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EU prepares for enlargement, analysis by REL: New members may have limited voting rights
2026-06-10 09:59:06 / BOTA
A group of European Union (EU) member states have proposed that future members of the bloc, during a transitional period after joining the bloc, have limited rights.
Among the key restrictions is the proposal that new members have limited voting rights.
"The EU should hold a detailed discussion on the possibility of temporary, transitional restrictions on the voting rights of new member states, especially in areas of the EU acquis where unanimity is required [for example enlargement, common foreign and security policy, multiannual financial framework], taking into account legal and political sensitivities," says the so-called non-paper signed by Germany, France and the Benelux states (Netherlands, Belgium and Luxembourg).
Radio Free Europe/Radio Liberty has had access to this unofficial document. A non-paper is an informal document used in European diplomatic circles to present new ideas, test positions or propose solutions, without forcing the party presenting it to take a formal position.
At the moment, the only country with a real chance of future EU membership is Montenegro, as the European Union has decided to form an ad hoc group that will work on drafting the accession agreement.
This is the first time in 17 years that the EU has started work on the text of an accession agreement, after 2009, when the same process began for Croatia.
Croatia has been a full member of the EU since 2013, which constitutes the longest period in the history of the European bloc without enlargement, namely the admission of new members.
The document emphasizes that the geopolitical situation has changed significantly since Croatia's accession to the EU and that, as stated, enlargement is no longer seen solely as a technical process based on merit, but as a strategic investment in the peace, security, stability and prosperity of Europe.
The authors of the document consider that a general model for future accession agreements and a catalogue of options that can be adapted to the specificities of each candidate country are needed. It also proposes the drafting of a standard framework for future accession agreements, with the possibility of adaptation to individual candidates and the challenges that their accession may bring to the EU.
These five EU member states propose strengthening and extending the validity of safeguard clauses, which would apply to issues related to the EU's internal security, economic security and resilience to foreign interference.
Special attention to strengthening the rule of law
According to the document, the rule of law is the most important area in which the safeguard clauses would apply. Five EU member states propose a so-called non-regression clause in relation to European values and the rule of law. Violation of this obligation, as the document states, could automatically trigger financial sanctions, infringement procedures or new safeguard mechanisms.
It is also proposed that EU institutions have the ability to react to serious violations of the rule of law, democratic principles and media freedom.
Among other things, it is proposed that possible measures include the suspension of certain forms of cooperation with the new member state that commits these violations.
It is also considered that participation in the European Public Prosecutor's Office should be a political precondition for the accession of new states. This is seen as an important instrument for protecting the rule of law and combating the misuse of European funds.
Preventing potential blockages and lack of cooperation
The document proposes the introduction of a special clause that would remind new members of the obligation to cooperate faithfully with the European Union.
"Behavior that undermines unity, mutual trust and the decision-making process in the EU causes serious harm to the entire European bloc," the authors of the document assess.
For this reason, they consider that membership agreements should contain mechanisms for responding to such behavior. /REL
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