German Chancellor Friedrich Merz has proposed granting Ukraine a special “associate member” status in the European Union, which would give Kyiv expanded rights and guarantees before full accession.
In a letter to EU leaders, Merz also outlined a separate plan aimed at accelerating the integration of the Western Balkans and the Republic of Moldova.
He proposed that Ukraine receive a status allowing its officials to take part in EU summits and ministerial meetings, but without voting rights, according to German media reports.
Merz said EU enlargement is “a geopolitical necessity” but stressed that accession processes take a long time. He therefore called for a new initiative for Ukraine, the Western Balkans, and Moldova.
He suggested that Ukraine could participate in meetings of the Council of the EU and the European Council and take part in discussions within the European Commission and European Parliament without voting rights. He also floated the idea of an “adjunct rapporteur” role for Ukraine within the Court of Justice of the EU.
The proposal also allows EU member states to downgrade Ukraine’s status if it fails to meet fundamental values or regresses in its accession path. Merz extended similar considerations to Western Balkan countries and the Republic of Moldova.
In the security field, Merz proposed that Ukraine fully align its foreign and security policy with the EU and that member states politically commit to extending the EU’s mutual assistance clause (Article 42(7)) to Ukraine as a security guarantee.
He acknowledged that the initiative raises political, legal, and technical questions, but said these could be resolved through a dedicated working group.
Ukraine applied for EU membership in February 2022, followed by the Republic of Moldova a month later. Both countries received candidate status in June 2022, and accession negotiations were formally launched in 2024, with technical cluster-based talks beginning in December 2025.