Speech by Minister Burke at IIEA: 'Future Proofing Europe; the Challenges and Opportunities presented by Enlargement'

Check against delivery

The European Union has come a long way since a small group of countries, weary from years of war, pledged to pool together their resources of coal and steel, thus committing to peace and prosperity by working together in a collaborative spirit. Over the past 70 years, we have established a tradition of making brave decisions in order to advance peace and prosperity in Europe. There is, however, perhaps every once in a while, a moment when the European Union needs to give some serious thought to its inner workings and to the road ahead. With war once again on our continent and at our borders and after grappling with a global pandemic unlike anything seen in a generation, there is no doubt that this is one such moment. The decisions we make here and now will determine how we future-proof Europe.

50 years ago, Ireland benefitted from the EU’s very first enlargement. The last half-century of our EU membership has transformed our economy and society, and added to our global influence more than we ever could have imagined. We believe that every European country deserves the same opportunity, providing they meet the necessary criteria for membership. As Presidency of the EU in 2004, Ireland oversaw the EU’s largest ever enlargement, welcoming ten member states to our community. It is a legacy that we are proud of, and one we wish to build upon.

The enlargement of the European Union has taken on a renewed significance and urgency since Russia’s further illegal invasion of Ukraine in February 2022, and the subsequent membership applications by Ukraine, Moldova and Georgia. After years of stagnation on enlargement policy, the invasion has reminded us, perhaps rather obviously, of the clear need for continuing, ever-closer cooperation between the EU and our partners in the Western Balkans, in Türkiye, and of course in the Eastern Partnership region.

As we respond to this new geo-political reality, we need to also remember that EU enlargement has to be a merit-based process, driven by reforms coming from within the candidate countries themselves. This is essential for the continued good functioning of the Union. As we have seen from the Commission’s annual enlargement package of reports, all ten candidate and potential candidate countries have more work to do on progressing reforms. The report points to the commendable efforts by Ukraine and Moldova to quickly enact reforms, while for others, it seems like there is a higher gear they need to find. It is our responsibility to help them in this endeavour. There are a range of instruments and initiatives, such as the New Growth Plan for the Western Balkans, which will allow us to contribute to, and accelerate, the assiduous work that is being done within candidate countries. Implementing accession reforms is no mean task, and we, the EU, must acknowledge this and support our partners accordingly.

At each previous wave of enlargement, there were those who said it would weaken our Union. And at each previous wave of enlargement, they were proved wrong. I am confident that the next phase of enlargement, whatever form it takes, will also strengthen our Union and our place in the world. And I hope that, at the next General Affairs Council and European Council in December, we will be able to take some important decisions that move us closer to that next phase.

The question is no longer “if”, but “when and how”? Therefore, we need to continue to build on this current momentum, we have to be consistent in supporting countries which share our common EU values. We are more secure and prosperous together, and we will be stronger together.

EU enlargement will continue to be a topical issue as Ireland next takes up the rotating Presidency of the European Union in the second half of 2026. This will be an important opportunity for Ireland to drive forward a positive policy agenda for the Union as a whole. We have a proud tradition of delivering effective and valuable compromises for the greater good. The role of the rotating Presidency has changed and evolved with the Union itself, as has the role of the other key institutions including the European Parliament. This ability, to change and to grow, to accommodate and to learn, is at the heart of the European project. It is also at the heart of Ireland’s approach to the challenges and opportunities that are no doubt ahead for what will be our eighth term in the Presidency chair.

With Ireland’s strong support of EU Enlargement comes recognition that, once again, we need to begin to think seriously about the changes that may be necessary to facilitate the further growth of our institutions.

The Granada Declaration, agreed by leaders at the informal European Council in October, calls for EU Member States to undertake the necessary internal groundwork and reform in parallel with candidates. This is in acknowledgment that enlargement will entail hard work for all involved.

No one is under any illusion that there will not be challenges, as well as opportunities, with future enlargement. However, its overall strategic importance and the ultimate benefits which it will bring in extending peace, prosperity and democracy to our immediate neighbours surely cannot be doubted.

We therefore warmly welcome the Commission’s intention to carry out a wide-ranging series of pre-enlargement assessments on individual programmes and sectors. This will be an important first step in sensitizing both EU governments and citizens as to what will be required from us all, in order to address the historic challenge of completing our Union through expansion.

The implications of enlargement will be wide-ranging and will not just concern budgets and programmes. We will also have to look at our own internal capacities and decision-making processes.

This certainly applies to the issue of Qualified Majority Voting and calls for its greater use. We are open to discussing possible greater use of QMV in areas such as the Common Foreign and Security Policy, while also recognising at the same time that it is an issue on which there are diverging views among our partners.

One cannot doubt the value of the EU speaking with an agreed, collective voice in the international arena. This has been already visibly demonstrated during the current horrific crisis in Israel and Gaza and equally in relation to Ukraine. We have seen how collective strength of the EU in supporting Ukraine has resulted in an unprecedented level of sanctions being imposed against Russia as a result of its unjust aggression. There is power in a unique, united voice.

