ERA monitoring 2024 : second 18-month review of the implementation of the ERA policy agenda ('EU-level report').
Date: 2025-06-02
Institutions: Directorate-General for Research and Innovation
Subjects: EU research policy, EU strategy, higher education, innovation, knowledge management, open science, organisation of research, policymaking, report, research and development, research infrastructure

ERA Monitoring 2024

Second 18-months review of the implementation of
the ERA Policy Agenda (‘EU-level Report’)

ERA Monitoring  2024 – Second 18-months review of  the implementation of the  ERA
Policy Agenda (‘EU-level Report’)

European Commission
Directorate-General for Research and Innovation
Directorate A - ERA & Innovation
Unit A.2 - ERA, Spreading Excellence and Research Careers
Contact Magda De Carli, Head of Unit A.2

Email

Heiko Prange-Gstöhl
RTD-ERA-FORUM@ec.europa.eu
RTD-PUBLICATIONS@ec.europa.eu

European Commission
B-1049 Brussels

Manuscript completed in April 2025

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EUROPEAN COMMISSION

ERA Monitoring 2024

Second 18-months review of the implementation
of the ERA Policy Agenda (‘EU-level Report’)

This report was prepared by Sophie Viscido, Viola Peter, Lennart Stoy, Izabella Martins
Grapengiesser, Penelope Giorgi (Technopolis Group), and Alasdair Reid, Susanna Elena Pérez,
Lyudmyla Tautiyeva (EFIS Centre)

as part of the ‘Implementation of the ERA Monitoring Mechanism’ for the European Commission,
Directorate-General for Research and Innovation (RTD/2023/OP/0017)

2025

Directorate-General for Research and Innovation

TABLE OF CONTENTS

EXECUTIVE SUMMARY ................................................................................................6

Key achievements................................................................................................................6

Suggestions for future ERA policy initiatives ...................................................................9

INTRODUCTION ...........................................................................................................10

ERA PRIORITY 1: DEEPENING A TRULY FUNCTIONAL INTERNAL MARKET FOR
KNOWLEDGE ...............................................................................................................12

1.

2.

3.

4.

5.

6.

7.

8.

9.

Action  1:  Enable  the  open  sharing  of knowledge  and  the  reuse  of  research
outputs,  including  through  the  development  of  the  European  Open  Science
Cloud (EOSC) ...........................................................................................................12

Action  2:  Propose  an  EU  copyright  and  data  legislative  and  regulatory
framework fit for research ......................................................................................17

Action 3: Advance towards the reform of the assessment system for research,
researchers  and institutions to improve their quality, performance and impact
...................................................................................................................................22

Action 4: Promote attractive research careers, talent circulation and mobility 27

Action 5: Promote gender equality and foster inclusiveness, taking note of the
Ljubljana Declaration .............................................................................................. 32

Action 6: Protect academic freedom in Europe ....................................................39

Action 7: Upgrade EU guidance for a better knowledge valorisation ................44

Action  8:  Strengthen  sustainability,  accessibility  and  resilience  of  research
infrastructures .........................................................................................................50

Action 9: Promote international cooperation........................................................ 57

Assessment of the ERA Actions under ERA Priority 1 – Deepening a truly functional
internal market for knowledge .......................................................................................... 62

ERA  PRIORITY  2:  TAKING  UP  TOGETHER  THE  CHALLENGES  POSED  BY THE
INCREASING  SOCIETY’S
TWIN  GREEN  AND  DIGITAL  TRANSITION,  AND 
PARTICIPATION IN THE ERA .....................................................................................66

10.

11.

12.

13.

14.

Action 10: Make EU R&I missions and partnerships contributors to ERA .....66

Action 11: An ERA for green energy transformation ........................................73

Action  12:  Accelerate  the  green/digital  transition  of  Europe’s  key  industrial
ecosystem ............................................................................................................78

Action 13: Empower Higher Education Institutions..........................................86

Action 14: Bring science closer to citizens .......................................................91

Assessment  of  the  ERA  Actions  under  ERA  Priority  2 – Taking  up  together  the
challenges  posed  by  the  twin  green  and digital  transition,  and  increasing  society’s
participation in the ERA ....................................................................................................97

2

ERA  PRIORITY  3:  AMPLIFYING  ACCESS  TO  RESEARCH  AND  INNOVATION
EXCELLENCE ACROSS THE UNION .........................................................................99

15.

16.

17.

Action  15:  Build  up  regional  and  national  R&I  ecosystems  to  improve
regional/national excellence and competitiveness ...........................................99

Action 16: Improve EU-wide access to excellence ...........................................99

Action 17: Enhance public research institutions’ strategic capacity............105

Assessment  of  the  ERA  Actions  under  ERA  Priority  3 – Amplifying  access  to  R&I
excellence across the Union........................................................................................... 111

ERA  PRIORITY  4:  ADVANCING  CONCERTED  RESEARCH  AND  INNOVATION
INVESTMENTS AND REFORMS ...............................................................................113

18.

Action 18: Facilitate a national process of ERA policy vehicle preparation for
identification  of  running  or  planned  measures  contributing 
the
implementation of the ERA ...............................................................................113

to 

19.

Action 19: Establish an ERA monitoring system ............................................113

20.          Action  20:  Support  to  the  prioritisation,  coordination  and  direction  of  R&I
investments and reforms...................................................................................116

Assessment  of  the  ERA  Actions  under  ERA  Priority  4 – Advancing  concerted  R&I
investments and reforms ................................................................................................ 117

CONCLUSIONS ..........................................................................................................119

Suggestions for improving future ERA policy initiatives.............................................120

ANNEX 1 – METHODOLOGY AND DATA SOURCES..............................................121

ANNEX 2 – BIBLIOGRAPHY .....................................................................................122

3

ACRONYMS

AI
CP
CCC
CoARA
CoP
CSA
DG

EARMA
EEI
EIC
EIT
EIB
EMFAF
EMiN

EOSC
EPO
ERA
ERC
ERDF
ESIF

ESOF
ETP

EUCYS
EUIPO
EUI
EU
FP
GBV
GEP

GERD
H2020
HES
HE
HLG
IA
ICT

INCITE
IP
IPCEI
IPR
ITC
JRC
JU

Artificial Intelligence
Co-programmed (European) Partnership
Climate City Contract
Coalition for Advancing Research Assessment
Community of Practice
Coordination and Support Action
Directorate General
European Association of Research Managers and Administrators
European Excellence Initiative
European Innovation Council
European Institute of Innovation and Technology
European Investment Bank
European Maritime, Fisheries and Aquaculture Fund
European Mission Network
European Open Science Cloud
European Patent Office
European Research Area
European Research Council
European Regional Development Fund
European Structural and Investment Funds
EuroScience Open Science Forum
European Technology Platform
EU Contest for Young Scientists
EU Intellectual Property Office
European Universities Initiative
European Union
Framework Programme
Gender-Based Violence
Gender Equality Plan
Gross Domestic Expenditure on R&D
Horizon 2020
Higher or Secondary Education Organisation
Horizon Europe
High-levelEexpert Group
Innovation Actions
Information and Communication Technologies
European Innovation Centre for Industrial Transformation and Emissions
Institutionalised (European) Partnership
Important Projects of Common European Interest
Intellectual Property Rights
Inclusiveness Target Countries
Joint Research Centre
Joint Undertaking

4

KIC
KPI
LE
MSCA
MLE
NCP

NZIA
OITB

OSINT
PKH
PRC
R&D
R&I

ReICO
REC
RFO
RIA
RI

RIMA
RIS3
RRF
RRI
RTD
RTO
RPO
SDG
SET
SPR
SoE
SME
SRIA
S&T
STE(A)M
STI
SWD
TDM
TEI
TI
TRL

TWG

WP

Knowledge and Innovation Community
Key Performance Indicator
Large Enterprises
Marie Skłodowska-Curie Actions
Mutual Learning Exercise
National Contact Point
Net-Zero Industry Act
Open Innovation Test Bed
Open-Source Intelligence Tool
Partnership Knowledge Hub
Private-for-profit Companies
Research and Development
Research and Innovation
Research and Innovation Careers Observatory
Research Organisation
Research Funding Organisation (research-funding organisation)
Research and Innovation Actions
Research Infrastructure
R&I and Cohesion Managing Authorities (Network)
Research and Innovation Strategy for Smart Specialisation
Recovery and Resilience Facility
Responsible Research and Innovation
Directorate-General for Research and Innovation, European Commission
Research and Technology Organisation
Research Performing Organisation (research-performing organisation)
Sustainable Development Goals
Sustainable Energy Technology
Secondary Publication Rights
Seal of Excellence
Small and medium-sized enterprises
Strategic Research and Innovation Agenda
Science and Technology
Science, Technology, Engineering, (Arts), Maths
Science Technology and Innovation
Staff Working Document
Text and Data Mining
Team Europe Initiative
Technology Infrastructure
Technology Readiness Level
Temporary Working Group
Work Programme

5

EXECUTIVE SUMMARY

Purpose of the report

This EU-level report is the second 18-months review of the European Research Area (ERA)
Policy Agenda 2022-2024. Covering the period from July 2023 to December 2024, it asseses
the implementation of the ERA actions as well as the progress toward the ERA’s priorities
outlined  in  the  Pact  for  Research and  Innovation.  Building  on  the  first  EU-level  Report  of
2023, the report analyses achievements, challenges, and gaps in implementation, offering
evidence-based  insights  to  inform  the  evolution  of  the  ERA  Policy  Agenda  and  underpin
future policy-making.

Key achievements

Significant progress has been made in implementing the ERA Policy Agenda and thereby
achieving the  ERA objectives  across  the  four  priorities,  laying  a  foundation  for  a  more
cohesive,  inclusive,  and  competitive  research  and  innovation  (R&I)  ecosystem  in  Europe.
These  efforts  have  positioned  the  ERA  to  address  critical  global  challenges,  strengthen
Europe's knowledge  economy,  and  advance  its  societal  and  strategic  priorities.  However,
persistent challenges require further action to fully realise the ERA's potential.

ERA Priority 1 - Deepening a truly functional internal market for knowledge

Under  ERA  Priority  1,  multiple  actions  and  initiatives  have  significantly  advanced  the
circulation and open sharing of knowledge across the EU, while also fostering an inclusive
and resilient knowledge ecosystem.

Several milestones have strengthened the open sharing of research outputs (ERA Action
1). This is the case notably through the European Open Science Cloud (EOSC), with the
launch  of  the  EU  Node  as  the  federation’s  cornerstone,  along  with  a  process  to  integrate
additional  candidate  Nodes,  the  Federation  Handbook,  and  the  EOSC  Observatory.
Nonetheless,  achieving  long-term  sustainability  and  seamless  integration  of  national
solutions into the EOSC remains a key challenge. Further to this, ERA Scoreboard 2024 data
shows that open publication rates have risen, but disparities persist among Member States.
Additionally, a study under ERA Action 2 pinpointed barriers arising from EU legislation
on copyright, data, and digitalisation, proposing policy options to enhance access and reuse
of research results.

In  parallel,  the transition from  traditional  knowledge  transfer  to  a  dynamic  system  of
knowledge valorisation under ERA Action  7 has encouraged renewed collaboration with
the European Patent Office (EPO) and the EU Intellectual Property Office (EUIPO). Guiding
principles  and  codes  of  practice  aim  to  promote  innovative  approaches  across  the  R&I
landscape.  Wider  adoption  and  more  effective  implementation  of these  practices  could
maximise  the  societal  and  economic  impact  of  R&I  outputs. Researchers’  careers  and
talent circulation has  been further  strengthened  through ERA Action  4 implementing
initiatives like the ERA Talent Platform and the Research & Innovation Careers’ Observatory,
as  well  as  a Horizon  Europe  pilot  call to create  Talent  Ecosystems  centred  around  early-
career researchers, supporting inter-sectoral partners to implement the European Charter for
Researchers and improving the working conditions and employability of researchers.

Fostering an inclusive and resilient knowledge ecosystem has likewise been central to
this  priority.  Under  Action  3,  efforts  to  reform  research  assessment  frameworks  have
broadened  recognition  of  research  contributions,  promoted  qualitative  metrics,  and  driven
CoARA’s membership beyond 700 organisations. Yet deeper cultural and structural shifts are
still needed to embed diversity and inclusion in assessment practices. In a similar vein, ERA
Action 5 has advanced gender equality by tackling structural barriers and Gender-Based

6

Violence (GBV), supporting the adoption of Gender Equality Plans (GEPs), and integrating
gender  dimensions  into  R&I  activities.  Reinforced  monitoring,  evaluation,  and  capacity
building remain crucial for sustained progress. On the resilience side, specific initiatives have
been put in place to strengthen the role of Research Infrastructures (RIs) in the EU R&I
ecosystem,  supporting  their  sustainability  and  accessibility  in  the  longer  run  through
enhanced  gap  analysis  and  roadmapping  processes, a revised  Charter  of  Access  and
increased  cooperation  with  ecosystem  actors,  including  Industry (ERA  Action  8). Future
efforts could focus on addressing funding gaps and supporting long-term sustainability of RIs
and their increased strategic alignment with EU priorities.

Finally, ERA Action 9 has deepened international cooperation and science diplomacy
via multilateral dialogues, Team Europe initiatives, and the European Framework for Science
Diplomacy, expanding the EU’s global R&I footprint while safeguarding its strategic interests.
Meanwhile,  ERA  Action  6  has  focused  on  protecting  research  and  preserving academic
freedom through measures such as a European digital one-stop-shop platform to counter
foreign interference. Moreover, a study to provide an evidence base for a potential legislative
proposal on the promotion and protection of the freedom of scientific research in the EU has
been  conducted. Future  efforts at  global  scale will  strive  to  maintain  a  balance  between
scientific  freedom and international  collaboration  with  world  leaders, while  reinforcing
research and economic security.

ERA Priority 2 - Taking up together the challenges posed by the twin green and
digital transition, and increasing society’s participation in the ERA:

Under ERA Priority 2, multiple actions have significantly advanced the alignment of research
and innovation with the EU policy objectives related to the twin transition, driving industrial
and institutional transformations and promoting stakeholder engagement to meet the green
and digital challenges.

A first set of initiatives and instruments have been launched or strengthened to tackle
the twin  transition.  Under  ERA  Action  10, the EU  R&I  Missions have  been  for instance
supported by initiatives such as the Mutual Learning Exercise on Missions and the five EU
Mission Implementation Platforms. These have strengthened stakeholder engagement and
community building, laying the groundwork for effective frameworks to implement Missions.
Looking ahead, promoting diversified funding strategies beyond R&I, integrating governance
and policy actions, and enhancing public engagement could maximise the long-term societal
impact of Missions by 2030. Regarding European Partnerships, the Partnership Knowledge
Hub and  the  expert  group’s  2024  Biennial  Monitoring  Report, amongst  others, provide
steering  towards improved  portfolio  coordination,  leveraging public  and  private  co-
investments, and enhancing alignment with EU and national policies.

