The European Commission has formally presented Communication COM(2026) 705 final, titled “Preparing for a Larger Union,” outlining a strategic roadmap for adapting the European Union’s institutions, policies and budget ahead of future enlargement.

The document proposes significant changes to the EU’s decision-making system, the rule of law framework, the accession process and the way candidate countries could gradually integrate into the bloc before full membership.

A shift toward qualified majority voting

The Commission proposes making greater use of so-called passerelle clauses to replace unanimity with qualified majority voting (QMV) in selected areas, including international sanctions, foreign and security policy, human rights and measures against tax fraud.

For accession negotiations, the Commission recommends that the EU Council use QMV for certain interim decisions, including the opening of negotiating clusters. A final decision on the accession of a new member would, however, continue to require unanimity.

The document also refers to safeguards such as an “emergency brake” and the Ioannina mechanism to protect member states’ essential national interests.

Stronger safeguards on the rule of law

The rule of law and democracy would remain at the heart of the accession process through the “Fundamentals” cluster, which is opened first and closed last.

Future accession treaties could include a 15-year institutional safeguard clause designed to address serious breaches of EU values after membership. Under the proposal, measures could include suspending voting rights in the Council.

The Commission also proposes a “postponement clause” that could delay accession as a last resort if serious democratic backsliding is identified before membership.

New member states would also be required to participate in the European Public Prosecutor’s Office (EPPO) from the day they join the EU.

Gradual integration before membership

The strategy places greater emphasis on gradual integration, allowing candidate countries to participate in selected EU mechanisms and programmes before full membership.

This could include earlier access to the Single Market, SEPA, Roam Like at Home, as well as research and education programmes such as Horizon Europe and Erasmus+.

The Commission is also expected to present indicative roadmaps for the most advanced candidates as part of its 2026 Enlargement Package, including Montenegro, Albania, Moldova and Ukraine.

Enlargement and the EU’s future budget

The financial dimension of enlargement would be linked to the 2028–2034 Multiannual Financial Framework (MFF) and the proposed Global Europe instrument.

Funding would remain closely tied to the implementation of key reforms, sound financial management and safeguards against corruption and misuse of EU funds.

Taken together, the proposals point to an EU seeking to adapt its institutions and financing mechanisms before taking in a larger number of member states, while strengthening safeguards designed to ensure that democratic and rule-of-law standards are maintained before and after accession.