Rule-Taking Fears Persist Following UK–EU Summit

Leaders praised the summit as a fresh start, but key agreements remain non-binding, and critics warn the UK is edging closer to EU rules without a say.

Prime Minister Sir Keir Starmer (centre) poses with European Commission President Ursula von der Leyen (left) and European Council President Antonio Costa ahead of the UK-EU Summit at Lancaster House, in central London on May 19, 2025. Henry Nicholls/PA

Despite being hailed by Prime Minister Sir Keir Starmer as “a win-win,” the recent UK–EU summit in London has led some observers to question whether Britain is edging back towards becoming a rule taker.

While the summit produced several high-level agreements, most are not legally binding and remain subject to further negotiation.

No treaty was signed. Instead, the joint statement proposed to “proceed swiftly” with exploratory talks under each side’s “respective legal frameworks.”

The UK government insists these steps will be “good” for jobs, bills, and borders.

Open-Ended Commitments

Details of the agreement, released on Monday, outline measures including a 12-year extension of EU access to UK fishing waters and a new sanitary and phytosanitary (SPS) agreement to ease food trade.

The UK and EU also plan to link their emissions trading schemes to avoid carbon taxes and cooperate on a limited and capped youth mobility scheme.

British defence firms are set to gain access to EU contracts under a proposed £150 billion fund, while UK steel exports will be shielded from new tariffs, potentially saving the industry £25 million.

While leaders on both sides declared it a success, the agreement received a mixed response in the UK, with praise from businesses and deep concern from some Brexit supporters and fishing communities.

Fishing Access Extended

Fishing was one of the most disputed areas. The Trade and Cooperation Agreement (TCA), signed in 2020 under the Conservatives, allowed EU boats to keep fishing in UK waters until 2026, with talks due each year after that.

The new agreement changes that plan, extending EU fishing access to UK waters until 2038.

Starmer defended the decision, saying it would provide “stability” and improve access for UK seafood exports to the EU.

“It also opens the door for shellfish and the like to be sold back into the European market, which wasn’t available before this deal,” he told reporters at the summit press conference.

But the decision has sparked anger among parts of the fishing industry.

“This deal is a horror show for Scottish fishermen,” said Elspeth Macdonald, chief executive of the Scottish Fishermen’s Federation.

“Any attempt by either the UK or EU to portray the new deal as a continuation of existing arrangements would be a lie, because in fact the TCA paved the way for annual access negotiations from 2026,” she said.

Conservative Party leader Kemi Badenoch speaks to the media during a press conference regarding the UK-EU Summit at Conrad House in London on May 19, 2025. Peter Nicholls/Getty Images

Conservative Party leader Badenoch echoed that view, saying the new terms are “worse” than the previous deal.

“Twelve years for the fishing rights to go that way is completely wrong,” she said, noting that the Conservatives’ original concession in 2020 was made on the expectation of negotiating better terms, not worse.

Food Rules Raise Sovereignty Fears

While not yet finalised, the SPS agreement would require the UK to align with EU food and agriculture standards to reduce border checks.

This would ease friction at the border and allow previously banned products, such as British sausages and minced meat, back into EU markets.

In doing so, however, it reintroduces the concept of dynamic alignment, meaning the UK may have to automatically update its laws to keep pace with EU standards.

“Dynamic alignment means we are rule takers again,” said Badenoch.

She warned that the return to EU frameworks—including emissions trading—will result in higher costs for British consumers.

“Accepting EU carbon pricing will result in higher energy bills,” she said.

European Union High Representative for Foreign Affairs and Security Policy Kaja Kallas (L), European Commission President Ursula von der Leyen (C), and European Council President Antonio Costa attend a meeting between the UK and the European Union to discuss closer ties in their first official summit since Brexit, during the UK-EU Summit at Lancaster House in London on May 19, 2025. Kin Cheung/POOL/AFP via Getty Images

Businesses Welcome ‘Real Progress’

Meanwhile, British businesses have widely welcomed the summit’s outcome.

The British Retail Consortium (BRC) said the agreement will ease the pressure on exporters and drive food prices down for consumers.

“The removal of veterinary checks is good news for retailers and consumers alike. It will help keep costs down and create greater security in retail supply chains, ensuring the ongoing availability of key food imports for British shoppers,” said BRC Chief Executive Helen Dickinson.

The Federation of Small Businesses said the UK–EU “reset” will help clear bottlenecks at the border.

“If British goods can reach European markets with fewer setbacks, that marks real progress,” said FSB Policy Chair Tina McKenzie.

Youth Mobility, Migration and Security  

Though not explicitly stated, the summit leaves open the door for the UK to rejoin EU programmes it exited after Brexit, such as Erasmus+, the EU’s flagship education exchange.

A similar vagueness applies to the youth mobility proposal, which outlines plans to introduce a “dedicated visa path” and “mutually acceptable” participant levels.

The text says both sides “should work” toward UK participation. No conditions or timelines are outlined.

The UK and EU agreed to strengthen cooperation with Europol and improve data-sharing on terrorism, serious crime, and migration. This could include the exchange of fingerprints, DNA, and criminal records of non-EU nationals.

Fishermen process their catch of lobster and crab on the deck of their boats, while fishing in the English Channel off the coast of Jersey on Nov. 3, 2021. Ben Birchall/PA

EGate Access

On migration, both sides pledged to step up joint efforts to combat people smuggling, though no new policies were announced.

Since Brexit, UK travellers have had to queue at manual passport checks in EU airports, as they can no longer use eGates like EU citizens.

Before the summit, there was hope this might change. But the final statement gave no firm promise, only that the UK and EU would keep discussing smoother border processes, including eGate access “where appropriate.”

It noted that EU travellers can already use eGates in the UK, and that there will be no legal barrier stopping British use of eGates once the EU’s new Entry/Exit System is in place. Starmer urged EU countries to allow UK travellers to use eGates “as soon as possible.”

However, critics noted a lack of progress, with the Bruges Group calling it “a humiliation.”

Not a Treaty—Yet

The agreements announced at the summit are not legally binding. The official document confirms that they are subject to further negotiation.

“We will proceed swiftly on the undertakings set out in this document, in accordance with our respective procedures and legal frameworks,” it reads.

The next step will be for the European Commission to seek a negotiating mandate from EU member states. This process could take months, with formal talks unlikely to begin before autumn.

Experts say some technical areas—such as SPS rules or ETS linkage—could take years to finalise.

A briefing by the UK in a Changing Europe think tank said future summits, which it said the UK favours, could help review progress and shape further ambitions.