In addition, ERA Action 12 has supported the integration of R&I with sectoral industrial
policies, instrumental to address the twin transition challenges. These initiatives include the
Mutual  Learning  Exercises on  Industrial  Decarbonisation  and  the Whole-of-Government
Approach in R&I, the dissemination of the technology roadmaps for low-carbon and circular
technologies, a mapping of more than 180 EU-funded clean technology demonstrators, as
well as efforts to leverage the role of Technology Infrastructures in Europe and strengthen
the  Industry  5.0  Community  of  Practice. Furthermore,  initiatives  under ERA Action  11,
including the Green Hydrogen Pilot and revisions to the Strategic Energy Technology
(SET)  Plan,  have  established  a  foundation  for  green  energy  transformation,  backed  by
collaboration between policy-makers, industry, and academia to drive the adoption of low-
carbon technologies. Despite the progress  made, further efforts to improve the integration
between R&I and industrial policy are needed, and barriers such as fragmented regulatory
frameworks, insufficient cross-sector and multi-level coordination, still hinder the scaling-up
of innovative technologies in Europe.

ERA Priority 2 has also sought to increase society’s participation in the ERA. Under ERA
Action  13,  the European  Universities  Initiative has  broadened  cross-border  academic
collaboration,  reaching  64  alliances  that  involve  560  universities  and  2,200  associated

7

partners  across  35  countries.  Despite  this  progress,  ensuring  the  sustainability  of  these
alliances once EU project-based funding ends remains challenging. Meanwhile, ERA Action
14 has helped to bring science closer to citizens through initiatives such as Plastic Pirates
and the European City of Science, fostering engagement and raising awareness of societal
challenges,  although  limited  national  uptake  and  funding  pose  sustainability  issues.
Strengthening the European R&I ecosystem while bridging it with the European Education
Area requires long-term support for cross-border university alliances, coordinated European
and national funding schemes, and reinforced public engagement initiatives aligned with ERA
objectives.

ERA Priority 3 - Amplifying access to Research and Innovation excellence across
the Union

Under  ERA  Priority  3,  multiple  actions  have  boosted  efforts  to broaden  access  to  R&I
excellence  across  the  EU,  with  an emphasis  on  forging synergies  between  Cohesion
policy instruments and the Horizon Europe Programme. Under ERA Action 16, the R&I
and  Cohesion  Managing  Authorities  Network  (RIMA)  mapped  synergy  implementation
across Member States, identifying good practices. Progress was also made through Horizon
Europe WIDERA  Pathways  to  Synergies programme  and Widening  Actions,  including
calls  under  the  Excellence  Hubs,  Hop-on  Facility,  ERA  Chairs,  Twinning,  and  the
Dissemination  and  Exploitation  Support  Facility.  Additionally,  the Regional  Innovation
Valleys initiative,  involving  148  regions,  has  worked  to  reduce  fragmentation  by  fostering
collaboration  aligned  with  smart  specialisations.  Although  the  Regional  Innovation  Valleys
initiative  and  Excellence  Hubs  have  laid  groundwork  for  ecosystem  development,  these
efforts remain relatively small in scale. According to the ERA Scoreboard 2024, collaboration
networks remain concentrated in only a few countries, such as Greece and Portugal, leaving
others underrepresented.

Besides,  while  the  RIMA  network  has  catalysed  some  progress,  its  final  report  identifies
critical  challenges,  including  insufficient  programme  alignment  and limited  managing
authority  capacity  to  align  planning  and  execution  of  R&I  and  Cohesion  policy
programmes.  Moving  ahead,  streamlining  administrative  processes  and  enhancing
communication about synergies’ benefits are also deemed essential.

In  parallel,  ERA  Action  17  has  advanced  the promotion  of  excellent  research
management, primarily through the Horizon Europe projects RM ROADMAP and CARDEA,
which  identified  EU-level  challenges,  launched  a  mutual  learning  platform,  and  created  a
network  of  116  Research  Managers’  Ambassadors.  While  professionalising  research
management has gained momentum, outreach to Widening Countries remains essential to
strengthen capacity-building.

Moving ahead, addressing disparities in R&D intensity, strengthening collaboration networks,
and further professionalising research management, while simplifying funding mechanisms
and increasing institutional capacity, could bridge existing gaps and ensure more inclusive
access to R&I excellence across the Union.

ERA Priority 4 - Advancing concerted Research and Innovation investments and
reforms

Under  ERA  Priority  4, some efforts  have  been  made  to align  and  coordinate  R&I
investments  across  Europe,  notably  through whole-of-government  dialogues that
encourage  broader  policy  integration.  Increased  funding  for  R&D,  reforms  in  research
careers, and stronger research-industry linkages have all enhanced Europe’s scientific and
technological capacity. Yet, reaching the 3% R&D investment target still calls for bolder
measures. Overcoming regulatory barriers, dedicating a larger share of national budgets to
joint initiatives, and scaling innovation procurement as a driver for demand-driven solutions
is  deemed  essential.  Instruments  such  as  the European  Semester,  Structural  Funds,  and
Seal of Excellence projects could reinforce these efforts by boosting both public and private
R&D spending.

8

In the future, accelerating structural reforms, developing ambitious national RD&I plans
backed  by  Structural  Funds,  and  ensuring  a  more  attractive  and  competitive  R&I
environment might  receive  further  attention.  Strengthening  the  whole-of-government
approach at both national and EU levels can help overcome institutional fragmentation and
foster deeper policy coordination.

Suggestions for future ERA policy initiatives

This review of the ERA policy cycle highlighted good practices that can be further expanded
to enhance future policy initiatives, including:

1. Strengthening co-creation  between Member  States,  associated  countries,  the
Commission and  Stakeholders by  maintaining the  positive  momentum  of  the
renewed ERA governance structure, promoting transparency, collaboration, and active
participation through the ERA Forum, while addressing specific issues through tailored
approaches  such  as  dedicated  expert groups, stakeholder  involvement  or  targeted
Policy  Support  Facility Mutual  Learning  Exercises for  a  more  focused  engagement
geared towards action implementation.

2. Scaling the impact of the ERA Policy Agenda by focusing the ERA Actions on key
objectives where ERA can act as a true driving force, improving communication and
raising  visibility  while  fostering  stakeholder  engagement.  In  addition,  it  would  be
beneficial to foster the long-term sustainability of ERA initiatives by shifting from FP-
funding for  the  implementation  of  actions  to  longer-term  initiatives,  possibly  self-
sustainable and embedded in the Policy Agenda.

3. Enhancing the scope and inclusivity of the ERA Policy Agenda to better reflect the
challenges and opportunities of the European R&I ecosystem. The ERA could further
support  the  bridging  of  the gap  between  basic  research,  technology  development,
industrial  applications,  and  societal  uptake,  fostering  a  comprehensive  approach
across the entire R&I spectrum. To that end, strengthening the active participation of
stakeholders,  including  industry,  research  organisations,  regional  bodies,  and  civil
society, is seen as essential.

4. Addressing disparities  among  Member States and  countries associated  to  the
Framework Programme by prioritising efforts to reduce inequalities in performance,
especially for those facing challenges in meeting targets. Stakeholders emphasise the
need  for  capacity-building  initiatives  and tailored  actions  that  focus  on  less  R&I-
intensive  regions,  fostering  regional  inclusivity,  reducing  disparities,  and  enhancing
cohesion  across  Member  States and  countries  associated  to  the  Framework
Programme.

9

INTRODUCTION

This EU-level Report is the second 18-month review of the first ERA Policy Agenda 2022-
2024. Covering the period from July 2023 to December 2024, it asseses the implementation
of the ERA actions as well as the progress toward the ERA’s priorities outlined in the Pact for
Research and Innovation in Europe (Pact for R&I).

Since  the  ERA  was  revamped in  2020,  notable  progress  has  been  achieved,  particularly
through the co-creation and the implementation of the first ERA Policy Agenda1 (2022-2024),
through which Member States, Horizon Europe Associated Countries, stakeholders, and the
European Commission work together on specific ERA Actions.

This  report  builds  upon  the  first  EU-level  Report2, which  constituted  the  baseline  for  all
following monitoring exercises. It presents the ERA Policy Agenda’s implementation status
and progress made towards the four ERA priorities recommended by the Council in the Pact
for R&I.

The report assesses the implementation and overall performance of the ERA Policy Agenda
by examining how each ERA Action aligns and contributes to progress towards achieving the
ERA priorities and areas for joint action. This includes an assessment of the achievement of
milestones and outcomes for each action, highlighting key EU-level policies and initiatives,
as well as good practices at the national level, as appropriate.

The report also seeks to identify remaining challenges and to elaborate on key trends in the
implementation  of  the  ERA  Policy  Agenda,  drawing  evidence-based  conclusions  from  the
entire 2022-2024 period.

The  ERA  Policy  Agenda  actions during  this  period are  presented  in  the  table  below,
organised according to the four priority areas identified in the Pact for R&I.

Table 1 List of ERA priorities and actions

ERA priorities

ERA Policy Agenda Actions

Priority 1 – Deepening
a truly functioning
internal market for
knowledge

1. Enable Open Science, including through the European Open Science Cloud
(EOSC)

2. Propose an EU copyright and data legislative framework for research

3. Reform the assessment system for research, researchers and institutions

4. Promote attractive research careers, talent circulation and mobility

5. Promote gender equality and foster inclusiveness

6. Protect academic freedom in Europe

7. Upgrade EU guidance for a better knowledge valorisation

8. Strengthen research infrastructures

9. Promote international cooperation

1 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
2 European Commission: ERA monitoring 2023 – 18-month review of the implementation of the ERA policy
agenda ('EU-level Report').

10

ERA priorities

ERA Policy Agenda Actions

Priority 2 – Taking up
together the challenges
posed by the twin green
and digital transition,
and increasing society's
participation in the ERA

10. Make EU research and innovation missions and partnerships key
contributors to the ERA

11. An ERA for green transformation

12. Accelerate the green/digital transition of Europe’s key industrial
ecosystems

13. Empower Higher Education Institutions

14. Bring science closer to citizens

Priority 3 –Amplifying
access to research and
innovation excellence
across the Union

Priority 4 – Advancing
concerted research and
innovation investments
and reforms

15.  Build up  research  and  innovation  ecosystems  to  improve  excellence  and
competitiveness*

16. Improve EU-wide access to excellence

17. Enhance public research institutions’ strategic capacity

18. Support the development of EU countries’ national processes for the ERA
implementation*

19. Establish an ERA monitoring system

20. Support research and innovation investments and reforms*

* Note: ERA Actions 15, 18 and 20 of the ERA Policy Agenda 2022-2024 have either been submerged in other
actions or have not been implemented.

The report is structured along the four ERA priorities. Following an introduction with the key
findings at priority level, each of these sections is divided into subsections according to the
ERA Actions.

For each ERA Action, the report addresses:






the objectives and scope of the Action,
the  status  of  the  implementation  of  the  Action,  particularly  focusing  on  the  new
developments in the second 18-month period,
the  assessment  of  progress  towards  the  Action’s  objectives,  including  the  scope  for
further action.

The report’s concluding section focuses on the lessons learned and outlook towards future
ERA initiatives.

11

ERA  PRIORITY  1: Deepening  a  truly  functional  internal
market for knowledge

This  chapter summarises the  findings  on  the  implementation  of  ERA  Actions  1  to  9,
highlighting their contributions to ERA Priority 1 objectives. They provide a detailed overview
of the specific objectives of each action, the initiatives undertaken during the review period,
and an overall assessment of progress towards achieving these objectives.

1. Action 1: Enable the open sharing of knowledge and the reuse
of research outputs, including through the development of the
European Open Science Cloud (EOSC)

Key  findings  Action  1: Enable  the  open  sharing  of  knowledge  and  the  reuse  of
research outputs, including through the development of the European Open Science
Cloud (EOSC)

During the review period, ERA Action 1 has made significant progress in fostering the open
sharing and reuse of research outputs through the development of EOSC:











The EOSC EU Node became operational in October 2024 as the first node of the EOSC
Federation,  providing  services 
the
to 
interconnection with additional nodes.
Processes  for integrating  additional  EOSC  Nodes were  developed,  including  a
dialogue  initiated  with  29  candidate  nodes,  encompassing  thematic  and  national
infrastructures.

researchers  and  capabilities  enabling 

The EOSC Federation Handbook outlines the governance, operational structures, and
rules of participation for EOSC Nodes.

In 2024, the EOSC Association established new Task Forces and Opportunity Area
Expert  Groups,  enhancing  EOSC’s  capacity 
technical  and  collaborative
development.

for 

The EOSC  Observatory integrates  new  data  sources,  while  annual  surveys  provide
comprehensive insights into national contributions to Open Science (OS) and EOSC.

These  advancements  reflect  the  continued  commitment  to  OS  principles  and  the
operationalisation of EOSC as a federated infrastructure. Key challenges remain, including
harmonising  national  contributions,  increasing  the  uptake  of  EOSC  by  researchers  and
ensuring the sustainability of the EOSC Federation beyond 2027.

Objectives and scope of ERA Action 1

Purpose of the action:3

ERA Action 1 aims to promote the open sharing and reuse of research outputs by addressing
key issues such as the lack of Open Access to scientific data, inconsistent storage practices,
and the absence of data standardisation. To achieve this, the EOSC is being developed as a
federated infrastructure, enabling seamless access to trusted and interoperable data. This
action  also  enhances Open  Science practices  across  Europe,  helping  researchers,

3 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

12

innovators,  and  citizens  share  and reuse data  and  tools  for  research,  innovation,  and
educational purposes.

Figure 1 Objectives of ERA Action 1

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

Status of ERA Action 1 Implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):4

During the previous phase, significant progress was made. Key activities included:

 The launch of the EOSC Observatory, introduced as a policy intelligence tool to collect

data on EOSC policy implementation and practices from over 30 countries.

 The development  of  national  Open  Science  strategies,  where  Member  States
integrated  Open  Science  practices  and  FAIR principles (findable,  accessible,
interoperable, and reusable) into national research funding programmes aligned with the
EU-level objectives.

 Procurement  planning  for the EOSC  expansion,  including  preparations  to  deploy
managed services under the Horizon Europe Research Infrastructures Work Programme.
 Support for research communities, with initiatives such as workshops, consultations,
and cascading grants at the national level, enabling smaller infrastructures to participate
in the EOSC.

 The preliminary implementation of EOSC Core Services, deploying key components
of  the  EOSC  platform,  including  prototype  services  and  interoperability  frameworks,  to
facilitate seamless access and reuse of research data across Europe.

4 European Commission: Directorate-General for Research and Innovation, ERA monitoring 2023 – 18-month
review of the implementation of the ERA policy agenda ('EU-level report'), 2023.

