Paris and Berlin push ‘gradual integration’ plan into EU ahead of Balkans summit
French and German leaders propose streamlined approach for candidate nations
Paris and Berlin push gradual integration – In a strategic move to reshape EU enlargement policies, France and Germany have unveiled a proposal for a “structured gradual integration” framework, aimed at easing the path for Western Balkan countries seeking EU membership. This initiative, announced ahead of the upcoming EU-Balkans summit in Tivat, Montenegro, and the EU-Moldova summit on 22 June, seeks to balance the bloc’s existing merit-based accession criteria with accelerated progress for candidates demonstrating reform readiness.
The co-signed document, shared with Euronews, outlines a shift toward a more flexible and process-driven model. While retaining the core principles of the current framework, it emphasizes the need to reward early achievements in integration. This approach is intended to provide candidate nations with tangible benefits before full membership, fostering momentum without compromising the Union’s standards.
“Enlargement remains one of the most attractive offers and most influential policy instruments the Union has. But the enlargement policy needs a new momentum,”
reads the paper, as revealed to Euronews. The text highlights the importance of reinvigorating the EU’s enlargement process, which has faced delays and stagnation in recent years. By introducing intermediate steps and reducing bureaucratic hurdles, the plan aims to create a more dynamic pathway for candidates to advance toward EU membership.
Antonio Costa, the European Council chief, affirmed the proposal’s role in shaping discussions at the Tivat summit. In an interview with Euronews, he noted that the document would serve as a foundation for negotiations, focusing on simplifying procedures and enhancing incentives. “This shows a real willingness from member states and candidates to achieve this enlargement,” Costa added, underscoring the collaborative spirit behind the plan.
The French and German initiative centers on streamlining the accession process by consolidating procedural stages. The proposal suggests that progress across negotiating chapters could be recognized whenever the European Commission endorses it and member states agree unanimously. This would allow candidates to secure partial benefits, such as access to the EU single market or observer status in decision-making bodies, without waiting for full approval.
Key to the plan is the development of a pre-accession strategy tailored to individual countries. This strategy would consist of “building blocks” designed to guide candidates through incremental reforms. The document states that these blocks should reflect progress made in the accession process and be reversible if a nation reverses course on EU core values or reforms.
“These building blocks should build on the progress made in the accession process and be reversible in case of backsliding of the relevant candidate country in its reform process and with regard to the EU core values and principles,”
the paper emphasizes. The idea is to prioritize substantive reforms over procedural milestones, ensuring that candidates remain aligned with EU priorities while maintaining flexibility in their integration timeline.
Practically, the plan envisions a gradual accession pathway that complements, rather than replaces, full membership. France and Germany hope this model will encourage candidates to accelerate their reforms by linking progress to tangible rewards. The European Commission has been tasked with transforming the concept into a concrete proposal, which could include measures like joint parliamentary committees, informal Council participation, and shared oversight with EU officials.
The summit in Tivat marks a pivotal moment for the Western Balkans, a region that has long sought EU integration. With the bloc’s expansion frozen for years, the new framework could reignite interest among candidate nations. The plan also addresses the challenges of differing reform paces, allowing nations to advance at their own rate while maintaining collective accountability.
By merging procedural steps, the proposal reduces the complexity of the accession process, making it more accessible for countries with varying levels of preparedness. This would enable early recognition of reforms in areas like judiciary, economy, and environmental policy, while preserving the EU’s emphasis on democratic governance and rule of law.
Political leaders in Paris and Berlin argue that the upcoming summits offer a timely opportunity to address the bloc’s enlargement stagnation. They stress that the new approach would not only streamline negotiations but also create stronger incentives for reform. “Candidate countries need additional incentives alongside the existing framework to ensure they remain committed to the process,” the paper states.
The plan’s flexibility is seen as a response to the challenges of aligning diverse national interests with EU objectives. By allowing intermediate steps, it acknowledges the complexities of regional development while maintaining the Union’s long-term goals. This could also help mitigate concerns from existing members about the bloc’s stability and cohesion, as candidates would be integrated incrementally rather than all at once.
France and Germany’s vision includes a structured yet adaptable model, where candidates can participate in EU decision-making processes even before full accession. This would enhance their political engagement and provide a platform for collaboration on shared priorities. The idea of “privileged access” to the single market, for instance, could serve as a carrot for countries making significant strides in economic reforms.
While the proposal is still in its early stages, it has already sparked discussions among EU officials and candidate nations. The Tivat summit is expected to focus on these changes, with leaders from the Western Balkans likely to weigh in on the merits of a more flexible approach. The EU-Moldova summit will also play a role in testing the proposal’s applicability to smaller states seeking integration.
Ultimately, the “structured gradual integration” plan reflects a growing consensus among key EU players to modernize enlargement policies. By emphasizing substance over formality, it aims to create a more equitable and effective process for all candidates. As the bloc prepares for these summits, the success of this initiative will depend on its ability to balance speed with quality, ensuring that integration remains a credible and achievable goal for nations committed to the EU’s values.
France and Germany’s collaboration on this proposal signals a renewed commitment to the Union’s expansion. The document, while not a final agreement, sets the stage for broader negotiations. With the Western Balkans and Moldova at the forefront, the EU is poised to explore a more pragmatic and inclusive strategy for its future growth. The coming weeks will be critical in determining whether this plan can bridge the gap between candidate nations and the Union’s aspirations for deeper integration.
