The European Commission has unveiled a sweeping reform package aimed at preventing future member states from undermining the bloc's democratic foundations. The centerpiece is a new mechanism that would allow the EU to suspend voting rights and withhold funding from countries that violate rule-of-law principles during their first 15 years of membership.
Enlargement Commissioner Marta Kos framed the proposal as a direct response to the challenges posed by Hungary under Viktor Orbán. "I was criticised heavily when I first mentioned that I don't want to see new Trojan horses in the European Union. This was still before the elections in Hungary. Today I can say no more Viktor Orbán," she said.
Lessons from Hungary
The initiative follows a push by five founding member states in June to strengthen accession treaties, drawing on the difficulties the EU has faced in disciplining Hungary. The existing Article 7 procedure, which allows for the suspension of certain rights, has proven slow and unwieldy. The new proposal would complement Article 7 with a faster, more targeted mechanism.
Under the proposed rules, the Commission or a group of member states could trigger a procedure against a new member that seriously breaches EU values, the rule of law, or the principle of sincere cooperation. Consequences would be proportionate, with suspension of voting rights reserved for the most severe cases. The procedure would remain available for 15 years after accession, a significant extension of the three-year safeguards included in previous treaties.
Kos pointed to Hungary's handling of Ukraine as a prime example of the problem. Budapest initially agreed to grant Ukraine candidate status, then blocked subsequent steps. "Once we agree on one goal, we all have to work for this goal," she said.
The proposal also seeks to prevent new members from using unanimity requirements to block enlargement over bilateral disputes. This is a clear reference to Bulgaria's ongoing blockage of North Macedonia's accession talks, which Sofia ties to unresolved issues such as constitutional amendments.
Gradual integration
Beyond safeguards, the Commission has embraced the idea of gradual integration, first floated by France and Germany, to offer candidate countries tangible benefits before full membership. "It is not a substitute for the full membership. It is only enabling those countries who are delivering well that, in the areas where they are delivering, they could integrate earlier in the subsystems or policies of the European Union," Kos explained.
Areas where early integration could apply include supply chains, energy security, participation in programmes like Erasmus+ and Horizon Europe, cooperation with Frontex, and observer status in expert groups. The Commission envisions an "enhanced" form of integration for candidates that align with Brussels on strategic matters and meet rule-of-law criteria, though the exact assessment method remains undefined.
This approach builds on existing mechanisms but aims to be more systematic, with tailored benefits developed through structured dialogue and dedicated financing.
Governance and enforcement
On governance, the Commission wants to extend its annual rule-of-law reports to more candidate countries and sharpen recommendations on aligning with EU democratic standards. It also proposes strengthening independent rights-enforcement bodies and preparing candidates to join the European Public Prosecutor's Office upon accession.
In cases of serious problems, the Commission could recommend postponing accession. Brussels would also work with candidates to test their enforcement capacity in priority areas such as border management, single market supervision, food safety, transport networks, and cohesion funding.
The package, which requires approval from member states, is expected to be incorporated into the EU's negotiating position for Montenegro's final chapters in early November. The Commission's proposals come amid broader discussions on EU enlargement, including alternative partnership models and the need to address funding gaps for Ukraine.
