Understanding the Shift in EU Research Collaboration Policies

The European Union's Horizon Europe programme, the world's largest multinational research and innovation funding initiative with a budget of €95.5 billion from 2021 to 2027, has marked a significant policy pivot. Horizon Europe (full name: Horizon Europe Framework Programme for Research and Innovation) supports collaborative projects across six thematic clusters, fostering breakthroughs in science, technology, and societal challenges. Recently, the European Commission adopted the 2026-2027 work programme, introducing explicit exclusions for Chinese entities from participation in most projects, particularly in sensitive areas. This move underscores Europe's growing emphasis on research security amid geopolitical tensions.

What does this mean for European universities and researchers? Previously open to third-country participation, including from China, Horizon Europe now prioritizes protecting intellectual property (IP) and strategic technologies. Chinese organizations, which self-fund as associated partners, are barred from key actions like Research and Innovation Actions (RIAs) and Innovation Actions—projects nearing market readiness. This change builds on a 2023 blanket ban on Chinese involvement in Innovation Actions and evolves from the EU Council Recommendation on Enhancing Research Security adopted in May 2024.

Details of the Exclusions: Which Clusters Are Affected?

The exclusions target three of Horizon Europe's six clusters, effectively sidelining China from roughly half the programme's scope. Here's a breakdown:

• Cluster 1: Health – Chinese entities ineligible for RIAs and Innovation Actions in biomedical research, disease modeling, and health tech.
• Cluster 3: Civil Security for Society – Bans cover cybersecurity, border management, and disaster resilience projects.
• Cluster 4: Digital, Industry, and Space – Fully excludes participation in AI, quantum computing, semiconductors, advanced manufacturing, and space technologies.

Additionally, entities controlled by Chinese organizations or affiliated with military-linked institutions, such as China's 'Seven Sons of National Defence' universities (e.g., Beihang University), face total exclusion from the entire programme. Exceptions apply to non-sensitive topics in Clusters 2 (Culture, Creativity, and Inclusive Society), 5 (Climate, Energy, and Mobility), and 6 (Food, Bioeconomy, Natural Resources, and Agriculture), where collaboration persists on global issues like climate adaptation.

This structured exclusion aligns with EU regulations on dual-use items (Regulation 2021/821), ensuring technologies with civilian-military potential stay within trusted partners.

Historical Context: From Open Collaboration to De-Risking

Horizon Europe's predecessor, Horizon 2020, saw robust EU-China ties, with China ranking among top third-country partners. By 2025, Chinese institutions participated in about 107 projects via the CORDIS database, contributing to sustainable agriculture, energy storage, and climate solutions. China's R&D spending hit $723 billion in 2023, fueling its rise as a scientific powerhouse—third globally in publications and closing gaps in high-impact citations.

However, concerns mounted over IP theft, espionage, and military-civil fusion policies like 'Made in China 2025'. Cases like a 2024 German spying incident involving dual-use tech prompted action. The EU's strategy shifted to 'de-risking'—selective restrictions rather than decoupling—mirroring US, Canadian, and Japanese approaches.Explore EU-funded research positions to stay ahead in compliant collaborations.

Reasons Behind the Policy: Safeguarding Research Security

The core driver is protecting Europe's technological sovereignty. Chinese state-backed entities risk transferring sensitive knowledge to military applications, exacerbated by regulatory imbalances—no reciprocal EU access to Chinese funding. The Commission cites 'undesired knowledge transfers' supported by Beijing's policies. This fits the broader European Research Area Act and national vetting in countries like Germany and the Netherlands, where universities now employ compliance officers.

Step-by-step process for exclusions:

1. Work programme drafting assesses security risks per cluster.
2. Article 22(6) deems Chinese entities ineligible unless specified.
3. Beneficiaries must declare no Chinese control; violations lead to exclusion.
4. Monitoring via ethics reviews and audits.

For European universities, this means enhanced due diligence: screening partners, training staff, and diversifying collaborations. Institutions like those in the Leiden Ranking may pivot to US or Indo-Pacific partners.

Impacts on European Universities and Researchers

European higher education institutions, primary Horizon beneficiaries, face disrupted networks. Universities in Germany, France, and the UK—top recipients—lose Chinese expertise in AI and biotech, potentially slowing project timelines. A CEIAS analysis warns of stifled innovation from reduced openness, as Europe lags in closing tech gaps.

• Positive: Secures IP, boosts EU competitiveness in strategic tech.
• Challenges: Fewer diverse perspectives, higher admin burdens.
• Cases: Past projects like energy storage saw Chinese input; now, EU unis seek alternatives.

Stakeholder views vary: Science|Business reports researcher concerns over fragmented science, while policymakers praise sovereignty gains. Universities are adapting via career advice for international collaborations.

Remaining Opportunities for EU-China Research Ties

Not all doors close. Clusters 2, 5, and 6 remain viable for joint work on pressing issues. Examples include climate modeling (Cluster 5) and bioeconomy innovations (Cluster 6). The EU-China Science and Technology Agreement, renewed in 2024, supports targeted exchanges. European universities can leverage this for non-sensitive fields, maintaining ~20% of prior collaboration volume.

Practical tips:

• Check work programme annexes for eligibility.
• Use EURAXESS for partner matching.
• Explore bilateral funds like Germany's DFG-China links.

Broader Implications for Global Science and EU Strategy

This policy signals Europe's realpolitik: knowledge as a geopolitical asset. It may inspire similar moves elsewhere, fragmenting global research while accelerating EU internal cohesion. For universities, it heightens demand for research assistant roles in compliant projects. Future: Expect refined rules post-2027 Horizon successor.

Stakeholder Perspectives and Expert Insights

Experts like those at CEIAS describe it as calibrated de-risking, balancing openness with safeguards. University leaders urge transparency to avoid chilling effects. Policymakers highlight successes in vetting, reducing risks by 30% in pilot programs.

Photo by Yiquan Zhang on Unsplash

Future Outlook: Navigating a Secure Research Landscape

By 2027, expect 500+ projects realigned, with EU universities leading diversified consortia. Researchers should upskill in compliance via higher ed career advice. Positive note: Enhanced funding for EU excellence. Stay informed for Europe university jobs, higher ed jobs, rate my professor.