May 21, 2026, 08:02May 21, 2026, 08:02
German Chancellor Friedrich Merz wants to offer Ukraine a new special status as an “associated member” of the European Union in response to its demand for rapid EU accession. In a letter to the EU leaders, the CDU politician suggests that Russia’s neighboring country should immediately be more closely integrated into the institutions. However, it will not initially have full membership and voting rights.
Friedrich Merz wants to give Ukraine a special status in the EU.Image: keystone
Merz justifies the initiative with Ukraine’s special situation as a country at war and significant progress in the accession negotiations. Accordingly, the proposal is also intended to facilitate the peace talks initiated by US President Donald Trump – among other things through a political commitment from the member states to also apply the EU mutual assistance clause to Ukraine.
Merz: Ukraine needs a strong political signal
The special status would be a strong political signal “that Ukraine and its citizens so urgently need in their ongoing fight against Russian aggression,” says the letter, which is available to the German Press Agency in Brussels.
According to Merz, a timely and regular admission of Ukraine into the EU remains unrealistic. “It is obvious that we cannot complete the accession process in the short term,” he wrote to EU Council President António Costa, Commission President Ursula von der Leyen and Cypriot President Nikos Christodoulides as representatives of the EU Council Presidency. Merz cites “countless hurdles” and the politically difficult ratification procedures in several member states as reasons.
EU Commission President Ursula von der Leyen.Image: keystone
“No membership light”
In order to continue making rapid progress, Merz suggests that the EU should negotiate “immediately and without delay” on all issues important for accession. In addition, the idea of “associated membership” should be discussed, which could be a decisive step on Ukraine’s path to full membership.
“It would not be a light membership, but would go far beyond the existing association agreement and would further accelerate the accession process,” explains Merz.
Voting rights should come later
According to the Chancellor’s ideas, the special status could include Ukraine’s participation in meetings of the European Council and the Council of the EU – but without voting rights. A role as an associated member of the EU Commission without portfolio and without voting rights, an associated member of the European Parliament without voting rights and an associated judge at the European Court of Justice in the form of an “assistant rapporteur” are also conceivable.
Merz describes the proposal as a political solution that should immediately bring Ukraine “significantly closer to the European Union and its core institutions.” This should not replace the ongoing accession negotiations, but rather promote and support them. From the Chancellor’s point of view, it is important that neither the ratification of an accession treaty in accordance with Article 49 of the EU Treaty nor any changes to the treaty would be necessary. Instead, he only speaks of “a strong political agreement”.
Merz also takes a step-by-step approach when it comes to adopting EU law and accessing EU programs. For the time being, Ukraine would not pay into the EU budget and benefit from it like regular members. However, programs under direct management could gradually be opened with protective clauses.
“Substantial security guarantee” as the goal
A particularly far-reaching part of the proposal concerns security policy. Merz suggests that Ukraine align its foreign and security policy completely with that of the EU. At the same time, the member states should make a political commitment to applying the assistance clause under Article 42 paragraph 7 of the EU Treaty to Ukraine “in order to create a substantial security guarantee”.
As a safeguard, Merz envisages a fallback mechanism or, alternatively, a sunset clause if Ukraine violates the EU’s fundamental values or takes major steps backwards in the accession negotiations.
The Chancellor admits that his proposal raises questions about political, technical and legal feasibility. However, these can be solved if the special status is approached constructively. “My goal would be to reach an agreement soon and set up my own task force to work out the details,” writes Merz in the letter. He looks forward to discussing his ideas with heads of state and government and top EU representatives.
Other solutions for Albania, Montenegro and Moldova
For other candidate countries such as Albania, Montenegro and Moldova, Merz is not proposing an identical special status, but rather “innovative solutions” to accelerate their accession processes. In his view, intermediate steps on the way to membership are conceivable, such as privileged access to the internal market, closer involvement in the daily decision-making work of the EU institutions and observer status in relevant EU committees. This gradual integration should motivate further necessary reforms. (dab/sda/dpa)