EU leaders propose 'gradual integration' for Western Balkans, signal Montenegro could join by 2028

Jun 4, 2026

At a summit in Montenegro, EU leaders proposed a "gradual integration" plan for six Western Balkan nations, aiming to accelerate a process stalled for years. Spurred by geopolitical pressure from Russia and China, the new strategy offers partial single market access before full membership. Montenegro is the frontrunner, with leaders suggesting it could join by 2028. The plan also includes safeguards like reversible benefits and potential veto-right delays for new members.

Montenegro EU accession timeline

▪Montenegro is on track to become a member of the European Union by 2028.
▪Montenegro is the most advanced of the Western Balkan candidates in its membership quest.
▪European Commission President Ursula von der Leyen stated that Montenegro's EU accession is "within reach" as of June 2026.
▪Montenegrin President Jakov Milatovic said the country's goal of joining the EU by 2028 is "realistic and achievable."
▪The EU has formed a working group to draft an accession treaty for Montenegro, with the first technical meeting held in May 2026.

Western Balkans enlargement strategy

▪The gradual integration plan would allow candidate countries to gain partial access to the EU's single market and observer status at key meetings.
▪European Commission President Ursula von der Leyen has called for the EU enlargement process to be made "faster and more credible."
▪France and Germany have jointly proposed a "gradual integration" process for EU candidate countries in the Western Balkans.
▪After Montenegro, Albania is considered the most likely Western Balkan country to join the EU.
▪The Franco-German proposal suggests simplifying the accession process by giving the European Commission more discretion over opening negotiating chapters.
▪The EU is considering dropping mobile roaming charges in the Western Balkans as a tangible benefit of closer integration.

Geopolitical drivers for EU expansion

▪European Council President António Costa described enlargement as an "investment in the peace, stability and security" of Europe.
▪Russia's 2022 invasion of Ukraine has reframed EU enlargement as a "geostrategic imperative" to counter Russian and Chinese influence.

Tivat summit outcomes

▪At the summit, German Chancellor Friedrich Merz affirmed the EU's desire for the Western Balkan states to become members soon.
▪Over 30 leaders attended the Tivat summit, including France's Emmanuel Macron, Germany's Friedrich Merz, and the EU's Ursula von der Leyen.
▪An EU-Western Balkans summit was held in Tivat, Montenegro, on June 5, 2026, to discuss the region's path to membership.

Post-Orbán accountability mechanisms

▪The EU is considering denying new member states veto rights for several years to prevent obstruction, a lesson from Hungary under Viktor Orbán.
▪Serbian President Aleksandar Vucic and Albanian Prime Minister Edi Rama have argued for faster integration in exchange for new members not having veto rights.
▪The gradual integration proposal includes a "reversibility" clause, allowing benefits to be withdrawn if a country backslides on EU core values.