Table 2.

Fourteen referendum-endorsed challenges to international institutions

 Targeted institutionReferendumOutcome
1982 GreenlandEuropean CommunityLeaving the European CommunitiesGreenland, initially incorporated into the EC as a Danish territory in 1972 against its will, gained self-rule in 1979 and voted in 1982 to withdraw.EC Withdrawal in 1985.The “Greenland Treaty” ensured Greenland’s market access and aid, while the EC retained fishing rights.
1986 SwitzerlandUnited NationsUnited Nations membershipNeutral Switzerland was not a UN member, despite being host to many UN institutions and participating in many initiatives. In 1986, 75.7 percent of Swiss voters rejected a proposal for full UN membership.Status quo maintainedSwitzerland continued to contribute to UN agencies and engage in international diplomacy without full membership.
1992 DenmarkEuropean Community (Maastricht Treaty)The Maastricht TreatyThe Maastricht Treaty sought to establish the European Union, but 50.7 percent of the Danish voters rejected it, citing concerns over sovereignty, particularly regarding currency and defense.Negotiation of opt-outsEU leaders negotiated opt-outs for Denmark’s key concerns, leading to voter approval in a second referendum on May 18, 1993.
1992 SwitzerlandEuropean Economic AreaEuropean Economic Area AgreementThe EEA agreement would have allowed Switzerland to participate fully in the EC’s internal market, but was narrowly rejected by 50.3 percent of Swiss voters due to concerns over sovereignty, unrestricted freedom of movement, and the EC’s monetary crisis.Bilateral agreementsThe EEA entered into force in 1994 without Switzerland. Switzerland negotiated a broad set of bilateral, sector-specific agreements with the EU that allowed for close cooperation.
1994 NorwayEuropean UnionEuropean Union MembershipDespite already close ties through the EEA, 52.2 percent of Norwegians voted against EU membership in November 1994, citing concerns over sovereignty, immigration, and cultural values.Status quo maintainedNorway remained in the EEA. Over time, it deepened its ties with the EU through new agreements, such as the Schengen Agreement.
2001 IrelandEuropean Union (Nice Treaty)Treaty of NiceThe Treaty of Nice reformed EU institutions to be able to cope with enlargement and become more efficient, but 53.9 percent of Irish voters rejected it over sovereignty and neutrality concerns.Opt-outs and guaranteesAfter securing the Seville Declaration protecting Irish neutrality, 60 percent of voters accepted the treaty in a second referendum.
2005 FranceEuropean Union (EU Constitution)European Union ConstitutionThe EU Constitution aimed to consolidate EU treaties and enhance integration. Ratification was derailed when 55% of French voters (and days later also Dutch voters) rejected it in a referendum, citing concerns over jobs, public services, and Turkey’s potential EU accession.Treaty abandonedThe Constitution was abandoned and replaced with the Lisbon Treaty, which retained much content from the Constitution but dropped aspects suggesting a shift towards a federal Europe.
2008 IrelandEuropean Union (Lisbon Treaty)Lisbon Treaty53.4 percent of Irish voters rejected the Lisbon Treaty, meant to streamline and enhance EU decision-making, citing concerns over neutrality and less control over tax and social laws.Opt-outs and guaranteesAfter securing binding guarantees from the EU, 67.1% of Irish voters approved the treaty in a second referendum.
2010 IcelandIC-UK-NL Loan Agreement IFirst loan guarantees referendum (Icesave I)The collapse of Iceland’s Landsbanki left foreign depositors with major losses. The United Kingdom and Netherlands initially compensated their citizens and then sought repayment from Iceland. However, 93 percent of Icelandic voters rejected the negotiated repayment agreement.Renegotiated agreementThe Icelandic government and the United Kingdom and NL renegotiated the repayment agreement with better terms for Iceland
2011 IcelandIC-UK-NL Loan Agreement IISecond loan guarantees referendum (Icesave II)Although the renegotiated loan repayment agreement offered better terms, 59.8 percent of voters rejected the new agreement again in a second referendum.Legal resolutionThe United Kingdom and the Netherlands brought the case before the EFTA court, which ruled in Iceland’s favor in 2013.
