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Ukraine should become an “associate member” of the European Union before becoming a fully fledged member state, German Chancellor Friedrich Merz has said in a proposal aimed at breaking the two-year deadlock in the country’s bid to join the bloc.
“It is obvious that we will not be able to complete the accession process shortly, given the countless hurdles as well as the political complexities of ratification processes in various member states,” Merz writes in a letter to EU leaders seen by Euronews.
“It is now time to boldly move on with Ukraine’s EU integration through innovative solutions as immediate steps forward.”
The “associate” status, Merz argues in the document, would grant Ukraine access to the decision-making bodies – the European Council, the European Commission and the European Parliament – without voting rights or a dedicated portfolio. It would also allow the country to tap into certain EU-funded programmes on a “step-by-step” basis.
Crucially, it would enable Kyiv to request aid from other member states in the event of a new Russian attack. This would be done under Article 42.7 of the EU treaties, which Brussels is currently trying to flesh out, to create a “substantial security guarantee”.
The little-known provision leaves countries considerable flexibility in determining the type of assistance they provide, ranging from military and economic support to medical and diplomatic aid. It has been compared to NATO’s Article 5, even though the wording is different.
A “snap-back mechanism” would be introduced to freeze the “associated membership” if Kyiv backtracks on fundamental rights, rule of law or structural reforms, Merz says.
“We would already now offer to Ukraine a substantial equivalent to membership that exceeds by far what we could deliver in the medium-term through our accession methodology, notably given the ratification process,” the chancellor writes.
“We would continue with the regular accession procedure to ensure that we also achieve formal accession as quickly as possible.”
‘Strong political signal’
The letter represents the formal pitch of an idea that Merz floated during an informal summit of EU leaders in Cyprus last month, where Ukrainian President Volodymyr Zelenskyy renewed his push for fast-tracked accession and rejected any proposal for “symbolic” membership, arguing his people are not dying symbolically.
“We seek the same full membership that every EU nation has, from Cyprus to Poland. The only thing we ask is speeding up the full membership, with a clear start date for membership,” he told the informal gathering.
Zelenskyy’s insistence was met with notable reservations and pointed caveats by other leaders, who stressed the process must remain “merit-based” at all times.
Merz admits his proposal of “associate membership”, which has no precedent in history, is set to raise a “couple of questions on its political, technical and legal feasibility” but these can be resolved if leaders agree to “take a constructive approach towards this special status”, which is tailored to the fact that the country is still at war.
“It will be a strong political signal that Ukraine and its citizens so urgently need in their continuous fight against the Russian aggression,” the chancellor says.
“It will help facilitate the ongoing peace talks as part of a negotiated peace solution. This is essential not only for Ukraine’s but for the entire continent’s security.”
Merz concludes his letter by reassuring leaders that his proposal “must not and will not” derail the accession processes of other candidates, such as Moldova, which is informally coupled with Ukraine, and the Western Balkans. They too should benefit from “privileged access” to the single market and “closer ties” with the institutions in Brussels, he says.
Austria, the Czech Republic, Italy, Slovakia and Slovenia have circulated their own proposal, also seen by Euronews, for a sectoral integration of all candidate countries.
“My aim would be to reach an agreement soon, and to set up a dedicated task force to work out the details,” Merz writes at the end. “I am convinced that we will find a common way for Ukraine as well as for the other candidates!”
Merz’s pitch coincides with the departure of Hungarian Prime Minister Viktor Orbán, the prime opponent of Ukraine’s accession.
Orbán’s successor, Péter Magyar, has signalled readiness to lift the veto and let Kyiv open the first cluster of negotiations, known as “fundamentals”. But Magyar wants this step to happen only after meeting with Zelenskyy to discuss the issue of the Hungarian minority in Ukraine, which Orbán had exploited in the past.
Budapest and Kyiv launched formal consultations on the matter this week.
If enough progress is achieved, Ukraine could open the first cluster by the time the 27 leaders meet in Brussels on 18-19 June. The other five clusters could then be opened throughout the remainder of 2026.
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