Ukraine in the EU, Merz accelerates: "Kiev should be an associate member before full membership."

German Chancellor Friedrich Merz proposes to grant Ukraine a special status “associate member” of the European Union, as an intermediate step before full membership. The initiative, contained in a letter addressed to EU leaders and summits, stems from the awareness that Kyiv's formal entry into the Union will require a long time, complex negotiations, and the overcoming of significant political and legal obstacles. Berlin therefore aims to build a formula capable of immediately bringing Ukraine closer to the European institutions, without, however, turning this step into a shortcut or a reduced version of accession. Merz defines associate membership status as a “decisive step” towards full membership, clarifying that this would not be a "lightweight membership", but a political instrument to respond to the exceptional situation of a country at war.

A seat at the European table, but without the right to vote

The core of the proposal concerns Ukraine's participation in the institutional life of the European Union. Kyiv could attend some meetings of the European Council and the Council of the EU, have an "associate" European Commissioner without portfolio, and "associate" members of the European Parliament, but without the right to vote. This formula would allow Ukraine to be more directly involved in European political processes, especially on issues related to security, reconstruction, enlargement, and the continent's strategic future. However, the central element of full membership would be excluded: the ability to participate in binding decisions as a member state. For Berlin, this structure would allow it to send an immediate and concrete signal to Kyiv, while avoiding forcing the formal mechanisms of accession.

Mutual defense clause and guarantees for a country at war

Among the most significant elements highlighted by Merz is the extension to Ukraine of Article 42.7 of the Treaty on European Union, the mutual defense clause. This would be a highly political step, designed to offer Kiev a substantial security guarantee while Russian aggression continues. The German Chancellor links the proposal to Ukraine's unique situation, which is not a normal candidate country, but a state engaged in a war that directly impacts European security. From this perspective, associate membership status would also send a message to Moscow: Ukraine would be progressively integrated into the European political space and not left in a prolonged institutional antechamber.

A model without Treaty changes and with progressive reforms

According to the German proposal, associate membership status would not require an amendment to the European Treaties or the immediate signature of an Accession Treaty by Kyiv. Instead, a strong political agreement among member states would be required, accompanied by a precise definition of Ukraine's powers, limits, and modalities for institutional participation. The plan also includes safeguard mechanisms in the event of a backsliding on the rule of law, the fight against corruption, or the standards required by the Union, thus reassuring the more cautious member states and keeping Kyiv committed to its reform path.

The issue of full membership and Kiev's precautions

For President Volodymyr Zelensky, the priority remains Ukraine's full membership in the European Union, ideally as quickly as possible. For this very reason, Merz's proposal should be approached with caution, but also with caution. On the one hand, associate membership status would offer Kiev a stronger political presence in European institutions, recognition of its involvement in Europe's future, and a symbolic guarantee at a crucial stage in the war. On the other, any intermediate formula risks being interpreted as a disguised postponement, a sort of waiting room that could slow political pressure for full membership. Merz seeks to avoid this ambiguity, presenting the new status not as an alternative to EU membership, but as an immediate and reversible step towards full membership.

Agriculture, budget and internal resistance within the Union

Ukraine's accession path remains complex, also for economic reasons. Kyiv is a major agricultural producer, and its entry into the Union would have significant impacts on the Common Agricultural Policy, cohesion funds, the European budget, and the balance of power between member states. Some countries, including France, are concerned about Ukraine's economic weight and the potential consequences for European producers. Even without immediate political obstacles, accession would therefore require a profound adjustment to common policies and the distribution of resources. It is precisely in this context that the German proposal fits: to prevent Kyiv from being locked out of European processes for years, but without promising a rapid entry that the Union would not be ready to manage today.

The precedent for Moldova and the Western Balkans

Merz points out that the proposed formula reflects the unique situation of Ukraine, a country at war, but the debate could inevitably extend to other candidates. Moldova and the Western Balkan countries are closely monitoring every development in the Ukrainian dossier, as the creation of an intermediate category could become a political precedent. For the other candidate countries, the German Chancellor nevertheless envisions "substantial steps" on the path to accession, such as privileged access to the internal market and closer ties with European institutions in day-to-day decision-making. Berlin's goal is to quickly reach an agreement and establish a task force to transform the proposal into a viable model.

A new test for the European enlargement strategy

Merz's proposal presents the European Union with a fundamental political choice. On the one hand, there is the need to recognize that Ukraine is now an essential part of Europe's security and future; on the other, there is the awareness that full membership cannot be achieved quickly without addressing highly complex institutional, economic, and legal issues. Associate membership seeks to reconcile these two needs: offering Kiev concrete and immediate progress, keeping the path to membership open, and preserving conditionality on reforms. The decision now rests with European leaders, who must decide whether the German idea can become a new architecture for enlargement or remain a compromise proposal in the difficult balance between political ambition and institutional prudence.