Under the proposal, Ukrainian President Volodymyr Zelensky would attend EU summits without voting rights, while Kyiv would also receive representation within the European Commission and non-voting seats in the European Parliament during the accession process.

The initiative, first discussed by Merz with European leaders last month, was outlined in a letter addressed to European Commission President Ursula von der Leyen and European Council President Antonio Costa.
“It is obvious that we will not be able to complete the accession process shortly, given the countless hurdles as well as the political complexities of ratification processes,” Merz wrote.

“What I envisage is a political solution that brings Ukraine substantially closer to the European Union and its core institutions immediately,” he added.
The German proposal would also extend the EU’s mutual assistance clause to Ukraine and provide Kyiv access to selected areas of the bloc’s budget framework, deepening institutional ties as the country continues to battle Russia’s invasion.

Ukraine has accelerated its push for EU membership since Russia launched its full-scale invasion in 2022, framing accession as central to its long-term economic recovery, political stability and security architecture.
Kyiv’s membership drive had faced persistent resistance from Hungary under former nationalist Prime Minister Viktor Orban, whose government repeatedly delayed progress on accession negotiations.

His replacement by political rival Peter Magyar has raised expectations among EU officials that talks could regain momentum.

Despite that shift, Merz acknowledged that full accession remained politically and procedurally distant because EU enlargement requires unanimous approval among member states and ratification through national processes.

The proposal may encounter reservations both inside the EU and in Kyiv, where officials have expressed concern that interim arrangements could dilute or indefinitely postpone full membership ambitions.
Merz sought to address those concerns directly, insisting the initiative was not intended to replace eventual accession.

“It would not be a membership light,” he wrote, while urging EU leaders to open “all negotiation clusters” with Ukraine immediately.

Ukraine’s pursuit of deeper European integration has intensified as prospects for NATO membership remain uncertain following continued opposition from the United States to Kyiv joining the military alliance in the near term.

Speaking alongside Greek Prime Minister Kyriakos Mitsotakis during a visit to Athens, Macron said Article 42.7 of the European Union treaty was explicit in obliging member states to assist one another in the event of armed aggression.

“On Article 42, paragraph seven, we know that for us, it is clear and there is no room for interpretation or ambiguity,” Macron told reporters at a joint news conference.The provision, often described as the EU’s equivalent of NATO’s collective defense principle, requires member states to provide aid and assistance to a fellow member subjected to armed attack on its territory.

Macron’s remarks come as EU leaders have asked officials to prepare a detailed blueprint clarifying how the clause would function operationally, reflecting a broader reassessment of Europe’s strategic autonomy and defense readiness.

The renewed focus follows mounting concern among European governments over Washington’s long-term commitment to NATO, particularly after repeated political debates in the United States over burden-sharing and military support for allies.

France has long argued for stronger independent European defense structures, with Macron repeatedly calling for greater strategic sovereignty and reduced reliance on U.S. military guarantees.Greece, which maintains one of the highest defense spending levels in the bloc relative to GDP, has supported efforts to deepen European security coordination, particularly amid ongoing regional tensions in the eastern Mediterranean.

While Article 42.7 was invoked only once by France after the 2015 Paris attacks its practical implementation has remained largely undefined, prompting calls for clearer procedures on military, logistical, and political responses.

Officials say the new framework under discussion is intended to ensure that the clause can function credibly in future crises, especially as the EU faces simultaneous security pressures from Russia’s war in Ukraine and instability across the Middle East.

Macron’s comments in Athens are likely to reinforce ongoing debates within Europe over whether the bloc should move beyond economic integration toward a more explicit collective defense posture.