New EU members would gain full voting rights only after the EU implements major institutional reforms to curb veto power abuse.
The European Union is exploring a groundbreaking enlargement model that would grant new member states limited voting rights initially, a move aimed at overcoming hurdles to expansion, particularly Hungary’s resistance to Ukraine’s accession.
Citing three European diplomats and an EU official speaking anonymously, the proposal seeks to address frustrations among candidate countries like Ukraine and Montenegro while tackling concerns from current members.
Under the proposed model, new EU members would gain full voting rights only after the EU implements major institutional reforms to curb veto power abuse. This transitional approach could make leaders like Hungarian Prime Minister Viktor Orbán more open to Ukraine’s membership, which he has blocked for political reasons.
The plan, still in early discussions, requires unanimous approval from all 27 EU member states, a significant challenge given resistance to changing the EU’s unanimity principle.
The initiative comes amid growing frustration in Eastern Europe and the Western Balkans, where countries like Montenegro – engaged in accession talks since 2012, have undertaken extensive reforms but face stalled progress.
Pro-enlargement nations, including Austria, Sweden, the Nordic and Baltic states, and Central European countries, are pushing to revitalize the process, which has been hampered by Hungary and others, who cite concerns over market competition and security.
Progress and challenges in EU enlargement
The EU’s enlargement process has gained urgency since Russia’s invasion of Ukraine, which has reshaped geopolitical priorities. Ukraine’s resolute resistance to Russian aggression has significantly accelerated its EU accession process, while simultaneously fast-tracking Moldova’s candidacy.
Ukraine and Moldova recently completed legislative screenings for EU compliance at a record pace, earning praise from EU Commissioner for Enlargement Marta Kos.
During a recent visit to Ukraine, Kos expressed optimism that Hungary’s veto on starting accession talks would soon be resolved, paving the way for rapid progress on multiple negotiating clusters.
European Council President António Costa is spearheading efforts to shift certain enlargement decisions to a qualified majority vote, potentially neutralizing Hungary’s veto. This idea gained traction at an informal EU ministers’ meeting in Copenhagen on 1-2 September, hosted by Denmark, the current EU Council presidency. While publicly framed as a discussion of principles, the meeting highlighted Hungary’s politically motivated veto as a key obstacle to Ukraine’s — and by extension, Moldova’s progress.
Western Balkans: momentum and obstacles
Western Balkan candidates, long entrenched in the EU accession queue, are increasingly frustrated at being overtaken by Ukraine and Moldova. Commission President Ursula von der Leyen recently reaffirmed support during her fifth annual visit to the region. In Albania, von der Leyen praised the country’s “stunning” progress since 2022, while in Montenegro, she lauded its “frontrunner” status, noting the closure of four negotiating chapters in the past year and potential for five more in 2025. Both countries were commended for aligning with the EU’s stance on Russia’s aggression against Ukraine.
In contrast, in Serbia, von der Leyen urged faster reforms on rule of law, electoral frameworks, and media freedom to advance its EU path. Bosnia and Herzegovina was recognized for nearing a critical milestone but urged to finalize judicial reforms and appoint a chief negotiator. In Kosovo, the EU emphasized institution-building and de-escalation of tensions, while in North Macedonia, von der Leyen stressed the need for constitutional changes to unlock accession talks.