German Chancellor Friedrich Merz has put forward a proposal to grant Ukraine the status of „associate member” of the European Union, citing the numerous obstacles and political complexities that make full membership in the near term unrealistic.

The Proposal

In a letter sent to European leaders, Merz argued that completing Ukraine’s accession process quickly is simply not feasible. „It is clear that we will not be able to conclude the accession process quickly, given the countless obstacles and political complexity of the ratification process,” the Chancellor wrote.

Under the proposed associate membership framework, Ukraine would gain partial access to EU structures, including:

• Participation of a Ukrainian representative in selected European Council meetings
• An „associate” EU Commissioner without a designated portfolio
• Ukrainian „associate” MEPs in the European Parliament — without voting rights
• A possible position of an assessor judge at the Court of Justice of the EU, in the capacity of a reporting assistant

Gradual Integration

Merz advocates for a phased approach to integrating Ukraine into EU rights and privileges. Initially, an associate member would not be required to contribute to the EU budget, nor would it have access to EU funds on the same terms as full members. Community programmes would be made available to Ukraine gradually, with protective clauses in place.

The Chancellor also proposes emergency mechanisms should Ukraine breach the EU’s fundamental values or face significant setbacks in accession negotiations, as well as an alternative expiry clause for the granted rights.

Political Context

Merz has already discussed the proposal with other European leaders and argues it is justified by both Ukraine’s wartime situation and the considerable progress already made in accession talks. Crucially, including Kyiv in a mutual assistance clause could, in the Chancellor’s view, facilitate the peace negotiations initiated by US President Donald Trump.

The special status would serve as a strong political signal — one that „Ukraine and its citizens so urgently need in their ongoing struggle against Russian aggression,” as stated in the letter distributed by the German News Agency in Brussels.

Ukraine’s Position

Ukraine applied for EU membership shortly after Russia’s full-scale invasion in February 2022, received official candidate status in July of that year, and formal accession negotiations began in December 2023 — a process delayed in part by the actions of Hungary’s former Prime Minister Viktor Orbán.

President Volodymyr Zelensky continues to push for full and rapid EU membership, while analysts note that negotiations will be lengthy and complex, particularly in the area of agriculture, given Ukraine’s status as a major agricultural producer — a prospect that raises concerns among several member states, including France.