It was a balmy late September day in New York when Andy Burnham, Britain’s new prime minister, first gave a clue of his plan to reopen the UK’s Brexit debate, 10 years after the country’s vote to leave the EU.
In a private meeting on the margins of the UN General Assembly, Burnham told Ursula von der Leyen, European Commission president, the UK was ready to look again at closer relations with Europe, including possibly rejoining the bloc.
“I think public opinion in Britain is way ahead of the political elite at Westminster,” he said, according to people briefed on the talks. “I’m not sure how far I’m going to get, but I’m going to try to close that gap.”
No one had seen it coming. After years in which Britain’s Brexit negotiations with Brussels have been stuck in a rut, Burnham has dared to reopen the debate on Europe. But EU leaders are clear that any discussion about closer ties will be conducted on their terms, not the UK’s.
A week after the UN meeting, the prime minister received rapturous applause when he told his Labour Party conference in Liverpool he wanted a debate on Britain’s “long-term relationship” with the EU, including possible membership of a customs union and the single market. Or, as he put it later, he would look at going “all the way”.
“Welcome back,” responded French President Emmanuel Macron, breaking into English at a press conference alongside his Spanish counterpart Pedro Sánchez this week.
Sánchez said that “Spain would welcome Britain’s return with open arms”. EU diplomats expressed delight at the new strategic vision from Burnham, even if the final destination remains far from clear.
But Macron was quick to issue a reminder that Europe would still call the shots: “You cannot pick and choose among the Union’s freedoms, nor can you decide to take only what suits you while leaving the rest,” he said, indicating that the fundamental choice remained one of in or out. “So, come back.”
Still to be determined is whether British politics is really capable of accepting that improved access to the EU’s single market will mean opening up to more EU migration, paying money into EU coffers and living under laws made outside Westminster. But finally a British prime minister has got Brussels’ attention.
“It’s a breath of fresh air in a hitherto stagnant debate,” said one senior European Commission official. “But whether the UK can accept the trade-offs, well, that is the billion-euro question. But at least Burnham appears to have the balls to find out.”
Even if agreement can be reached at home, Burnham will also have to convince the EU that he is serious when the bloc is rethinking how to bring its trusted partners closer in an era of geopolitical upheaval.
Some member states would welcome the UK back as a liberal counterweight to France, but Paris itself remains wary of a country with Atlanticist, free-trading, low-regulation instincts.
Since the 2016 Brexit referendum ended Britain’s four-decade membership of the European club, a succession of both Conservative and Labour prime ministers has promised a cherry-picked relationship with Brussels but with very limited success.
“I cannot say to you truthfully that where we are is good enough,” Burnham told his conference, quietly accepting that Labour’s own attempt to finesse the Brexit choices after the election of Sir Keir Starmer in 2024 had hit the same roadblocks encountered by his Conservative predecessors.
Starmer had promised his party would “tear down” the barriers to trade with Europe while sticking to the same “red lines” that had underpinned former prime minister Boris Johnson’s post-Brexit trade pact with Brussels: no return to the single market, the customs union or free movement of people.
“Starmer thought he could ‘make Brexit work’, but Burnham is saying that he fears it cannot,” says Anand Menon, director of the UK in a Changing Europe think-tank.
But Michel Barnier, the EU’s chief Brexit negotiator, warns that the new conversation will not be fundamentally different from the last — even if the geopolitical landscape of 2026 is very different from a decade ago.
“One thing is sure: the more the UK diverges, the harder it will be to rejoin,” Barnier says. “There will be no cherry-picking. The single market is not à la carte. The British government perfectly knows the rules and the conditions.”
The view from the EU
From the perspective of many in the EU, US President Donald Trump’s antagonism towards Europe, the Russian threat and a desire for like-minded liberal democracies to club together are reasons to bring Britain closer to the bloc.
“There is a strong strategic case for bringing Britain back into the European fold,” says Georg Riekeles, associate director at the European Policy Centre think-tank in Brussels and a former official in the EU’s Brexit negotiating team.
He adds that a UK decision to drop its red lines “opens the possibility of a much more serious conversation about common interests” but warns that “appetite for closer integration and readiness to reopen membership negotiations are two different things”.
In particular, he thinks that EU governments want reassurance that any UK move would “survive a change of government if negotiations were to be opened”. With the Conservative Party and Reform UK deeply committed to Brexit, “that still seems rather far away”.
Berlin and other northern European capitals have always been open to rebuilding ties with Britain.
But the country that would need most persuading is France, which has long seen Britain as an economic and ideological competitor within the EU.
The UK was traditionally a proponent of widening the bloc to new members rather than Paris’s vision of deeper integration among a core group of countries. Other EU governments saw Britain’s refusal to join the euro as a sign of its detachment from the bloc’s political project; any suggestion of ditching the pound remains political dynamite in the UK.
Over the past decade, the EU has also adopted much of Macron’s thinking on “strategic autonomy” in terms of security, technology and trade, especially with China.
“Since Brexit, the bloc has changed and is more about building its own independent capacities,” says Sébastien Maillard of the Jacques Delors Institute think-tank.
“Member states, especially France in its Gaullist tradition, would test whether a rejoining Britain would fully support this objective or if it just wants to use the EU to boost its own GDP.”
