Judy asks: is Brexit reversible?
Posted by: JUDY DEMPSEY
WEDNESDAY, JUNE 29, 2016
A selection of experts answer a new question from Judy Dempsey on the foreign and security policy challenges shaping Europe’s role in the world.
Cornelius Adebahr Associate in Carnegie’s Europe Program
Brexit hasn’t even happened yet, so it cannot be reversed. What is more, it doesn’t have to take place. What has shocked Europe and much of the financial world is the majority expression by the British people of their intent to leave the European Union for good. Yet today just as much as before the June 23 referendum, the UK is (still) an EU member.
Those who argue that the vote should be blindly accepted fall into the trap set by populists pitting so-called ordinary people against the elites. For good reasons, the will of the people is not the only ingredient of a well-functioning, representative democracy based on the rule of law. The referendum was consultative in nature, called by a prime minister eager to secure his party base and hijacked by opponents for political opportunity, with a campaign filled with hyperbole, hubris, and hysteria.
Certainly, in a referendum intended to be about regaining sovereignty, the British parliament should rule supreme. Its members, most of whom are against Brexit, were democratically elected, and the members of the UK government have pledged to serve the country’s interest. Time for both to act accordingly and call for an early general election. Only the next parliament, brought about through an election campaign fought over the real meaning of Brexit, can legitimately decide whether the UK should remain a member of the European Union.
Rosa Balfour Senior fellow in the Europe Program at the German Marshall Fund of the United States
It may be wishful thinking, but the British vote to leave the EU can be reversed. The fact that the June 23 referendum was not legally binding is less important than the political commitment made during the campaign to respond to the outcome. But if the political context changes as dramatically as it appears, this may influence the decision. Citizens are mobilizing in large numbers, and the UK and Scottish parliaments may manage to block the result. With leadership changes in both the governing Conservative Party and potentially the opposition Labour Party and a possible early general election, there is growing space to change the outcome.
The rest of the EU is worried that the current limbo could unleash further destabilizing forces on an enfeebled EU and is frustrated at having to deal with such an awkward partner. But it is in the interests of all to avoid a rupture and facilitate a British rethink by being patient about the timeframe to activate Article 50 of the EU treaty, which sets out the procedure for leaving the bloc. British Prime Minister David Cameron’s timeframe of three months should be seen as reasonable.
Equally important will be what lessons European political and institutional leaders will draw from this. Three such lessons stand out. One: referenda such as this are not about democratic politics but about a dictatorship of slim majorities through black-and-white questions on complex issues. As a tool, referenda should be fundamentally rethought. Two: political leaders across Europe need to address the causes of Euroskepticism. Three: the EU will need to think about its own democratic reform and devise policies that are closer to the citizens.
Carl Bildt Former foreign minister of Sweden
In theory yes, but in the practical world of politics, it is very hard to see how theBritish vote to exit the EU can be reversed.
It’s of course up to the UK political system. But I fail to see that it can deliver a U-turn of such massive magnitude in any reasonable timeframe. I fear the governing Conservative Party will now lock itself on a clear Brexit course, and the opposition Labour Party will be another mess for some time to come. There is no Churchill in sight.
In a more distant post-Brexit future, the UK could of course reapply for membership in whatever union might then exist. But that’s a question for another day, I fear.
Federiga Bindi Senior fellow at the Center for Transatlantic Relations at the Johns Hopkins School of Advanced International Studies and director of the Foreign Policy Initiative at the Institute for Women’s Policy Research
I hope so. The Brits have chosen to leave, and the worst thing the EU could do would be to offer the UK yet another negotiation to keep it in the EU. That would really be the end of the EU.
Europeans have to start by asking themselves a fundamental question: Had the Remain camp prevailed, would people be asking for a new vote? Clearly not. Should the Brexit vote be discarded, Europe would embark on a dangerous path. The Western world has engaged in (useless) wars in the last fifteen years in the name of democracy, and yet the EU is not able to make it work at home.
Brexit can teach Europe a few lessons. First, if you play with fire you get burned. British Prime Minister David Cameron made it into the history books as the man who threw away a nation to win a second electoral term. Other politicians will now hopefully think again before doing something that stupid.
Second, so much for rational voting behavior. U.S. Democrats be advised.
Third, history and self-determination cannot be stopped. Should Scotland and Northern Ireland decide to exit the UK and rejoin the EU, it would be the effective end of British colonialism. Europe should not be sad.
Fraser Cameron Director of the EU-Russia Centre
On the basis of past experience—think referendum reruns in Ireland—Brexit is reversible. It is not even clear whether all Leave leaders actually want a British exit from the EU, as opposed to using the referendum to further their egos and pave a path to Number 10.
There are many possible scenarios, from Scotland blocking Brexit to the UK government putting a mildly changed relationship to a second referendum. After all, Nigel Farage of the Euroskeptic UK Independence Party (UKIP) was keen to have a second referendum if the Leave campaign lost!
But more important is why reverse the decision now? Why not let those who campaigned for Brexit take responsibility and see how far they get in negotiating a new nirvana for the UK?
The anti-EU poison that infects the British political bloodstream has to be drained away, and that can be done only with a new generation of British politicians. A lengthy time-out might be the only way to ensure that the Brits come to their senses.
Uri Dadush Senior associate in Carnegie’s International Economics Program
Yes, there are many scenarios in which a reversal of the Brexit vote is possible, and though each is unlikely, one or more could materialize. After it formally notifies its decision to exit the EU under Article 50 of the EU treaty, which will not occur before a new prime minister is appointed in September or October, Britain has two years to complete its separation, or longer if all other EU members agree. That is a long time in politics.
