Given the lengthy nature of the EU accession process, German Chancellor Friedrich Merz (CDU) has floated the idea of a temporary form of partial membership for Ukraine. "I propose to further discuss the idea of an 'associate membership' for Ukraine," Merz wrote in a letter to EU leaders that was published on Thursday and obtained by the AFP news agency.
Under this arrangement, Kyiv would be able to participate in meetings of the Council of the EU and the European Council, but without voting rights.
"I envision a political solution that immediately brings Ukraine substantially closer to the European Union and its core institutions, without prejudicing the ongoing accession negotiations," Merz wrote in the letter. In his assessment, this would be achievable without any treaty changes and would "merely require a strong political consensus."
The letter, dated May 18, is addressed to European Commission President Ursula von der Leyen, European Council President António Costa, and Cypriot President Nikos Christodoulidis. Cyprus currently holds the rotating EU Council Presidency for the first half of 2025.
According to Merz's proposal, Ukraine could also nominate a member of the European Commission, albeit without a portfolio or voting rights. A similar arrangement is envisaged for the European Parliament. The EU budget would "not immediately apply to Ukraine in full," but would instead be phased in "in line with the progress of accession negotiations."
The initiative also calls for Ukraine's "full alignment with the Common Foreign and Security Policy" of the EU, including the mutual defence clause under Article 42.7. In this context, the Chancellor referred to this as a "security guarantee" for Kyiv. Merz had already proposed a "closer integration" of Ukraine into European institutions following the meeting of EU heads of state and government in Nicosia.
According to German government circles, the Chancellor aims to inject "new momentum" into the enlargement process with this initiative. This applies not only to Ukraine but also to other candidate countries, such as the Western Balkan states. "I propose that we also seek innovative solutions for those applicant countries that have been preparing for their accession for a long time, and that we accelerate their accession process as well."
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