In the past years, the United States has shown a retreat from its traditional leadership role in multilateral organizations, not just under Donald Trump but also during Barack Obama’s and Joe Biden's presidencies. This shift, manifesting in actions from the new US president, Donald Trump, such as withdrawing from key agreements like the Paris Climate Accord again as well as leaving institutions like the World Health Organization (WHO), has created a power vacuum in global governance. For the European Union (EU), this development presents not only challenges but also a significant opportunity to step into the role of a global leader, with Germany and France playing a pivotal role in shaping the EU’s trajectory.

The U.S. withdrawal from multilateralism stems from a combination of domestic priorities and a shift toward unilateral approaches in international relations. While this retreat has led to decreased coherence in addressing global issues like climate change, public health crises, and economic instability, it also underscores the need for new leadership in multilateral frameworks. The EU, with its established commitment to multilateralism, could be well-positioned to fill this gap.

The EU: a natural successor to multilateral leadership

As a bloc of 27 member states, the EU embodies the principles of cooperation and shared governance. Its active participation in organizations such as the United Nations, the World Trade Organization, and the International Monetary Fund highlights its capability to drive global agendas. The EU's Green Deal, digital transformation strategy, and commitment to human rights further underscore its potential as a leader in shaping the 21st-century global order.

However, effective leadership demands more than ambition—it requires a cohesive strategy, more resources, strong internal alignment, and collaboration among key players.

This is the fundamental challenge, as current economic and security challenges are the overwhelming issues the EU tries to tackle.

Germany and France: the engine of EU multilateralism

Germany and France, as the EU’s largest economies and most influential members, are critical to the bloc’s ability to assume a leadership role in multilateralism. Their historical partnership, despite current disagreements as well as weak national governments, has been the backbone of European integration and policy innovation.

  1. Germany's role: known for its economic strength and diplomatic pragmatism, Germany has consistently championed multilateralism. Its leadership in addressing climate change or global health aligns with the EU's strategic priorities. Germany's capacity to forge alliances and close trade relations with non-European states further enhances its global influence.

  2. France's role: France, with its emphasis on strategic autonomy and a global vision for the EU, complements Germany's approach. Its active participation in security initiatives and commitment to advancing digital and environmental agendas provide a robust framework for broader EU engagement in multilateral forums.

By leveraging their combined strengths, Germany and France can drive EU consensus on global issues, ensuring that the bloc speaks with one voice in international arenas.

Key areas for EU leadership

  1. Climate action: with the EU Green Deal serving as a flagship initiative, the EU has the potential to take a leading role in global climate negotiations, particularly by partnering with developing nations that are disproportionately affected by climate change. However, to maximize its impact, the EU must enhance its collaboration and communication strategies in this area. The rollout of the Carbon Border Adjustment Mechanism (CBAM), for instance, highlighted shortcomings in how the EU engages with global partners, as it was neither communicated effectively nor implemented in a manner that fostered trust and cooperation. Addressing these gaps will be crucial for strengthening global partnerships and advancing shared climate goals.

  2. Digital transformation: the EU’s commitment to ethical and inclusive digital governance, particularly in areas like data protection and artificial intelligence regulation, positions it as a frontrunner in shaping global technology standards. Countries such as South Korea, Japan, Brazil, and others that share similar concerns about AI regulation can become key partners in this endeavor. By building strong alliances with these nations, the EU can foster a coordinated approach to digital governance, ensuring that technological advancements align with shared values and principles.

  3. Global health: the COVID-19 pandemic underscored the critical importance of international collaboration in global health. While the WHO faced significant shortcomings, it remains an indispensable institution in global health governance and must be bolstered. Similarly, the EU faced criticism for its nationalist vaccine policies and did very poorly with its communication strategies. However, it also demonstrated global leadership by supporting efforts to combat the pandemic in numerous countries. The way forward is to strengthen this sector.

  4. Trade and economic stability: by championing fair trade policies and sustainable development, the EU can bolster its reputation as a stabilizing force in international trade, particularly in the face of growing protectionist tendencies. To achieve this, advancing trade agreements with major economies such as India and Indonesia must become a priority. These negotiations should avoid overly ambitious demands and instead focus on establishing a level playing field.

The EU cannot expect to secure greater access to foreign markets while maintaining excessive protection of its own, particularly in sensitive sectors like agriculture, which currently poses significant barriers to foreign businesses. If the EU aims to preserve its agricultural sector, it must recognize that other nations have similar interests in protecting key industries. Mutual understanding and balanced concessions are essential for fostering equitable trade relationships and ensuring the success of future agreements.

Challenges and the path forward

While the opportunity is significant, challenges remain. Internal divisions within the EU, budget constraints, differing national interests, and external competition from rising powers like China require careful navigation. To succeed, the EU must:

  • Strengthen internal cohesion: Germany and France must improve their current challenging relationship and lead efforts to align member states on key issues, ensuring a unified voice in global forums.

  • Expand strategic partnerships: collaborating with like-minded nations, especially in the Global South, will significantly enhance the EU’s global influence. To foster meaningful partnerships, the EU must actively listen to their concerns, incorporate their perspectives, and work collaboratively to drive global progress. This approach is particularly vital in areas such as the reform of multilateral institutions, where inclusive dialogue and shared objectives can lead to more equitable and effective solutions.

  • Reform multilateral institutions: the EU must advocate for reforms in multilateral organizations to ensure they become more inclusive and reflective of today’s global dynamics. Greater influence and representation must be given to African, Asian, and Latin American countries, whose voices are underrepresented in the current structure. The existing framework is outdated and fails to address the realities of a multipolar world. By championing these reforms, the EU can help create a fairer and more balanced global governance system.

Conclusion

The U.S. retreat from multilateral organizations offers the EU a unique opportunity to redefine global leadership.By leveraging the combined strengths of Germany and France alongside its EU partners and institutions, the European Union can step in to fill some of the gaps left by the United States. This collaborative effort enables the EU to shape a multilateral order rooted in its core values of cooperation, sustainability, and inclusivity. The moment is ripe for the EU to step forward—not as a competitor to the U.S., but as a complementary force that ensures the resilience and relevance of multilateralism in an increasingly complex world.