2014 SwitzerlandEuropean Union (Bilateral Treaty)Initiative “Against Mass Immigration”The popular initiative aimed to limit immigration by reintroducing quotas for foreign workers and hiring priority for Swiss citizens was narrowly accepted with 50.2 percent of the vote. It conflicted with the Swiss-EU “Free Movement of Persons” Treaty, putting Switzerland’s custom-made relations with the EU at risk.Non-implementationSwitzerland introduced quotas and Swiss worker priority only for non-EU nationals, preserving the status quo for EU/EFTA nationals, in line with the CH-EU Treaty.
2015 GreeceEuropean Monetary UnionGreek Bailout referendumAfter years of economic crisis, Greek voters rejected a renewed bailout agreement from the “troika” (EC, ECB, IMF), primarily opposing the austerity measures tied to financial aid. The vote put Greece’s Eurozone membership and the Eurozone’s crisis management at risk.Non-implementationFacing a choice between the bailout package or leaving the euro, Greece accepted the bailout package.
2016 NetherlandsEuropean Union (Association Agreement)Ukraine–EU Association AgreementThe Ukraine–EU Association Agreement established political and economic ties between Ukraine, the EU and Euratom. 64 percent of Dutch voters rejected the agreement, citing concerns over Ukraine’s readiness and deeper EU integration more generally.Clarifications and guaranteesThe EU provided political guarantees, clarifications, and a reaffirmation of key principles, allowing the Dutch government to ratify the agreement.
2016 UKEuropean UnionBrexit - Leaving the EUAfter failed attempts to renegotiate the UK’s EU membership terms, 51.9 percent of UK voters opted to leave the European Union. Key issues included sovereignty, immigration control, economic impact, and EU regulations.EU withdrawalThe negotiated Brexit deal significantly reduced cooperation between the EU and the United Kingdom.
 Targeted institutionReferendumOutcome
1982 GreenlandEuropean CommunityLeaving the European CommunitiesGreenland, initially incorporated into the EC as a Danish territory in 1972 against its will, gained self-rule in 1979 and voted in 1982 to withdraw.EC Withdrawal in 1985.The “Greenland Treaty” ensured Greenland’s market access and aid, while the EC retained fishing rights.
1986 SwitzerlandUnited NationsUnited Nations membershipNeutral Switzerland was not a UN member, despite being host to many UN institutions and participating in many initiatives. In 1986, 75.7 percent of Swiss voters rejected a proposal for full UN membership.Status quo maintainedSwitzerland continued to contribute to UN agencies and engage in international diplomacy without full membership.
1992 DenmarkEuropean Community (Maastricht Treaty)The Maastricht TreatyThe Maastricht Treaty sought to establish the European Union, but 50.7 percent of the Danish voters rejected it, citing concerns over sovereignty, particularly regarding currency and defense.Negotiation of opt-outsEU leaders negotiated opt-outs for Denmark’s key concerns, leading to voter approval in a second referendum on May 18, 1993.
1992 SwitzerlandEuropean Economic AreaEuropean Economic Area AgreementThe EEA agreement would have allowed Switzerland to participate fully in the EC’s internal market, but was narrowly rejected by 50.3 percent of Swiss voters due to concerns over sovereignty, unrestricted freedom of movement, and the EC’s monetary crisis.Bilateral agreementsThe EEA entered into force in 1994 without Switzerland. Switzerland negotiated a broad set of bilateral, sector-specific agreements with the EU that allowed for close cooperation.
1994 NorwayEuropean UnionEuropean Union MembershipDespite already close ties through the EEA, 52.2 percent of Norwegians voted against EU membership in November 1994, citing concerns over sovereignty, immigration, and cultural values.Status quo maintainedNorway remained in the EEA. Over time, it deepened its ties with the EU through new agreements, such as the Schengen Agreement.
