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Home , Yellow vests movement

NO. 17 MARCH 2019 Introduction

Macron, the Yellow Vests and the National Debate Playing for Time, Not Solving the Political Legitimacy Crisis Ronja Kempin and Paweł Tokarski

France’s yellow vests (gilets jaunes) are heterogeneous, make contradictory demands, and refuse to give up. Since November 2018 they have been demonstrating for more purchasing power and greater democracy. Having made financial concessions, Presi- dent is now playing for time. He has initiated a “grand national debate”, in which all citizens were called on to voice their opinions concerning future political issues. This debate is likely to help him win the European Parliament (EP) elections in May and facilitate splintering the yellow vests. To avert further that could paralyse the country, delegitimise his government and ensure that his presidency fails, Macron needs to improve the way he communicates his reform agenda. Merely playing for time will not make reformable and governable for this president, any more than it did for his predecessors.

The protests never end. Since 17 November are held by the rural lower-middle class, 2018, people wearing high-visibility yel- including craftsmen and women and shop- low vests have been taking to the streets keepers. They can barely earn a living from of France on Saturdays. The protests by their work and are afraid of sliding into the yellow vests, organised nationwide, were poverty. Politically, according the yellow initially directed against the higher on vests, they have no voice. They reject the fossil fuels planned by President Macron. support of the trade unions and parties of They quickly evolved into a list of 42 the political left, which previously chan- demands. The yellow vests want the president nelled similar social demands. Politics, to lower “all ”, raise the minimum they insist, should be conducted by and wage and , and also to reintroduce for “ordinary people”. There should be the abolished in 2018. Many of more political participation, for example their demands are in line with the election by allowing citizens’ or popular initiatives promises Macron made during the 2017 to launch referendums (référendum d’initia- campaign: lower taxes, more purchasing tive citoyenne). power, and greater democracy. The protests

The Government’s Response erty in 2017. This relatively small figure needs to be contextualised: about half of President Macron rapidly came under pres- those polled say they have no money left sure: despite the violent excesses that over- in their account by the end of the month. shadowed the demonstrations, initially over 70 percent of the French population sup- No Fiscal Leeway ported the protesters’ demands. President Macron cannot make any more Change of Course financial concessions to the yellow vests: he lacks the leeway. The emergency meas- In early December 2018, Macron there- ures adopted will cost the French govern- fore suspended the planned tax increase ment eight to ten billion euros per year, on petrol and diesel. Shortly afterwards, according to its own estimates. It is un- he announced four immediate measures: known whether this already includes the to subsidise the by up to postponement of the planned eco-tax in- 100 euros per month with public money; to crease, but either way France is likely to bring forward the tax and duty exemption miss the criteria once again in for overtime payments originally planned 2019. With a deficit of 2.7 percent of gross for September 2019; to exempt all domestic product (GDP), met the Maas- payments below 2,000 euros from taxes; tricht threshold of 3 percent in 2017 for the and to pay out a tax-free premium to em- first time in nine years. For 2019, the gov- ployees at the end of 2018 if companies are ernment had planned a deficit of 2.8 per- capable of doing so. cent of GDP. Ten billion euros more would However, these concessions failed to end correspond to an additional debt of 0.5 per- the protests. To date, President Macron has centage points. According to an agreement not been able to convince the people that with the EU Commission, France’s deficit is his reform agenda is as necessary as it is allowed to exceed the 3 percent threshold right. Since taking office, he has trans- in 2019, but not in subsequent years. formed France at record speed: making Moreover, social tensions are likely to labour laws more flexible, providing finan- have an impact on the labour market. Al- cial relief for companies, and reforming the though the unemployment rate has fallen education system and the SNCF state rail- to its lowest level since 2009 (8.8 percent in way. In the course of these reforms, his the fourth quarter of 2018) and, according popularity ratings have fallen. He ignored to experts, will continue to fall until 2022, the fact that he received more votes when the positive effects Macron had hoped for elected in April/May 2017 from the left of from his labour-law reforms have so far the political spectrum than from the con- been modest. One problem is the high num- servative camp. He postponed the reform ber of fixed-term contracts: almost 85 per- of the welfare state, which was particularly cent of new hires are temporary. There is important for the left, instead abolishing also significant social exclusion from the the wealth tax (except on real estate) and labour market. In France, the proportion introducing a flat tax of 30 percent on all of 20- to 34-year-olds who were not in edu- capital gains. Macron is thus regarded as cation, employment or training in 2017 was a “president of the rich” who furthers in- higher (18.2 percent) than in (11.9 equality in the country. However, France’s percent). Furthermore, France’s tax-to-GDP inequality level – measured statistically by ratio is the highest of all OECD countries. the S80/S20 average income ratio of 20 per- According to Eurostat, it amounts to 48.2 cent of the richest and 20 percent of the percent of GDP and is thus well above the poorest people in a country – is lower than eurozone average of 41.4 percent. Further in most other EU countries: 13.3 percent of taxation of the economy appears to be the French population were at risk of pov- ruled out.

