The future of European integration

The future of European integration

Anand Menon, Director of The UK in a Changing World, addresses the repercussions of Brexit from the EU’s perspective.

Key Points


  • In the opinion polling, support for EU membership went up quite strongly across the 27 EU Member States following the 2016 Brexit referendum.
  • The political glue that binds countries to European integration is far stronger in the remaining Member States than it ever was in the United Kingdom.
  • The UK’s departure makes it far harder to remain outside the euro because the majority of the Member States and the majority of the political power in the European Union is going to be concentrated within the eurozone.
  • The structural problems haunting the European Union – notably the values divide – will remain the same without the United Kingdom.

Europeans still listen to national politicians

Photo by Alexandros Michailidis

The main structural problem that the European Union faces when it comes to its own legitimacy – besides process and delivery issues – is the fact that politics in Europe remains national. People listen to national politicians and national politicians will never willingly give credit to the European Union for things that go well, whilst taking responsibility for things that go badly. So, there is always a temptation to blame the European Union for failures and to take credit for successes themselves.

After the Brexit referendum, President Macron himself said, look, if we’d done the same thing here, it’s quite possible it would have gone the same way. There is a reluctance that is structural, in a sense, to give the European Union credit at the national level for things it is doing well, and that clouds negative public perceptions about European integration. That said, one of the implications of Brexit is that in the opinion polling, support for EU membership went up quite strongly across the 27 Member States following the UK referendum in this country.

The surge in EU popularity post-Brexit

There were two very extreme arguments about the EU put forward around the time of the referendum. The first from the Brexiteers was that, once the UK had left, loads of other Member States were going to say, oh, that’s a good idea, we’re going to leave as well. So, the EU would fall apart post-Brexit. The other extreme argument that was put forward, by more federalist-minded people, was as soon as those pesky Brits are out of the door, we could actually make the European Union a lot more efficient because without their veto, we can forge ahead and tighten integration and create that political union that the rest of us have wanted to do for ages.

In a sense, both those extremes have been proven to be wrong. There isn’t a queue at the door to follow us out, for a variety of reasons. If you look at the European Union, what you’ll see is a lot of the Member States are small States. Small States don’t tend to leave big clubs. A lot of Member States are in the euro. If you think Brexit was messy, try doing Brexit and leaving the euro at the same time. The final and most important thing is that the political glue that binds countries to European integration is far stronger in all of the 27 Member States than it ever was in the United Kingdom.

Why the European Union was formed in the first place

The European Union was an economic project that the UK decided to join for economic reasons. Our economy wasn’t working very well outside it, so we decided to join to make our economy work better; however, across the rest of the European Union, European integration is an economic project that people have embarked on for explicitly political reasons.

The original “Six” launched the Coal and Steel Community not because they thought coal and steel would make them rich, but because they thought pooling coal and steel would make war impossible. For the countries of southern Europe – Greece, Portugal, Spain – joining was a way of entrenching democracy. After a period of non-democratic rule, the countries of Eastern Europe joining the European Union was about returning home after that period of servitude to the Soviet Union. So, for all other Member States, this is about politics. There’s a strong narrative about political salvation tied up with European integration. There never was in the United Kingdom.

The three major structural problems facing the EU

The EU faces three big structural problems. There is the problem of the eurozone and of economic inequality between Member States, some of whose economies perform better than others. The problem of immigration is going to keep coming back onto the agenda because there will be big waves of migration from North Africa to Europe and there is no agreed burden-sharing model as yet. The third issue is the values divide between an increasingly illiberal Eastern Europe and a liberal West.

Now, what two things do all those potential crises have in common? First, the UK wasn’t the problem, so removing the UK doesn’t solve it. Second, the UK was never blocking solutions to any of those crises. The structural problems haunting the European Union remain the same without the United Kingdom as they were when we were a Member State.

