GERMANY PERSPECTIVE

Berlin, May 21, 2026. Friedrich Merz sent a letter to European Commission President Ursula von der Leyen, EU Council President António Costa, and Cypriot President Nikos Christodoulides — whose country holds the rotating EU presidency — to defend an 'associated membership' status for Ukraine. The initiative was sketched out at the European summit in Nicosia; it now takes a written and precise form.

In concrete terms, the CDU chancellor's plan allows Kiev to participate in EU Council and European Council meetings without holding voting rights. Ukraine would also designate a representative to the European Commission without a portfolio or voting rights and send associated parliamentarians to the European Parliament and an associated judge to the Court of Justice of the EU in the form of an 'assistant rapporteur.' The European budget 'would not apply immediately in its entirety' but would be implemented progressively, depending on the progress in accession negotiations.

The most ambitious aspect of the text concerns security. Merz proposes a 'full harmonization' of Ukrainian foreign and security policy with that of the EU, coupled with a political commitment from member states to activate the mutual assistance clause of Article 42.7 of the European Treaty — which he calls a 'substantial security guarantee.' The chancellor notes that the entire system would not require ratification of an accession treaty under Article 49 or modification of treaties: a 'strong political agreement' would suffice.

German media cover the initiative with interest but raise several questions. Tagesschau lists the obstacles: Poland remains concerned about Ukrainian agricultural exports that could weigh on its farmers and EU subsidies, while Hungary — even under its new leadership since Viktor Orbán's fall — maintains the demand for better protection of its national minority in Ukraine. FAZ, which supports the principle ('Ukraine should not be left on a geopolitical garage road'), however judges premature the extension of the defense clause as long as the conflict remains active.

Funda Tekin, director of the Institute for European Policy in Berlin, estimates that the proposal brings more flexibility to the EU and recalls that differentiated levels of integration already exist — some members belong neither to the eurozone nor to the Schengen area.