SWP Comment 17 March 2019

2 Finally, President Macron cannot meet mitted to the well-being of their voters. the demands of the yellow vests to solve the Macron has now granted them this role country’s economic and social problems again, while at the same time making them through greater state intervention. At 56.5 executive bodies of his policy. percent of GDP in 2017, France’s share of Second, the debate helped to divide the public spending was the highest among yellow vests movement: they do not have a OECD countries. The country’s oversized homogenous attitude towards it. According public sector is one of the main reasons to surveys, about 40 percent of the French for its chronic budget deficits. population wants to take part in the debate. Repeatedly, yellow vests also found their way to events of the “grand national debate”. The Debate: A Smart Move They are broadly in agreement with the issues raised by President Macron. In late Against this background, Macron’s “grand January 2019, other yellow vests launched débat national” is his only promising way a “true debate” (le vrai débat) on France’s out of the crisis. Since mid-January, citizens future to compete with Macron’s debate. of the country have been invited to express The yellow vests who have been part of the their opinions and ideas on the following movement from the very start, on the other topics online and in organised debates: hand, are arguing about whether the use of ecological change; taxes and government police force during yellow-vest protests may spending; democracy, participation, repre- be met with . These disputes cost sentation and coexistence; and state struc- public empathy. While in November 2018 tures and public services. The discussions 71 percent of the population still agreed ended in mid-March, and the President with the demands and actions of the yellow plans to present their results in April 2019. vests, in March 2019 54 percent did so. Sim- This debate is proving to be a clever ultaneously, part of the movement is politi- move for three reasons: first, it allows Presi- cising – some are making initial attempts dent Macron to use the French mayors to to draw up a list for the European elections his advantage. They organised over 60 per- in May. cent of the debates. And yet almost all of This is Macron’s third advantage. A yel- them belong to the opposition, meaning low vest list would deprive both Marine Le the conservative, communist or socialist Pen’s far-wing Rassemblement National (RN) parties, or are non-partisan. Relationship and the left-wing populist La France Insou- between the president and local politicians mise (FI) of votes. It could therefore make have been frosty. Since 2014, 750 mayors a decisive contribution to Macron winning have resigned – more than ever before. the EP election. Long before the yellow More than 50 percent do not intend to vests protests began, styled run again in the local elections in 2020. In this election as a vote on the president’s France, mayors have a dual role: on the one policy to date. While Macron’s La République hand, they are representatives of the state en Marche (LaREM) party is still looking for and, on the other, they are directly elected a prominent top candidate and suitable representatives of their community. They topics for its European election programme, feel abandoned by the state in coping with Le Pen has been ready for the election cam- everyday problems and increasingly see paign since mid-January 2019. However, the their competences curtailed. For example, “grand national debate” prevents it from they complain about the closure of police being heard. President Macron has thus and fire stations, schools and post offices. also seized control of a key issue from his In July 2018 they refused the president’s fiercest adversary: citizens’ participation invitation to a national conference on rural in political debate. areas, and in September 1,200 mayors re- minded him that they were above all com-

SWP Comment 17 March 2019

3 Reform after Revolt? stitution. Moreover, Berlin and Paris remain undecided about their economic cooperation The “grand national debate” should thus in and for Europe. The 15 priority projects help Emmanuel Macron to emerge victo- agreed by both sides for implementing the rious from the biggest protests since the Aachen Treaty of January 2019 only men- student revolts of 1968. None of his politi- tion new technologies, the digital economy, cal opponents has yet been able to capi- and the deepening of the internal market talise on the popular dissatisfaction. Never- in financial services. theless, the remainder of Macron’s term in office is unlikely to be any calmer, espe- © Stiftung Wissenschaft cially since his announcement that he will und Politik, 2019 resume his reform agenda as of May 2019. All rights reserved He plans to reform unemployment insur- ance and reduce the number of people This Comment reflects employed in the public sector. His success the authors’ views. depends on two factors. First, he needs to The online version of explain his economic and social reform this publication contains agenda better: why is it necessary, and what functioning links to other are its goals? When will all those affected SWP texts and other relevant by the reforms today benefit from them? sources. Young people in France in particular are SWP Comments are subject asking themselves these questions. They are to internal peer review, fact- the ones Macron must win over. So far, he checking and copy-editing. has not succeeded: 67 percent of 18- to 24- For further information on year-olds currently distrust him. Second, our quality control pro- Macron must permanently shift the impres- cedures, please visit the SWP website: https://www.swp- sion that the actions of the political class berlin.org/en/about-swp/ bypass society. This will only happen if quality-management-for- political decision-making processes are swp-publications/ decentralised once again. If he is not able to herd the population behind him in the long SWP term, the younger generation in particular Stiftung Wissenschaft und Politik will probably return to the streets and sooner German Institute for or later be driven towards the extreme left International and or right. The current economic slowdown Security Affairs provides an unpropitious framework for the reform programme – though the yel- Ludwigkirchplatz 3–4 10719 Berlin low vests protests have not impressed the Telephone +49 30 880 07-0 country’s economy. Yet improved economic Fax +49 30 880 07-100 performance (and thus also the changes www.swp-berlin.org in unemployment) depends on growth mo- [email protected] mentum within and outside the eurozone.

ISSN 1861-1761 The political success of the French presi- doi: 10.18449/2019C17 dent is in Germany’s strategic interest. There is no alternative to Macron in terms of the Translation by Tom Genrich structural reforms required. However, the possibilities for support from Berlin are (English version of limited: France is debating its internal con- SWP-Aktuell 13/2019)

Dr Ronja Kempin is Senior Fellow in the EU / Europe Division at SWP. Dr Paweł Tokarski is Senior Associate in the EU / Europe Division at SWP.

SWP Comment 17 March 2019

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