The Question of Normative Power in German Foreign
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The London School of Economics and Political Science The Remaking of Identity: The Question o f Normative Power in German Foreign Policy (1997-2007) Patricia Daehnhardt A Thesis submitted to the Department of International Relations of the London School of Economics and Political Science for the Degree of Doctor of Philosophy, London, April 2008 1 UMI Number: U615915 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U615915 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 I l<-n Declaration I certify that the thesis I have presented for examination for the MPhil/PhD degree of the London School of Economics and Political Science is solely my own work other than where I have clearly indicated that it is the work of others (in which case the extent of any work carried out jointly by me and any other person is clearly identified in it). The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without the prior written consent of the author. I warrant that this authorization does not, to the best of my belief, infringe the rights of any third party. Abstract This thesis examines the dimension of normative power in Germany's foreign policy and the extent to which the contours of a changing German international identity have transformed the parameters of that normative power It studies how foreign policy has moved between a logic of appropriateness and a logic of consequentialism in Germany’s motivations for political action. The thesis is informed by social constructivism and liberal institutionalism, in that it starts from the premise that German foreign policy is inherently shaped by identity and institutions. Whereas most academic work emphasizes continuity in foreign policy after unification, this thesis argues that Germany's foreign policy has changed significantly between 1997 and 2007. This happened because policy-makers reformulated Germany’s international identity thereby shaping a new framework for foreign policy. This remaking of identity diminished the country's predominantly normative orientation and reinforced a more utilitarian approach for foreign policy-making. The thesis attempts to show how this remaking of identity was conducted and how identity change preceded the shift in the realm of foreign policy. The empirical part of the thesis compares the foreign policies of the governments of Chancellors Helmut Kohl, Gerhard Schroder and Angela Merkel in the period from 1997 to 2007. To do so it examines four case studies which are representative of the transformation in German post-unification foreign policy: Germany's new security policy; the Europeanization of Germany’s European policy regarding the Common Foreign and Security Policy (CFSP); bilateral relationships with France and the United States, and Germany's quest for permanent membership of the UN Security Council. These four policy domains all involve fundamental choices about Germany's foreign policy identity, and the nature of Germany's normative power at the beginning of the twenty-first century. 3 Acknowledgements I would like to acknowledge the generous support of the British Council Chevening Scholarship programme, and of the Portuguese Foundation for Science and Technology (FCT-Fundagao Ciencia e Tecnologia). I would like to thank the politicians, diplomats and scholars who have spared me their valuable time for interviews. For their helpful advice I thank Christoph Betram, Mathias Fischer, Gunther Hellmann, Adrian Hyde- Price, John Ikenberry, Charlie Jeffery, William Paterson and Gregor Schollgen. I would also like to thank Jose Manuel Durao Barroso, Carlos Motta and Joaquim de Carvalho. In particular, I thank Carlos Gaspar for his continuous encouragement and intellectual stimulus. Finally, a special thank you goes to my supervisor Christopher Hill for his valuable judgment, and thorough engagement with my work. My last word of thanks goes to my husband Ruben for his unconditional support and friendship over many years. 