In recent years, democracy in Europe has entered a period of growing uncertainty. What was once perceived as a relatively stable and consolidated model is now increasingly challenged by a combination of internal and external pressures. Declining public trust, political polarisation, institutional fragility, and the rapid transformation of the information environment have all contributed to a sense that democratic systems are no longer functioning as effectively as they once did. It is in this context that the Council of Europe has launched its initiative for a New Democratic Pact for Europe, an effort not simply to defend democracy, but to renew and rethink it.
The origins of this Pact lie in a growing recognition that Europe is facing a convergence of crises that directly affect democratic governance. The 2025 report of the Secretary General highlights serious concerns: citizens across the continent are increasingly disillusioned, feeling excluded from decision-making processes and uncertain about the future. At the same time, the broader geopolitical context has become more unstable, shaped by war, shifting alliances, and a retreat from multilateral cooperation.
These dynamics are compounded by technological change, the spread of disinformation, and the erosion of shared norms. Together, they create what has been described as a “perfect storm” for democracy, one in which institutional weaknesses and society tensions reinforce each other. As the Secretary General argues, “We cannot meet today’s challenges with yesterday’s playbook. And we must never forget that democracy is our first line of defence. What Europe needs is a reset: a New Democratic Pact for Europe.”
This diagnosis is not entirely new. Even before the current wave of crises, concerns had been raised about a gradual decline in democratic standards and practices across Europe. The idea that democratic institutions and the broader democratic environment are in “mutually reinforcing decline” captures this dynamic particularly well. When trust in institutions decreases, participation tends to fall, and when participation weakens, institutions themselves become more vulnerable. Breaking this cycle is one of the central ambitions of the New Democratic Pact. Rather than focusing just on institutional reform, the Pact is built on a broader understanding of democracy. It draws on the Reykjavik Principles for Democracy, which emphasise that democracy is more than a set of procedures or structures and is also a culture that must be continuously practiced, protected, and adapted.
A key political turning point for this initiative was the Fourth Summit of Heads of State and Government of the Council of Europe, held in Reykjavík in 2023. The Summit marked a renewed high-level commitment by member states to place democracy at the centre of the organisation’s agenda, explicitly recognising the risks of democratic backsliding and the need for a more coordinated response. The Reykjavík Declaration set out a strategic framework for “securing and strengthening democracy and good governance at all levels”, while also reaffirming the interdependence between democracy, human rights, and the rule of law.
Importantly, the Summit, apart from producing political declarations, led to concrete institutional and policy developments. It led to a restructuring of the Council of Europe’s work on democracy, including the creation of the Steering Committee on Democracy (CDDEM), tasked with advancing implementation and supporting cooperation among member states. At the same time, the Reykjavík Principles for Democracy were conceived as a practical reference framework.
In this sense, the Reykjavík Summit can be seen as laying the political and conceptual foundations for the New Democratic Pact for Europe. It crystallised a shared diagnosis: that Europe’s democratic institutions and environment are in “mutually reinforcing decline”, while also establishing a forward-looking agenda focused on participation, resilience, and democratic innovation.
The range of issues addressed by the Pact reflects the complexity of the challenges at hand. Fundamental freedoms are still a major concern. Freedom of expression, assembly, and association are essential to democratic life, yet they are increasingly under pressure in many parts of Europe. Journalists face threats and harassment, media independence is strained by political and economic pressures, and civil society organisations encounter growing legal and administrative obstacles. At the same time, disinformation and online manipulation have transformed the information landscape, making it more difficult for citizens to access reliable information and engage in informed debate.
Beyond these traditional areas, the Pact also places strong emphasis on the functioning of democratic institutions and the need to rebuild trust in them. Electoral processes, governance structures, and judicial independence are all seen as critical components of what the Council of Europe describes as “democratic security.” Without trust in these institutions, democratic systems cannot operate effectively, and broader stability is put at risk. Rebuilding this trust is therefore not simply a technical task, but a political and societal one, requiring greater transparency, accountability, and responsiveness.
Participation is another key dimension. One of the most striking features of contemporary European democracies is the gap between formal political structures and citizen engagement. While opportunities for participation exist, many people, particularly young people and marginalised groups, feel disconnected from traditional political processes. This does not necessarily reflect apathy, but rather a shift in how political engagement is expressed. The challenge, therefore, is to increase participation while ensuring that democratic systems better respond to different ways in which people engage.
At the same time, the Pact recognises that democracy cannot be understood in isolation from broader social and economic conditions. Issues such as inequality, discrimination, and social exclusion have a direct impact on democratic life, shaping who participates, whose voices are heard, and how decisions are made. Ensuring that democracy delivers tangible benefits in people’s daily lives is seen as essential to restoring its legitimacy and resilience.
The process through which the New Democratic Pact is being developed reflects these ambitions. Rather than imposing a fixed set of rules, the Council of Europe has opted for an open and iterative approach. The first stage (from 2024 to 2026) involves broad consultations, bringing together governments, civil society, experts, and citizens to identify key challenges and priorities.
From this foundation, the process moves towards the development of concrete policies and recommendations. These may include guidelines on enhancing participation, frameworks for supporting civil society, and measures to strengthen democratic governance. However, the emphasis is not on top-down enforcement. Instead, the Pact promotes cooperation, exchange of good practices, and voluntary commitments by member states. This reflects both the diversity of democratic systems across Europe and the belief that sustainable reform must be grounded in national contexts.
Ultimately, the New Democratic Pact for Europe can be seen as both a response to crisis and an opportunity for renewal. It acknowledges the seriousness of the challenges facing European democracies, but it also affirms that these challenges can be addressed through collective action and innovation. By linking principles to practice and institutions to citizens, the Pact seeks to move beyond diagnosis and towards transformation.
In doing so, it highlights a fundamental insight: democracy is not a static achievement, but an ongoing process. The question is how to protect it from current threats while also ensuring that it remains meaningful and effective in a rapidly changing world.