Reversal could occur either if a new referendum overturns Brexit or if a new government is elected on a Remain platform. If the Conservatives are unable to agree on a new leader or if the new leader concludes that he or she does not have sufficient parliamentary support to exit the EU, an early election could be called. A new referendum could be called a year or two from now if negotiations with the EU reach a dead end, or if Scotland is on the way to seceding, or in the unlikely event that the EU decides to place new restrictions on the movement of people, or, even more unlikely, EU negotiators are ready to grant the UK an exception on immigration rules.
The most likely outcome by far is a deal in which the UK exits but maintains a level of access to the single market that closely resembles free trade. Britain would also have to conform to a large number of other conditions, such as continued contributions to the Common Agricultural Policy and liberal (but not unlimited) immigration of EU nationals. Though a referendum on EU membership requires a yes or no answer, the reality is that the link between the UK and the EU is a relationship that entails many shades of gray.
Marta Dassù Senior director for European affairs at the Aspen Institute and editor in chief of Aspenia
Brexit is not exactly reversible, but almost. Before the June 23 referendum, the UK was half in the EU. Now it’s going to be half out. The situation will be different—and yet only up to a point.
The referendum was dominated by gut feelings, but in the aftermath of the Brexit vote it’s the two sides’ interests that are going to prevail. The British people’s interest is to remain pegged to the EU, crucially with preferential access to the single market. Continental Europeans, with Germany heading the list, have an interest in maintaining close ties with one of Europe’s leading economies. The key issue in future negotiations isn’t going to be around the technicalities of a British recess. What really matters is the British relationship with the EU in place thereafter. European governments must be prepared to negotiate a Norway-like or Norway lite option—which is conditional on the UK accepting free movement of people. Britain, in its own interest, will have no choice but to jettison some of the Brexiteers’ crazier pledges.
At the same time, it’s in the EU’s political interest to avoid contagion. It isn’t going to be easy to strike a proper balance between the economic goal of keeping the UK anchored to the single market and the political goal of placing the English patient in an isolation ward.
For the EU, then, granting the UK a special status again—this time as a half-out country—will be difficult, while the new British government will try to secure some concessions on the movement of people. This is the essence of future negotiations.
In a best-case scenario, the UK will take up a place in an external ring of the European space. And the EU of the remaining 27 member states is going to reform—something it should’ve done anyway, but the English lesson has now made it impossible for the union to procrastinate any further.
Thomas de Waal Senior associate at Carnegie Europe
The Leave leaders did not have a plan for the day after the June 23 referendum and are recklessly irresponsible. But more than 17 million people voted for a British exit from the EU, and their votes cannot be simply discounted.
Using a constitutional device to block Brexit could provoke a dangerous backlash.Nigel Farage, the leader of the Euroskeptic UK Independence Party (UKIP), implicitly threatened violence when he uttered the ominous phrase on June 24 that Brexit had been achieved “without a single bullet being fired.”
There appear to be two narrow democratic paths back from the brink.
One stems from the very different stance Leave supporter Boris Johnson took in theDaily Telegraph on June 27, when he walked back from the rhetoric he had used in the campaign. Johnson’s change of tack is outrageous but leaves open a small chance that if the more merciful approach favored by German Chancellor Angela Merkel prevails, some kind of special status deal for the UK in the EU could be pulled out of the fire.
The other possibility comes if the opposition Labour Party manages to eject Jeremy Corbyn and choose a new leader who is electable and actually believes in the European project. If that leader were to win a general election, he or she could call a new referendum with a more precisely worded question about what kind of European model is on offer and give British voters a chance to express Bremorse.
Neither of these scenarios looks very likely. To work out, they need a lot of good luck, goodwill, and statesmanship that is in short supply. But I cannot see any other routes out of this madness at the moment.
Michael Emerson Associate senior research fellow at the Centre for European Policy Studies
I would like to think so. With the huge turmoil in British politics now, maybe anything could happen.
How might Brexit unravel? British Prime Minister David Cameron in his resignation speech on June 24 said that the British people had made “a very clear decision” to leave the EU. Corrigendum: there was no clear decision, only a narrow majority in which the British people were deeply and bitterly divided like never before, between the English and the Scots, between London and the English provinces, and between young and old. Since then, over 4 million British citizens have petitioned for a second referendum.
The House of Commons has a large majority of members of parliament (MPs) who favor Remain. What about the sovereignty of parliamentary democracy, some now say, after an advisory referendum that has no legal force? A large majority of MPs was reported in early June to be wanting to insist that the UK remain at least in the single market, without which they would bring the government down.
Leave campaigner Boris Johnson says he is in no hurry to trigger Article 50 of the EU treaty, which sets out the procedure for leaving the union. So much the better. Brexit was sold on a false prospectus, a dreadful mistake; let this become clear. A fresh election, a sound new leader of the opposition Labour Party, and so on into the second referendum.
Peter Ludlow Chairman of the European Strategy Forum and historian of the European Council
The answer must surely be “No, not yet.” The British people were consulted, and a majority of them said Leave. To plead now that the British parliament can, let alone should, ignore the popular vote is simply not credible. Both activists and voters did what they did before and on June 23 on the assumption that the outcome would be binding.
It is equally unrealistic to imagine that the UK will be offered another deal that can be voted on in a second referendum. This has happened in the past when Denmark and Ireland voted no to EU treaties. But the starting point was totally different in each case. The UK, which already has a larger number of exemptions from its treaty obligations than any other member state, has only just concluded a renegotiation, the results of which were meager precisely because there was so little that its partners could offer without emptying membership of all meaning. The cupboard is bare.
The only development that might transform the outlook is therefore the election of a new, pro-EU government in the UK. Given the post-Brexit turmoil in British politics, a realignment is not impossible. However, the new party is unlikely to win an election unless and until Brexit has been consummated and the electorate has had an opportunity to see just what a shabby option it is.




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