Brussels is considering, for the first time, setting indicative dates for Montenegro, Ukraine, Moldova and Albania, with the aim of completing the key stages of their negotiations to join the European Union.
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The new proposals would offer these four countries, which are considered closest to membership, a detailed and gradual plan for integration into the bloc, while the other candidate countries would remain behind them.
According to two senior European Commission officials, who spoke to Politico on condition of anonymity because of the sensitivity of the plans, special “road maps” are being drawn up for Montenegro, Ukraine, Moldova and Albania. The initiative is part of efforts to speed up a process that has lasted for decades.
The four countries are considered the frontrunners to join the EU, but so far they have faced a slow pace of reforms and a lack of clarity over the date of accession. The road maps would provide the first guarantee that, if fundamental reforms are implemented, the negotiations could lead to membership, while also setting indicative deadlines for their completion.
One of the officials said the plans would clarify the requirements for each candidate and, at the same time, create responsibilities for EU member states, which must approve the continuation of the process. The documents are also expected to contain approximate dates for the official closure of the reform groups, known as negotiating “clusters”, which represent important stages on the road to membership.
European Commission President Ursula von der Leyen promised in her State of the Union address at the beginning of September to provide focused support for candidate countries that have made the most progress.
Meanwhile, officials confirmed that at this stage no plans would be drawn up for countries at an earlier stage, including Kosovo, North Macedonia and Bosnia and Herzegovina. Georgia, Turkey and Serbia are also excluded from the initiative, as their applications have been blocked because of concerns over democratic and judicial backsliding.
A European Commission spokesperson said the plans would create “a pathway towards concluding the accession negotiations”. According to the spokesperson, they would define priorities, deadlines and expected results, helping the most advanced candidates complete the necessary reforms.
“A geopolitical imperative”
The EU increasingly views closer ties with market-oriented democracies, particularly those in the surrounding region, as a strategic issue. This comes at a time of tensions with partners such as the United States, confrontations with China’s hostile practices and threats from Russia. In Brussels, there is concern that prolonging the accession process could frustrate candidates or make them more vulnerable to pressure from rivals opposed to closer ties with the EU.
The initiative on the road maps comes as the European Union reviews its “pre-enlargement” policy. Officials believe candidates should be given a better way to achieve “gradual integration” into the bloc through economic benefits and participation in joint projects linked to their progress.
The review is being led by Alexandre Adam, Ursula von der Leyen’s close adviser, and will be presented to senior officials on 6 October. The aim is to keep candidate countries connected to the integration process while their applications continue to be assessed.
“Enlargement… remains a geopolitical imperative. However, the accession process takes time,” says a draft of the enlargement review seen by POLITICO. The document emphasizes that candidates must undergo a rigorous, merit-based process and implement deep, long-term reforms.
According to the same draft, this period should be used strategically, both to prepare the European Union for future enlargement and to deepen gradual integration in areas of common interest.
As part of the review, Ursula von der Leyen and Commissioner for Enlargement Marta Kos are expected to propose changes to the way the EU operates, with the aim of creating safeguards. These measures would seek to prevent new members from undermining the bloc’s core policies or withdrawing from commitments they have made.
Possible changes could include emergency clauses and transitional periods before new states fully benefit from the rights associated with membership.
“Policy analyses show that the Union can incorporate new members through targeted adjustments, mainly within the existing Treaty framework,” the draft says. The document argues that it is not necessary to change the EU’s basic laws to address concerns related to enlargement.
European capitals remain cautious about admitting new members, some of which have only a few decades of democratic experience. One reason is Hungary’s backsliding on respect for the rule of law under Prime Minister Viktor Orbán, as well as Budapest’s use of its veto to block important policies, including sanctions against Russia and support for Ukraine.
Progress by candidate countries in the accession process requires the unanimous support of the member states.
EU leaders will discuss the method and pace of admitting new members at a two-day summit in Brussels beginning on 15 October. The Commission will seek political support from them to speed up the process, while the draft agenda for the meeting includes “a strategic discussion on enlargement and internal reforms” in the European Council.
Marta Kos told POLITICO at the beginning of this month that she hoped the new proposals and talks with European leaders would bring an “autumn of enlargement” after several years of slow progress.
This week, Ursula von der Leyen will travel to the Western Balkans, where she will hold talks with the leaders of Montenegro, Albania, North Macedonia and Kosovo. She will not visit Bosnia and Herzegovina or Serbia, as both countries are in the middle of national election periods.
