MFF 2028-2034: Council agrees its position on Horizon Europe, the new and ambitious framework programme for research and innovation
The Council has reached an agreement on its partial negotiating position on the regulation and the specific programme of the Horizon Europe, the tenth EU framework programme for research and innovation. Horizon Europe is a key element of the next multiannual financial framework (MFF), the EU’s seven-year spending plan.
It is designed to drive scientific excellence, boost economic competitiveness, and tackle global societal challenges. Besides the proposed substantial budget increase by the Commission, the agreed Council position for Horizon Europe foresees a tight link with the EU’s competitiveness instrument in the next MFF, the European Competitiveness Fund (ECF), to facilitate a seamless investment support journey.
The Council position is ‘partial’ because it excludes financial and horizontal issues, which are currently being discussed as part of the overall negotiations on the next MFF covering the period 2028 to 2034, as well as the elements linked to upcoming legislative initiatives regarding European Institute of innovation and technology (EIT) that would conclude the Horizon Europe (2028-2034) package. The provisional agreement refers to the two legislative proposals of the Horizon Europe package: the Regulation establishing the framework programme, as well as its rules for participation and dissemination, and the Council decision establishing the specific programme implementing Horizon Europe.
“Research and innovation are among Europe’s greatest strategic assets. By investing in scientific excellence and turning breakthrough research into innovative products, technologies and industries, we strengthen Europe’s competitiveness, resilience and strategic autonomy. The Cyprus presidency delivered on Horizon Europe with this ambition, reinforcing its role as key instrument for securing Europe’s place at the forefront of global innovation and translating knowledge into tangible benefits for our economy, society and security.”
Nicodemos Damianou, Deputy Minister for Research, Innovation and Digital Policy of the Republic of Cyprus
Main elements of the Council position
The Council position reflects a balanced compromise across all major components of the framework programme. It reinforces the member states’ involvement in Horizon Europe’s strategic priority-setting, clarifies the close links with ECF as well as introduces improvements and additional assurances related to European Partnerships, research security, and support for innovation, including for dual use and defence applications. It also strengthens horizontal principles like gender equality, simplification measures for the benefit of the beneficiaries, as well as broad and diversified collaboration throughout the Union.
A more coherent four pillar structure
The Council position introduces improvements in different elements of the four pillars of Horizon Europe, notably strengthening the Council and member states’ strategic role. Within Pillar I (Excellent Science), adjustments are made to the governance of the European Research Council and a focus on early-career researchers is added; Pillar II (Competitiveness and Society) provides further details on the ‘society’ component and maintains the balance between bottom-up research and policy priorities. A clear process is foreseen for the member states involvement in the priority setting of the entire pillar, most notably the European partnerships; Pillar III (Innovation) expands the European Innovation Council’s role, allowing for support of deep-tech innovation—including limited support to defence applications. Finally on Pillar IV (European Research Area) the agreement grants the Council a more prominent role in co-defining infrastructure support areas and further develops the framework for widening measures.
Governance and priority setting model
The governance model proposed by the Council’s position significantly enhances the Council and Member States’ role in shaping the strategic direction of Horizon Europe. Careful consideration has been given to ensuring coherence between Horizon Europe and the European Competitiveness Fund, particularly related to the collaborative research and innovation component, while preserving Horizon Europe’s self-standing and excellence-driven nature.
Clearer and stronger European partnerships
The Council position clarified and strengthened provisions regarding European partnerships between the Union and public and/or private partners—such as industry associations, member states, universities, and foundations—to address European and global challenges, as well as to boost EU’s competitiveness. The Council and its advisory bodies will have a stronger role in identifying priority areas and shaping the strategic direction of partnerships. A stronger lifecycle approach covering the partnerships’ creation, monitoring, evaluation and phasing-out is proposed, while improving coherence with other Union programmes.
Simplification measures through clearer rules of participation
To support simplification, the Council’s position clarifies eligibility and proposal evaluation rules, making participation in Horizon Europe more transparent and streamlined. Evaluation and implementation procedures aim to improve access, openness, and the impact of Union funding. Key measures include simplified cost options for the Marie Skłodowska-Curie Actions (MSCA), broader use of lump-sum funding, and reduced reporting requirements to lower the administrative burden and risk of errors. The text also simplifies the reimbursement of personnel costs through the use of personnel unit costs, helping participants reduce complexity and facilitate reporting.
Research security and innovation for dual-use projects and defence
The Council position establishes a robust and dedicated framework for identifying, assessing, and mitigating risks associated with research and innovation activities. It clarifies participation restrictions and safeguards through a risk-based and proportionate approach, thereby addressing security concerns while maintaining the openness of research and innovation to the greatest extent possible. Consistent with the Research Security approach and the need to preserve the predominantly civilian orientation of Horizon Europe, support under Pillar II for dual-use applications will be integrated by design from the outset. In addition, enhanced checks and balances are introduced for European innovation council’s support to dual-use and defence-related applications. Taken together, these measures ensure a robust, secure, and transparent framework for supporting critical, dual-use, and defence-related research and innovation activities.
A progress-oriented widening approach
The Council position promotes sustained research and innovation convergence, building on the progress of widening countries (member states that lag behind in research and innovation performance) and transition countries (those catching up to exit the widening status). It sustains current widening instruments and allows for new measures to support the advancement of these member states. These provisions are part of the broader package balance, linked closely to ongoing negotiations on the wider Multiannual Financial Framework (MFF).
Next steps
The partial negotiating position serves as the Council’s mandate to begin discussions with the European Parliament on Horizon Europe. The decision on the programme’s budget for 2028-2034 will depend on the final agreement on the next MFF.
An agreement on the overall MFF by the end of 2026 would allow for the adoption of legislative acts in 2027 and ensure that EU funding reaches beneficiaries without interruption from January 2028.
Background
The next Horizon Europe programme was proposed by the Commission on 16 July 2025. Horizon Europe is a stand-alone programme that is closely linked to the European Competitiveness Fund (ECF). The programme is built on four pillars:
- Pillar I will focus on excellence in science by expanding the European Research Council, supporting outstanding researchers and reinforcing the Joint Research Centre.
- Pillar II aims to boost collaborative research that supports EU competitiveness and addresses major societal challenges.
- Pillar III will enhance innovation by expanding the European Innovation Council to support high-risk, disruptive projects, including defence and dual-use startups.
- Pillar IV will advance a stronger European Research Area, including a reformed widening component and new support for research and technology infrastructures.