4 TABLE OF CONTENTS CHAPTER 1: The remaking of Identity and foreign policy in post-unified Germany 10 CHAPTER 2: Germany’s international identity and normative power 32 CHAPTER 3: The domestic sources of German foreign policy identity: The government, political parties and foreign policy 61 CHAPTER 4: Germany’s New Security Policy 92 CHAPTER 5: The European dimension of German foreign policy: Germany and European Union Foreign Policy 119 CHAPTER 6: The Euro-Atlantic dimension of German foreign policy Redefining bilateral relations: Germany’s partnerships with France and the United States 149 CHAPTER 7: The international dimension of German foreign policy: the quest for a permanent UN Security Council seat 183 CHAPTER 8: Germany’s foreign policy identity and European order 219 5 DETAILED TABLE OF CONTENTS CHAPTER 1: The remaking of Identity and foreign policy in post-unified Germany 12 1.1. Introduction: Germany’s international identity and interests in foreign policy 12 1.2. Thesis purpose, argument and contribution 14 1.3. Thesis structure 19 1.4. Continuities and changes in German foreign policy: a literature review 21 1.4.1. From unification to the Kosovo war 21 1.4.2. From the Kosovo war to the transatlantic crisis: The end of Germany’s foreign policy consensus 24 1.4.2.1. Support for Schroder’s foreign policy change: Gregor Schollgen and Egon Bahr 25 1.4.2.2. Criticism of Schroder’s foreign policy change: Hans Peter Schwarz and Gunther Hellmann 26 1.4.2.3. The persistence of continuity: Hanns Maull and Thomas Risse 28 1.5. Conclusion 30 CHAPTER 2: Germany’s international identity and normative power 34 2.1. Introduction: The problematique 34 2.2. Theoretical framework 37 2.2.1. Constructivism, foreign policy change and power 40 2.3. The articulation of foreign policy and identity 43 2.3.1. Germany’s international identity and foreign policy change 46 2.4. Normative power in German foreign policy 47 2.4.1. Normative power and constructivism 47 2.4.2. Norm creation, norm interaction and norm change 50 2.4.3. From normative practice to normative power 51 2.4.3.1. The sources of Germany’s normative power 52 2.4.4. Potential path redefining moments 55 2.4.4.1. Germany’s normative power from 1997 to 2007 55 2.5. Logics of political action: the logic of appropriateness and the logic of consequentialism 56 6 2.5.1. German policy-makers, the logic of appropriateness and the logic of consequentially 58 2.6. Conclusion: The weakening of Germany’s normative power? 61 CHAPTER 3: The domestic sources of German foreign policy identity: The government, political parties and foreign policy 63 3.1. Introduction: The domestic sources of German foreign policy identity 63 3.1.1. The past and the various German questions 64 3.1.2. Germany as part of the West 67 3.2. German foreign policy debates during the Kohl government (1997-1998) 69 3.2.1. Germany’s role in international politics: the past and German normality 69 3.2.2. Debates on German security policy: Bundeswehr out-of-area interventions 71 3.2.3. Debates on German European policy 74 3.3. Political debates during the Schroder government (1998-2002) 77 3.3.1. Germany’s role in international politics: the Zeitgeist of the new Berlin Republic 77 3.3.2. Debates on German security policy: German participation in multilateral military interventions: the cases of Kosovo and Afghanistan 79 3.3.2.1. The Bundestag debate on Kosovo 79 3.3.2.2. The Bundestag debate on Afghanistan 81 3.3.3. Debates on Germany’s European policy 82 3.3.4. Debates on German transatlantic policy 83 3.3.5. Competing approaches: Schroder and Fischer 87 3.4. Political debates and policy-making during the Merkel government (2005- 2007) 90 3.4.1. The role of Bundeswehr interventions: the case of Lebanon 90 3.5. Conclusion 92 CHAPTER 4: Germany’s New Security Policy 94 4.1. Introduction: Normative power and Germany’s new security policy 94 4.2. The Kohl government 1997-1998 96 4.2.1. The end of the ‘'culture of restraint’? 96 4.2.2. Germany and NATO enlargement 97 7 4.3. The Schroder government 1998-2005 98 4.3.1. Germany’s policy for Kosovo 98 4.3.1.1. The Stability Pact for South-Eastern Europe 102 4.3.2. The development of the ESDP and Germany’s role 104 4.3.2.1. The European Security Strategy 107 4.3.3. Germany in Afghanistan and the implications for its security policy 109 4.3.4. Germany’s participation in international military operations 111 4.3.5. The changed role of the Bundeswehr 114 4.4. The Merkel government and Germany’s security policy (2005-2007) 115 4.4.1. Compatibility between EU and NATO 115 4.5. Conclusion 118 CHAPTER 5: The European dimension of German foreign policy: Germany and European Union Foreign Policy 121 5.1. Introduction: The Europeanization of foreign policies 121 5.1.1. Germany in the EU: the path towards Europeanization 123 5.1.2. Unification and changes in German European policy 126 5.2.