According to Müller, the EU’s institutional reform movement is largely guided by the need to fortify democratic credibility, halt institutional deterioration, boost crisis resilience, and create the framework for the admission of new member states.[1]
Initially, the extension of Qualified Majority Voting (QMV) constitutes a notable reform that has been proposed and may be implemented across various policy domains. In the case of enlargement policy, it is suggested that to accelerate the process, the validation of each negotiating chapter should be moved to QMV to prevent individual Member States from obstructing progress for domestic reasons. Nevertheless, the final ratification of an accession treaty would still require unanimity.[2]
Several scholars agree on the need for adjustments, particularly regarding enlargement policy, as the existing framework is deemed ineffective. Charles Michel, President of the European Council, has similarly highlighted the urgency of addressing this issue. In 2022, Michel advocated for a more dynamic and efficient enlargement process, highlighting that the existing framework functions as a zero-sum endeavor, resulting in dissatisfaction in the EU and the candidate states. More specifically, he stated “I think we must make the process faster, gradual and reversible”, acknowledging the need for the Union to provide its partners tangible socioeconomic advantages throughout the whole process. Thus, the President proposed the concept of phased integration. His proposal suggests that as a candidate country demonstrates alignment with the acquis, it will gradually participate in EU activities. Moreover, upon meeting certain milestones during the accession process, the state could gain access to European funding (beyond the already existing pre-accession instrument) and programs designed to directly benefit its citizens.[3]
The notion of “staged” or “phased” integration has garnered significant attention within academia and has been put forward as an optimum approach toward policy reform. Notably, Emerson et al. (2021) conducted an in-depth examination of this concept and its potential implementation within the context of the Union’s enlargement policy. Their analysis delineates four distinct stages of integration for countries aspiring to join the EU: initial accession, intermediate accession, new member state status, and full conventional membership.[4]
Elaborating on this concept, Emerson et. al. contend that the initial phase entails the candidate states’ interaction and engagement with the EU acquis, a comprehensive body of EU rules and regulations, and qualitative evaluations to assess their alignment with the Union’s standards. Subsequently, during the intermediate stage, candidate states progress through more thorough monitoring and evaluation processes concerning their performance across various EU acquis chapters. In this setting, the authors advocate for the adoption of quantified assessment methods, such as “1 to 5” scales and other numerical ratings, to establish a more precise framework for assessing the advancement of candidate states.[5] The significance of introducing quantitative assessment methods is further emphasized in Emerson’s and Blockmans’ 2022 publication. Their work asserts that the adoption of such methods may enhance the transparency and reliability of the evaluation process, with performance being primarily measured against clearly defined benchmarks.[6]
Later, the third stage is reached when a candidate country fulfills all admission criteria and, upon signing a treaty of accession, gains access to full funding levels, full participation in EU policies, and involvement in all institutions, albeit with two notable exceptions. Firstly, the newly admitted member would not possess veto power in the Council but would exercise Qualified Majority Voting (QMV), and secondly, the European Commission would not appoint a Commissioner from the newly joined state. In this sense, it is argued that the third phase establishes a more restrictive membership framework designed to address concerns regarding further enlargement. Ultimately, candidate states achieve the status of conventional members, assuming all the rights and responsibilities associated with full EU membership.[7]
In 2022, Charles Michel highlighted the potential advantages of the “staged” integration model, asserting that it would deliver tangible benefits to candidate countries throughout the entire accession process and would strengthen and expedite these nations’ integration with the European Union while facilitating the implementation of critical structural reforms.[8] Furthermore, this model accounts for a structured and incentive-based approach to EU enlargement. By linking compliance with EU conditionality to benefits at each stage it enhances the credibility of rewards and may stimulate reform efforts. It can also be argued that the EU’s influence is bolstered when early benefits, such as managed access to structural funds, are provided, thereby reducing reliance on potential external financing sources. This approach may also support aspiring member states in developing their institutional capacity and promote smoother integration into EU policies and institutions, ultimately establishing a more credible and effective pathway to EU membership.[9]
The model of “phased” integration may be related to that of “differentiated” integration. One of the principal premises of this approach posits that by initially excluding candidate states or new members from policies that could negatively impact existing member states, differentiated integration allows for selective participation in EU policies, thereby accelerating and facilitating enlargement. Hence, the adoption of this strategy may reduce opposition to enlargement among current members and diminish the need for rapid policy adjustments. Moreover, within the framework of this multi-staged structured process, candidate states progressively increase their engagement in EU policy areas, financial support, and institutional representation as they advance through the stages in alignment with EU norms. Consequently, this approach is argued to address concerns about the impact of enlargement on existing EU institutions and policies while ensuring a smoother transition to full membership.[10]
Ultimately, given the established concerns over further enlargement and the capacity of candidate states to meet the established criteria, it is proposed that the implementation of “staged” accession should be accompanied by the principle of reversibility. This principle ensures that if the conditions for partial integration, as well as compliance with the EU’s principles, values, and strategic objectives, are no longer satisfied, mechanisms must exist to reverse this partial integration.[11] Therefore, in such cases, regression would directly impact the level of a nation’s integration, including its participation in EU institutions and access to funding.[12]
[1] Manuel Müller, “Institutional Reform Is Back on the EU’s Agenda,” FIIA – Finnish Institute of International Affairs, May 9, 2023.
[2] Olivier Costa et al., “Sailing on High Seas: Reforming and Enlarging the EU for the 21st Century,” Institut Jacques Delors, 2023.
[3] European Council, “Speech by President Charles Michel at the Plenary Session of the European Economic and Social Committee,” 2022.
[4] Michael Emerson et al., “A Template for Staged Accession to the EU,” CEPS, October 1, 2021.
[5] Ibid.
[6] Michael Emerson and Steven Blockmans, “Next Steps for EU Enlargement,” CEPS, November 24, 2022.
[7] Michael Emerson et al., “A Template for Staged Accession to the EU.”
[8] European Council, “Speech by President Charles Michel at the Plenary Session of the European Economic and Social Committee.”
[9] Emilie Gjaldbæk-Sverdrup, “Method to the Madness: Assessing the Future of EU Enlargement,”, 2023.
[10] Tanja A. Börzel et al., “Fit for 35? Reforming the Politics and Institutions of the EU for an Enlarged Union,” 2023.
[11] Olivier Costa et al., “Sailing on High Seas: Reforming and Enlarging the EU for the 21st Century”
[12] European Council, “Speech by President Charles Michel at the Plenary Session of the European Economic and Social Committee.”