13

1.2.1.

Deploy Open Science principles and identify best practices

Notable  advances  have  been  made  towards  mainstreaming  OS  principles  and  identifying
best practices by the end of 2024. National research funding programmes have increasingly
aligned  with  these  principles.5 Additionally,  best  practices  in  Open  Science  have  been
identified  and  disseminated through  various  projects,  showcasing  the  application  of  Open
Science across Europe.

According to the OpenAIRE Open Science Observatory, as of November 2024, 61.4% of
publications, 33.7% of datasets, 53.2% of open-source software, and 44.7% of other types
content in the OpenAIRE Graph are available in Open Access. Specifically:









6,901,970 Open Access publications out of 11,246,113 total

295,013 Open Access datasets out of 875,201 total

30,852 open-source software items out of 57,994 total

1,774,908 other Open Access items out of 3,973,487 total

Additionally,  based  on  the survey  on national contributions  to  EOSC  20236, 87%  of
responding countries (21 out of 24) indicated that they have an open-access policy, and of
these,  38%  (8  out  of  21)  stated  that  their  policy  is  mandatory; meaning  it  imposes  legally
binding requirements or regulations for Open Access.

Regarding the identification of best practices in open acience, the May 2024 ‘Brochure
of Use Cases on EOSC and Open Science’, features 31 national examples of diverse EOSC
implementations and  Open Science practices,  ranging from data  management  and citizen
science to open-access publications and infrastructure improvements.7

1.2.2.

Deploy  core  components  and  services  of  the  EOSC  and  federate
existing data infrastructures

During the review period, the development and operationalisation of EOSC as a federated
system  of  interconnected  nodes saw  major  advances.  Central  to  these  efforts  was  the
public  launch  of  the  EOSC  EU  Node8 in  April  2024,  followed in  October by  its full
operational deployment during the EOSC Symposium.9 The transition from previous EOSC
portal and market (until March 2024 by the EOSC Future Project)10 to the EOSC Federation
marks a shift in both governance and technical approach.

Efforts  to  expand  EOSC  have included  the integration  of additional  Candidate  EOSC
Nodes, with work focused on establishing the processes and criteria for their enrolment. A
two-stage dialogue process with 29 potential candidate nodes has been launched to assess
their interest and readiness for inclusion, leading to a first wave of Candidate Nodes that will
build up  a  first  operational  EOSC Federation.11 A  cornerstone  of  the  federation-building
process  is  the EOSC  Federation  Handbook,  which  outlines  the  governance,  operational

5 European  Commission:  European  Research  Executive  Agency, Q&A  on  what  you  should  comply  when
applying for funding and implementing your project.
6 O’Neill, G., & Seminaroti, E. (2024). Analysis of Survey on National Contributions to EOSC and Open Science
2023 (Draft version).
7 Gareth O'Neill, Fleur Lebhardt, & Izabella Martins Grapengiesser. (2024). Brochure of Use Cases on EOSC
and Open Science (Version V1).
8 The EOSC EU Node is a platform that facilitates the creation of the EOSC Federation. More information is
available at https://open-science-cloud.ec.europa.eu/about/eosc-eu-node
9 European Commission: Technical launch of the European Open Science Cloud (EOSC EU node) sets the
stage for successful deployment, 2024.
10 EOSC Future, EOSC Future signs off.
11 EOSC, Building the EOSC Federation.

14

structure,  and  rules  of  participation  for  EOSC  Nodes.12 It  will  serve  as  the reference
document  for  the  EOSC  Federation,  guiding  the  enrolment  and  operation  of  additional
nodes.  The  EOSC  Association,  in  collaboration  with  the  Tripartite  Group,  has  drafted
requirements  for  candidate  nodes which  specify  the  legal,  technical,  and  operational
standards needed to ensure interoperability and compliance within the Federation.13

Other ongoing work in EOSC is done through the EOSC Association Task Forces. During
the reporting period, four new Task Forces have been established: FAIR Metrics and Digital
Objects, EOSC Technical and Semantic Interoperability, Long-Term Data Retention, and one
addressing key technical challenges. These new Task Forces commenced activities in June
and  July  2024.  In  addition to the  Task  Forces,  2024  also saw  the  establishment  of seven
Opportunity Area (OA) Expert Groups. These groups focus on specific domains such as
Persistent  Identifiers,  Metadata,  Ontologies  and  Interoperability,  FAIR  Assessment  and
Alignment,  User  and  Resource  Environments,  Open  Scholarly  Communication,  Research
Software, and Skills, Training, Rewards, and Recognition. The OA Expert Groups serve as a
platform for technical  collaboration and co-creation,  ensuring  that the  collective  outputs of
EOSC projects align with its long-term vision.

EU projects supporting the establishment of the EOSC Federation include EOSC Beyond,
which  pilots  the  concept  of  EOSC  Nodes,  connecting  national,  regional,  and  thematic
infrastructures  to  the  EU  Node.  Additionally, the OSCARS project contributes  through
cascading grants to the growth of the EOSC ecosystem. Complementary initiatives such as
SIESTA, launched in January 2024, have addressed the secure handling of sensitive data
within the EOSC framework. EVERSE, which began in early 2024, aims to create a unified
framework for managing research software in alignment with EOSC standards.

1.2.3.

Establish  a  monitoring  mechanism  to  track  data,  investments,  and
policies related to EOSC

Significant progress has been made in monitoring activities under ERA Action 1, conducted
through two primary channels:

 Monitoring the EOSC Partnership and SRIA Objectives: The EOSC Association
monitors  progress  against  the  Strategic  Research  and  Innovation  Agenda
objectives. Biennial surveys on key performance indicators provide data for the
European  Commission’s  Horizon  Europe  Biennial  Monitoring  Report  and  offer  a
structured  assessment  of  the  Partnership’s  achievements.14 The  2022  baseline
survey identified key gaps, such as interoperability frameworks, which were further
refined through a survey concluding in October 2024.15

 Monitoring national contributions  to  EOSC  and  Open  Science: The EOSC
Observatory in  collaboration  with  the  EOSC  Steering  Board  annually  tracks
contributions 
from  Member  States  and  Associated  Countries  across  eight
categories: Publications,  Data,  Software,  Services,  Infrastructure,  Skills/Training,
Assessment, and Engagement. Initially developed under the EOSC Future project,
the  Observatory’s monitoring  activities transitioned  to the EOSC Track project in
December  2023.  The  most  recent  survey  was  concluded  in  October  2024  and
external  data  sources  such  as  the  OpenAIRE  Research  Graph,  EOSC  Resource
Hub,  Eurostat,  and  the  Coalition  for  Advancing  Research  Assessment  (CoARA)
were integrated into the Observatory.

12 EOSC Association, EOSC Federation Handbook.
13 EOSC Association, Requirements for Candidate Nodes.
14 EOSC Association, EOSC Partnership Monitoring Framework.
15 EOSC, Biennial KPI survey for EOSC Partnership, 2024; European Commission: Performance of European
partnerships, 2024.

15

Besides these monitoring activities, ongoing projects such as PathOS develop methods to
assess the impact of Open Science.

Assessment  of  the  progress  towards  the  ERA  Action  1  objectives
over the 2022-2024 period

1.3.1.

Assessment of progress towards specific objectives: main initiatives
and outcome

The initiatives under ERA Action 1 have made significant advances, summarised in the table
below.

Table 2 Assessment of the progress towards Action 1 Specific Objectives: initiatives
and outcome

Specific objectives16

Main initiatives implemented

Main outcome

Deploy Open Science
principles and identify best
practices

Deploy core components
and services of the EOSC
and federate existing data
infrastructures

Establish a monitoring
mechanism to track data,
investments, and policies
related to EOSC

















Implementation of Open Access
and FAIR mandates under
Horizon Europe across all funded
projects

Identification and dissemination of
Open Science use cases (e.g.,
‘Brochure of Use Cases on EOSC
and Open Science’)



Increased alignment of
national policies with Open
Science principles

 Broader adoption of open

access practices across
member states

 Repository of Open Science

use cases

 Enhanced capacity for Open
Science through Horizon
Europe support

Development of EOSC core
services, exchange infrastructure,
and interoperability framework



Full operationalisation of the
EOSC EU Node (October
2024)

Procurement for EOSC core
components, including services,
exchange infrastructure, and
application services

Designation of candidate nodes

Drafting of the EOSC Federation
Handbook to guide governance
and technical standards

Launch of the monitoring
framework for national
contributions to EOSC and Open
Science

Implementation of the EOSC
Partnership Monitoring Framework



 Deployment of projects such as
PathOS, GraspOS, SciLake
contributing to the assessment
Open Science impacts



Integration of data sources such as
the OpenAIRE Research Graph
and Eurostat into the EOSC
Observatory

 Successful onboarding of
over 25 national and
thematic infrastructures

 Establishment of processes
for integrating federated
EOSC nodes by 2025

 Enhanced interoperability of
research infrastructures
across Europe

 Regular collection and public

dissemination of data
through the EOSC Open
Science Observatory

Identification of national
trends and disparities in
Open Science contributions

 Enhanced understanding of
the social, economic, and
academic impacts of Open
Science

 Comprehensive tracking of

EOSC and Open Science
financial contributions

16 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

16

Specific objectives16

Main initiatives implemented

Main outcome

 Refinement of the monitoring

mechanisms under EOSC Track

 Development of the EOSC Open

Science Observatory
Source: Technopolis Group, based on data collected through desk research and interviews

The financing  of  EOSC is organised  as  a Co-Programmed European Partnership  under  a
Tripartite Governance comprising the European Commission, Member States, and the EOSC
Association.  The  European  Commission  has  committed EUR 450  million  through the
Framework  Programme. EOSC  Association  members  pledged approximately EUR 500
million in in-kind and financial contributions.17

1.3.2.

Challenges and opportunities towards future ERA initiatives

The full launch of the EU Node in October 2024 marks a significant milestone. In the short to
mid  term, setting  up  EOSC  Nodes  is  a  priority,  providing a major opportunity for
researchers across Europe to access, share, and manage scientific data and services.

The  success  of ERA Action  1  is  closely  intertwined  with  other  ERA  Actions.  For
instance,  the  reform  of  research  assessment  systems  under ERA Action  3  is  critical  for
incentivising Open Science practices, while ERA Action 4 plays a key role in fostering a skilled
and dynamic research community to drive Open Science initiatives. Similarly, ERA Action 2
is  deeply  connected  to  the  data  management  questions  central  to  EOSC. Alignment and
coordination between these ERA Actions are required to maximise their collective impact.

Despite  increased  national  contributions  to Open  Science policies  and  infrastructures,
disparities among Member States remain a challenge. The lack of uniformity in financial
investments,  policy  adoption,  and 
frameworks hinders  seamless
collaboration. Addressing these differences will require sustained efforts at both national and
European levels to ensure equitable access to resources and harmonised standards.

interoperability 

While  the  monitoring  frameworks  have  seen  visible  progress,  the limited  longitudinal
coverage of monitoring data means that conclusions about the impact of Open Science
and  EOSC  remain difficult. Continued long-term  data  collection,  enhanced  coordination
between  the  two  frameworks,  and further  refinement  of methods could allow  robust
evaluations that can guide future policy and investment decisions effectively.

2. Action 2:  Propose  an  EU  copyright  and  data  legislative  and

regulatory framework fit for research

Key findings Action 2: Propose an EU copyright and data legislative  and regulatory
framework fit for research

During the review period, ERA Action  2 aimed to improve access to and reuse of publicly
funded  research  and  innovation  results  as  well  as  publications  and  data  for  scientific
purposes by providing evidence on legal and regulatory barriers and identifying policy options
to overcome them:



The study ‘Improving access to and reuse of research results,  publications and
data for scientific purposes’ (2024) evaluated the effects of EU copyright frameworks
and research data legislation. It identified barriers such as the high cost of accessing

17 EOSC, Additional Activities: In-kind contributions to the EOSC Partnership.

17





and  making  research  outputs  available  in  Open  Access  as  well  as  legal  uncertainty
about how research output  can be used and shared. It  proposed legislative and non-
legislative policy options to address these issues.

Focused examination of an EU-wide Secondary Publication Right (SPR), analysing
its potential benefits and the impact of the limitations attached to SPR, such as embargo
periods, research outputs covered, use-requirements etc. affecting the way it has been
implemented  in  Member  States  (i.e.,  Germany,  France,  Belgium,  Austria,  the
Netherlands).  Bulgaria  introduced  SPR  during  the  study  and  was  therefore  not
analysed.

Analysis  of  how  the  research  exceptions  to  EU  copyright  rules  have  been
implemented in Member States. The study finds that the implementation is fragmented
due  to  the  voluntary  and  limited  scope  of  the  research  exceptions,  causing  legal
uncertainty about how the exceptions can be applied in research projects.



Investigation into EU data and digital legislation, highlighting complexities in legal
compliance  for  researchers  due  to  inconsistent  provisions  across  laws  like  the  Open
Data Directive, Data Governance Act, Data Act, Digital Services Act, Digital Markets Act
and  AI  Act.  Recommendations  included  standardising  terminologies,  integrating
research considerations into regulations, and improving monitoring mechanisms.
Although  no  legislative  proposals  have  been  put  forward  so  far,  the  findings  provide  a
foundation for possible future policy measures.

Objectives and scope of ERA Action 2

Purpose of the action:18

ERA Action 2 aims to propose an EU copyright and data legislative/regulatory framework fit
for  research, improving access  and  reuse of publicly  funded  R&I  results, and  use  of
publications and data for scientific purposes. This improves the legal conditions for the
circulation of scientific knowledge – also known as the ‘fifth freedom’ of the Single Market.
The action supported this objective by delivering evidence on existing legal and regulatory
barriers and by identifying policy options to address the detected barriers. The specific scope
covers EU SPR, copyright and related rights, and data and digital legislation.

18 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

18

Figure 2 Identified problems and defined objectives of ERA Action 2

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

Status of ERA Action 2 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):19

The implementation of the first objective of Action 2 – identifying existing barriers – began
with four independent studies published in 2022 covering:




EU copyright and related rights and access to and reuse of data20
EU copyright and related rights and access to and reuse of scientific publications,
including Open Access – Exceptions and limitations, rights retention strategies and the
secondary publication rights21

 Open Data Directive, Data Governance and Data Act and their possible impact on

research22

 Digital Services Act and Digital Markets Act and their possible impact on research23

19 European Commission: Andriescu, M. and Collier, N. (eds.), ERA monitoring 2023 – 18-month review of the
implementation of the ERA policy agenda ('EU-level report'), 2023.
20 European Commission: Directorate-General for Research and Innovation and Senftleben, M., Study on EU
copyright and related rights and access to and reuse of data, 2022.
21 European Commission: Directorate-General for Research and Innovation and Angelopoulos, C., Study on
EU copyright and related rights and access to and reuse of scientific publications, including Open Access –
Exceptions and limitations, rights retention strategies and the secondary publication right, 2022.
22 European Commission: Directorate-General for Research and Innovation and Eechoud, M., Study on the
Open Data Directive, Data Governance and Data Act and their possible impact on research, 2022.
23 European Commission: Directorate-General for Research and Innovation and Lundqvist, B., Study on the
Digital Services Act and Digital Markets Act and their possible impact on research, 2022.

