On the eve of the EU–Western Balkans summit in Tivat, Montenegro, scheduled for June 5, Germany and France have circulated a non-paper proposing a new approach to the enlargement process that would accelerate the gradual integration of Southeast European countries and Moldova into the EU.

The informal document calls on the European Commission to develop proposals that would enable “gradual integration” of candidate countries based on progress in accession negotiations, while keeping the process strictly merit-based, Montenegro's public broadcaster RTCG reported on June 4.

It also suggests closer institutional links between the EU and candidate states, including preferential access to the EU single market and greater participation in EU decision-making structures in an observer capacity, while preserving the autonomy of the Union’s institutions.

“Enlargement policy needs new momentum – the upcoming EU summits with the Western Balkans (June 5) and with Moldova (June 22) represent an opportunity that we must not miss,” the document states.

It adds that the goal remains full EU membership, stressing that gradual integration is intended to accelerate, not replace, the accession path.

Berlin and Paris argue that the current negotiation framework should be simplified to make the process more efficient, including by merging certain procedural steps and shifting focus from administrative milestones to substantive reforms aligned with the Copenhagen criteria.

The aim, the paper says, is to ensure faster and deeper integration based on tangible progress.

The proposal also outlines a system of structured engagement, under which candidate countries could participate more frequently in EU–candidate country meetings, including twice-yearly joint sessions involving the European Commission and Members of the European Parliament.

It also suggests expanding joint parliamentary committees and allowing representatives of candidate states to attend selected items of informal meetings of the European Council and the Council of the EU as observers without voting rights.

In addition, Germany and France propose that, under certain conditions, candidate countries could gain full access to the EU single market through a model similar to the European Economic Area (EEA Plus).

This would grant access comparable to that of Iceland, Liechtenstein and Norway, provided that countries adopt and implement key parts of the EU acquis, particularly in the first five negotiation clusters, and temporarily close relevant chapters.

The initiative reflects renewed efforts within the EU to inject momentum into enlargement policy, particularly as geopolitical considerations and reform fatigue continue to shape relations with candidate countries in the Western Balkans and Moldova.