Alarm at EU plans to end Horizon Europe’s civilian focus

Alarm bells have been sounded by a leader of one of the main European university research stakeholder groups at plans by the European Commission to abandon the exclusive civilian focus of the Horizon Europe framework programme (FP) for research and innovation.

Professor Kurt Deketelaere, secretary-general of the League of European Research Universities (LERU), warned that the commission is preparing a raid on Horizon Europe funds to “incentivise defence-related investments” to support the European Union’s “ReArm Europe Plan”.

The European defence plan aims to accelerate the use of disruptive innovation, such as AI and quantum technology, to enhance European readiness for worst-case scenarios and support Ukraine in the short term – while boosting Europe’s independent military capabilities following uncertainty over the Trump administration’s commitment to defend fellow NATO countries against external aggression.

Deketelaere claimed the commission – the European Union’s executive arm – wants to “redirect parts of the framework programme’s budget for dual-use and defence-related activities” despite Horizon Europe research and innovation (R&I) activities being “strictly limited to civil applications”.

Regulation amendment

Deketelaere said “such investments would therefore be illegal under the current legal framework” and explains why Defence Commissioner Andrius Kubilius has announced that regulation (EU) 2021/695, which governs Horizon Europe, will be amended later this year.

Deketelaere told University World News that the amendment “will allow support for technologies with potential dual-use applications under the Horizon Europe funded European Innovation Council (EIC) Accelerator” and permit equity investments in defence-focused technologies.

The EIC was established as part of the €95 billion (US$108 billion) EU Horizon Europe programme (2021 to 2027). It was given a budget of €10.1 billion to support game-changing innovations, from early-stage research to proof of concept, technology transfer, and the financing and scale-up of start-ups and small and medium enterprises (SMEs).

In a white paper on options for enhancing support for research and development involving technologies with dual-use potential in January 2025, the commission said “dual-use” refers to R&D support in relation to software and technology that has the potential to be used for both civil and military purposes and will address the gap between exclusively civil and exclusively defence R&D activities, in particular on critical and emerging technologies.

European Commission (EC) spokesperson Thomas Regnier told University World News: “The commission’s proposal only concerns the EIC Accelerator, which supports the market deployment and scale-up of individual start-ups and innovative SMEs.

“The EIC Accelerator targets start-ups and SMEs with disruptive innovations and emerging technologies and already supports many companies with technologies that have a potential dual use, for example in cybersecurity, drones, and artificial intelligence.

“The proposed change will clarify that these companies can continue to be fully supported in case of defence applications of their technologies, which is important both for the objective of scaling up deep tech companies in Europe and for addressing EU policy objectives concerning defence and security.”

Undermining trust of academics

Professor Jan Palmowski, secretary-general of The Guild of European Research-Intensive Universities, agreed that it “can be very hard to decide where the line is between what is, and what is not, research for both civilian and defence purposes”.

However, he told University World News: “We would oppose research being funded through Horizon Europe if it explicitly rewards dual-use research through extra points in the evaluation of proposals.

“Horizon is a civilian programme first and foremost whose purpose is to address our common European and global challenges, and that focus should remain.”

Deketelaere said that the EU already has the European Defence Fund, and he was “happy to discuss all options under the framework programme, but not a fait accompli halfway through the duration of Horizon Europe [from] the commissioner of defence”.

He warned that the move would undermine the limited trust between Europe’s academic sector and the European Commission in the run-up to negotiations over the successor to Horizon Europe, which runs until the end of 2027.

The commission already appears to be on a collision course with members of the European Parliament (MEPs) and the European Council (which represents member states) over attempts to absorb the next framework programme for research and innovation (FP10) into a giant European Competitiveness Fund, as University World News has reported.

Power grab

Critics, including Deketelaere, say the commission is making a power grab which will “step-by-step contaminate the whole framework programme” with the €95 billion Horizon Europe budget being raided to fund different priorities of the European Commission led by President Ursula von der Leyen.

“So, LERU’s concerns go beyond the principle of civilian exclusivity,” said Deketelaere. “Diverting Horizon Europe’s budget to fund defence and dual-use activities – now made eligible through the proposed amendment – threatens to undermine its core purpose.

“This reinforces LERU’s call for a ring-fenced budget for R&I in the [next] framework programme. It is unacceptable that the FP’s budget be raided each time a new political priority arises.

“This latest initiative may be a sign of what is to come if the FP’s budget is absorbed into a future European Competitiveness Fund. Under such a scenario, pooled resources could be allocated to whatever the political priority of the day is,” he added.

“The European Commission’s push to decouple budgets from programmes, or to eliminate programmes like the FP altogether, signals a desire for unfettered spending flexibility. For LERU, this is unacceptable.

“We will continue to advocate for a self-standing FP with a dedicated and protected budget for a R&I,” said Deketelaere.

Emmanuelle Gardan, director of the Coimbra Group (an association of long-established European multidisciplinary universities), told University World News: “We share the concern over the process and lack of stakeholder consultation and lack of reference to the results of the public consultation launched by the commission in January-April 2024 after the white paper (on options for enhancing support for research and development involving technologies with dual-use potential) was published.”

Call for new standalone R&I framework

The European Parliament’s budget committee has called the proposed European Competitiveness Fund “inadequate” and “not fit for purpose” in a report on the EU’s next Multiannual Financial Framework.

The committee also backed the call for a new standalone research and innovation framework programme after 2028.

The lengthy motion was approved by the committee on Wednesday 23 April, by 23 votes to nine, with two abstentions, and will now be debated in the Parliament’s plenary session on 7 May.

Nic Mitchell is a UK-based freelance journalist and PR consultant specialising in European and international higher education. He blogs at www.delacourcommunications.com.