19

These studies identified key challenges in accessing and reusing scientific publications and
data for research, for example how common copyright and licensing conditions in publishing
agreements often restrict Open Access to scientific publications. Proposed solutions include
rights  retention  strategies,  harmonising  copyright  laws,  and  introducing  an  EU-wide  SPR.
Regarding  data,  challenges  include  ownership  of  data,  lack  of  clear  frameworks  for  data
sharing, and issues with inconsistent standards, security, and licensing.

The  study  ‘Improving  access  to  and reuse of  research  results,  publications  and  data  for
scientific purposes’24 represented the main next step under ERA Action 2. Besides evaluating
the effects of the EU copyright framework on research and the potential impact of various
policy options, it identifies and presents relevant provisions for research in EU data and digital
legislation, with a focus on rights and obligations.

The findings highlight several key barriers faced by researchers, including limited access to
publications,  high  cost  of  making  research  output  available  in Open  Access,  difficulties  in
obtaining  copyright  permissions,  and 
infringement.  Research-performing
organisations  also  struggle  with  copyright  laws,  particularly  in  accessing,  reusing,  and
providing Open Access to publicly funded research.

fears  of 

2.2.1.

An EU wide Secondary Publication Right

Special  attention  was  given  to  investigate  the potential  for  an  EU-wide  SPR,  based  on
existing legislation in a set of Member States with SPRs (Germany, France, Belgium, Austria
Bulgaria,  and  the  Netherlands). The  study  found  that  researchers  reported  moderate
benefits, but many remain unaware of SPR, and research organisations find certain national
provisions limiting. The study analysed several legislative and non-legislative policy options
to remedy these shortcomings, including an EU-wide SPR, with different variations such as
broad definitions of research outputs, lowering public funding requirements, applying SPRs
to  the ‘version  of record’,  lowering  embargo  periods,  allowing  commercial  use,  and
remuneration schemes.

2.2.2.

Challenges related to the EU copyright acquis

The study also investigated how to reform and strengthen research exceptions available in
EU copyright law, such as a “fully harmonised, mandatory, and general exemption of scientific
research”. In addition, it highlighted the barriers faced by research-performing organisations
from the requirement of lawful access, including lack of subscriptions to copyright-protected
material  and  limitations  to  share  such  material  in  transnational  research  consortia.  In  the
same vein, the study pointed to a need for actions against excessive technological protection
measures, hindering the application of ‘research exceptions’.

Furthermore,  the  study  highlighted  the  complexity  of  relying  on  non-commercial  use
exceptions, in particular for public-private research partnerships. To support lawful text and
data  mining  (TDM),  the  study  also  found  that  stakeholders  welcome  clarifications  on  the
practical  use  of  TDM  provisions.  Finally,  the  study  also  investigated  umbrella  licensing
solutions and remuneration regimes analogous to the investigation of SPRs.

2.2.3.

EU data and digital legislation

Additionally,  the  study  examined  the  interplay  of  EU  data  and  digital  laws  with  research,
identifying complexities and providing recommendations concerning the Open Data Directive,
the  Data Governance  Act,  Digital  Services  Act, Digital  Markets  Act,  Data Act, AI  Act, and
EOSC. In these legal acts, the needs of research stakeholders are often not systematically

24 European  Commission: Improving  access  to  and  reuse  of  research  results,  publications  and  data  for
scientific purposes – Study to evaluate the effects of the EU copyright framework on research and the effects
of potential interventions and to identify and present relevant provisions for research in EU data and digital
legislation, with a focus on rights and obligations, 2024.

20

addressed.  This  complex  landscape  affects  legal  compliance  and  limits  benefits  for
researchers and research organisations.

The key results of this study highlight the risk of losing consistency across legal acts, possible
negative  effects  of  complex  access  and  reuse  regimes,  and  inconsistent  recognition  of
academic freedom as values underpinning also data and digital legislation.25 In turn, actions
such as standardising terminologies, integrating research into regulatory tools, and regularly
monitoring compliance challenges could address these issues. Consistent provisions across
legal acts could also reduce compliance burdens.26

Assessment  of  the  progress  towards  the  ERA  Action  2  objectives
over the 2022-2024 period

2.3.1.

Assessment  of  progress  towards Specific Objectives:  main  initiatives
and outcome

The studies conducted on EU copyright and related rights, access to scientific publications,
and data reuse contributed to observed progress in ERA Action 2 objectives by providing a
comprehensive analysis of the barriers and challenges faced by researchers in accessing,
utilising, and sharing publicly funded research outputs. The table below summarises the main
initiatives and outcomes delivering on the Action’s specific objectives.

Table 3 Assessment of the progress towards Action 2 Specific Objectives: initiatives
and outcome

Specific objectives27

Main initiatives implemented

Main outcome



Identify barriers and
challenges to the access to
and reuse of publicly funded
R&I results and of
publications and data for
scientific purposes, and
identify potential impacts on
research, through an
analysis of relevant
provisions under EU
copyright and data
legislation and related
regulatory frameworks, and
of relevant institutional and
national initiatives

 Propose legislative and non-
legislative measures to
improve the current EU
copyright and data
legislative and regulatory
frameworks

 Study on EU copyright and
related rights and access to
and reuse of scientific
publications, including Open
Access

 Study on EU copyright and
related rights and access to
and reuse of data

 Study on the Open Data

Directive, Data Governance
and Data Act and their
possible impact on research
 Study on the Digital Services
Act and Digital Markets Act
and their possible impact on
research

 Study: Improving access to
and reuse of research
results, publications and
data for scientific purposes
 Call in 2023-2025 Horizon

Europe Work Programme on
“Capacity building on
Intellectual Property (IP)
management to support
Open Science” (IP4OS





Identification of copyright
challenges on access to and
reuse of research outputs
Identification of barriers to
access for researchers and
institutions



 Analysis of the impact of
legal acts on research
Identification of policy
options such as EU-wide
SPR, harmonised and
strengthened general
research exception to EU
copyright rules, horizontal
data access rights of EU
data and digital legislation
etc.

25 Ibid.
26 Ibid.
27 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

21

Specific objectives27

Main initiatives implemented

Main outcome

project) to be implemented
in 2025-2026

Source: Technopolis Group, based on data collected through desk research and interviews

Studies identified key obstacles such as legal uncertainty and fragmented implementation of
research  exceptions,  issues  over  access  and  making  research  output  available  in Open
Access, and the lack of awareness surrounding SPRs available at national level. Additionally,
by examining the implications of several regulations and directives, the studies highlight how
the current EU copyright and data legislative framework affects research collaboration, data
access  and sharing  practices,  and  the  need for attention to  the  needs of  researchers  and
research organisations in EU copyright, digital and data legislation. A remaining challenge is
the complexity of existing copyright, data and digital legislation. The findings can serve as a
foundation for developing targeted measures underpinning the goals of ERA Action 2.

ERA Action 2 was largely implemented through stakeholder consultations and expert studies.
A  new  Horizon  Europe  project, IP4OS,  addressing  some  of  the ERA Action  2  objectives
started in January 2025.

2.3.2. Challenges and opportunities towards future ERA initiatives

The studies have provided evidence, identified policy options and created a foundation for
future ERA initiatives. The 2024 study employed a multicriteria analysis which suggests an
overall positive social/scientific impact of the explored policy options in terms of accessing
and  reusing  research  results,  collaboration  opportunities  and  in  general  on advancing
research and innovation. However, the economic impact assessment of the policy options is
based on a small dataset and found mixed effects, as research-performing organisations will
gain more resources while certain publishers will lose revenue. To better understand these
effects, an in-depth economic impact analysis of the identified policy options is planned for
the next ERA Policy Agenda.

3. Action  3:  Advance  towards  the  reform  of  the  assessment
system  for  research,  researchers  and  institutions  to  improve
their quality, performance and impact

Key  findings  Action  3:  Advance  towards  the  reform  of  the  assessment  system  for
research,  researchers  and  institutions  to  improve  their  quality,  performance  and
impact

During the review period, ERA Action 3 initiatives supported the reform of the assessment
system for researchers, including through the promotion of a broader recognition of research
contributions,  and  enhanced  and  responsible  use  of  qualitative  assessment  tools  and
metrics:



Expanded Coalition  for  Advancing  Research  Assessment  (CoARA),  which  has
grown to over 700 member organisations, established 13 working groups, and formed
16 national chapters. Over 150 institutional action plans have been developed and are
now entering the implementation phase. CoARA Boost has provided significant support,
including  cascading  grants  to  implement  reform  actions  and  fostering  international
collaboration.

22





Horizon Europe projects supporting reform, such as OPUS, SciLake, GraspOS, and
SECURE, piloting new assessment frameworks, building data infrastructure, enhancing
career frameworks, and integrating Open Science practices into research evaluation.

Integration of reform into funding programmes, including the European Universities
Initiative  and  the  European  Excellence  Initiative,  have  engaged  Higher  Education
Institutions in research assessment reform, with some alliances developing strategies
and piloting new approaches.

These  achievements  substantially  contributed  to advance  ERA  Action  3.  However,
challenges remain, such as fostering greater diversity and inclusion in assessment practices,
addressing cultural and structural barriers, and ensuring consistent implementation across
Member States.

Objectives and scope of ERA Action 3

Purpose of the action:28

ERA Action  3  aims  to reform  the  research  assessment  system to  better  evaluate  the
quality  and  performance  of  researchers  and  institutions.  The  reformed  system is being
designed  to  be  robust yet  flexible,  accommodating the diversity of  countries and  research
cultures across Europe. A core principle is to reflect a broader range of research activities
and  outputs  in  research  assessment  procedures,  the  responsible  use  of  metrics,  and  the
application of  more  qualitative  assessment  tools. Key  priorities  include  promoting Open
Science practices, fostering greater collaboration and knowledge-sharing, and enhancing
data availability and exchange for assessment. These efforts are intended to increase the
efficiency, transparency, and fairness of assessment practices, ultimately improving research
quality and impact.

Figure 3 Identified problems and defined objectives of ERA Action 3

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

28 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

23

Status of ERA Action 3 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):29

A key  achievement  of  the  first  phase  was  the  finalisation  of  Agreement  on  Reforming
Research  Assessment  (ARRA)  in  mid-2022  together  with  a  core  group  of  stakeholders,
following  a European Commission  study released in  November 2021.30 Subsequently, the
Coalition for Advancing Research Assessment (CoARA) was officially set up in late 2022,
inviting  stakeholder  organisations  to  sign  the  Agreement  and  to  become  members  of  the
Coalition.  CoARA  is  based  on  ten  commitments  of  the  ARRA  and  establishes  a  common
direction  for  research  assessment  reform. Besides  the  establishment  of  CoARA,  several
Horizon Europe calls and projects supporting research assessment reform were launched.

Between  mid-2023  and  late  2024,  substantial  advances  were made  in  implementing  ERA
Action  3.  This  includes  the  expansion  of  work  under  the  umbrella  of  CoARA,  the
implementation of several Horizon Europe projects supporting research assessment reform
from different angles, and the continued efforts to mainstream assessment reform in other
funding programmes.

3.2.1. Coalition for Advancing Research Assessment

As of August 2024, over 700 organisations had signed the agreement on reforming research
assessment. CoARA has thus significantly grown in the past year and has established a
stable governance system including a General Assembly and a Steering Board. More than
150  organisations  have  put  forward  an action plan  on  how  they  intend  to  implement
commitments contained in the agreement.31

Under  the  CoARA umbrella, a  range  of  working  groups  and  national  chapters  have
started  operations. So  far, 13 working  groups have  been  approved,  and 16 national
chapters have formed. The national chapters aim to identify potential legal and administrative
barriers  and  come  up  with  solutions, while  working  groups  function  as ‘communities  of
practice’ allowing CoARA members to work on common thematic areas. By participating in
working groups, members can pilot new approaches to research assessment and contribute
to collective progress. Member organisations benefit from: (1) Knowledge exchange: sharing
best practices and lessons learned with peers; (2) Support for early reformers: organisations
just beginning their reform journey can learn from those further along in the process; and (3)
Innovative solutions: CoARA fosters an environment where new ideas for assessment can
be developed and tested.

The 36-month CoARA  Boost project,  launched  in  October  2023,  is  an  integral  part  of
CoARA’s mission. It functions as a secretariat for various operations of CoARA. Its primary
objectives  are  to enhance  CoARA’s  operational  capacity,  support  the  implementation  of
research  assessment  reforms,  and  assist working groups  in  exploring  new  models  of
research evaluation. Additionally, the project aims to expand the global reach of CoARA’s
reform  efforts  by  increasing  its  international  membership  and  fostering  stronger  global
cooperation in the evolution of research assessment practices.

Through  the  support  of CoARA  Boost,  a  cascading  funding  mechanism  supports  the
implementation  of  CoARA  action  plans  and  research  assessment  reform.  The  first  call
received 72 applications out of which 25 proposals were successful.32

29 European Commission: Andriescu, M. and Collier, N. (eds.), ERA monitoring 2023 – 18-month review of the
implementation of the ERA policy agenda ('EU-level report'), 2023.
30 European Commission: Towards a reform of the research assessment system – Scoping report, 2021.
31 See https://zenodo.org/communities/coara_action_plans
32 https://coara.eu/news/25-projects-selected-for-the-first-cascade-funding-call/

24

3.2.2. European projects addressing research assessment reform

Several EU-level projects that support the objectives of the ERA Actions have commenced.
Their contributions include:

 Open  and  Universal  Science (OPUS), which supports  research  assessment  system
rerforms by  designing  coordination  and  support  measures, and  incentivising Open
Science. This  initiative  is  moving  away  from  the  traditional  impact  factors  in  research
assessment towards new methods that align with Open Science initiatives.

 SciLake aims  to  establish  a  “scientific  lake”  for  research  assessment  where  scientific
knowledge  is “contextualised,  connected,  interoperable,  and  easily  accessible”.  These
services  are  tailored  to  scientific  merit  and  include  automated  assessments  of
reproducibility, replication, and the scientific, societal, or economic impact of research.33
 GraspOS is contributing to research assessment reform. It is developing and piloting an
Open Science-aware responsible research assessment framework, focusing on tools and
services that support fair and transparent evaluation practices.

