France and Germany propose gradual EU integration for Balkan candidates

France and Germany are calling for a new process of "structured gradual integration" for EU candidate countries ahead of a summit with Western Balkan countries.

The initiative aims to give candidate countries earlier benefits from closer integration with the bloc while maintaining the existing merit-based accession framework.

The two countries have co-signed a paper calling for renewed impetus to the enlargement process ahead of Friday's EU–Western Balkans summit in Tivat, Montenegro, and the EU–Moldova summit on 22 June.

"Enlargement remains one of the most attractive offers and most influential policy instruments the Union has. But the enlargement policy needs a new momentum," reads the paper, seen by Euronews.

Paris and Berlin argue the upcoming summits present an opportunity to reinvigorate the process. They say candidate countries need additional incentives alongside the existing accession framework.

"To this end we aim at a new, process-oriented approach which cuts overformalised hurdles for intermediate steps and simplifies the current methodology (i.e. by merging some procedural steps)," the paper continues.

The proposal would allow progress across negotiating chapters whenever recommended by the European Commission and approved unanimously by member states.

The aim is to place greater emphasis on the substance of reforms rather than procedural milestones, while giving political guidance at intergovernmental conferences a more prominent role.

The paper also proposes developing a pre-accession strategy built around a series of building blocks tailored to each candidate country, allowing them to advance towards EU integration gradually and creating stronger incentives for reform.

"These building blocks should build on the progress made in the accession process and be reversible in case of backsliding of the relevant candidate country in its reform process and with regard to the EU core values and principles," the document says.

In practice, France and Germany envisage a more gradual accession pathway that would not replace full membership but would accelerate integration by rewarding progress along the way.

They have asked the European Commission to turn the concept into a concrete proposal, including measures such as privileged access to the EU single market and observer status in EU decision-making bodies, linked to substantive reforms.

The paper outlines a range of possible "building blocks to make enlargement a reality", including joint meetings with Commission officials and MEPs, joint parliamentary committees, and participation in informal Council meetings without voting rights.

It also envisages full participation in the European Economic Area once all negotiation chapters — except that on external relations — have been closed.