French President Emmanuel Macron and German Chancellor Friedrich Merz have unveiled a joint proposal to establish a gradual accession system to the European Union, offering Western Balkan countries tangible benefits during the lengthy integration process. The announcement comes as these nations grow increasingly frustrated with the slow pace of reforms and negotiations, amidst escalating geopolitical competition for influence in the region.
Macron traveled to Montenegro in a show of direct support, meeting with President Jakov Milatović in the historic city of Cetinje, affirming Paris's full backing for the small Balkan nation's EU membership. Milatović expressed cautious optimism, expecting his country to become the 28th member state by 2028, while Macron urged him to "avoid self-doubt" and continue reforms despite "pessimistic scenarios."
The Gradual Accession Mechanism
The Franco-German proposal centers on the concept of gradual partnership, allowing candidate countries to benefit from EU advantages progressively before achieving full membership. This includes participation in certain European policies and economic and security programs, providing these nations with immediate economic and political momentum while reducing the risk of reform backsliding during extended waiting periods.
The new mechanism aims to break the cycle of mutual frustration, where Balkan countries delay reforms due to ambiguous accession timelines, while the Union hesitates to open membership doors due to unmet governance and anti-corruption standards. The proposal suggests that offering tangible benefits—such as access to markets and European funding—will incentivize these states to accelerate institutional reforms.
Historical and Geopolitical Context
The six Western Balkan countries—Montenegro, Serbia, Albania, North Macedonia, Bosnia and Herzegovina, and Kosovo—have awaited EU membership for more than a decade and a half. Montenegro began its accession path in 2010 and received official candidate status in 2012. Despite notable progress in combating organized crime and strengthening judicial independence, the process faces internal and external political obstacles.
However, the Russian invasion of Ukraine in 2022 reshaped EU priorities, transforming enlargement from a technical process into a strategic security imperative. Europe has become increasingly aware of the necessity to stabilize its southeastern frontier, fearing the expansion of Russian and Chinese influence in the Balkans—a vital geographic corridor between Western Europe, Turkey, and the Middle East.
Implications for the European Project
The new proposal represents an attempt to revive the enlargement project after years of stagnation, viewed as a means to prevent regional fragmentation and secessionist tendencies that continue to trouble some Balkan states. It comes within the context of European efforts to reform decision-making mechanisms within the Union in preparation for absorbing new members, as leaders recognize that expanding from 27 to 30 or more countries requires deep institutional reforms.
Observers note that the gradual system could serve as a model later applied to Ukraine and Moldova, which are also seeking membership amid difficult wartime and economic conditions. While full integration may take a decade, offering "light membership" or deep partnerships could enhance stability in these countries during transition periods.
Impact on the Arab World and Lessons Learned
The European experience in expanding the Union and integrating new markets carries direct economic implications for the Arab world, as Balkan countries serve as strategic links in China's Belt and Road Initiative and in trade corridors between the Middle East and Europe. Stabilizing this region and aligning it with European standards means opening new markets for Arab investments, particularly in energy, infrastructure, and logistics sectors.
Furthermore, the European gradual integration experience offers a potential model for Arab integration, which has stalled, demonstrating how phased mechanisms and mutual benefits can motivate countries to overcome political and economic disputes. The "partial accession" approach may prove a realistic alternative to grand projects that falter due to deep disagreements, whether in Europe or in the Arab world seeking new regional cooperation mechanisms.
At the conclusion of the visit, Macron affirmed that "a stronger Europe begins with a stable Balkans," signaling that the success of this path will not only change the EU's map but will determine Europe's ability to endure as a unified bloc amid increasing global challenges.