By creating a modern legal framework for the country, the 1993 constitution has allowed Andorra to begin a shift from an economy based largely on duty-free shopping to one based on international banking and finance.[citation needed] Despite promising new changes, it is likely that Andorra will, at least for the short term, continue to confront a number of difficult issues arising from the large influx of foreign residents and the need to develop modern social and political institutions. In addition to questions of Andorran nationality and immigration policy, other priority issues include allowing freedom of association, dealing with housing scarcities and speculation in real estate, developing the tourism industry, and renegotiating the relationship with the European Union.