2001 IrelandEuropean Union (Nice Treaty)Treaty of NiceThe Treaty of Nice reformed EU institutions to be able to cope with enlargement and become more efficient, but 53.9 percent of Irish voters rejected it over sovereignty and neutrality concerns.Opt-outs and guaranteesAfter securing the Seville Declaration protecting Irish neutrality, 60 percent of voters accepted the treaty in a second referendum.
2005 FranceEuropean Union (EU Constitution)European Union ConstitutionThe EU Constitution aimed to consolidate EU treaties and enhance integration. Ratification was derailed when 55% of French voters (and days later also Dutch voters) rejected it in a referendum, citing concerns over jobs, public services, and Turkey’s potential EU accession.Treaty abandonedThe Constitution was abandoned and replaced with the Lisbon Treaty, which retained much content from the Constitution but dropped aspects suggesting a shift towards a federal Europe.
2008 IrelandEuropean Union (Lisbon Treaty)Lisbon Treaty53.4 percent of Irish voters rejected the Lisbon Treaty, meant to streamline and enhance EU decision-making, citing concerns over neutrality and less control over tax and social laws.Opt-outs and guaranteesAfter securing binding guarantees from the EU, 67.1% of Irish voters approved the treaty in a second referendum.
2010 IcelandIC-UK-NL Loan Agreement IFirst loan guarantees referendum (Icesave I)The collapse of Iceland’s Landsbanki left foreign depositors with major losses. The United Kingdom and Netherlands initially compensated their citizens and then sought repayment from Iceland. However, 93 percent of Icelandic voters rejected the negotiated repayment agreement.Renegotiated agreementThe Icelandic government and the United Kingdom and NL renegotiated the repayment agreement with better terms for Iceland
2011 IcelandIC-UK-NL Loan Agreement IISecond loan guarantees referendum (Icesave II)Although the renegotiated loan repayment agreement offered better terms, 59.8 percent of voters rejected the new agreement again in a second referendum.Legal resolutionThe United Kingdom and the Netherlands brought the case before the EFTA court, which ruled in Iceland’s favor in 2013.
2014 SwitzerlandEuropean Union (Bilateral Treaty)Initiative “Against Mass Immigration”The popular initiative aimed to limit immigration by reintroducing quotas for foreign workers and hiring priority for Swiss citizens was narrowly accepted with 50.2 percent of the vote. It conflicted with the Swiss-EU “Free Movement of Persons” Treaty, putting Switzerland’s custom-made relations with the EU at risk.Non-implementationSwitzerland introduced quotas and Swiss worker priority only for non-EU nationals, preserving the status quo for EU/EFTA nationals, in line with the CH-EU Treaty.
2015 GreeceEuropean Monetary UnionGreek Bailout referendumAfter years of economic crisis, Greek voters rejected a renewed bailout agreement from the “troika” (EC, ECB, IMF), primarily opposing the austerity measures tied to financial aid. The vote put Greece’s Eurozone membership and the Eurozone’s crisis management at risk.Non-implementationFacing a choice between the bailout package or leaving the euro, Greece accepted the bailout package.
2016 NetherlandsEuropean Union (Association Agreement)Ukraine–EU Association AgreementThe Ukraine–EU Association Agreement established political and economic ties between Ukraine, the EU and Euratom. 64 percent of Dutch voters rejected the agreement, citing concerns over Ukraine’s readiness and deeper EU integration more generally.Clarifications and guaranteesThe EU provided political guarantees, clarifications, and a reaffirmation of key principles, allowing the Dutch government to ratify the agreement.
2016 UKEuropean UnionBrexit - Leaving the EUAfter failed attempts to renegotiate the UK’s EU membership terms, 51.9 percent of UK voters opted to leave the European Union. Key issues included sovereignty, immigration control, economic impact, and EU regulations.EU withdrawalThe negotiated Brexit deal significantly reduced cooperation between the EU and the United Kingdom.
