The public bewilderment in Ireland is understandable. For many years, people perceived a connection between an enhanced role for the EU and domestic economic prosperity. But since the crisis unfolded, the connection has proved to be a myth. The Irish feel betrayed by all they thought the EU promised. Public frustration towards the national government and Brussels has ensued.
Prime Minister Kenny naturally played to anti-EU sentiments when he ruled out treaty change in September. But after committing Ireland to a new pact at last week's EU summit, he obscured the implications to the electorate, leaving the debate on the necessity of a referendum to legal experts.
The government's messaging on EU treaty change has been, and continues to be, inconsistent and confusing. Part of the problem is "referendum abuse". The government has at times avoided referenda by insisting that certain European-level reforms do not require formal treaty change. The creation of the European Financial Stability Facility (EFSF) in 2010 was established in this way. A similar approach is being used for fiscal union. At other times, referenda are held, but the government rejects the outcome. "Do-over referenda" were held before the Irish approved the Nice and Lisbon Treaties.
Unfortunately, Irish leaders have allowed referenda to become political lightning rods. Votes are cast more out of fear than conviction. The inability of recent Irish governments to communicate a case for Europe effectively has served only to fuel the fire.
The euro crisis has put the Irish government between a rock and a hard place. Dublin has an obligation to advance Irish interests in the EU and in the eurozone. Yet the government must also heed the demands of its people. The two objectives should not be mutually exclusive. Going forward, Irish politicians have a choice: continue to engage with European leaders behind closed doors and make EU treaty change a parliamentary responsibility, or communicate more clearly and consistently if the referendum is to be an effective tool. If Ireland can successfully navigate the latter, it can emerge as a leader of democratic accountability in Europe.