 SECURE aims to enhance sustainable research careers while addressing challenges in
modern  research  assessment  systems.  It  focuses  on  developing  and  implementing  a
common  Research  Career  Framework  that  supports the recruitment, employment,
training,  career  development,  progression,  and  mobility  of  researchers. Other  projects
launched in previous years but active during the second phase of the ERA Agenda include
DocTalent4EU and GRANteD.

3.2.3. Contributions under other funding programmes

Along  the  same  principle,  the  initiative  of  the European  University  alliances, and  their
activities in research assessment, represent an important vehicle to support higher education
institutions in reforming research assessment. The network now encompasses 64 alliances,
and it has expanded significantly, now comprising around 560 higher education institutions
across Europe.34 A 2024 study on the implementation of the University Alliances found that
16% of alliances had a strategy for reforming research assessment, while 49% reported it as
being under development.35 A detailed report on different instruments contributing to research
assessment reform from March 2024 provides further analyses of different approaches within
European University alliances.36

The European Excellence Initiative (EEI) is another instrument featuring a component for
mainstreaming the reform of research assessments. From a call launched in early 2023, 12
proposals were selected and began operations in early 2024.

33 SciLake, EOSC projects advancing the research assessment reform, 2024.
34 On  the European  Universities  initiative see: https://education.ec.europa.eu/education-levels/higher-
education/european-universities-initiative
35 European  Commission:  Directorate-General  for  Research  and  Innovation,  O’Sullivan,  F.,  Jefferies,  I.,
Gautier, N. and Anwad, F., Assessment of the Horizon 2020 support to the European University Initiative –
Analytical report prepared within the study ‘Towards a European Excellence Initiative’, 2023.
36 European  Commission:  European  Research  Executive  Agency,  Oancea,  A.  and  Wilson,  S., Report  on
research assessment, 2024.

25

Assessment  of  the  progress  towards  the  ERA  Action  3  objectives
over the 2022-2024 period

3.3.1.

Assessment  of  progress  towards Specific Objectives:  main  initiatives
and outcome

The  table  below  summarises  the  main  initiatives  and  outcome  delivering  on  the specific
objectives of ERA Action 3.

Table 4 Assessment of the progress towards Action 3 Specific Objectives: initiatives
and outcome

Specific objectives37

Main initiatives implemented

Main outcome

Analysis of legal and
administrative barriers at
national and trans-national level
for a modern research
assessment system

 SECURE

 GRANteD

 SUPERA

 GraspOS

 ORION

 OPUS

 SciLake

Create a coalition of European
research funders and research
performers who agree on a new
approach for research
assessment, following wide and
inclusive consultations at
European and international level

Implementation plan of the
coalition to roll-out the new
approach, including pilots in
different domains

 DocTalent4EU

 Support studies on research

assessment reform

 CoARA

 Support through CoARA

Boost

 Mainstreaming European
Universities Initiative and
European Excellence
Initiative

 Cascading grants in CoARA

Boost

 Research career framework



Training on gender equality
and gender-sensitive
research assessment

 Research Assessment

Framework



Federated Open
Infrastructure

 Promotion of Open Science

practices

 Scientific Lake

 A coalition of over 700

organisations committed to
improving research
assessment practices

 CoARA working groups and

national chapters



Increased operational
capacity of CoARA

 More than 150 institutional

action plans

 Support for research

assessment reform in EEI
and European University
Consortia

Source: Technopolis Group, based on data collected through desk and interviews

A major success of ERA Action 3 is the growth of CoARA in quantitative and qualitative terms.
Individual  projects such  as GRANteD, SECURE’s, OPUS, DocTalent4EU, or  SciLake
delivered  individual  outcomes  relevant  to ERA Action  3,  such  as  infrastructure  for Open
Science research assessment or AI-assisted services for research evaluation.

Finally, the picture is completed through progress within the European Universities Initiative,
including benchmarking exercises on a research assessment reform, reviewing alternative
approaches  to  evaluation,  developing  recommendations,  and  raising  awareness  of  new
assessment paradigms.

These  achievements  overall  underscore  the  progress  of  initiatives  under ERA Action  3  in
promoting research assessment reform. Notable is the diversity of stakeholders engaged in

37 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

26

CoARA,  encompassing  higher  education  institutions,  research  performing  organisations,
funders,  evaluation  agencies,  research  organisations  and  other  bodies,  all  of  which  are
crucial to enact a systemic reform of research assessment.

3.3.2.

Challenges and opportunities towards future ERA initiatives

Work within ERA Action 3 and specifically CoARA has focussed on growing the stakeholder
community and developing the overarching principles for research assessment reform. This
work, for instance in Working Groups and National Chapters is now translating into action,
meaning that the first direct effects on research assessment practices will only materialise in
the coming years. There is also further potential to grow the participation in CoARA to a more
balanced representation of Member States, as well as internationally.

Similarly, mainstreaming through the EU funding requirements – such as reform components
within  European universities  and the European  Excellence  Initiative as  well  as  within
dedicated Horizon Europe projects – will require continued attention to deliver the anticipated
long-term impacts.

As for thematic challenges, the 2024 Report on Research Assessment identifies the limited
focus on developing systematic approaches to qualitative evaluation as a shortfall. Important
aspects  such  as  diversity,  socio-economic  status,  ethnicity,  and the intersectional  roles  of
researchers  receive  insufficient  attention.  Moreover,  cultural  and  structural  challenges
continue to hinder full implementation, including issues such as limited access to funding and
lack of coordination between institutions. Addressing these gaps in future agendas can be
crucial for achieving a more inclusive and effective research assessment system.38

4. Action 4: Promote attractive research careers, talent circulation

and mobility

Key  findings  Action  4:  Promote  attractive  research  careers,  talent  circulation  and
mobility

During  the  review  period, ERA  Action  4  promoted  attractive  and  sustainable  research
careers, balanced talent circulation, and improved inter-sectoral and interdisciplinary mobility,
focusing on improved working conditions, supportive frameworks, and accessible resources
for researchers:











A new Council Recommendation provides a European framework to attract and
retain research,  innovation  and entrepreneurial  talents  in Europe.  It bundles  the
previous  Charter  and  Code  for  researchers  into  a  new European  Charter  for
Researchers.

The ERA Talent Platform bundles existing and new tools such as EURAXESS, the HR
Excellence in Research award, RESAVER, ReICO, ResearchComp, and the Innovation
Talent Platform under a single point of entry.

The  partnership  on  the Research  and  Innovation  Careers  Observatory (ReICO)
between the European Commission and the OECD promises improved insights into the
impact of these actions on researchers’ careers.

Two Mutual  Learning  Exercises (MLE) under  the  Horizon  Europe  Policy  Support
Facility (PSF) provide good practices for the implementation of the new framework and
tools at national level.

A Horizon  Europe  pilot  call  will  create  Talent  Ecosystems centred  around  early-
career  researchers,  supporting  inter-sectoral  partners  to  implement  the  European

38 European Commission: European Research Executive Agency, Report on Research Assessment, 2024.

27

Charter  for  Researchers  and  improving  the  working  conditions  and  employability  of
researchers. Other Horizon Europe projects provide important deliverables contributing
to more attractive research careers.

A challenge is to promote and support further implementation of the new measures beyond
2024,  with  a  view  to  improving  national  R&I  systems  and  making  Europe  an  attractive
destination for EU and international ‘top talents’.

Objectives and scope of ERA Action 4

Purpose of the action:39

ERA Action 4 aims to enhance the appeal and sustainability of research careers across
Europe, ensuring better working conditions and resources for researchers. The Action seeks
to contribute to attracting researchers to and retaining them in Europe, as well as a balanced
‘talent circulation’ across Member States.

Figure 4 Identified problems and defined objectives of ERA Action 4

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

39 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

28

Status of ERA Action 4 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):40

The implementation of ERA Action  4 during the first phase built on the May 2021 Council
Conclusions.41 A  key  step  was  the  preparation  of  the Commission  proposal  for  a  Council
Recommendation on a European framework to attract and retain research, innovation and
entrepreneurial  talents  in  Europe,  including  the  new  European  Charter  for  Researchers.42
ResearchComp43 was developed to support inter-sectoral mobility of researchers.

The period from mid-2023 to late 2024 was marked by several key milestones towards the
achievements of the objectives of ERA Action 4, which operates in synergy with other ERA
Actions such as 3, 5, 6, 13, and 17. Originally, the Action also included ‘ERA4You’, which
was  not  implemented  as  a  standalone  initiative  following  feedback  from  the  ERA  Forum.
Individual components of ERA4You were taken forward  anyway, such as ResearchComp,
the  Talent  Ecosystems  call  and  a  MLE  on  research  careers  contributing  to  a  balanced
circulation of talents.

4.2.1.

2023  Council  Recommendation  and  new  European  Charter 
Researchers

for

Building  on  the  Council conclusions of 2021,  which  highlighted  the  need  for  an  "internal
market for research"44 and revisions to the 2005 Charter and Code for Researchers, a new
framework  was  developed  in  2023.  Following  the  European  Commission  proposal  in  July
2023, the Council Recommendation on a European framework to attract and retain R&I
and  entrepreneurial  talent  in  Europe45 was  adopted  in  December  2023,  with  a  new
European  Charter  for  Researchers.46 The  revamped  Charter  combines  the  previous
Charter and Code, with additional principles and responsibilities for researchers, employers,
and  funders  to  foster  productive  relationships  and  support  working  conditions  and  career
development for  researchers in  all  sectors.  The  Charter  recognises  researchers’  diverse
roles, including research, supervision, mentoring, and administration.47 The adoption of the
new  Charter, via  a  Council  Recommendation stemming  from  Member  States, attributes  a
higher  relevance  compared  to  the  old  Charter  and  Code,  which  was  embedded  in  a
Commission Recommendation.

4.2.2.

Updated online presence

Following the launch of a new ResearchComp website in July 2023, the ERA Talent Platform
went live in 2024. ResearchComp is a competence framework that helps researchers assess

40 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.
41 Council of the European Union, Council conclusions on “Deepening the European Research Area: Providing
researchers  with  attractive  and  sustainable careers  and  working conditions  and making  brain circulation  a
reality”, 2021.
42 Proposal for a Council Recommendation on a European framework to attract and retain research, innovation
and entrepreneurial talents in Europe, COM(2023) 436 final.
43 European Commission: ResearchComp: The European Competence Framework for Researchers.
44 Council of the European Union, Council Conclusions on “Deepening the European Research Area: Providing
researchers  with  attractive  and  sustainable  careers and  working conditions  and making  brain circulation  a
reality”, 2021.
45 Council Recommendation C/2023/1640 of 18 December 2023 on a European framework to attract and retain
research innovation and entrepreneurial talents in Europe.
46 European Commission, The European Charter for Researchers.
47 Ibid.

29

and develop transversal skills, preparing them for non-academic careers. It also enables HEIs
and training  providers to align their offerings  with researchers needs and helps employers
identify  highly  skilled  talent.  The  ERA  Talent  Platform  is  an  integrated  gateway  offering
access  to  a  comprehensive  range  of  services,  including  EURAXESS,  ResearchComp,
RESAVER, the HR Excellence in Research process, and ReICO. Its mission is to increase
the  visibility  and  accessibility  of  the  services  and  tools  vis-à-vis  the research  stakeholder
community.

Together with  the  update of the  European  Charter for Researchers,  the HR Excellence in
Research Award initiative,  which  supports  research  institutions  and  funding  bodies  in
applying the Charter for Researchers, underwent updates. Revisions of the implementation
mechanism and the online tool took place.

The ERA Talent Platform also covers the RESAVER initiative, which offers a pension solution
to enhance researcher mobility across Europe and help organisations attract and retain top
talent.  From  2023  to  2024,  RESAVER  focused  on  expanding  its  geographical  reach  and
continually improving its offerings in existing areas in order to better support researchers and
research institutions.48

4.2.3.

Mutual Learning Exercises supporting researchers’ careers

Two Policy Support Facility MLEs supporting researchers’ careers were launched between
2023-2024,  one  focusing  on  knowledge  valorisation  and inter-sectoral mobility49 (joint
initiative covering Action 4 and Action 7), and one focusing on research careers.50 The MLEs
support the exchange of good practices to ERA countries on the implementation of the new
framework and the European Charter for Researchers.

4.2.4.

Research and Innovation Careers Observatory

The Research and Innovation Careers Observatory was launched as a joint action between
the OECD and the European Commission. It monitors researchers’ skills and training needs,
their career progress on, and their mobility. Data is scheduled to be accessible via the ERA
Talent Platform as of the second quarter of 2025.

4.2.5.

Horizon Europe projects supporting research careers

A Horizon Europe pilot Talent Ecosystems call for early-career researchers was launched in
the  WIDERA  work  programme  2023-2025, promoting  attractive,  sustainable  working
conditions and employability in line with the new European Charter for Researchers and the
European Framework for Research Careers. Consortia are expected to collaborate across
academic, private, and public sectors to create career pathways that meet the skills demands
of today’s labour market. Ten projects are expected to be funded with the aim of providing
policy feedback to the European Commission and Member States.

The SECURE and DocTalent4EU projects made progress considered to be highly relevant
to  the  implementation  of  the  new  European Framework. Notably,  deliverables focus  on  a
toolbox of options for research organisations in their efforts to undertake reforms, on Tenure-
Track-Like  models,  on  skills  training,  and  on  the  development  of  Talent  Management
Centres.

48 European Commission: RESAVER – Retirement Savings Vehicle for European Research Institutions, 2016.
49 European Commission: Mutual Learning Exercise on Knowledge Valorisation-Focus on Skills, Intersectoral
Cooperation and Incentive Systems.
50 European Commission: Mutual Learning Exercise on Research Careers.

30

Assessment  of  the  progress  towards  the  ERA  Action  4  objectives
over the 2022-2024 period

4.3.1.

Assessment  of  progress  towards Specific Objectives:  main  initiatives
and outcome

The  table below  summarises  the  main  initiatives  and  output/outcome  delivering  on  the
specific objectives of ERA Action 4.

Table 5 Assessment of the progress towards Action 4 Specific Objectives: initiatives
and outcome

Specific objectives51

Main initiatives put in place

Main outcome

Development of a
European Framework for
Research Careers and
toolbox of support
measures to improve
attractiveness of research
careers



2023 Council
Recommendation on a
‘European framework to
attract and retain research,
innovation and
entrepreneurial talents in
Europe’

 Horizon Europe projects

(SECURE, DocTalent4EU)

Launch an observatory on
research careers



Launch of the Research and
Innovation Careers
Observator

Revise Charter and Code
for Researchers

 New European Charter for

Researchers

Set up the ERA Talent
Platform as the one-stop-
shop online gateway to
EURAXESS services,
network and portals
including HRS4R, and
RESAVER

 ERA Talent Platform

 EURAXESS

 HR Excellence in Research

 RESAVER

 ResearchComp

 ReICO

Innovation Talent Platform

Two PSF MLEs







Exchange of good
practices with regard to
R&I systems to support
balanced brain circulation

Pilot with European
universities alliances the
European Framework for
Research Careers

 Concrete recommendations to
promote research careers and
boost an ‘Internal Market for
Research’



Toolbox of measures to support the
implementation of the new
Framework for Research Careers

 Data on researchers’ skills and

trainings, their careers, and their
mobility, to support evidence-based
policy-making





755 organisations have obtained
the HR Excellence in Research
award based on the European
Charter for Researchers

Framework supporting researchers,
regardless of their career stage,
sector, or discipline

 Comprehensive online gateway for
researchers and research and
innovation institutions, providing
direct access to a range of services

 Establishment of new initiatives
(e.g., ResearchComp, ReICO).