Table 2.

Fourteen referendum-endorsed challenges to international institutions

 Targeted institutionReferendumOutcome
1982 GreenlandEuropean CommunityLeaving the European CommunitiesGreenland, initially incorporated into the EC as a Danish territory in 1972 against its will, gained self-rule in 1979 and voted in 1982 to withdraw.EC Withdrawal in 1985.The “Greenland Treaty” ensured Greenland’s market access and aid, while the EC retained fishing rights.
1986 SwitzerlandUnited NationsUnited Nations membershipNeutral Switzerland was not a UN member, despite being host to many UN institutions and participating in many initiatives. In 1986, 75.7 percent of Swiss voters rejected a proposal for full UN membership.Status quo maintainedSwitzerland continued to contribute to UN agencies and engage in international diplomacy without full membership.
1992 DenmarkEuropean Community (Maastricht Treaty)The Maastricht TreatyThe Maastricht Treaty sought to establish the European Union, but 50.7 percent of the Danish voters rejected it, citing concerns over sovereignty, particularly regarding currency and defense.Negotiation of opt-outsEU leaders negotiated opt-outs for Denmark’s key concerns, leading to voter approval in a second referendum on May 18, 1993.
1992 SwitzerlandEuropean Economic AreaEuropean Economic Area AgreementThe EEA agreement would have allowed Switzerland to participate fully in the EC’s internal market, but was narrowly rejected by 50.3 percent of Swiss voters due to concerns over sovereignty, unrestricted freedom of movement, and the EC’s monetary crisis.Bilateral agreementsThe EEA entered into force in 1994 without Switzerland. Switzerland negotiated a broad set of bilateral, sector-specific agreements with the EU that allowed for close cooperation.
1994 NorwayEuropean UnionEuropean Union MembershipDespite already close ties through the EEA, 52.2 percent of Norwegians voted against EU membership in November 1994, citing concerns over sovereignty, immigration, and cultural values.Status quo maintainedNorway remained in the EEA. Over time, it deepened its ties with the EU through new agreements, such as the Schengen Agreement.
2001 IrelandEuropean Union (Nice Treaty)Treaty of NiceThe Treaty of Nice reformed EU institutions to be able to cope with enlargement and become more efficient, but 53.9 percent of Irish voters rejected it over sovereignty and neutrality concerns.Opt-outs and guaranteesAfter securing the Seville Declaration protecting Irish neutrality, 60 percent of voters accepted the treaty in a second referendum.
2005 FranceEuropean Union (EU Constitution)European Union ConstitutionThe EU Constitution aimed to consolidate EU treaties and enhance integration. Ratification was derailed when 55% of French voters (and days later also Dutch voters) rejected it in a referendum, citing concerns over jobs, public services, and Turkey’s potential EU accession.Treaty abandonedThe Constitution was abandoned and replaced with the Lisbon Treaty, which retained much content from the Constitution but dropped aspects suggesting a shift towards a federal Europe.
2008 IrelandEuropean Union (Lisbon Treaty)Lisbon Treaty53.4 percent of Irish voters rejected the Lisbon Treaty, meant to streamline and enhance EU decision-making, citing concerns over neutrality and less control over tax and social laws.Opt-outs and guaranteesAfter securing binding guarantees from the EU, 67.1% of Irish voters approved the treaty in a second referendum.
2010 IcelandIC-UK-NL Loan Agreement IFirst loan guarantees referendum (Icesave I)The collapse of Iceland’s Landsbanki left foreign depositors with major losses. The United Kingdom and Netherlands initially compensated their citizens and then sought repayment from Iceland. However, 93 percent of Icelandic voters rejected the negotiated repayment agreement.Renegotiated agreementThe Icelandic government and the United Kingdom and NL renegotiated the repayment agreement with better terms for Iceland
2011 IcelandIC-UK-NL Loan Agreement IISecond loan guarantees referendum (Icesave II)Although the renegotiated loan repayment agreement offered better terms, 59.8 percent of voters rejected the new agreement again in a second referendum.Legal resolutionThe United Kingdom and the Netherlands brought the case before the EFTA court, which ruled in Iceland’s favor in 2013.
