The European Union is exploring the possibility of denying future member states veto rights for a temporary period, aiming to make the bloc's enlargement more politically palatable. This measure comes as the EU pushes to admit new countries before the end of the decade, following Russia's invasion of Ukraine in 2022, which reignited momentum for expansion.
Potential Safeguards for New Members
Under plans being considered by the European Commission, prospective member states such as Moldova and Western Balkan countries would not automatically gain the right to veto foreign policy decisions or other matters requiring unanimity, like taxation, upon joining the EU. This idea is particularly relevant for Montenegro, the frontrunner among nine official candidate countries, which aims to become the EU's 28th member by 2028. A technical group tasked with drafting Montenegro's accession treaty recently met for the first time, signaling that 14 years of negotiations are entering their final phase.
EU officials are weighing safeguards to prevent new members from blocking decisions, a concern heightened by Hungary's previous government under Viktor Orbán, which vetoed several major EU decisions, including a €90 billion loan for Ukraine. A time-limited ban on veto powers could be written into Montenegro's accession treaty, serving as a template for other candidates. However, such a safeguard is considered legally borderline and could only be temporary to avoid creating second-class EU members.
Germany's Push for Innovation
German Chancellor Friedrich Merz recently wrote to EU leaders calling for innovative solutions to accelerate accession for Western Balkan countries. In his letter, he described EU enlargement as a geopolitical necessity and proposed associate membership for Ukraine, which would involve participation in EU meetings without voting rights. Merz argued that this approach reflects Ukraine's wartime situation and could facilitate peace talks. Ukrainian President Volodymyr Zelenskyy rejected the idea, insisting on full and equal membership.
EU enlargement had stalled until Russia's full-scale invasion of Ukraine in 2022 injected urgency into membership talks. The European Commission stated last year that it could admit new members by 2030, identifying Montenegro and Albania as frontrunners, while praising Moldova's rapid progress. A delay on veto powers is one of several safeguards being discussed to make enlargement more acceptable to existing member states, which must unanimously agree on admitting new countries. Officials are particularly concerned about ratification in France, where presidential elections are due in 2027 and scepticism toward EU expansion is growing. A recent Eurobarometer survey found that only 43% of French respondents favoured enlargement, while 48% opposed it.
Creative Solutions for a Geopolitical Necessity
EU sources argue that creative thinking is essential to achieve enlargement, especially in the Western Balkans, a region of 17.4 million people where Russia and China are vying for influence. One EU diplomat described delaying veto rights as a constructive solution being considered as part of a creative approach to enlargement. Another diplomat noted that internal reforms and different features of accession treaties are all part of the debate on ensuring that a larger EU benefits both candidate countries and the bloc itself.
Germany has led efforts for internal EU reform, such as abolishing vetoes in foreign policy, fearing that an unreformed union of over 35 countries would lead to gridlock. German Foreign Minister Johann Wadephul stated earlier this month that a union with 33, 34, or 35 member states cannot operate under the same approach designed for a much smaller group. However, the European Commission fears that waiting for consensus on reforms, which may require treaty changes, could delay enlargement.
Ukraine's Distinct Path
Among candidate countries, Ukraine is considered unique due to its size, ongoing war with Russia, and the vast costs of reconstruction, estimated at $588 billion as of December 2025. EU officials believe Ukraine could technically complete its accession process in four years, but the entry date is seen as a political question tied to a peace settlement.
Engjellushe Morina, a senior policy fellow at the European Council on Foreign Relations, described a temporary block on veto powers as not drastic and likely to be used by politicians to sell enlargement. She predicted such a measure might appear in Montenegro's treaty and serve as a blueprint for other new members. The idea also aims to insulate the union from a new member state that takes a drastically different direction after accession, such as the election of a pro-Russian government in Montenegro. The Commission and EU member states want to waterproof the union from such hypothetical situations, she said.
A source from the Montenegrin government stated that its goal remains full EU membership with all the rights and responsibilities of an equal member state, while adding that Montenegro does not oppose safeguard mechanisms and believes they can play a constructive role in ensuring the sustainability of reforms even after accession.