 Revamp of initiatives (e.g.,

RESAVER, EURAXESS) adapting
to evolving context and needs

 Set of actionable practices and

policy instruments to be used by
policy-makers at national level

Talent Ecosystems for early-
career researchers



Ten projects expected to be funded
under the call

Source: Technopolis Group, based on data collected through desk and interviews

51 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

31

4.3.2.

Challenges and opportunities towards future ERA initiatives

Fostering  attractive  research  careers,  talent  circulation  and  mobility  will  remain  relevant
beyond the duration of ERA Action 4. Exploiting the Framework and tools developed under
the Action depends on support and activities such as exchanging good practices and lessons
learned,  for  instance  with  the  Horizon  Europe  Talent  Ecosystems  pilot  call,  fostering
Communities  of  Practice,  guidelines  and  recommendations,  and  further  investments.  In
addition, a consolidated and sustainable ReICO will permit robust monitoring of researcher
careers and subsequent evaluation of the effectiveness of current interventions.

5. Action  5:  Promote  gender  equality  and  foster  inclusiveness,

taking note of the Ljubljana Declaration

Key findings Action 5: Promote gender equality and foster inclusiveness, taking note
of the Ljubljana Declaration

ERA Action 5, supported by the ERA Forum Subgroup on Inclusive Gender Equality in the
ERA, has addressed the structural barriers to gender equality through the implementation of
inclusive Gender Equality Plans (GEPs), and providing guidance on provisions tackling the
Gender-Based Violence (GBV), and on integrattion the gender dimensions into R&I content
and contexts.









The  introduction  of GEPs  in  Horizon  Europe as  an  eligibility  criterion  for  research
organisations,  HEIs  and public bodies in 2022  has strengthened or enhanced  further
development of new gender equality strategies, with spillover effects extending to the
private sector and and sustaining momentum in this reporting period.

A Zero-Tolerance Code of Conduct was developed by the Subgroup to address GBV
in  R&I,  supported  by  the  GENDERACTIONplus  and  GenderSAFE  projects.  The
publication  followed  up  the  debates  of  the  two  Presidency  conferences  focusing  on
‘Ending  Gender-Based  Violence  in  Academia’,  one  of  which  was  organised  in  the
autumn  of  2023  to  foster safe  and  inclusive  environments  in  academic  and  research
institutions.

The  INSPIRE-project  established  a Centre  of  Excellence  on  Inclusive  Gender
Equality. It also launched Knowledge and Support Hubs to assist over 95 institutions
with inclusive GEP implementation.

A  framework for the  integration  and  evaluation  of inclusive gender analysis  in R&I
content was developed by the Subgroup, supported by GENDERACTIONplus project.

During the reporting period, ERA Action 5 has further advanced the implementation of gender
equality  into  R&I  systems  and  fostered  structural  changes  through  inclusive  GEPs  and
intersectional  approaches.  However,  structural  impacts  are  slow  to  materialise, and
institutions often lack the capacity, skills, and leadership commitment needed to implement
effective changes. Enhanced monitoring and evaluation, along with greater opportunities
for experience-sharing and capacity-building,  will  be  crucial  to  achieving  the  long-term
objectives in this area.

32

Objectives and scope of ERA Action 5

Purpose of the action:52

The purpose of ERA Action 5 is to promote inclusive gender equality within the ERA. This
action



fosters inclusive GEPs
addresses inclusiveness by focusing on intersections of gender and other grounds of
discrimination, such as race, ethnicity, disability, and sexual orientation, to promote a
more inclusive R&I
tackles gender-based violence, including sexual harassment, in the European R&I
system to ensure safe working environments
increases the excellence and societal relevance of research and innovation by
incorporating the gender dimension in R&I content
advances gender mainstreaming policies within R&I
aims to bridge the gap between policy adoption and implementation








Figure 5 Identified problems and defined objectives of ERA Action 5

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

52 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

33

Status of ERA Action 5 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):53

Several calls under ERA Action  5  launched  in  2021-2022 and implemented throughout
2022/23 showed positive signs of delivering in 2024. Notable projects were GenderSAFE,
GENDERACTIONplus, 
INSPIRE,  or  Gender-NET  Plus.  The  various  projects  were
instrumental  in  developing  inclusive  GEPs,  setting  up  a  community  of  practice, and
developing guidelines and codes.

Furthermore, a dedicated subgroup on ‘Inclusive Gender Equality in the European Research
Area’ was established in 2023 to support the  implementation of ERA Action  5 of the  ERA
Policy Agenda 2022-2024.

5.2.1.

Develop  a  policy  coordination  mechanism  to  support  gender  equality
through inclusive GEPs and policies

The ERA Forum Subgroup on Inclusive Gender Equality in the ERA, established in 2023,
met six times in the reporting period. It exchanged on the developments, provided advice to
the Commission, facilitated coordination and cooperation, and promoted the collection of sex-
and/or  gender-disaggregated  data,  building  on  previous  efforts  to  address  gender-related
challenges in the ERA. Two dedicated task forces were created to address key priorities: The
Task Force on Counteracting Gender-Based Violence produced the Zero-tolerance code of
conduct – Counteracting  gender-based  violence,  including  sexual  harassment,  in  the  EU
research and innovation system. The Task Force on the Gender Dimension in R&I Content,
authored the Framework for the integration and evaluation of an Inclusive Gender Analysis
in Research and Innovation Content.

(CSAs)  have  been  pivotal:
A  series  of Coordination  and Support Actions 
GENDERACTIONplus operates two Communities of Practice (CoPs) to support exchanges,
capacity-building, and mobilisation of expertise across EU countries with a ‘Policy Community
of Practice’ supporting national authorities, and the RFO Community of Practice. Additional
networking  initiatives  were  launched  or  implemented  as  a  part  of  the GenderNET  Plus,
INSPIRE, and GenderSAFE projects.

impacts  of 

The outcomes of the study Impact of Gender Equality Plans in the European Research
Area54 underscored  several  positive and crucial 
the  (inclusive)  GEP
implementations. The mandatory GEP requirement under Horizon Europe has driven public
research institutions to strengthen existing gender-equality strategies or develop new ones.
It  has  also  led  to  spillover  effects,  with  organisations  not  directly  subject  to  the  eligibility
criterion – such as private research funders – voluntarily adopting GEPs. The introduction of
a shared GEP definition  has harmonised national and institutional efforts across the ERA,
learning opportunities.
promoting  access 
Furthermore,  GEPs  have  improved  the  representation  of  women  in  leadership  roles,
addressed work-life balance issues, and facilitated the integration of gender dimensions into
research content and design.

tools,  guidelines,  and  mutual 

to  shared 

A benchmarking report by GENDERACTIONplus focused on the monitoring and evaluation
of  GEPs.  Given  that  this  poses  challenges  to  Member States,  the  project  developed
guidelines  for  establishing GEP  monitoring  systems and GEP  impact  evaluation  system

53 European  Commission:  Directorate-General  for  Research and  Innovation,  Andriescu,  M.  and  Collier,
N.,(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.
54 European Commission: Impact of gender equality plans across the European Research Area, Main Report,
2025; Policy briefs, 2024.

34

guidelines. The report noted that EU-level guidance on monitoring and evaluating GEPs is
needed.55 This will be one of the tasks of the upcoming ERA Policy Agenda.

5.2.2.

Develop  a  strategy  to  counteract  gender-based  violence  and  assure
gender equal and inclusive working environments through institutional
change in any research funding or performing organisation

To address the pervasive issue of GBV in R&I, several initiatives have been undertaken to
promote safe and inclusive environments. This includes a Spanish Presidency conference
on Ending Gender-Based Violence in Academia II in October 2023. The publication ‘Zero-
Tolerance Code of Conduct on Counteracting Gender-Based Violence’ was discussed during
the R&I Days in March 2024 and introduced at the ERA Conference in September 2024.

At the project level, GENDERACTIONplus conducted analyses of existing policies on GBV.56
The GenderSAFE project continues to provide support to research and HEIs in establishing
safe,  inclusive  and  respectful  environments.  Despite  progress,  there  is  still  a  lack  of
comprehensive policies at the national and institutional levels in the majority of EU Member
States, with scarce and unsystematic activities and measures at the institutional level. This
calls for additional efforts in advancing the agenda on ending GBV in the ERA.57

5.2.3.

Develop  a policy  approach  to  inclusive gender  equality  that  addresses
gender  mainstreaming  and  opening  to  intersectionality  with  other
diversity dimensions

The integration of an intersectional perspective into the GEPs is another facet of Action
5. Recognising that inequalities are often multi-dimensional and intersecting, this approach
broadens  the  focus  to  other  diversity  dimensions,  such  as  ethnicity,  disability,  and  sexual
orientation.

The INSPIRE  project has established  a  European  Centre  of  Excellence  focused  on
inclusive gender equality in research and innovation.

To support the implementation of inclusive GEPs, the Horizon Europe WIDERA programme
also funded in this reporting period projects on implementing inclusive GEPs through the call
HORIZON-WIDERA-ERA-2024-01-11.58 Furthermore,  resources  have  been  allocated  to
fostering  transnational  partnerships  for  policy  enforcement,  advancing  intersectional
research through Horizon Europe Cluster 2 (Culture, Creativity and Inclusive Society).

In addition, the EU Award for Gender Equality Champions includes a category on ‘Inclusive
Gender  Equality  Champions’
to  support  organisations  implementing  their  GEPs  in
broadening the scope of their gender equality policies. Inclusivity and intersectionality remain
a challenge as evidenced by the fact that no organisation was able to pass the threshold to
be awarded in the Inclusive Gender Equality Champions category in 2024.

5.2.4.

Develop  principles  for  the  integration  and  evaluation  of  the  gender
dimension in R&I content in cooperation with national Research Funding
Organisations (RFOs)

To further support the development and incorporating of the intersectional perspective, the
Task Force on Gender Dimension in R&I content of the ERA Action 5 subgroup drafted a

55 GENDERACTIONplus, Position Paper, A new era for GEPs: an active role for the European Commission.
56 See https://genderaction.eu/gender-based-violence
57 GENDERACTIONplus, Position Paper, Gender-based violence in the ERA: an endemic problem in need of
a new cure, 2024.
58 European Commission, Transforming R&I organisations and advancing the ERA through gender equality
and inclusiveness in SEE.

35

‘Framework for the integration and evaluation of an inclusive gender analysis in research and
innovation content’.59 This  document  provides  guidance  to  national  authorities  and  R&I
funding  organisations  on  policy  measures  to  ensure  the  effective  implementation  and
evaluation of the integration of the gender dimension in R&I content from an intersectional
perspective.

Additionally, the GENDERACTIONplus project set up a community of practice of RFOs and
developed an eLearning course on the gender dimension in R&I for Horizon Europe National
Contact Points.60

The integration of a gender perspective in R&I content ensures that R&I outcomes meet the
needs of a diverse population. It is also expected that it contributes to research quality. To
ensure that the allocation of funding is not affected by gender biases in the selection process,
the GRANteD project  developed  a  framework  to  identify  and  address  gender  biases  in
research grant allocation. It is expected that CoARA under ERA Action 3 will build on this
work.

Assessment  of  the  progress  towards  the  ERA  Action  5  objectives
over the 2022-2024 period

5.3.1.

Assessment  of  progress  towards Specific Objectives:  main  initiatives
and outcome

Given the problem drivers which manifest at a higher, societal level, the endeavour at EU-
level through project funding under the Framework Programmes has so far mainly impacted
participants in dedicated calls.

The GEP eligibility requirement in Horizon Europe has propelled the gender equality objective
from the level of individual researchers and study groups to the attention of the management
of  research-performing  institutions,  and  thus  to  a  level  which  is  decisive  for  institutional
change.

However, there is a risk in the GEPs adopted being a tick-box exercise. This reinforces the
need for a coordinated approach at EU level to monitor and evaluate GEPs more efficiently.
The monitoring  and  assessment  of  the  developments and  effects of  GEP  implementation
remains a challenge. As noted by the ERA Forum Subgroup on Inclusive Gender Equality, it
is of concern that the activities of ERA Action 5 do not manifest in monitoring indicators such
as the SHE Figures.61

Overall, each of the individual Action 5 actions are complex. The goals cannot be achieved
through  a  single  action  or  activity. Furthermore,  it  takes  a  long  time  before  impacts  are
measurable. For  the  R&I  system’s  necessary  structural  change,  a  joint  agreement  and
commitment  is  needed  by  the  various  actors.  Their  implementation  requires  a  continuous
effort,  involving  numerous  activities  and  initiatives, and it  needs  to  be supported  by  an
efficient monitoring scheme or platform.

The  table  below  summarises  the  main  initiatives  and output/outcome  delivering  on  the
specific objectives of Action 5.

59 European Commission: Framework for the integration and evaluation of inclusive gender analysis in research
and innovation content, 2025.
60 Horizon Europe NCP Portal, Gender dimension in R&I for Horizon Europe NCPs.
61 Meeting summary ERA Forum Subgroup ‘Inclusive gender equality in the ERA’, Extraordinary meeting 31
October 2023.

