The Politics of Differentiated Integration: What do Governments Want? Country Report – France

Abstract

This report investigates the politics of Differentiated Integration (DI) in France between 2004 and 2020. It looks at the salience of DI in government discourse, on conceptual grounds and on more concrete references. The report also aims to define the position of the French government (broadly understood as a set of institutional actors) on differentiated integration over time and to assess its stances on specific mechanisms and instances of differentiated integration. It shows that the salience of differentiated integration (DI) has increased over time in France. Notably, Emmanuel Macron engages more than his predecessors with European issues and DI in terms of concepts and models. On the other hand, DI mechanisms are more salient in parliamentary debates, particularly during two EU institutional crises: the 2012 eurocrisis and the 2016-2018 Brexit crisis. In both cases, the emphasis put on enhanced cooperation or opt-outs relates to economic issues. Conceptual references to differentiated integration in political discourse in France are generally neutral or positive. Two factors seem to be shared by all the French presidents: a need for enhanced cooperation on strategic issues (defence, foreign affairs, economic issues) and an emphasis put on Franco-German cooperation. Debates in parliamentary committees on differentiated integration and different models of it reflect a consensual position: DI is desirable, but needs to be debated with caution. To this end, multi-speed Europe is generally connoted negatively, while references to multi-end Europe are more positive. Positions on DI mechanisms follow a pro-European line: the French government (in the broad sense) usually views enhanced cooperation positively and opt-outs negatively. In particular, the French government seems to actively promote enhanced cooperation on economic issues. It is noteworthy that opt-outs are usually associated with a critique of the British influence on European integration.