On December 31, Emmanuel Macron’s New Year’s address highlighted past challenges and future choices for France’s economy, democracy, and security. He called for public engagement, raising the possibility of a referendum, which hasn’t occurred since 2005. Strict constitutional rules govern referendum topics, excluding immigration. Macron hinted at expanding subjects and suggested a new citizens’ convention to involve randomly selected citizens in discussions, with plans for a third convention aimed for conclusion by the end of his term.
On Tuesday, December 31, Emmanuel Macron delivered his traditional New Year’s address for 2025. During this speech, the President reflected on the challenges of the past year and outlined the hurdles ahead. He stated, “We will have choices to make for our economy, our democracy, our security, our children.” He emphasized the importance of public involvement, adding, “In 2025, we will continue to decide, and I will also ask you to decide on some of these determining subjects. Because each of you will have a role to play.” This declaration sparked immediate discussions regarding the potential for a referendum.
France has not experienced a referendum since 2005, when Jacques Chirac invited citizens to vote on the European Constitution, resulting in a decisive “no.” Under Macron’s administration, the concept of utilizing this democratic tool has re-emerged several times, particularly during 2020 when the government considered a referendum on climate action before ultimately scrapping the idea.
Regulations on Referendum Subjects
The use of referendums in France is governed by strict constitutional guidelines. According to Article 11, both the government and Parliament share the initiative to propose a referendum. Only specific subjects are eligible, such as “any bill concerning the organization of public authorities, reforms related to the economic, social, or environmental policy of the nation, and the public services that contribute to it.” Additionally, proposals aimed at “authorizing the ratification of a treaty that, without being contrary to the Constitution, would have implications for the functioning of institutions” are also included.
However, certain topics, like immigration, are excluded from being voted on in a referendum, despite frequent calls from the National Rally and Republicans, including figures like Bruno Retailleau. The Minister of the Interior noted in September 2023 that “For legal reasons, for constitutional reasons, we cannot hold a referendum on immigration, unfortunately.” He suggested the possibility of “revising the Constitution” to broaden the scope of subjects that could be consulted via a referendum.
Possibility of a New Citizens’ Convention
Macron has also hinted at the potential expansion of referendum topics, especially during the fall of 2023. Such an expansion would require a constitutional revision as outlined in Article 89. For the proposed text to pass, it must be presented to Parliament in Congress or put to a referendum, with either governmental or parliamentary initiative.
Moreover, Macron’s remarks could indicate the introduction of a new citizens’ convention. This format, developed after the “great national debate” stemming from the “yellow vests” protests, was previously employed in 2019 to address climate issues and again in 2022 concerning end-of-life matters. In these conventions, a group of randomly selected citizens was tasked with discussing these topics and making proposals. Unlike a referendum, however, the outcomes of these discussions are non-binding.
In April, Macron announced plans for a third citizens’ convention, stating, “It aims to conclude by the end of the five-year term.” The focus of this initiative will be evaluated with the support of the Economic, Social and Environmental Council (CESE).