Brussels – Volodymyr Zelensky has drawn a clear line against any alternative to “complete – full and equal” EU membership that could undermine Ukraine’s path towards the European Union. Including the recent proposal by German Chancellor Friedrich Merz for an “associate membership” for Kyiv.
In a letter addressed to the leaders of the EU institutions, first reported by Reuters, the Ukrainian President described the German proposal as “unfair,” arguing that the future member state would “remain voiceless” within the Union. “We are defending Europe – fully, not partially, and not with half-measures,” he wrote. “The time is right to move forward” with Kyiv’s membership “in a full and meaningful way,” through “a fair approach and equal rights.”
For the sake of completeness, the German Chancellor suggested an “associate membership” as a way out of the current impasse, allowing Ukraine to move closer to the European Union immediately, without any intention of replacing the formal accession process.
However, for Kyiv, any discussion of parallel – and “lighter” – options could risk watering down the goal of fast-track and full membership. Some governments that are more sceptical about Ukraine joining the EU could use even a proposal motivated by the best of intentions as leverage to play both sides: supporting “associate membership” while blocking formal accession negotiations.
Kyiv is aiming to sign the Accession Treaty by 2027, but under the current framework this appears almost impossible, even if the new Hungarian government led by Péter Magyar were to lift the veto on the opening of accession talks imposed by former Prime Minister Viktor Orbán. As has become increasingly clear in Brussels over recent months, Ukraine’s accession process is becoming ever more closely linked to a future peace settlement with Russia.
“There can be no complete European project without Ukraine, and Ukraine’s place in the European Union must also be complete – full and equal,” President Zelensky reiterated in a video message, stressing that “it is important to make meaningful progress in the negotiations” to join the EU. He urged the 27 governments to “work at one hundred percent for security and for our people,” notably by “opening the clusters” of the formal accession process.
What Merz’s proposal entails
The German chancellor‘s big proposal of an “associate membership” for Ukraine is based on the idea that Brussels can already take a unique step to involve Kyiv in the EU’s structures. “Innovative solutions as immediate steps forward” would run in parallel with the prospect of full membership, by formally opening all negotiating clusters “immediately and without delay.”
The status of “associate member state” could include several benefits and exceptions, in line with this tailored political approach. Kyiv could participate in European Council and EU Council meetings without voting rights, be represented in the European Commission (without portfolio or voting rights), in the European Parliament (without voting rights), and in the European Court of Justice through an associate judge (formally an “assistant rapporteur”).
The EU budget “would not immediately apply in full” to Kyiv, but programmes could be introduced on a “step-by-step basis, in line with progress” in the accession negotiations and subject to safeguard clauses. The same gradual approach would apply to the adoption of the EU acquis – “not automatically, but following approval by the Council.” A concrete security guarantee would be the extension of the mutual defence clause under Article 42(7) of the Treaty on European Union to Ukraine, while a safeguard for the EU would be a “snap-back mechanism” (or sunset clause) “in the event of backsliding on fundamental values or of regression in the accession process.”
This represent “a political solution” rather than an institutional overhaul, that would bring Kyiv “substantially closer to the European Union and its core institutions immediately, without affecting the ongoing accession negotiations.” According to the German chancellor’s letter “it would not be a membership-lite, but would go far beyond the existing Association Agreement and further accelerate the accession process.”
The state of EU–Ukraine relations
Just four days after the start of Russia’s war of aggression, on 28 February 2022, Ukraine submitted its application for EU membership. On 23 June 2022, the European Council endorsed the European Commission’s recommendation to grant Kyiv candidate status.
At the European Council meeting on 14 December 2023, EU leaders gave the green light to open accession negotiations. Following the Council’s approval of the negotiating frameworks, the first intergovernmental conference was held on 25 June 2024 in Luxembourg. As recognised in the 2025 Enlargement Package, the screening process has been successfully concluded.
On 17 March 2026, technical guidance was provided to both Ukraine and Moldova – whose accession paths are tied to through the so-called “package approach” – to continue work on EU reforms across all six negotiating clusters, until political conditions allow the formal process to begin – meaning Hungary lifting its veto.
Once Cluster 1 – ‘Fundamentals’ – the first group of five negotiating chapters (out of 33), focusing on economic criteria, the functioning of democratic institutions, and public administration reform – is opened, the other groups of negotiating chapters can follow. The unanimous approval of all 27 EU member states in the Council is now the only step remaining.
