German Multi-Level Relations with Superpowers. A Comparison of Subnational Cooperation with American and Chinese Partners

This article explores the evolving role of German cities in international relations, particularly in their interactions with partners in the United States and China. By employing a multi-level governance framework, the paper addresses the growing significance of substate actors in foreign policy within the complex world order. Through original data collection, including an extensive survey and interviews with German city officials, the study provides a detailed mapping of the forms and expressions of city-to-city cooperation, identifying perceived benefits, barriers, success factors, and coordination patterns with partner municipalities. The analysis highlights key areas of cooperation, while examining the mechanisms that enable and hinder successful city diplomacy. Findings suggest that German cities are critical in complementing national and EU-level foreign policy efforts, acting as independent and dynamic players on the international stage. However, the study also uncovers challenges related to limited coordination between different levels of government and the unique roles cities adopt in addressing global challenges. The article argues for a more integrated approach to foreign policy that includes cities as strategic partners, emphasising their potential to enhance Germany's international influence and contribute to addressing transnational issues effectively.