36

Table 6 Overview of the progress towards Action 5 Specific Objectives: initiatives and
outcome

Specific objectives62

Main initiatives implemented

Main outcome

Develop a policy coordination
mechanism to support all
aspects of gender equality
through inclusive Gender
Equality Plans and policies, and
a dedicated EU network on their
implementation

Strategy to counteract gender-
based violence including sexual
harassment in the European R&I
system and to assure gender
equal and inclusive working
environments through
institutional change in any
research funding or performing
organisation

 Coordinated policy efforts,
promoting inclusive GEPs
across Member States,
fostering institutional
implementation and
alignment with ERA gender
equality objectives

 Standardised protocols and
policies for safe, inclusive
R&I environments, creating a
foundation for addressing
and reducing gender-based
violence in academic and
research settings

 Publication of the ‘Zero-

tolerance code of conduct’

 Operation of the ERA Action

5 subgroup and creation of
two task forces

 Support the coordination
with stakeholders to
establish a policy community
of practice
(GENDERACTIONplus
project): community of
practise (CoP) of the
national authorities

 GenderSAFE project

launched a call to set up
CoP of national authorities
focused on gender-based
violence in R&I

 Spanish Presidency

conference on: Ending
Gender-Based Violence in
Academia II (Bilbao 23-24
Oct. 2023)

 GenderSAFE project
launched to support
implementation of the Zero-
tolerance Code of Conduct

 GENDERACTIONplus
published report on
preventive measures in and
for RFOs and a template for
a zero-tolerance policy on
GBV in RFOs

 GEP implementing projects

include GBV among their
thematic foci

 GBV is a recommended







A policy approach to inclusive
gender equality that addresses
gender mainstreaming and
opening to intersectionality with
other diversity dimensions to
advance the new ERA

policy area to be included in
GEPs under the Horizon
Europe GEP eligibility
criterion

European R&I Days, March
2024: Session on: Towards
an ERA Free from Gender-
based Violence in Science

Centre of Excellence on
Inclusive Gender Equality in
R&I (INSPIRE project)



Support to gender and
intersectional research
(Horizon Europe Cluster 2)

Enhanced gender
mainstreaming in ERA
policies with intersectional
considerations, supporting
fair and inclusive career
progression within R&I

62 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

37

Specific objectives62

Main initiatives implemented

Main outcome







Integration of intersectional
perspectives into GEPs,
including ethnicity,
disability, and sexual
orientation

Second edition of the EU
Award for Gender Equality
Champions (May 2024)

Coordination with other
ERA Actions to foster
synergies (Action 4, Action
3, Action 13, Action 19)
within the subgroup

Develop principles for the
integration and evaluation of the
gender dimension in R&I content
in cooperation with national
Research Funding Organisations

 Development of a

 Principles and guidelines for





integrating the gender
dimension in R&I evaluations
developed

Framework established to
support Member States in
advancing inclusivity

Framework for the
integration and evaluation
of inclusive gender analysis
in R&I content

community of practice of
RFOs
(GENDERACTIONplus,
Gender-NET Plus)

 Establishment of the Task

Force on Gender Dimension
in R&I content under the
ERA Forum subgroup on
Inclusive Gender Equality

 Research project GRANteD
on gender disparities in
research funding allocation

 Gender dimension in R&I for

Horizon Europe NCPs – an
e-learning course created by
GENDERACTIONplus
project63

Source: Technopolis Group, based on data collected through desk research and interviews

5.3.2.

Challenges and opportunities towards future ERA initiatives

Significant progress has been achieved over the years, the pursuit of gender equality requires
however continuous  efforts.  The  GEP  eligibility  criterion  in  Horizon  Europe  is  having  a
positive impact at both organisational and national level, in addition to the EU funding made
available to organisations through the projects.

There are still significant challenges to address, including a limited understanding of inclusive
approaches to gender equality and GEPs, and how general gender equality principles can
be  translated  into concrete actions.  Human  and financial resources  at institutional  level  to
implement and monitor gender equality are often insufficient. Furthermore, the commitment
of  top-level  leadership  of  R&I  institutions  to  achieving  inclusive  GEP  objectives  is  often
lacking,  as  is  accountability  for  outcomes.  The actions  supporting  inclusive  GEPs  are
fragmented, and there is a lack of sustained political and policy support at national levels. A
disproportionate  burden  placed  on  women  to  lead  GEP  development,  sometimes  with
negative consequences for their research careers, and a limited focus on other vulnerable
groups.64

63 https://horizoneuropencpportal.eu/academy/gender-dimension-ri-horizon-europe-ncps
64 Ibid.

38

Since structural and institutional changes happen only gradually and are often qualitative in
nature, the monitoring and evaluation of gender equality policies remains a challenge. The
ERA Forum Subgroup on Inclusive Gender Equality proposed to fill this gap and make this a
priority in the next ERA Policy Agenda.

This Action shows that the impacts of activities manifest mainly in the long run and that a fit-
for-purpose evaluation framework still needs to be developed.

6. Action 6: Protect academic freedom in Europe

Key findings Action 6: Protect academic freedom

During the review period, ERA Action 6 sought to safeguard freedom of scientific research
and protect R&I from domestic and foreign threats. Initiatives focused on developing tools to
address foreign interference and promoting and protecting the freedom of scientific research:









Horizon  Europe  Policy  Support  Facility – Mutual  Learning  Exercise  on  tackling
foreign interference has been conducted in 2023-2024.

European digital one-stop-shop platform on tackling foreign interference is being
developed to consolidate resources and guidance and help researchers and institutions
address foreign interference challenges while upholding academic freedom.

Expert  consultations  revealed  the  complexity  of  establishing  a comprehensive  EU
monitoring mechanism for freedom of scientific research due to the diverse threats
and practical challenges.

Study is ongoing to provide an evidence base for a potential legislative proposal on
the promotion and protection of the freedom of scientific research in the EU.

ERA  Action  6  initiatives  have  made  significant  progress  to  protect  academic  freedom  in
Europe. However, feasibility studies revealed challenges in implementing certain objectives,
such as establishing a European monitoring mechanism and an Open-Source Intelligence
Tool (OSINT), which, given the complicated nature, has taken more time to start but will move
ahead in 2025.

Objectives and scope of ERA Action 6

Purpose of the action65:

ERA Action 6 aims to protect academic freedom in general and freedom of scientific research
in particular by protecting this freedom against domestic and foreign threats, including the
development  of  tools  to  address  foreign  interference  in  research  and  innovation  and
supporting R&I institutions in safeguarding their academic freedom, integrity and institutional
autonomy.

65 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

39

Figure 6 Identified problems and defined objectives of ERA Action 6

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

Status of ERA Action 6 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):66

On  18  January  2022,  the  European  Commission  released  a  Staff  Working  Document  on
Tackling  Research  and Innovation  Foreign  Interference  which  provides  a  comprehensive
strategy for tackling foreign interference in EU HEIs and RPOs across four categories: values,
governance, partnerships, and cybersecurity.

The European Commission published its European Strategy for Universities on 18 January
2022 to  ensure academic  freedom  in HEIs at  the  heart  of  all  higher  education  policies
developed at the EU level, as well as the Bologna Process. On 6 April 2022, the EU ministers
for  higher  education  adopted  Council  conclusions  and  recommendations  for  strategic
autonomy, emphasising freedom of scientific research across Europe. The future of science
and  technology initiative (STOA), or EP  Forum  for  Academic  Freedom, was  launched  in
November 2022 with the annual Academic Freedom Monitor being the key outcome of the
initiative.

The  period  from mid-2023  to  late  2024 was  marked  by  an  important  step  towards  a
harmonised common EU approach on research security as the Council adopted on 23 May
2024 a recommendation on enhancing research security. In addition, following the EP
Resolution  on  the  Promotion  and  Protection  of  Freedom  of  Scientific  Research,  which

66 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

40

prompted  a legislative  proposal  on  this  matter,  the  European  Commission  has  been
conducting a scoping study.

It  identifies  risks  relating  to  the  areas  of  undesirable  transfer  of  knowledge,  foreign
interference,  and  ethical  or  integrity  violations  and  offers  guidance  to  assess  risks  and
enhance  research  security  when  engaging  in  research  cooperation  with  international
partners.  The Council  issued recommendations  to  Member  States  on  enhancing  research
security, such as creating or reinforcing support services to help actors in the R&I sector deal
with  risks  related  to  international  cooperation  in  research.  The  document  also  contains
recommendations  to  the  Commission  on  options  for  more  structural  support  to  R&I
organisations, including the establishment of a European Centre of Expertise on Research
Security. This  Centre  should  serve  as  a  hub  for  knowledge  exchange  among  experts,
practitioners and other stakeholders across the EU.

The  PSF MLE  on  Tackling  Foreign  Interference was  completed  in  April  2024  with  the
participation  of 12  Member States.  There  was  progress  in  developing the one-stop-shop
digital  platform on  tackling  foreign  interference  in  R&I.  The  expert  consultations  on  the
development  of  OSINT  for  European  R&I  organisations took  place  with  the  lessons
learned from this exercise promoting further assessment of relevance for the creation of such
a tool.

The box below shows an exemplary set of initiatives and measures at national level.

Dutch Research Council’s (NWO) National Knowledge Security Guidelines

The  NWO  published  its  National  Knowledge  Security  Guidelines  in  January  2022.67 The
Guidelines  aim  to  provide answers  to  questions  about  knowledge  security  in  international
scientific cooperation for its R&I community. In addition, the Government’s Contact Point for
Knowledge Security was established. The Contact Point is a collaboration between several
Dutch ministries and is available to anyone working, researching or studying in a knowledge
institution. It provides help with questions on opportunities, risks and practical considerations
with  regards to  international  cooperation  (e.g.,  entering  into  partnerships  with  foreign
knowledge institutions and companies).

German KIWi Compass ‘No red lines’ Guidance

Germany’s DAAD Centre  for  International  Academic  Cooperation  (KIWi)  developed  the
in  2020.  It  is  destined  to  provide  an
criteria-based  guide KIWi  Compass  ‘No  Red  Lines’
informed and reflective basis for researchers and HEIs weighing up opportunities for and the
risks  of  international  partnerships  in  R&I.  The  list  of  criteria  was  developed  to  support
decision-making processes. These criteria include such elements as the ‘security situation’,
‘wider political imperatives’, ‘constitutional and socio-political imperatives’, ‘opportunities and
risks  of  the  respective  academic  system’,  ‘quality  of  academic  partner  institutions’, and
‘integration  into  institutional  strategies’.  Sub-criteria  are  also  defined  and  linked  to
‘sensitisation’ questions  and  reference  sources  to  take  better  account  of  the  different
cooperation conditions in each case.68

6.2.1.

Facilitate the development of a policy approach to safeguard the freedom
of scientific research by publishing the first European monitoring report

The feasibility of a recurrent and comprehensive European monitoring report was explored
by  investigating  parameters  acceptable  to  Member  States  and  stakeholders,  ensuring

67 University of Netherlands, National knowledge security guidelines, 2022.
68 DAAD, New KIWI Compass ‘No red lines’.

41

sustainability over the long term. The feasibility of implementing such a mechanism seems
to  be  constrained  due  to  the  complexity  of  potential  threats  to  the  freedom  of  scientific
research, the inherent challenges in reaching consensus on monitoring parameters, and the
practical  difficulties  associated  with  carrying  out  the  monitoring  process.  Furthermore,
concerns  were  raised  regarding  the  specific  role  and  added  value  of  this  mechanism,  in
relation to existing monitoring initiatives such as the EP Academic Freedom Monitor and the
Academic Freedom Index.

A  significant  step  forward  was  made  following  the  adoption  of  the  European  Parliament
resolution  on  the  promotion  and  protection  of  the  freedom  of  scientific  research,  which
requested  the  Commission  to  put  forward  a  legislative  proposal  on  this  matter.  The
Commission responded positively to this request and announced the launch of a study aimed
at assessing the de facto and de jure protection of this freedom across the 27 Member States
and five additional countries. Results are expected by mid-2025.

6.2.2.

Organise Mutual Learning Exercise on tackling R&I foreign interference
among interested Member States

A PSF MLE on Foreign Interference, gathering 12 countries, was concluded in April 2024.
The  MLE  focused  on  three  topics: 1) Awareness-raising  and  stakeholder  engagement; 2)
Identifying  and  understanding  foreign  interference  threats,  and 3) Measures  to  counter
foreign interference.

6.2.3.

Set up of a one-stop-shop European digital platform on tackling foreign
interference in R&I

Over recent years, many different actors – including the Commission, the Member States,
several associations, funding agencies and universities – have developed reports, guidelines
and  other  tools  to  support  the  R&I  community  in  tackling  foreign  interference.  This  has
resulted in a highly fragmented supply of information, making it difficult and time-consuming
for  the  end  users  (HEIs,  individual  researchers)  to  navigate  through  different  sources.  In
addition, resource creators are not always aware of what already exists, sometimes resulting
in duplication of efforts and increasing risks of conflicting information.

The overall objective of the one-stop-shop digital platform is to tackle the abovementioned
fragmentation  of  information,  streamline  and  facilitate  access  to  reliable  information  on
measures  to  countering  foreign  interference  in  R&I.  The  digital  platform  will  be  an  online
repository  of  all  publicly  available  resources  to  support  individual  researchers  and  R&I
organisations in tackling foreign interference.

6.2.4.

Develop OSINT for research organisations and universities in the EU on
foreign R&I institutions, individuals, technologies, affiliations, research
projects and universities

The European Commission has been working on the OSINT concept and is ready to start
developing it in 2025. The lessons learned during the process resulted in discussions on the
need  to  develop  such  a  tool  and  further  explorations  of  other  means  to help  safeguard
researchers from foreign interference.

42

Assessment  of  the  progress  towards  the  ERA  Action  6  objectives
over the 2022-2024 period

6.3.1.

Assessment  of  progress  towards Specific Objectives: main  initiatives
and outcome

During  the  review  period  significant  advancements  were  made  on  safeguarding  R&I  from
foreign interference. The Council recommendation on research security was adopted in 2024.
The European Commission started the preparatory work for a potential legislative initiative
on the promotion and protection of freedom of scientific research with the launch of a study.
The MLE on foreign interference was conducted with important lessons learnt for the twelve
participating  countries  and  the  digital  platform  (one-stop-shop)  on  tackling  R&I  foreign
interference reached advanced stages of development.

The  table  below  summarises  the  main  initiatives  and  outcome  delivering  on  the specific
objectives of ERA Action 6.

Table 7 Assessment of the progress towards Action 6 Specific Objectives: initiatives
and outcome

Specific objectives69

Main initiatives implemented Main outcome

Facilitate the development of
a policy approach to
safeguard the freedom of
scientific research by
publishing the first European
monitoring report on the
freedom of scientific
research

 Carrying out the

investigation, with experts
in the field, on the
establishment of a
monitoring mechanism
based on parameters
acceptable to Member
States and stakeholders,
and that is sustainable
over the long term
The European
Commission has launched
a study to support work
related to a legislative
proposal on the promotion
and protection of the
freedom of scientific
research



Organise MLE on tackling
R&I foreign interference
among interested Member
States

Set up of a one-stop-shop
digital platform on tackling
foreign interference in R&I

 Running an MLE on
tracking R&I foreign
interference



The platform is under
development



The Council adopted the
recommendation on enhancing
research security on 23 May 2024
 Parliament adopted a resolution on

17 January 2024 with
recommendations to the
Commission on promoting freedom
of academic research in the EU, to
which the Commission answered
positively
The feasibility study conducted on
European monitoring mechanism on
the freedom of scientific research
with results pointing to limited
feasibility given the complexity of the
possible threats to this freedom, the
challenges in achieving consensus
on the parameters to be monitored,
and the practical difficulties in
conducting the monitoring itself
The work is ongoing on a study to
support the potential legislative
proposal for promoting and
protecting freedom of scientific
research
The MLE ran from in 2023-2024 and
completed in April 2024
12 MS took part in the exercise

The platform launch is expected
mid-2025











69 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

43

Specific objectives69

Main initiatives implemented Main outcome

Develop OSINT for research
organisations and
universities in the EU on
foreign R&I institutions,
individuals, technologies,
affiliations, research projects
and universities



The discussions on
development of such a
tool were conducted



The European Commission has
been working on the OSINT concept
and is ready to start development in
2025

Source: Technopolis Group, based on data collected through desk and interviews

6.3.2.

