France and Germany have developed a comprehensive document aimed at simplifying the European Union accession process, specifically targeting the Western Balkans and Moldova. This proposal has been shared with EU partners ahead of two significant summits scheduled for June 2023.
The document advocates for a process-oriented approach that seeks to eliminate excessive formal barriers in the accession stages. It suggests a more efficient methodology by consolidating certain procedural steps, allowing for the opening of all negotiation clusters based on recommendations from the European Commission, contingent upon unanimous agreement from EU member states.
“The focus of candidate countries, the Commission, and the Council should be on the substance of reforms rather than procedural steps,” the document states.
Additionally, the proposal introduces a gradual integration framework through “building blocks” that rely on the progress made by candidate countries. These steps are designed to be reversible should a candidate regress in reforms or deviate from the core values of the EU.
Among the proposed building blocks are biannual joint meetings involving the European Commission, Members of the European Parliament, and representatives from the Western Balkans and Moldova. The plan also includes participation as an observer in EU Council meetings without voting rights, as well as enhanced cooperation in security and defense, particularly through projects like PESCO and collaboration with Frontex. Each step is tied to specific conditions, ranging from the application for membership to the temporary closure of chapters regarding common foreign and security policy.
In a separate context, German Chancellor Friedrich Merz has reiterated a proposal for Ukraine to pursue associated membership in the EU. He emphasized that this arrangement would extend beyond the existing Association Agreement and facilitate a faster accession process. Merz clarified that such integration would not require ratification of an Accession Treaty or amendments to EU treaties, but rather a strong political consensus.
On December 19, 2025, it was reported that Ukraine had completed the necessary procedures to open all six negotiation clusters for EU membership. On October 2, 2025, President Volodymyr Zelensky met with European Commission President Ursula von der Leyen and European Council President António Costa, urging EU leaders to initiate the accession clusters for Ukraine.
Despite Ukraine’s technical readiness and the government’s approval of negotiation positions, the actual opening of these clusters requires a unanimous decision from all 27 EU member states. This consensus principle presents a significant challenge for Ukraine at this stage.
On January 27, Zelensky expressed hopes for EU membership by 2027. However, Chancellor Merz stated that immediate accession for Ukraine is not feasible, describing the prospect of joining the bloc by January 1, 2027, as “impossible.” He noted that any country seeking EU membership must first meet the Copenhagen criteria, a process that typically spans several years. Nevertheless, Merz underscored the necessity for Ukraine to have a long-term perspective that paves the way for eventual accession.
On March 17, 2026, Prime Minister Yulia Svyrydenko announced that the Ukrainian delegation in Brussels received conditions for membership regarding three final negotiation clusters. European Commissioner for Enlargement Olivér Várhelyi emphasized that all six negotiation clusters for Ukraine’s accession are currently open unofficially.
Copenhagen Criteria Explained
The Copenhagen criteria comprise a set of political, economic, and legal requirements that countries must fulfill to join the European Union. Established by the European Council in 1993, these criteria serve as the foundation for all future EU enlargements.
The criteria fall into three primary categories:
- Political criteria – stability of democratic institutions, rule of law, and protection of human rights and minority rights.
- Economic criteria – existence of a functioning market economy capable of competing within the EU’s single market.
- Legal criteria – ability to assume the obligations of EU membership, including the implementation of EU legislation.
These requirements apply universally to all states aspiring to join the EU, regardless of their geographical location or historical context.
France and Germany have proposed a new framework to simplify the EU accession process for the Western Balkans and Moldova, emphasizing a focus on substantive reforms over procedural hurdles. Meanwhile, Ukraine's path to EU membership remains contingent on meeting the Copenhagen criteria and achieving consensus among member states.