EU candidate countries divided over “second-class” membership proposal

Countries that have spent years waiting to join the European Union are increasingly divided over proposals in Brussels that could allow them to accede as “second-class” members without the full voting rights traditionally granted upon entry.

The European Commission is increasingly considering offering new members full voting rights only after the bloc reforms its internal decision-making processes. The idea is aimed at easing concerns among existing member states that further enlargement would complicate unanimity-based decisions and weaken the EU’s ability to act effectively, as highlighted in an article by Politico.

Among the Eastern European and Western Balkan countries currently in line for accession, differences are emerging over the conditions attached to potential membership. The proposed approach would curb individual countries’ ability to exercise veto power and prevent policies from being stalled. This would mark a departure from past practice, as new members have historically received full voting rights immediately, most recently when Croatia joined the EU in 2013.

Reactions among candidate countries have been mixed. Albania’s Prime Minister Edi Rama, whose country has already opened all required negotiating clusters, told POLITICO that the proposal is a “good idea.” He said Albania would even be willing to temporarily forgo having its own European commissioner. Rama stressed that Tirana does not wish to challenge the preferences of major founding members such as France and Germany.

“At the end, they are the adults in the family who make the important decisions,” Rama said, adding that for smaller EU members, there is at least one upside: if the larger countries “f*** up [edited out due to profanity],” responsibility does not fall on the newcomers.

Salome Zourabichvili, the former president of Georgia and the last leader of the South Caucasus country fully recognized by the European Parliament, said she has long supported such an arrangement in talks with EU officials. Her position was abolished by the ruling Georgian Dream party, a move criticized by Brussels, and Georgia’s accession talks have since stalled amid warnings from EU institutions about democratic backsliding.

“As a small country, it’s very clear our interest is to be part of a community, of a family, and be part of the programs that make up the EU, and not at all to be an equal decision-maker as countries that have been at the origin of this organization and are much more powerful,” Zourabichvili told POLITICO. “I think it’s very logical if you want to have an organization that can take decisions efficiently.”

Other candidate countries are far less receptive to the idea. Moldova, whose accession bid is linked to that of Ukraine, has said it wants to examine the details of the proposals before taking a position.

“We stand ready to assume responsibilities at an early stage and would welcome the opportunity to participate in, and help shape, these discussions,” said a senior Moldovan official, who spoke on condition of anonymity. “At the same time, full membership — with equal rights and full participation in EU decision-making — must remain the clear and ultimate objective.”

Ukraine has been even more outspoken in its opposition. Despite undertaking extensive reforms as part of the accession process while simultaneously confronting Russia’s aggression, Kyiv has been reluctant to endorse any form of partial membership.

“If we speak about EU membership, it has to be fully-fledged,” President Volodymyr Zelenskyy said in November.

Montenegro, the candidate country furthest along in the accession process, has also rejected the need to revise the terms of entry. Podgorica expects to complete its vetting process this year and maintains that its membership should proceed under the existing framework.

By Nazrin Sadigova