The real cost of Brexit for the EU

Photo by Octopus_Photography

Let’s be honest about it. The EU is weaker without the UK. It’s weaker in economic terms because its market isn’t so big. It’s weaker in international terms because the UK was a serious foreign policy and defence policy power, and the EU has lost access to those UK resources. There’s no doubt about that. The absence of the UK also slightly shifts the balance of power within the European Union. One of the three big countries, this is now all about the French and the Germans’ hope of a free-trading liberal country.

It might be that the balance of power shifts slightly towards a more protectionist stance within the European Union. The UK was the most influential of the euro-outs. Other euro-outs like Sweden used to hide behind the UK, as we used to say – “Hang on a sec. This is unfair on countries not in the euro.” I think the UK’s departure makes it far harder to remain outside the euro now because the majority of Member States and the majority of the political power in the European Union is going to be concentrated within the eurozone.

The future of European integration

Looking forward very tentatively, there are two things I would say about the European Union. First, there are without doubt some things it can now do that would have been very hard, if not impossible, to do with the UK around the table. If you look at the recovery fund that was agreed on last year, a very ambitious large-scale fund to try and address the impact of the pandemic, I don’t think agreement on that would have been possible in the form it has taken had the UK been around the table. The EU enjoys a degree of flexibility now that it didn’t before.

There are still big differences between the frugal States and the Southern States, between the illiberal Eastern States and Western States. Those structural divisions amongst Member States will continue. I don’t see the future of European integration being strong progress towards more integration. The EU will continue to muddle through, much as it’s always done, and there won’t be a revolution in the way that it works now that the UK is no longer in it.

Bridging or broadening the values divide

It’s very hard to see a way of addressing the values divide in the European Union because it’s rooted in domestic politics. Prime Minister Orbán has come to, and consolidated, power on the back of the things he’s done to Hungarian democracy. He’s not going to unroll those because President Macron is telling him to. The danger for the European Union is if those battles become too bitter, too bad-tempered, too personal, then they bleed into all discussions at the European level and make it very hard, if not impossible, for Member States to agree on anything.

If, for instance, you have another round of EU treaty reform, it’s very hard not to imagine the Polish and Hungarian governments extracting the promise to be left alone as part of any agreement on a broader programme of treaty reforms. It is a very sensitive topic because, ultimately, the EU has few levers to pull when it comes to trying to reshape the nature of national politics. Since ultimate political legitimacy lies with the parts, with the Member States, that becomes even more problematic.

Intergenerational justice – the elephant in the room

Photo by VH-studio

There is a danger of a greater generation gap opening up across Europe and across many parts of the developed and developing world. I’m not sure that’s anything to do with European integration but more to do with factors such as the impact of the pandemic, particularly on those in education, people losing years of their education, people coming out into a job market that is contracting. We need to be sensitive to the plight of the younger generation because one of the things that is common across many Member States is that older people are quite good at protecting their own position via politics.

In the UK, we have a triple lock on pensions, which makes sure they don’t fall below a certain level. This was originally brought in because there was a lot of poverty amongst elderly people in the United Kingdom. Now, there’s actually remarkably little poverty amongst elderly people. Those measures have worked. What we have is a lack of support for younger people who might be struggling to get training or to get jobs. I think that across Europe, we need to be aware of the fact that intergenerational fairness has got to play a part in politics going forward. Otherwise, we’re simply betraying our own children.

Discover more about

the choices and challenges facing the EU post-Brexit

Wallace, H., Pollack, M. A., Roederer-Rynning, C., et al. (Eds.). (2020). Policy-making in the European Union. Oxford University Press.

Menon, A. (2008). Europe: The State of the Union. Atlantic Books.

Kassim, H., Menon, A., Peters, B. G., et al. (Eds.). (2001). The National Co-ordination of EU Policy: The European Level. Oxford University Press.

About Anand Menon

I’m Director of The UK in a Changing Europe, a think tank dedicated to helping people understand Brexit, and a Professor of European Politics and Foreign Affairs at King's College London.
About Anand Menon

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