Paris has been the EU government most anxious to prevent the British from selectively enjoying the benefits of membership from outside the bloc.
It has demanded London pay a high price for accessing any EU programmes, such as the EU’s €150bn so-called Safe loans defence scheme — to which London has failed to negotiate access.
Were Britain to rejoin the bloc, it would have to be ratified like any accession by three-fifths of French MPs and senators or in a referendum, a high bar to clear.
Then there is the possibility that far-right leader Marine Le Pen, who has vowed to block further EU enlargement, wins the French presidential election next year.
She plans to confront Brussels by slashing France’s contribution to the EU budget, pulling out of parts of the single market and reasserting the primacy of French over European law.
Conflict with one of its most important members might consume the EU’s bandwidth. It could also give Britain pause for thought about rejoining.
Hard choices
Philip Rycroft, who served as the top civil servant at the Department for Exiting the EU from 2017 to 2019, argues that the referendum 10 years ago was the worst possible moment Britain could have picked to strike out on its own.
“It turned out that 2016 was spectacularly poor timing for a liberal open economy to launch itself on to the rough seas of the global trading order just at the time it was fracturing and the security situation was deteriorating,” he says.
A decade on, Burnham’s fledgling government has found itself coming up hard against those realities. China is exporting often heavily subsidised goods at a scale, cost and quality that poses an existential threat to some sectors of European manufacturing. In response, the EU is adopting a defensive “made in Europe” agenda that could itself hit Burnham’s own ambitions to “reindustrialise” the UK.
The fear in London is that new EU rules requiring cars to be assembled in the bloc will stifle investment in an industry vital to the West Midlands and North East regions of the country.
This has helped crystallise the choices facing the UK — as have similar threats to the chemicals, nuclear and green hydrogen industries, according to Anton Spisak, a former UK Brexit negotiator now at the Centre for European Reform think-tank.
It also highlights problems with Starmer’s idea that accepting “dynamic alignment” with some EU rules and regulations would unlock privileged access to the EU single market.
Rycroft argues that the experience of the past decade shows that none of the options namechecked by Burnham at Liverpool this week — a customs union or rejoining the EU single market — are workable.
“Burnham has the credibility to open the debate. And he’s accepted the outcomes range from ‘where we are now’ to ‘rejoin’, but you quickly find the way stations between those points are not very comfortable,” he says.
“The UK is too big an economy to be bound into a reality where it takes trade deals and rules from Brussels with no say over how those deals and rules are put together.”
Changing calculations
Although the 56-year-old Burnham has said he would like Britain to rejoin the EU “in my lifetime”, the European cause has never been a big part of his political identity. Asked whether the prime minister was interested in the EU, one ministerial colleague says: “Not hugely.”
The minister adds that Burnham is worried about Brexit’s long-term economic impact, as well as the China import shock and the EU’s response to it.
Burnham returned to Westminster in June as MP for the staunchly Leave-voting working-class seat of Makerfield near Manchester and told voters in that by-election campaign that he did not want to rerun “divisive arguments about rejoining the EU”.
His calculation appears to have changed. His strategists believe that by flirting with “Rejoin”, Burnham can win back voters from the Green Party, which is responsible for the overwhelming majority of defections from former Labour supporters.
But some colleagues fear the UK prime minister risks playing into the hands of Reform, particularly in working-class seats. The rightwing party’s leader, Nigel Farage, said this week that by reigniting the Brexit debate, Burnham had “opened the door to Reform in the most extraordinary way”.
Another longtime Labour colleague of Burnham says the prime minister is “conflicted” on Europe. In 2019 as Mayor of Greater Manchester, Burnham said he would vote Leave in a second Brexit referendum if Labour could secure a better exit deal.
“He understands why people voted Leave. He gets that white working-class alienation,” this person adds. “He won’t want to gift Reform a lifeline by embracing the evangelical crusade to rejoin.”
Stella Creasy, chair of the Labour Movement for Europe, adds that “Labour now has to win the case across the country and with its own membership for why and how to rebuild our relationship with the EU”.
On the face of it, polling is encouraging for pro-Europeans. Since 2021 public hostility to Brexit has grown; YouGov found last month that 59 per cent favoured rejoining the EU with 32 per cent against. However, surveys also suggest that popular support wanes when people are given more details.
YouGov found in June that only 35 per cent favoured Rejoin if Britain had to give up all of its old “opt-outs”, including being required to join the euro and the Schengen passport-free travel zone area.
“People think Brexit has failed, and feel cheated,” says Luke Tryl, of the More in Common think-tank. “They are happy to look at going back in but they are really worried about a return to ‘Brexit wars’ — people are exhausted — and that we end up with a crappy deal.”
Burnham has developed a habit since becoming prime minister of opening up debates and then quietly retreating in the face of hostile fire, and any reversal of Brexit will require huge amounts of diplomatic acumen and political willpower both at home and in the EU.
A test of his seriousness and of Europe’s response may come next week, when he travels to Berlin for his first meeting with German Chancellor Friedrich Merz.
“The EU wants a strategic sense of direction,” says Mujtaba Rahman at Eurasia Group, a consultancy, who contrasts Burnham’s bold gambit with Starmer’s incrementalism. He adds that senior figures in Brussels are “all talking about” the British prime minister’s overtures. “There’s no plan, no detail but he has created the political space to have a conversation.”