2014 SwitzerlandEuropean Union (Bilateral Treaty)Initiative “Against Mass Immigration”The popular initiative aimed to limit immigration by reintroducing quotas for foreign workers and hiring priority for Swiss citizens was narrowly accepted with 50.2 percent of the vote. It conflicted with the Swiss-EU “Free Movement of Persons” Treaty, putting Switzerland’s custom-made relations with the EU at risk.Non-implementationSwitzerland introduced quotas and Swiss worker priority only for non-EU nationals, preserving the status quo for EU/EFTA nationals, in line with the CH-EU Treaty.
2015 GreeceEuropean Monetary UnionGreek Bailout referendumAfter years of economic crisis, Greek voters rejected a renewed bailout agreement from the “troika” (EC, ECB, IMF), primarily opposing the austerity measures tied to financial aid. The vote put Greece’s Eurozone membership and the Eurozone’s crisis management at risk.Non-implementationFacing a choice between the bailout package or leaving the euro, Greece accepted the bailout package.
2016 NetherlandsEuropean Union (Association Agreement)Ukraine–EU Association AgreementThe Ukraine–EU Association Agreement established political and economic ties between Ukraine, the EU and Euratom. 64 percent of Dutch voters rejected the agreement, citing concerns over Ukraine’s readiness and deeper EU integration more generally.Clarifications and guaranteesThe EU provided political guarantees, clarifications, and a reaffirmation of key principles, allowing the Dutch government to ratify the agreement.
2016 UKEuropean UnionBrexit - Leaving the EUAfter failed attempts to renegotiate the UK’s EU membership terms, 51.9 percent of UK voters opted to leave the European Union. Key issues included sovereignty, immigration control, economic impact, and EU regulations.EU withdrawalThe negotiated Brexit deal significantly reduced cooperation between the EU and the United Kingdom.
 Targeted institutionReferendumOutcome
1982 GreenlandEuropean CommunityLeaving the European CommunitiesGreenland, initially incorporated into the EC as a Danish territory in 1972 against its will, gained self-rule in 1979 and voted in 1982 to withdraw.EC Withdrawal in 1985.The “Greenland Treaty” ensured Greenland’s market access and aid, while the EC retained fishing rights.
1986 SwitzerlandUnited NationsUnited Nations membershipNeutral Switzerland was not a UN member, despite being host to many UN institutions and participating in many initiatives. In 1986, 75.7 percent of Swiss voters rejected a proposal for full UN membership.Status quo maintainedSwitzerland continued to contribute to UN agencies and engage in international diplomacy without full membership.
1992 DenmarkEuropean Community (Maastricht Treaty)The Maastricht TreatyThe Maastricht Treaty sought to establish the European Union, but 50.7 percent of the Danish voters rejected it, citing concerns over sovereignty, particularly regarding currency and defense.Negotiation of opt-outsEU leaders negotiated opt-outs for Denmark’s key concerns, leading to voter approval in a second referendum on May 18, 1993.
1992 SwitzerlandEuropean Economic AreaEuropean Economic Area AgreementThe EEA agreement would have allowed Switzerland to participate fully in the EC’s internal market, but was narrowly rejected by 50.3 percent of Swiss voters due to concerns over sovereignty, unrestricted freedom of movement, and the EC’s monetary crisis.Bilateral agreementsThe EEA entered into force in 1994 without Switzerland. Switzerland negotiated a broad set of bilateral, sector-specific agreements with the EU that allowed for close cooperation.
1994 NorwayEuropean UnionEuropean Union MembershipDespite already close ties through the EEA, 52.2 percent of Norwegians voted against EU membership in November 1994, citing concerns over sovereignty, immigration, and cultural values.Status quo maintainedNorway remained in the EEA. Over time, it deepened its ties with the EU through new agreements, such as the Schengen Agreement.
