Merz and Macron propose gradual EU integration for Western Balkans at Montenegro summit

German Chancellor Friedrich Merz and French President Emmanuel Macron called for rapid enlargement at the European Union-Western Balkans Summit in Montenegro, acknowledging that the EU itself shares responsibility for the fact that Western Balkan states have not yet integrated into the bloc.

“If we have not accepted a new member in 13 years, this also points to shortcomings on the European Union side. Today, we want to overcome these,” German Chancellor Merz said.

Merz stated that the bloc must demonstrate both its capacity and its political will for enlargement.

The Western Balkans region comprises Montenegro, Albania, Bosnia and Herzegovina, Kosovo, North Macedonia, and Serbia. All six countries submitted official applications to join the bloc many years ago.

“Membership-lite” model on the agenda

French President Macron emphasized the critical importance of the region for the EU. Pointing to areas such as energy, security, and migration routes, Macron said that Europe’s strategic independence will also be determined in the Western Balkans, rendering the region geopolitically critical.

Merz and Macron attended the summit in the Adriatic coastal town of Tivat with a joint draft proposal designed to bring candidate countries closer to the bloc at a faster pace.

Under the model proposed by the two leaders, candidate countries would be granted observer status in EU institutions. The initiative aims to enable these countries to participate more closely in decision-making processes and to gain privileged access to the EU internal market through gradual integration. These steps are also intended to accelerate the domestic reform process in candidate states.

The joint document noted that “overly bureaucratic and formalistic procedures” must be simplified and the negotiation process accelerated.

To build a “true European union,” the text emphasized that additional incentives should be offered within a performance-based, gradual integration framework. However, both leaders stated that the ultimate goal remains full membership at a faster pace.

Mixed reactions to the summit

Among the candidate nations, Montenegro is at the most advanced stage of the accession process, followed by Albania. EU Commissioner for Enlargement Marta Kos stated that Montenegro could be admitted as the 28th member of the bloc by the end of 2028.

The initiative drew varied reactions from Balkan leaders. Montenegrin President Jakov Milatovic described the summit as a “turning point,” saying, “Our meeting offers new hope and fresh energy for all Western Balkan countries.”

Albanian Prime Minister Edi Rama adopted a more cautious tone, noting that the initiative has “deepened the debate.”

While calling on Merz and Macron to exert greater effort toward rapid enlargement, Rama refrained from predicting a specific accession date for Albania. “It is impossible to predict when Albania will become a member. There are three things in the world that cannot be predicted: God, sex, and the EU,” Rama said.

Officials in Brussels continue to view the close relations that certain candidate countries—particularly Serbia—have developed with Russia with a critical eye. The EU regularly calls on Belgrade to align with sanctions against Russia.

According to observers, North Macedonia, which has been a NATO member since 2020, faces the risk of falling into the sphere of influence of Serbia and China.

Furthermore, high tensions flare periodically among countries in the region, particularly between Serbia and Kosovo, as well as between Serbia and Montenegro.

Kosovo declared independence from Serbia in 2008, a move that Belgrade has refused to recognize. Montenegro became an independent state in 2006 after separating from its state union with Serbia.