German reunification has its roots at an Ottawa meeting
Germany’s reunification was the result of a peaceful revolution in East Germany (German Democratic
Republic, GDR) that began in 1989 and led to the accession of the GDR to West Germany in 1990. It
brought the German division that had existed for four decades during the Cold War to an end. 2015
marks the 25th anniversary of German reunification. But what many may not know: The format for
the negotiations to reunite East and West Germany was defined in Ottawa.
Background
Starting point for this process was the fall of the Berlin Wall on November 9, 1989. Every day up to
2000 people who no longer had faith in their own government left East Germany to go west. Unity
was what the nation hoped for and the only realistic option.
Since the end of World War II, the Soviet Union, Britain, France and the USA (“Four Powers”) had
assumed the supreme authority with respect to Germany as stated by the Berlin Declaration of June
5, 1945, and in absence of a peace treaty it was never withdrawn. German reunification had to be
negotiated by the Four Powers that still retained legal rights over Germany. Their participation was
necessary for another reason: The reunification of Germany was more than a merger of two
countries – in 1990 it meant changing the entire European order.
The Soviet Union, already weakened by turmoil in Warsaw Pact countries such as Poland, feared
losing its influence in Eastern Europe and the collapse of the Communist system. France and the UK
were concerned about the empowerment of West Germany. The heavy burden of history combined
with Germany’s economic power seemed like a potential threat to peace in Europe. For them, it was
all happening far too quickly.
The USA, on the other hand, supported a fast reunification on the provision that it will occur in the
context of Germany’s commitment to NATO and the European Community. U.S. foreign minister
Baker looked forward to a “new architecture for a new era”, as he mentioned in a speech on
December 14, 1989 in Berlin. West German Chancellor Kohl agreed to engage in more intensive
European integration which eased at least France’s support of the German reunification.
Two plus Four
In January 1990, the calls for reunification got louder and the idea increasingly received international
support. Realizing the need for discussion of the modalities, the Soviet Union suggested a “FourPowers” conference, similar to the Potsdam Conference in 1945. But the international situation had
changed, and negotiations without consulting the two German countries – as also preferred by
Britain and France – were no longer possible. The USA acknowledged the political and economic
relevance of Germany and suggested that the Four Powers meet with both German states. West
German foreign minister Genscher liked this idea but insisted on a “Two plus Four” formula instead
of “Four plus Two” to emphasize Germany’s right to self-determination and its willingness to have a
say in its own future.
Open Skies conference in Ottawa
Due to different positions and concerns, the Four Powers were hesitating to take further steps. But
the “Open Skies” conference of the foreign ministers of NATO and the Warsaw Pact in February 1990
in Ottawa, where questions of aerial observation were on the agenda, brought about the change.
Genscher and Baker were determined to use this format to gain support for formal “Two plus Four”
talks. On February 13, 1990, when Ottawa was bitterly cold and deep in snow, a German breakfast
was held at the residence of the German Ambassador for France, the UK and the USA. Even though
they had preferred “Four plus Zero”, Britain and France in the end accepted the “Two plus Four”
format and agreed to formal negotiations.
Genscher and Baker individually talked to Soviet foreign minister Shevardnadze, and Genscher also
with East German foreign minister Fischer. The Soviets were surprised by the quickly evolving
situation, but Shevardnadze accepted the irreversible development and finally consented to “Two
plus Four”. The talks resulted in the following press statement: “The Foreign Ministers of the Federal
Republic of Germany, the German Democratic Republic, France, the United Kingdom, the Soviet
Union and the United States had talks in Ottawa. They agreed that the Foreign Ministers of the
Federal Republic of Germany and the German Democratic Republic would meet with the Foreign
Ministers of France, the United Kingdom, the Soviet Union and the United States to discuss external
aspects of the establishment of German unity, including the issues of security of the neighboring
states. Preliminary discussions at the official level will begin shortly.”
Numerous countries were upset about being left out of the process and requested to participate in
the negotiations, especially since the “security of neighboring states” was to be addressed. Genscher
tried to explain that this referred to the border to Poland and that the participants may only be those
states that have assumed responsibilities with regard to Germany. In the process that ensued, other
European countries and Canada were included through parallel meetings and conferences.
Finalizing the German reunification
In mid-March, preparations for the talks began. On May 5, 1990, after the first freely elected
government of the GDR was constituted, the negotiations started officially.
The main question remained the military status of a reunited Germany and whether it would be a
member of NATO (as West Germany was) or the Warsaw Pact (as East Germany was), or both, or
become demilitarized and remain neutral. When it was clear that the GDR would accede to the
Federal Republic of Germany and no longer be part of the Warsaw Pact but instead become NATO
territory, Gorbachev acknowledged Germany’s right to choose its own alliances after having been
promised financial support from Germany.
Meetings in Berlin in June, in Paris in July, and in Moscow in September addressed the various issues
and finally led to the signing of the Treaty on the Final Settlement with Respect to Germany on
September 12, 1990 that reinstated Germany’s full sovereignty. With the accession of the East
German states on October 3, 1990, the Federal Republic of Germany was officially reunited. In 2015,
we celebrate with pride and joy the 25th anniversary of Germany’s reunification!