The European Union is often imagined as a club exclusively for Europe—an organization defined not only by politics and economics, but also by geography. Its very name seems to imply that only countries on the European continent can be members. Yet the question arises from time to time, both among curious observers and serious policymakers: can non-European countries join the European Union?
The answer is more complex than a simple yes or no. While EU treaties set out rules for enlargement, the debate around geography, culture, and politics has made the issue controversial. The question forces Europeans to confront what the EU actually is: a geographic project, a political alliance, or a universal model of governance that could stretch beyond its current borders.
The Legal Framework: Article 49 of the Treaty on European Union
The starting point for any discussion of EU membership is Article 49 of the Treaty on European Union (TEU). It states that “Any European state which respects the values referred to in Article 2 and is committed to promoting them may apply to become a member of the Union.”
On its face, this seems to settle the issue: the EU is open only to European states. Geography is embedded in the law. Non-European countries, such as those in Africa, Asia, or the Americas, cannot apply under the current treaty framework.
However, this raises deeper questions: what exactly counts as “European”? Geography is not always straightforward, and politics has often blurred the definition.
The Flexibility of “European Identity”
Cyprus and the Middle East Borderline
Cyprus is geographically in the Middle East, closer to Lebanon and Syria than to mainland Europe. Yet it has been a member of the EU since 2004. Its membership is justified on cultural and historical grounds: Cyprus identifies as European, shares in the Greco-Roman tradition, and has long been tied politically to Europe.
This shows that geography is not always taken literally. A country may qualify as “European” politically and culturally, even if geographically ambiguous.
Turkey: The Eternal Candidate
Turkey represents the clearest test case. Straddling Europe and Asia, Turkey has been an official EU candidate since 1999, though accession talks have stalled. About 97% of Turkey’s landmass lies in Asia, yet the country has been considered eligible for membership because a portion of its territory (Thrace) lies in Europe and because it has longstanding ties with European institutions.
Turkey’s case demonstrates that “European” is as much a political decision as a geographic one.
The Caucasus: Georgia, Armenia, Azerbaijan
The Caucasus countries sit on the edge of Europe and Asia. Georgia, for example, insists on its European identity and has applied for EU membership. The EU has cautiously recognized these aspirations, granting candidate status to Georgia and Moldova in 2023. Armenia and Azerbaijan, meanwhile, remain in limbo.
Again, the EU’s willingness to treat these countries as “European” shows flexibility in defining its borders.
Cases of Non-European Countries Seeking EU Ties
While full membership may be restricted to European states, several non-European countries have explored deeper ties or even flirted with the idea of joining.
Morocco: Rejected for Geography
In 1987, Morocco formally applied for EU membership. The application was swiftly rejected on the grounds that Morocco is not a European state. Instead, Morocco pursued close trade ties, eventually signing an Association Agreement with the EU. The rejection underscored the EU’s insistence on geography as a baseline criterion.
Israel: A Special Relationship
Israel has never applied for EU membership, but it enjoys deep integration with Europe through trade, research cooperation, and cultural exchange. Some Israeli commentators have suggested that the country would benefit from EU membership, but its location in the Middle East rules it out under current rules. Instead, Israel maintains a “special relationship” with the EU, symbolizing how far integration can go without full membership.
North African Neighbors
Countries like Tunisia and Algeria maintain strong association agreements with the EU but cannot qualify for membership. These cases highlight the EU’s willingness to build partnerships short of full inclusion.
Could the Rules Ever Change?
Treaty Reform
In theory, EU treaties could be amended to open membership beyond Europe. However, this would require unanimous agreement among all member states—a politically unlikely scenario. The EU already struggles with enlargement fatigue and skepticism about admitting even European candidates like the Western Balkans. Extending eligibility beyond Europe would be politically explosive.
The Question of Overseas Territories
The EU already includes territories outside of Europe through its member states. French Guiana in South America, the Canary Islands off the coast of Africa, and Caribbean islands like Guadeloupe are all part of the EU because they belong to EU member states. This shows that the EU’s reach is already global in some ways, but only through extensions of European sovereignty, not independent states.
Why Geography Matters to the EU
The insistence on Europeanness is not merely a legal technicality. It reflects the EU’s identity as a project of continental integration. From the beginning, the EU was conceived as a way to bind Europe together economically and politically after centuries of war. Extending membership beyond Europe would fundamentally change its purpose.
Moreover, membership comes with rights and obligations: participation in decision-making, access to funds, freedom of movement. Extending these to non-European states could create tensions about resources, identity, and governance.
The Political Dimension: Culture and Values
Even within Europe, membership is not automatic. Candidate states must demonstrate commitment to democracy, human rights, and the rule of law. This is why Turkey’s accession talks have stalled—not only due to geography but also because of concerns about authoritarianism and human rights.
The EU emphasizes values as much as borders. For non-European countries, even if the legal restriction were lifted, political and cultural acceptance would remain major hurdles.
Alternatives to Membership
Because non-European states cannot join, the EU has developed alternative frameworks:
- The European Economic Area (EEA): Includes Norway, Iceland, and Liechtenstein, giving them access to the single market without full membership.
- Customs unions: Turkey has a customs union with the EU.
- Association Agreements: Morocco, Tunisia, and Ukraine (before candidacy) had deep trade agreements.
- Neighborhood Policy: Offers cooperation to countries in the EU’s near periphery.
These arrangements show that while membership is restricted, integration can still be extensive.
The Future: Could Non-European Membership Ever Happen?
While unlikely, debates about the EU’s identity sometimes raise the possibility of expansion beyond Europe. Some argue that in a globalized world, restricting membership to geography is outdated. Others warn that the EU risks losing coherence if it expands too far.
The most plausible future is not full membership for non-European countries, but ever-closer partnerships. The EU may deepen its global role through trade agreements, climate cooperation, and digital regulation, influencing countries far beyond Europe’s borders without admitting them as members.
Conclusion: A European Club with Global Influence
So, can non-European countries join the European Union? Under current law, the answer is no: only European states can apply under Article 49. Geography remains the gatekeeper.
But the story is more nuanced. The definition of “European” has proved flexible, allowing countries like Cyprus, Turkey, and Georgia to be treated as eligible despite ambiguous geography. At the same time, non-European neighbors like Morocco and Israel show how deep integration can go without crossing the line into membership.
The EU is, at its core, a European project. But its influence extends far beyond Europe, shaping economies and politics around the world. In that sense, while non-European countries cannot join, they cannot ignore the EU either. Its power lies not just in who sits at the table, but in the rules it sets that ripple across the globe.