Protecting the world we live in is perhaps the most fundamental way of future proofing Europe. Ireland strongly supports the aims, and the ambition, of the Commission’s Fit for 55 Package. The EU 2030 target of at least 55% emissions reduction is the key. Our priority is ensuring that this 55% not only meets our own climate ambitions, but is delivered collectively by the EU 27. We strongly support the European Union’s vision towards a climate neutral Europe by 2050, as set out in the European Green Deal.

Decarbonisation is not only an environmental necessity; it is now also an economic one. Decarbonising existing industries, while enabling growth and innovation in green sectors, is therefore the priority. This will lead not only to lower emissions; but to warmer homes, cleaner air, cheaper energy in a prosperous, resilient economy.

The Future of Europe is digital. Ireland’s National Digital Strategy is a high-level framework that sets out a pathway to drive and enable the digital transition across the economy and society. Through digital transformation, we will be able to maximise the well-being of our citizens, the productivity and innovation of our enterprise, as well as our overall competitiveness and sustainability.

Our objective is that at least 90% of our SMEs reach at least a basic level of digital intensity by 2030. We also want at least 75% of enterprises to be using cloud, AI and big data by 2030.

Embracing digital technologies is crucial for our continued economic growth and prosperity as well as contributing to climate action. A competitive, innovative and resilient enterprise base is essential to provide high-quality jobs and employment opportunities for people to live and prosper in all regions.

As the EU takes these existential decisions, it is more important than ever that the voices of the EU27 are heard. Ireland is facing a challenging time as regards representation in the EU Institutions. We are currently underrepresented at key policy grades in the Commission and are due to further lose a large proportion of our AD staff in the next four years due to retirements.

Ensuring a fair representation of Irish people in the EU Institutions and Bodies is a priority for Ireland and an issue of political importance.

Ireland wants Irish officials in the EU institutions to bring the perspective of Ireland to the policy making process, to ensure EU policy-making takes different viewpoints and political sensitivities into consideration, and to represent the citizens of Ireland.

For over a decade now, we have been actively working to promote EU careers to an Irish audience. These actions have intensified since the government launched Ireland’s EU Careers Strategy, A Career for EU in May 2021.

As part of the strategy, the government is encouraging Irish people to apply for posts in the EU, equipping candidates with the skills needed to succeed in EU competitions, and lobbying for the reform of the EU’s recruitment process. The strategy’s target is that 50 Irish citizens will have secured posts at entry-level and above by 2030.

We are also increasing funding for the number of Seconded National Experts in strategically relevant areas of the EU and actively engaging with Irish universities to ensure that young Irish citizens can play their part in shaping the future of the EU.

Ireland has a proud legacy of making a valuable contribution to the European project through the EU public service, and we seek to continue this proud tradition as we look to some of the challenges and opportunities that will define the next 50 years of our EU membership.

One such issue which the EU is confronting, and will likely do so for some time, is that of migration. It is a profoundly difficult topic, and represents a huge priority for many of our partners - particularly frontline States such as Italy, Greece, Spain and Cyprus.

The EU, under successive Presidencies, is investing enormous efforts to improve the situation. Real progress has been made under the Swedish and the Spanish Presidencies.

A comprehensive approach is required, which can address the many facets of this situation, including compliance with our international and legal obligations.

Progress is being made to advance the negotiations on the Pact on Migration and Asylum, which has been under discussion for a number of years. All the major elements of the proposed Pact are now the subject of trilogue negotiations with the European Parliament. There is a real will across all the Institutions to reach agreement on the various elements making up the Pact.

Ireland has offered our full support to EU efforts to progress negotiations. We recognise the advance which agreement on an overall Pact would represent in enabling and equipping the EU to deal with migratory pressures in a comprehensive, efficient and humane fashion, which fully accords with our international obligations.

We have to address the root causes of migration. This includes working more closely and devising mutually beneficial partnerships with third countries of origin and transit. This is particularly pertinent in areas such as effective migration management and facilitating returns in full respect of fundamental human rights.

Opening up legal pathways for migrants will also play a key part in reducing irregular and forced migration. We should also continue to try to ensure that development aid which the EU and Member States provide goes for the purposes it is intended, which is seeking to promote development and reduce poverty in the target countries.

Migration is perhaps a topic that best encapsulates the title of this address, in that it is, in fact, both a challenge and an opportunity for the future of Europe. As our Union continues to grow, we must continue to drive forward and work together in the European spirit of helping our neighbours, helping those who need it.

The European project is just that, a project. It is something we must continuously work on. We should not be blind to the reality that further enlargement will inevitably require work, some of which may at times be challenging. But we should also remember that there is no better tool for future-proofing Europe than bringing our neighbours into the fold. In fact, it is not just self-interest that should guide us: I also believe there is a moral case for us to do so. The EU is more than a single market, it is a coming together of ideals and values. How we adapt to continue to reflect those ideals and values is the next challenge, but I am confident that we can face that challenge and show again that the European Union is the most successful peacetime project in the history of our continent.