Windsor Framework explained

In a nutshell

As part of the EU-UK withdrawal agreement, the Protocol on Ireland/Northern Ireland introduced conditions to avoid a hard border on the island of Ireland.

Following unforeseen practical challenges relating to the implementation of the Protocol, the EU and UK have agreed on a set of solutions under the Windsor Framework that respond to the difficulties people and businesses in Northern Ireland have experienced because of Brexit.

The solutions under the Windsor Framework are implemented within the framework of the withdrawal agreement. Both the Windsor Framework and the Protocol have been agreed and ratified by the EU and UK.

Windsor Framework

Why was the Windsor Framework put in place?

From the outset, the EU has shown genuine understanding of unforeseen practical challenges relating to the implementation of the Protocol, including by proposing a set of tailored measures to increase its flexibility. These specific measures respond to the difficulties that people and business in Northern Ireland have experienced on the ground as a result of Brexit.

Following extensive discussions and outreach with stakeholders, the EU and the UK worked together to find a comprehensive, cross-cutting and definitive solution to these practical difficulties. These efforts culminated in February 2023, when the European Commission and the UK government reached a political agreement in principle on what is now known as the Windsor Framework.

The solutions, which will ensure lasting certainty and predictability for all communities in Northern Ireland, has been found within the framework of the withdrawal agreement, of which the Protocol is an integral part.

• A new way forward on the Protocol on Ireland/Northern Ireland: political agreement in principle on the Windsor Framework (European Commission, press release 27 February 2023
• Questions and Answers: political agreement in principle on the Windsor Framework, a new way forward for the Protocol on Ireland/Northern Ireland (European Commission, 27 February 2023)

What does the Windsor Framework cover?

The joint solutions under the Windsor Framework include arrangements that respect the integrity of both the UK and the EU single market and protect the Good Friday (Belfast) Agreement in all its dimensions. Those arrangements include:

• customs – facilitating procedures for trusted traders
• VAT and excise – avoiding unintended consequences of EU VAT and excise rules applying in Northern Ireland
• agri-food (sanitary and photo-sanitary rules) – making it easier for retail goods to enter Northern Ireland
• medicines – ensuring the supply of new medicines to Northern Ireland
• state aid – clarifying when state aid is applicable to subsidies that have a genuine and direct link to Northern Ireland
• pet travel – facilitating pet travel between Northern Ireland and Great Britain

The rules aim to make it easier to move a range of goods from Great Britain to Northern Ireland. At the same time, safeguards have been put in place to protect the EU's single market.

Role of the Council

For its part, in March 2023 the Council adopted two decisions related to the Windsor Framework. Taken together, the decisions allowed the EU to agree to the main modifications in relation to the Protocol and to engage more easily with the UK in specialised working groups.

In May 2023, the Council adopted three regulations aimed at implementing the joint solutions agreed with the UK.

• New way forward on the Protocol on Ireland/Northern Ireland: Council greenlights main elements of the Windsor Framework (press release, 21 March 2023)
• EU-UK relations: EU takes further steps to implement the Windsor Framework (press release, 30 May 2023)

Protocol on Ireland/Northern Ireland

What is the Northern Ireland Protocol?

The Protocol on Ireland/Northern Ireland, commonly referred to as the Northern Ireland Protocol, is the part of the EU-UK withdrawal agreement that ensures that a hard border is avoided on the island of Ireland after the UK formally left the EU on 31 January 2020.

The protocol takes into account the unique circumstances on the island of Ireland. It was agreed between the United Kingdom of Great Britain and Northern Ireland (UK) and the European Union (EU) as a stable and lasting solution designed to protect the all-island economy and the Good Friday (Belfast) Agreement in all its dimensions, and to safeguard the integrity of the EU single market.

Who signed the Northern Ireland Protocol?

On behalf of the European Union, then President of the European Council Charles Michel and President of the European Commission Ursula von der Leyen.

On behalf of the United Kingdom, then Prime Minister Boris Johnson. As part of the broader withdrawal agreement (also known as the 'Brexit' deal), it was ratified by the EU and the UK, and received the consent of the European Parliament.

When was the Northern Ireland Protocol signed?

The withdrawal agreement and the accompanying Protocol on Ireland/Northern Ireland were signed on 24 January 2020.

The protocol has applied since 1 January 2021.