Production: By Europod, in co-production with Sphera Network.

EUobserver is proud to have an editorial partnership with Europod to co-publish the podcast series “Briefed” hosted by Léa Marchal. The podcast is available on all major platforms.

Find the full transcript below: 

The EU wants to bring new countries on board faster. But after years of waiting, will the Commission’s new proposals actually make enlargement easier?

On Tuesday (6 October), the European Commission is expected to propose changes to the EU’s enlargement process. The goal is clear: speed things up. Some candidate countries have been waiting for more than a decade, without a single new member joining the EU.

And geopolitics is adding to the pressure. With Russia’s war against Ukraine and a changing global balance of power, EU leaders increasingly see enlargement as a way of strengthening Europe’s weight on the international stage.

But bringing one, two, or several new countries into the EU raises some very complicated questions. One of them is decision-making. Another is money. So, what is the Commission proposing?

First, it wants to change the way enlargement negotiations are approved. At the moment, EU countries have to agree unanimously on several key steps in the process — including granting candidate status and opening different chapters of negotiations.

The Commission wants to make some of those decisions easier and faster, while keeping unanimity for the final decision on membership.

The other idea is gradual integration. In other words, candidate countries could take part in more EU programmes and benefit from certain forms of integration before actually becoming full members.

This is not exactly new. MEP’s think tankers, EU member states have been raising that idea for a while. And candidate countries already have access to a number of EU programmes and funding mechanisms. The idea is to give countries something concrete while they are still going through the accession process.

Now, there is an even bigger obstacle: money. The EU would have to finance enlargement at a time when its budget is already under pressure.

Because none of the countries currently considered likely to join in the nearer term would be expected to become a net contributor to the EU budget. In other words, they would likely receive more from the EU than they would contribute.

Ukraine is the obvious example. Despite being a big country with a solid economy, its current situation makes it fragile and unable to contribute largely to the EU budget. 

Its accession could have a significant impact on EU spending, particularly through the Common Agricultural Policy and cohesion funds.

So the Commission is considering a transition period during which new members would not immediately have full access to all EU programmes.

That could make enlargement financially easier in the short term. But it doesn’t solve the problem permanently. Once the transition period ends, the same question comes back.

And there is a broader issue too: would the EU itself be able to function as a union of more than 30 countries? What could prove difficult, is that many important decisions still require unanimity — including areas such as foreign policy, taxation and parts of the EU budget.

Changing that would require treaty reform, which is politically extremely sensitive because member states would have to give up some of their veto powers.

Andrew Duff, a former British liberal MEP who has written about enlargement for the European Policy Centre, argues that the EU should have started thinking about this much earlier — particularly after Brexit. In his view, the EU has not carried out the kind of institutional reform that would prepare it for a much larger membership.

So in the end, today’s proposals could make the accession process more flexible and give candidate countries more opportunities to integrate before membership.

But they don’t resolve two of the biggest questions: how to finance enlargement, and how to reform EU decision-making.

Before we wrap up, a quick word on the countries which are believed to become members next. The frontrunner is Montenegro. The most optimistic forecasts suggest it could potentially become an EU member as early as 2028. Then comes Albania, which is also well advanced in the process.

Ukraine and Moldova could advance to two further stages of their European Union accession negotiations as early as next week, Enlargement Commissioner Marta Kos has said, provided Ukraine approves legislation addressing minority-language education.

The European Union could open two additional negotiating clusters with Ukraine and Moldova next week if the Ukrainian parliament passes legislation intended to address concerns over education rights for national minorities.

EU Enlargement Commissioner Marta Kos confirmed the possible timetable on Monday following a meeting of the EU-Moldova Association Council in Brussels.

Asked whether further intergovernmental conferences could take place this month, Kos said the next two clusters could potentially be opened during meetings in Luxembourg next week.

The condition is passage by the Verkhovna Rada of legislation dealing with educational rights for national minorities, an issue that has been central to Hungary’s objections to further progress in Ukraine’s accession negotiations.

Kos said during the Commission’s recorded press conference that Brussels was aware of the Ukrainian parliament’s procedures and hoped the legislation would be approved. Member states would then have to complete their own procedures quickly.

A draft law covering education rights for indigenous peoples and national minorities was registered in the Verkhovna Rada on 1 October.

The legislation is intended in part to address Hungarian demands concerning the use of minority languages in Ukrainian schools, particularly by the ethnic Hungarian community in Zakarpattia.

Hungary has repeatedly linked support for Ukraine’s EU accession process to those issues.

Ukraine and Moldova formally opened accession negotiations in 2024 and have since moved into the detailed cluster-based process used to organise negotiations over the EU acquis.

EU Today reported in June that the two countries had moved into the first substantive stage after political agreement allowed negotiations on the “fundamentals” cluster to proceed.

That cluster covers areas including the judiciary, fundamental rights, public administration, democratic institutions, public procurement and financial control.

Unlike most negotiating areas, the fundamentals cluster remains open throughout the accession process and is normally closed last.

The possible opening of two additional clusters would therefore mark another practical step in a process that remains dependent on unanimous support among EU governments at key stages.

Ukraine’s Foreign Minister Andrii Sybiha has said he hopes adoption of the minority-education amendments will remove the remaining basis for Hungary to block the next steps.

The negotiations have also become linked increasingly closely to the wider security relationship between the EU and Ukraine.

EU Today has followed the accession process as Kyiv and Chișinău seek to keep negotiations moving despite political resistance within the bloc.

Brussels continues to stress that accession remains merit-based and conditional on reforms.

Kos said on Monday that both Ukraine and Moldova were delivering reforms in difficult circumstances and described them as being among the four front-running candidate states.

The Commission is due to publish its annual enlargement reports on 28 October, providing a detailed assessment of progress across individual negotiating chapters.

Moldova has set itself a target of being ready to complete negotiations by early 2028, although any final accession date would depend on the member states.

The country has also been moving closer to EU structures outside the formal accession negotiations.

Kallas said on Monday that the EU had committed €1.9 billion under its Growth Plan for Moldova and was releasing another €157 million tranche. Moldova has joined the Single Euro Payments Area and is moving towards inclusion in the EU’s mobile roaming area.

Ukraine’s path is more politically complicated because of both the war and recurring disputes with individual EU members.

The next immediate test is parliamentary: whether Kyiv can pass the education amendments quickly enough to allow EU governments to approve the next negotiating stages in Luxembourg.