2001 IrelandEuropean Union (Nice Treaty)Treaty of NiceThe Treaty of Nice reformed EU institutions to be able to cope with enlargement and become more efficient, but 53.9 percent of Irish voters rejected it over sovereignty and neutrality concerns.Opt-outs and guaranteesAfter securing the Seville Declaration protecting Irish neutrality, 60 percent of voters accepted the treaty in a second referendum.
2005 FranceEuropean Union (EU Constitution)European Union ConstitutionThe EU Constitution aimed to consolidate EU treaties and enhance integration. Ratification was derailed when 55% of French voters (and days later also Dutch voters) rejected it in a referendum, citing concerns over jobs, public services, and Turkey’s potential EU accession.Treaty abandonedThe Constitution was abandoned and replaced with the Lisbon Treaty, which retained much content from the Constitution but dropped aspects suggesting a shift towards a federal Europe.
2008 IrelandEuropean Union (Lisbon Treaty)Lisbon Treaty53.4 percent of Irish voters rejected the Lisbon Treaty, meant to streamline and enhance EU decision-making, citing concerns over neutrality and less control over tax and social laws.Opt-outs and guaranteesAfter securing binding guarantees from the EU, 67.1% of Irish voters approved the treaty in a second referendum.
2010 IcelandIC-UK-NL Loan Agreement IFirst loan guarantees referendum (Icesave I)The collapse of Iceland’s Landsbanki left foreign depositors with major losses. The United Kingdom and Netherlands initially compensated their citizens and then sought repayment from Iceland. However, 93 percent of Icelandic voters rejected the negotiated repayment agreement.Renegotiated agreementThe Icelandic government and the United Kingdom and NL renegotiated the repayment agreement with better terms for Iceland
2011 IcelandIC-UK-NL Loan Agreement IISecond loan guarantees referendum (Icesave II)Although the renegotiated loan repayment agreement offered better terms, 59.8 percent of voters rejected the new agreement again in a second referendum.Legal resolutionThe United Kingdom and the Netherlands brought the case before the EFTA court, which ruled in Iceland’s favor in 2013.
2014 SwitzerlandEuropean Union (Bilateral Treaty)Initiative “Against Mass Immigration”The popular initiative aimed to limit immigration by reintroducing quotas for foreign workers and hiring priority for Swiss citizens was narrowly accepted with 50.2 percent of the vote. It conflicted with the Swiss-EU “Free Movement of Persons” Treaty, putting Switzerland’s custom-made relations with the EU at risk.Non-implementationSwitzerland introduced quotas and Swiss worker priority only for non-EU nationals, preserving the status quo for EU/EFTA nationals, in line with the CH-EU Treaty.
2015 GreeceEuropean Monetary UnionGreek Bailout referendumAfter years of economic crisis, Greek voters rejected a renewed bailout agreement from the “troika” (EC, ECB, IMF), primarily opposing the austerity measures tied to financial aid. The vote put Greece’s Eurozone membership and the Eurozone’s crisis management at risk.Non-implementationFacing a choice between the bailout package or leaving the euro, Greece accepted the bailout package.
2016 NetherlandsEuropean Union (Association Agreement)Ukraine–EU Association AgreementThe Ukraine–EU Association Agreement established political and economic ties between Ukraine, the EU and Euratom. 64 percent of Dutch voters rejected the agreement, citing concerns over Ukraine’s readiness and deeper EU integration more generally.Clarifications and guaranteesThe EU provided political guarantees, clarifications, and a reaffirmation of key principles, allowing the Dutch government to ratify the agreement.
2016 UKEuropean UnionBrexit - Leaving the EUAfter failed attempts to renegotiate the UK’s EU membership terms, 51.9 percent of UK voters opted to leave the European Union. Key issues included sovereignty, immigration control, economic impact, and EU regulations.EU withdrawalThe negotiated Brexit deal significantly reduced cooperation between the EU and the United Kingdom.
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