Key facts
- The European Commission is preparing proposals to reform the EU enlargement process.
- The proposals aim to strengthen safeguards against democratic backsliding and rule of law breaches in new member states.
- Some EU founding members have suggested gradual integration and penalties for legal breaches.
- The reforms are intended to help the Commission regain control of the enlargement debate.
- Montenegro's accession process may serve as a test case for new safeguards.
The European Commission is preparing to present its own proposals on reforming the EU enlargement process, seeking to regain the initiative in a debate increasingly dominated by member states. This move comes as EU enlargement has risen to the top of the bloc's agenda, with Montenegro nearing accession and various member states floating their own reform ideas.
Key proposals from member states include strengthening safeguards to prevent democratic backsliding and rule of law breaches, drawing lessons from Hungary's trajectory under Viktor Orbán. Germany and France have suggested gradual integration of candidate countries, allowing them to experience early benefits of EU membership before full accession. Former German Chancellor Friedrich Merz had previously proposed an 'associate membership' status for Ukraine.
The Commission's upcoming proposals are expected to focus on enhancing safeguards within future accession treaties to ensure commitments made during negotiations are upheld post-accession. This is intended to prevent the burden of new conditions from falling unfairly on Montenegro, which is on the verge of joining as the bloc's 28th member. The drafting of Montenegro's accession treaty has begun, potentially making it a testing ground for these new safeguards.
Broader reform plans, including pre-enlargement policy reviews for a Union of potentially 30 or more members, have been discussed but remain sensitive due to implications for power and budget distribution. While deeper reforms might require treaty changes, the discussion on stronger safeguards is already gaining momentum. Some founding members have called for swift penalties for legal breaches, such as suspending EU funding or voting rights, though this faces resistance due to concerns about equality among member states. Less controversial measures include extending transitional periods, such as temporary restrictions on labor market access for new member states.
An objective mechanism to assess democratic backsliding and clear criteria are deemed necessary to avoid politicization. Another idea is making participation in the European Public Prosecutor's Office (EPPO) mandatory for new members. Experts suggest that enhancing safeguards could increase the likelihood of ratification of accession treaties by member states.