Dutch-led proposal urges phased EU benefits and longer transitions for new members

A discussion paper, also known as a non-paper, circulated within the EU proposes that new member states should not immediately gain full access to all benefits after accession, but instead face a longer transition period. The proposal was drafted by the Netherlands and has the backing of Belgium, Luxembourg, Germany, and France.

The document comes at a moment when the prospect of new EU enlargements is becoming more concrete. Croatia was the last country to join the EU in 2013, and the government argues that the situation has changed significantly since then. It also stresses that the impact of future enlargements should be kept to a minimum.

“A simple adoption of the accession treaty with Croatia will therefore not suffice,” writes Foreign Affairs Minister Tom Berendsen to the Tweede Kamer, the lower house of Dutch parliament. “EU values and the Union’s effectiveness are under pressure due to geopolitical tensions, and member states undermining EU unity.”

Historically, new EU members have occasionally faced phased integration rather than immediate full rights. However, the five countries now suggest broadening this approach in future accession treaties and introducing longer, more flexible transition periods that differ by applicant. They argue that the impact of accession would not be the same for every country, noting that Ukraine’s potential membership would have far greater consequences than that of Montenegro.

According to Berendsen, the “proposed safeguards” are intended to reinforce the rule of law, the functioning of the internal market, and “loyal cooperation between member states.” The plan suggests that new EU members would gain access to key benefits more gradually, including agricultural subsidies and core internal market rights like the free movement of workers.

The new measures are also intended to stop any future member state from eroding the rule of law in the way that occurred in Hungary under Prime Minister Viktor Orbán.

Under the proposals, continued adherence to EU values would be mandatory after accession, with enforcement tools activated if countries backslide. In the past, the European Commission had limited leverage beyond suspending funds when dealing with Orbán’s government.

The discussion paper also suggests that the European Union could consider temporarily restricting the voting rights of new member states in sensitive areas such as enlargement decisions, security and foreign policy, and the multiannual financial framework. It adds that the legal viability of all these proposals still has to be assessed.

The Cabinet emphasizes the importance of the Copenhagen criteria as the foundation for EU accession. At the same time, it argues that the enlargement policy should stay practical and workable. According to the minister, the government is also exploring ways to streamline the accession process and reduce complexity by simplifying technical stages.