The Treaty of Aachen (Aix-la-Chapelle)

On 22 January 2019, Chancellor Angela Merkel and President Emmanuel Macron signed a new treaty on Franco-German cooperation and integration in Aachen. It did not replace the Elysée Treaty of 1963 but added to it. The idea of a new treaty had already been proposed by France more than a decade prior. Initially, the German government did not follow up on the proposal. Macron took the matter up once more during his speech at the Sorbonne in September 2017 in which he relied on strengthening bilateral ties to bring fresh momentum to Europe. At first, Berlin was held back by the extended negotiations for its governing coalition. Both two parliaments then took control of the situation and put forward the idea of a Franco-German parliamentary assembly. The mission of this 100-member assembly established in 2020 is to monitor and evaluate bilateral affairs and cross-border cooperation as well as the implementation of EU directives into domestic law in both countries! It also has the right to put proposals forward but no decision-making authority. The Treaty of Aachen also draws on this Franco-German parliamentary cooperation, the fundamental role of which is recognised by both governments.

Why sign a new treaty? The Élysée Treaty was more than half a century old and the world had undergone deep change in the meantime. 1963 was a time of division in Germany and Europe, the era of the Cold War. But now, reunited Germany has become an economic and political power, transforming the bilateral relationship; Europe, too, has joined together as successive expansions have helped shift its centre of gravity towards the East. Europe is increasingly divided in the face of the rise of populism; the post-Cold War world has grown multi-polar and more uncertain. We also have new challenges to face: the climate, migration, the digital economy, terrorism, etc.

In addition to an organisational part to further strengthen consultations, the treaty comprises five chapters: 1. European affairs; 2. Peace, security and development; 3. Culture, education, research and mobility; 4. Regional and transnational cooperation; 5. Sustainable development, climate, environment and economic affairs. It therefore has a broader scope than its predecessor treaty of 1963. In the field of cooperation, it includes points on which both countries have a considerable record, particularly in the areas of youth and cultural and societal exchange, but also other aspects in which the countries’ viewpoints still greatly diverge – such as defence – or in which the results leave something to be desired, such as language instruction. 

The Treaty of Aachen brings fresh momentum to transnational cooperation. Since the 1990s, both countries have acquired considerable experience, whether in the establishment of Eurodistricts or in the daily life of cross-border workers (taxes, health, transport, etc.). But it is also a delicate subject, as it entails recognising a special status for border regions. But focussing on the transnational dimension harbours a risk of making Franco-German affairs regional in nature, and this would no longer concern the entire citizenry of both countries. 

To ensure that no one will be left on the fringes of cooperation, the treaty also seeks to reinvigorate cultural and societal relations and to encourage grassroots initiatives. The treaty announces the establishment of a Franco-German Citizen Fund. The fund permits the financing of citizen initiatives such as town twinning and many other encounters. In this, it complements activities of the FGYO beyond those exclusively dedicated to ‘young people’. The budget for the Citizen Fund has doubled since its launch in April 2020 (and now stands at EUR five million) and has already provided assistance to more than 2,000 projects. The Treaty of Aachen also bolsters the role of the FGYO. Youth exchanges should be encouraged at all levels: not only for university graduates (reaffirming the mission of the Franco-German University), but also for high school students and apprentices in vocational training.

This treaty also claims a new spirit: the spirit of a ‘new Franco-German responsibility for Europe’. In 1963, the Elysée Treaty had offered a bilateral fallback solution, urgently cobbled together following the failure in 1962 of a project for the political union of the Europe of the Six. The 2019 treaty follows a reverse logic: not bilateralism as an alternative to Europe, but the Franco-German relationship in service of Europe. That is at least the underlying intention! The signing of the treaty was carefully staged as well: in the city of Charlemagne, the symbolic figurehead of Europe, and in the presence of representatives of the main European institutions. 

Although it was designed to respond more effectively to the ecological, climate and digital challenges of the 21st century, it is still too early to say whether the Treaty of Aachen is adapted to these new priorities. Russia’s war in Ukraine has left Franco-German relations and the European Union shaken and urgently in need of new ways to contend with the situation.