The European Union is now considering major reforms that could reshape how new member states participate in decision-making, as it seeks to advance its enlargement agenda before the end of the decade. According to discussions within the European Commission, prospective members such as Moldova and several Western Balkan countries could be admitted without immediately receiving full veto rights in key policy areas.
Under the proposed framework, new member states would join the bloc but would not automatically gain the ability to block EU foreign policy decisions or other unanimity-based measures, including taxation, for a transitional period.
The frontrunner among candidate countries is Montenegro, which is seeking to become the EU’s 28th member state by 2028. Accession negotiations have intensified in recent months, with technical drafting work on its treaty now underway, signalling progress after more than a decade of talks.
EU officials say the plan is designed to prevent individual states from immediately gaining disproportionate influence in sensitive policy areas, while still allowing gradual integration into EU structures.
The mixed messaging on EU membership can also be seen with German chancellor Friedrich Merz, who proposed an alternative model for Ukraine’s integration. In a letter to Brussels leaders, he suggested creating an “associate member” status that would allow Ukraine to participate in EU summits and ministerial meetings without voting rights.
Merz described the idea as reflecting “Ukraine’s particular situation, a country at war,” and said it would help ongoing peace efforts. Under his proposal, Ukraine could also send non-voting representatives to EU institutions and benefit from an extended mutual assistance framework.
