German Chancellor Friedrich Merz is pushing for a new form of Ukraine’s integration into the EU. In a letter to EU leaders obtained by the Swiss newspaper Neue Zürcher Zeitung, he proposes an “associate membership” model that would tie Kyiv much more closely to Europe’s central institutions even before full accession.
“It is time to move forward with bold and innovative solutions,” the German chancellor writes in the letter addressed to European Council President António Costa, current Council chair Nikos Christodoulides of Cyprus, and Commission President Ursula von der Leyen.
Merz set out several elements of the proposal. Ukrainian representatives could take part in meetings of the European Council — the body that brings together EU heads of state and government — as well as the Council of Ministers, where legislative talks are held. A Ukrainian “associate commissioner” could also be involved in the work of the Commission without holding a portfolio of their own. German Chancellor also mentioned “associate members” in the European Parliament and a Ukrainian representative at the European Court of Justice. In both cases, however, they would not have voting rights. At the same time, Ukraine would gradually become more deeply integrated into the EU single market.
Another proposal is particularly far-reaching: member states would politically commit to applying the European mutual assistance clause under Article 42(7) of the Treaty on European Union to Ukraine as well. The chancellor describes this as a “substantial security guarantee”. At the same time, he proposes a “snap-back” mechanism under which the new rights could be suspended again if Ukraine backslides on the rule of law or anti-corruption efforts.
Notably, the focus is not limited to Ukraine. There is also talk of creating “new momentum” for Moldova and the Western Balkans.
“If the EU now convincingly demonstrates for the first time that integration can be concrete and politically visible even before full membership, this could change strategic calculations in the region. In countries such as Serbia — where Zelensky was expected to visit this week — the sense has grown over the years that the EU, despite the formal prospect of accession, is in practice making them wait,” Neue Zürcher Zeitung writes.
It adds that it is not only the content of the initiative that stands out, but the very fact that it has surfaced at all. For one, complaints have been growing in Brussels and other European capitals that Germany appears politically indecisive, especially on strategic questions concerning Europe’s future order. At the same time, Germany’s coalition government has recently seemed largely absorbed by its own internal problems, making it harder to play the role traditionally expected of Berlin in Europe — as a driving and leading force.
“With his unusually clearly formulated proposal, the federal chancellor now appears to be trying to counter this perception, seeking to show greater initiative, stronger leadership and a clearer ability to shape the agenda independently. The initiative has been closely noted in the Brussels institutions mentioned above, precisely because Berlin has, for the first time, set out a relatively concrete institutional model for accelerated integration,” Neue Zürcher Zeitung explains.
At the same time, in his proposals Merz steered clear of some of the most sensitive issues tied to Ukraine’s full accession, in particular the redistribution of EU agricultural subsidies. Neue Zürcher Zeitung notes that the issue is politically highly sensitive in many member states, as Ukraine, with its vast agricultural land, could immediately become one of the largest recipients of European subsidies. That is now something Kyiv will evidently have to consider more carefully as well.
