional conceptions of authority, analyzed by S.N. Eisenstadt, with which the Union now grapples: the central administrative locus of authority; representative institutions, particularly national parliaments; and public opinion in which sovereignty is placed in the popular will, notably through the use of national referenda to approve successive European treaty amendments since the Single European Act. Each conception has evident weaknesses in the present European system.

Given this fact, an unprecedented European civic awareness is emerging at the local level closest to the peoples of Europe. This evolution, occurring initially between the younger generations across member states and within Euro-regions, is likely to be an intrinsic part of the European finality debate’s national dimensions over time. As the finality debate enters a new phase, the CSIS volume is essential reading to evaluate critically the open-ended possibilities in Europe’s future and their implications for transatlantic relations.

Colette Mazzucelli
Robert Bosch Foundation Fellowship Alumna