Differentiated integration has been part of the construction of the European Union for a long time. From the Euro to Schengen, ‘coalitions of the willing’ have often been instrumental in achieving far-reaching advances in European integration or addressing acute crises. In general, this was organised within the framework of the treaties but, at times, also outside of it, for instance when it came to the Fiscal Compact or the European Stability Mechanism. Geographically, accession functioned as a gatekeeper to the benefits of integration, excluding those that were unwilling to take on the obligations of membership from core parts of the construction.
With Europe now caught between Russia and Trump, a form of hybrid functionalism now has to become the norm. The method of integration must adapt to the realities of the current situation but, crucially, without sacrificing ambition for unity. This implies varying degrees of involvement among EU countries in different initiatives (for instance on security and defence), as well as the participation of non-EU countries. Much of this will have to happen beyond the treaties. This poses inherent risks for the European integration process and the existing institutions, but these can be minimised by careful design, for instance by constructing a supra-governmental avantgarde. Driven by necessity, such far-reaching coalitions of the willing, including EU and non-EU countries, are not a sideshow – they are the motors of European integration in the years to come.
Fabian Zuleeg is Chief Executive and Chief Economist at the European Policy Centre.
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