Merz proposes EU “associate member” status for Ukraine

German Chancellor Friedrich Merz has proposed granting Ukraine a new form of participation in European Union structures as an interim step toward full membership, arguing that such a move could help advance efforts to end the war triggered by Russia’s invasion.

In a letter to EU leaders seen by Reuters, Merz suggested creating a new “associate member” status for Ukraine. This would allow Ukrainian officials to attend EU summits and ministerial meetings, but without voting rights.

Alongside this institutional proposal, Merz called on EU member states to make a “political commitment” to extend the bloc’s mutual assistance clause to Ukraine, “in order to create a substantial security guarantee.”

Analysts say that offering Ukraine a clearer pathway toward EU integration could be critical for President Volodymyr Zelenskiy in securing domestic support for any future peace agreement—particularly if, as widely expected, Ukraine does not regain full control over its territory or secure membership in the NATO military alliance.

However, European officials caution that full EU membership for Ukraine remains unrealistic in the near term. Although a target date of 2027 was included in a 20-point peace plan discussed among the United States, Ukraine, and Russia, accession to the bloc is typically a lengthy and complex process requiring extensive reforms and unanimous approval by all 27 member states.

Merz’s proposal is intended as a compromise between rapid accession and Ukraine’s current position as a candidate country at an early stage of the process.

“My proposal reflects Ukraine's particular situation, a country at war. It will help facilitate the ongoing peace talks as part of a negotiated peace solution,” Merz wrote, adding that this step was “essential not only for Ukraine's but for the entire continent's security”.

Under the proposed framework, Ukraine could gain several forms of participation despite lacking full membership. These include the possibility of appointing a non-voting associate commissioner within the European Commission, as well as sending non-voting representatives to the European Parliament.

Merz also suggested safeguards to ensure compliance with EU standards. He wrote that a snap-back mechanism or sunset clause could be introduced if Ukraine fails to uphold rule-of-law requirements or backslides in the accession process.

At the same time, the German chancellor emphasized that the proposal would not disadvantage other candidate countries. He encouraged the EU to “look into innovative solutions” for states that have long been working toward membership.

Merz said he intends to discuss the initiative with fellow European leaders in the near future.

“My aim would be to reach an agreement soon, and to set up a dedicated Task Force to work out the details,” he wrote.

By Tamilla Hasanova