The British prime minister has told lawmakers that a Brexit deal is still "achievable." Yet German Chancellor Angela Merkel warned time was running out over the Irish border question.
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UK Prime Minister Theresa May on Monday said a "backstop" arrangement had been proposed that would effectively keep Britain within European arrangements until 2022.
May ruled out a temporary backstop that would involve customs divergence between the UK and Northern Ireland— effectively creating a customs border in the Irish Sea. This had been proposed during talks between UK and EU negotiators ahead of a summit of EU leaders starting Wednesday.
"Even with the progress we’ve made, the EU still requires a backstop to the backstop – effectively an insurance policy for the insurance policy, and they want this to be the Northern Ireland-only solution that they’d previously proposed," May told the UK parliament.
"We've been clear we won't agree to anything that affects the integrity of our United Kingdom," said May, stressing that the situation would not be long term.
"I want to be able to look the British people in the eye and say this backstop is only meant to be a temporary solution."
Although May floated the end of 2021 as a possible date for leaving the customs arrangement, she did not set it as an official deadline.
May — who was under pressure from her Northern Irish allies the Democratic Unionist Party (DUP) to rule out a Northern Ireland only solution — was speaking ahead of talks with European Union head of government, beginning on Wednesday. Leaders from the other 27 member states are to decide upon whether to step up talks on a future trade agreement between the UK and the EU.
Ahead of the summit, German Chancellor Angela Merkel warned that a deal appeared to be increasingly difficult because of the border issue. "If it doesn't work out this week, we must continue negotiating, that is clear, but time is pressing," she added.
Sunday talks stalled
EU and UK negotiators had been expected to reach a tentative agreement on Sunday, but the talks reached an impasse and broke down.
Among the major sticking points is the possibility of a hard border on the island of Ireland. Both sides have said they do not want customs checks and infrastructure between Northern Ireland and the Republic of Ireland, but different customs arrangements between an Ireland inside the EU and a UK outside of the bloc could make such a hard border necessary.
Northern Ireland's changing border
The 499-kilometer Irish border wasn't originally intended to be an international frontier. Since the Republic of Ireland was created, the situation at the border has mirrored the changing nature of Anglo-Irish relations.
Image: imago/UIG
The Irish Free State
Britain's response to Irish demands for independence was devolution within the UK, or home rule. Pro-British Unionists didn't want to be governed by Dublin, so two parliaments were set up, for Northern and Southern Ireland. However, nationalists still pushed for full independence and in 1922 Southern Ireland was superseded by the Irish Free State as enshrined in the Anglo-Irish Treaty (pictured).
Image: Getty Images/Topical Press Agency
The Six Counties
Northern Ireland had been carved in a way that allowed Protestant loyalists to stay in control, but also ensure the region was large enough to be viable. It included four majority-Protestant counties in the ancient province of Ulster, as well as the two Catholic nationalist counties. Three of Ulster's counties — Donegal, Monaghan and Cavan — were placed on the Southern Ireland side of the border.
No laughing matter?
Involving members of the British, Irish and devolved Belfast governments, a 1924-25 boundary commission looked at the whether the border should stay where it was. It broadly remained in the same place, often cutting through communities across its 310 miles. The Spike Milligan novel "Puckoon," made into a film (above), charted the problems brought to a fictional Irish village divided by the border.
The new border's checkpoints initially regulated the movement of certain goods, with movement of people being free. However, the Anglo-Irish Trade War of the 1930s saw tariffs imposed on foods and later coal and steel. The dispute ended in 1936, but Ireland still pursued protectionist policies into the 1950s. Customs stayed in place until the advent of the EU Single Market in 1993.
Image: picture alliance/AP Images/S. Smart
Bloody legacy
With an escalation in fighting in Northern Ireland in 1969, British troops were sent to the province, fueling nationalist resentment. The border was heavily guarded to stop weapons smuggling from the Republic. The South Armagh stretch was particularly notorious. The Irish Republican Army's South Armagh Brigade is thought to have killed about 165 British troops and police from 1970 to 1997.
Image: picture alliance/empics/PA
South of the Border
The border was also policed by the Republic of Ireland's security forces, who intensified their anti-terror efforts in the late 1970s. They worked with the British, but the working relationship was not an easy one. To communicate with Irish counterparts, British troops at one time had to speak to the Northern Irish police, who would contact the Irish police, who would then call the Irish army.
Image: picture alliance/empics/PA
Watchtowers and rifle sights
Despite the end of customs in 1993, the threat of terror still loomed and the border remained militarized, with watchtowers and soldiers. After the 1998 Good Friday Agreement — which brought back devolved government to Northern Ireland and sought to address issues such as policing and paramilitarism — the IRA eventually halted its campaign of violence as border security disappeared.
Image: picture-alliance/dpa/P. McErlane
Barely noticeable
The border today remains as invisible as it has ever been, with free movement of traffic between the Republic and the North. The picture shows two policemen, one British, one Irish, watching as a foreign leg of the Giro d'Italia crosses the border in Armagh.
Image: picture alliance/dpa/P. McErlane
Anything to declare?
There were fears that Brexit would make a hard border necessary, given that Britain has left both the EU Customs Union and Single Market. The border issue was one of three conditions laid out by the EU for talks on future trade after the separation. Campaigners, like those pictured above, had sought to remind the public of what a hard border would look like.
Image: picture alliance/empics/N. Carson/PA Wire
Border in the Irish Sea
Customs officials check freight trucks as they disembark from a ferry at the Northern Irish port of Larne. The inspections effectively created a customs border in the Irish Sea, avoiding the need for checks on land. The arrangement has led to supply problems for some businesses. However, it has been touted as good for Northern Ireland, giving firms there free access to both the UK and EU markets.
Image: Charles McQuillan/Getty Images
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Of major concern is the possibility that a hardened border could inflame old tensions between nationalists, who want Northern Ireland to be part of Ireland, and unionists who want it to stay in the UK. The split led to a period of violence that lasted more than 30 years, known as the "Troubles," which only ended in 1998 and claimed more than 3,700 lives.
EU negotiator Michel Barnier had proposed that Northern Ireland stay within the European economic space until the end of 2020, while the rest of the UK would leave — an agreement that would be known as the "backstop." Such an arrangement would mean customs checks between the Northern Ireland and the UK. That has raised hackles within the tiny Northern Irish Democratic Unionist Party (DUP), upon which Theresa May relies for a majority in the UK parliament.
The DUP, which insists that Northern Ireland should be treated like the rest of the UK, has even threatened to vote down the government's forthcoming budget if Theresa May gives way to Brussels on the issue.
As a shot across the bow, the party abstained from a parliamentary vote on a government agriculture bill to remind May and her Cabinet that it would vote against them if it were thought to be a "necessary sanction." Although that bill passed anyway, voting against the budget would be likely to have a greater impact and could trigger a confidence motion against May, possibly resulting in a general election.