Challenges and opportunities towards future ERA initiatives

The feasibility efforts conducted for ERA Action 6 (i.e., conducting a first European monitoring
report on the freedom of scientific research) revealed the complexity of the challenge and the
need for further reflections. Thus, the Commission will explore the possibility of establishing
a feasibility exercise on monitoring the freedom of scientific research at EU level.

7. Action  7:  Upgrade  EU  guidance  for  a  better  knowledge

valorisation

Key findings Action 7: Upgrade EU guidance for a better knowledge valorisation

During the review period, ERA Action 7 strengthened the transition from traditional knowledge
transfer to  a  dynamic  system of  knowledge valorisation, fostering  collaboration  across the
R&I landscape and promoting innovative practices. Initiatives in place emphasised leveraging
knowledge  assets  to  address  societal  and  economic  challenges,  enabling  efficient  value
creation along complex knowledge value-chains.













New collaboration  has been  established  in  2024  between  the  European Commission
and the European Patent Office (EPO) through a letter of intent, and the collaboration
with the EU Intellectual Property Office (EUIPO) was also updated.

Additional Codes of Practice on citizen engagement and industry-academia have been
developed  in  2024,  providing  strategic  approaches  and  tools  to  enhance  knowledge
valorisation and supporting the implementation of the Guiding Principles for Knowledge
Valorisation.

A study on citizen engagement in knowledge valorisation was published in January
2024, accompanied by the expansion of the EU Knowledge Valorisation Platform.

A  Mutual  Learning  Exercise on  knowledge  valorisation was  completed  in  2024,
focusing on skills, inter-sectoral cooperation, and incentive systems. The findings were
summarised in a final report with a policy toolbox to guide implementation across the
ERA.

Awareness-raising  events were  conducted  across  Member  States,  supported  by
the EU  Knowledge  Valorisation  Talks and 
the Stakeholder  Conference  on
knowledge valorisation.

Several  Horizon  Europe  projects foster  knowledge  valorisation  and  efficient  IP
management. In addition, initiatives like the Standardisation Booster provide services
to R&I actors.

ERA  Action  7  has  delivered  on  its  objectives  and  introduced  additional  initiatives.  Moving
forward, the focus will need to further shift towards increasing stakeholder understanding and
adoption of the guiding principles and codes of practice. Addressing  challenges related to
professionalising  knowledge valorisation  services,  enhancing  intermediaries, and fostering

44

industry-research-science  collaboration  and  citizen  engagement  will  be  critical  in  the  next
ERA Policy Agenda to maximise the societal and economic impact of R&I outputs.

Objectives and scope of ERA Action 7

Purpose of the action:70

The purpose of the action is to catalyse a transition from the traditional knowledge transfer
towards  valorisation  of  knowledge  assets  while  considering  the rapid  development  of
technologies,  new  forms  of  collaborations  within  R&I  landscapes  and  increasingly  more
complex knowledge value-chains.

Figure 7 Identified problems and defined objectives of ERA Action 771

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

Status of ERA Action 7 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):72

On 22 December 2022, the Council of the EU adopted a Recommendation on the Guiding
Principles for knowledge valorisation, which was enacted on 1 March 2023 and followed by
the adoption of Codes of Practice on intellectual assets management and standardisation.
To engage stakeholders and Member States in the implementation of the recommendations,
the  European  Commission  launched  an awareness-raising  campaign  on  knowledge
valorisation  in  March  2023,  which was  well  endorsed  by Member  States.  In  addition,  the
Mutual  Learning  Exercise  on  knowledge  valorisation  was  launched  in  March  2023  to
operationalise  recommendations  and  deliver  a  policy  toolbox  with  best  practices  and
strategies for the guiding principles implementation.

Other  instruments  were  deployed  to  support  the  implementation  of  recommendations,
including  the  establishment  of  the  EU  Knowledge  Valorisation  Platform  and  the  EU
Knowledge Valorisation Week. Two Communities of Practice were launched in March 2023
to develop further guidance for R&I actors in the field of industry-academia collaboration and

70 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
71 The objectives “Develop a Code of Practice for smart use of IP together with stakeholders” and “Develop a
Code of Practice for researchers on standardisation” were achieved during the previous reporting period.
72 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

45

citizen  engagement 
launched  a
for  knowledge  valorisation.  Furthermore, 
Standardisation  Booster.  The  European  IPR  Helpdesk  and  IP  Booster  also  support
knowledge valorisation.

the  EU 

The period from mid-2023 to late 2024 was marked by the development of additional Codes
of Practices (CoP) on citizen-engagement and industry-academia co-creation endorsed
by  the  Commission  on  1  March  2024.  In  addition,  the  EU  continued  its  campaign  on
knowledge valorisation with national events held across six countries throughout this period.
An inaugural European Standardisation Panel Survey was conducted with the results
and recommendations published in January 2024. The MLE on knowledge valorisation was
successfully completed in 2024 with the final study published. To complement these efforts,
the EC conducted  a study  on  fostering  knowledge  valorisation  through citizen
engagement with  valuable  insights  into  practices  across  the  EU.  A  new  initiative  in  the
framework  of  the  EU  Knowledge  Valorisation  Platform led  to a  series  of Knowledge
Valorisation Talks in  2024,  which allowed  the sharing  the best  practices  across Member
States in this field. The annual EU Knowledge Valorisation Week was held in April 2023 and
a stakeholder conference took place in December 2024.

The  Commission  launched  an  open  innovation  competition  for  researchers  and  citizens
across  Europe to develop joint knowledge-based solutions for climate, demonstrating how
knowledge valorisation supports policy objectives covered by the Horizon Europe missions
on  ‘Climate-neutral  and  Smart  Cities’ and ‘Adaptation  to  Climate Change’ through,  for
example, the European Citizens’ Hackathon Championship ‘EU Sparks for Climate’.

To  implement  the  action,  the  Commission  ensured  close  collaboration  with  the  Member
States, especially through the MLE, and with other EU-wide organisations, such as EUIPO
and the EPO with whom a memorandum of understanding (MoU) was signed earlier in 2024,
to support the provision of training and expertise on knowledge valorisation.

The box below shows a selection of illustrative initiatives and measures at national level.

CoheWe (The Co-created Health and Wellbeing) project in Finland was set up as a means
to engage non-state actors into the creation of a solution with social value. It involved a co-
creation  process  with  companies,  cities,  research  organisations  and  citizens  to  develop
innovative health and wellbeing services. In particular, it engaged healthcare professionals,
nurses and doctors, to develop and pilot the solutions, gathering feedback from patients as
users  of  services.73 The  project  completed  35  co-creation  cases  with  companies  with  six
cases piloted in Oulu, one of the major Finnish cities.

Parkli  (Participative  Climate  Research) project  in  Germany is developing participatory
‘early warning’ systems to address local climate change. It actively engages with citizens to
identify  specific  applications  and  technologies  that  could  be  easily  incorporated  into  the
everyday lives of citizens.74

NOVA Research Impact Narratives Challenge was launched in 2023 by NOVA University
Lisbon to encourage researchers to better communicate the impact of their scientific projects.
The contest rewards the best examples of ‘narratives’ appealing to the public.75

The  Spanish  project DINA  ITC funded  by  NextGenerationEU,  was  designed  as  a  large
training  programme  with  the  purpose of encouraging the  engagement  of  academic  and
research communities in knowledge valorisation processes. DINA-ITC supports the design
and  implementation  of  strategies for  better knowledge  valorisation  in  a  variety  of
organisations.

73 University of Oulu, 6aika: Co-Created Health and Wellbeing, 2018.
74 Open science for open societies, ParKli – Participative Climate Research.
75 European Commission: Nova Research Impact Narrative Challenge, 2024.

46

7.2.1.

Develop and endorse Guiding Principles for knowledge valorisation

The Guiding Principles were developed and endorsed during the previous reporting period.

7.2.2.

Develop a Code of Practice for smart use of IP together with stakeholders

Two Codes – i.e., CoP on citizen-engagement76 and CoP on industry-academia co-creation
for knowledge valorisation77 – were developed by their respective Communities of Practice78
and adopted as Commission Recommendations on 1 March 2024.

The  Code  on  citizen-engagement introduces  a  new  strategic  approach  for R&I actors  to
engage citizens to produce and valorise knowledge, and it provides guidance and relevant
tools in this area. The Code covers such elements as creating an enabling environment for
sustainable  citizen  engagement  and  managing  citizen  engagement 
for  knowledge
valorisation.

The  Code  on  industry-academia  co-creation  for  knowledge  valorisation introduces  a  new
strategic approach for industry and academia  to seek common interests and produce  and
valorise knowledge jointly by providing practical guidance and tools for R&I actors. The tools
build on input from the CoP on industry-academia collaboration for knowledge valorisation
with over 210 participants from 25 EU and 11 non-EU countries.

7.2.3.

Develop a Code of Practice on Standardisation for researchers

In  the  first  reporting  period,  the CoP on  standardisation  in  the  ERA  was  developed  and
endorsed.79 In this  reporting  period,  the first European  Standardisation  Panel  Survey was
launched  in  2023  with  the  final  report  containing an overview  of  survey  responses  and
recommendations  published  in  January  2024.80 The  survey  aimed  to  identify  the  demand
from  industry  and  other  stakeholders  for  standards  as  potential  results  of  R&I  projects,  to
assess how EU research framework programmes could tackle them, and generally to raise
awareness of the importance of standardisation as a knowledge valorisation channel.

7.2.4.

Additional initiatives implemented from mid-2023 to end 2024

As part of the EU campaign to boost knowledge valorisation, Member States continued
to host national events from mid-2023 to end-202481 to raise awareness about the guiding
principles and CoPs among all R&I actors in the respective ecosystems and across EU.

In addition, a PSF MLE on knowledge valorisation with a particular focus on skills, inter-
sectoral cooperation and incentive systems was launched in March 2023.82 The main findings

76 Commission Recommendation (EU) 2024/736 of 1 March 2024 on a Code of Practice on citizen engagement
for knowledge valorisation, OJ L 2024/746 5.3.2024.
77 European Commission: Code of Practice on industry-academia co-creation for knowledge valorisation.
78 European  Commission: Communities  of  practice  complete their  work  to  co-create Codes of Practice for
industry-academia collaboration and citizen engagement for knowledge valorisation.
79 Commission recommendation (EU) 2023/498 of 1 March 2023 on a Code of Practice on standardisation in
the European Research Area.
80 European Commission: Directorate-General for Research and Innovation, Blind, K., Baldan, F., Tardos, G.,
Kromer, L. et al. (eds.), European standardisation panel survey – Final report, 2024.
81 This included events in October 2023 in Ljubljana (Slovenia), November 2023 in Vienna (Austria) and Lisbon
(Portugal),  Athens  (Greece),  followed  by  the  events  in  2024:  Dublin (Ireland)  in  April,  the  Hague  (the
Netherlands) in February, Zagreb (Croatia) in June, Budapest (Hungary) in September and Vienna (Austria)
in November). Stakeholder events took place in October 2023 and in December 2024 in Brussels (Belgium).
82 European Commission: Mutual learning exercise on knowledge valorisation- focus on skills, inter-sectoral
cooperation and incentive systems, research and innovation, 2023. The PSF MLE gathered 18 countries and
provided  the  opportunity  to  discuss  across  four  main  topics,  i.e., ‘incentives  and  skills’, ‘intermediaries’,
‘networks and processes’ as well as the horizontal topic ‘intellectual asset management’. Policy dialogues took
place  in June 2023  in Austria  dealing  with ‘research  talent’, followed by  discussions  in  September 2023  in

47

of the PSF MLE were summarised in the final report of the project published in May 202483
and  included  a policy  toolbox to  promote  knowledge  valorisation. Follow-up  initiatives  by
Member  States  were  mainly  aimed  at  improving  the  framework  conditions,  awareness-
raising, training, intermediary support and financing of knowledge valorisation, including, for
example,  a  new  National  Intellectual  Property  Strategy  in  Slovenia84, a  new  network  of
Knowledge Transfer Offices in Greece (METEX), and the further development of the Adapter
Platform in Estonia.

In  addition,  to  enhance  citizen  engagement  in  knowledge  valorisation,  the  Commission
conducted a  study ‘Fostering  knowledge  valorisation  through  citizen  engagement’
(January  2024).  The  report  provides  analysis  of  citizen  engagement  for  knowledge
valorisation practices, building on 60 selected case studies from 37 countries, across the EU
and beyond. It also outlines possible action points for R&I actors on effective participatory
practices for knowledge valorisation.

To complement these efforts, the Commission launched the European citizens’ Hackathon
Championship, ‘EU Sparks for Climate’ in January 2024 with the aim of supporting new
approaches to knowledge valorisation through innovative solutions that respond to the needs
of citizens and communities from climate change.

The  Commission  also  initiated EU  Knowledge  Valorisation  Talks to  showcase  inspiring
practices and foster the exchange of experiences among R&I actors. Since the launch of the
initiative in 2024, three talks were held featuring  issues with regards to AI and  knowledge
valorisation,  fostering  societal  impact  of  research  results,  and  successful  models  for
academia-industry collaboration.

The EIT KICs have a Knowledge Hub to disseminate knowledge and practices from within
the communities. In addition, several Horizon Europe projects on knowledge valorisation
are  ongoing,  including  the INDUSAC (the  Quick  Challenge-Driven,  Human-Centred  Co-
Creation  Mechanism  for  Industry-Academia  Collaborations), the EU.FFICIENT (European
Communities  of  Facilitators  focused  on  Co-creation Training,  Networking  and  Hands-on
Learning), the FUTURESILIENCE (Creating  future  societal  resilience  through  innovative,
science-based  co-creation  labs), and CO-VALUE. Furthermore,  several Horizon  Europe
projects on efficient strategies to manage intellectual assets have been conducted, such
as ZOOOM – 3Os  and  IP  awareness-raising  for  collaborative  ecosystems  (finished  in
September 2024), IMPAC3T-IP (new toolbox for sustainable IP licensing), and The Impact
Licensing Initiative (societal impact with technology).

In  line  with  this,  the Standardisation  Booster was  implemented  to  connect  project
beneficiaries  with  standardisation  experts  and 
impact  of  European
standardisation  resulting  from  Horizon  2020  and  Horizon  Europe  projects  by  designing,
launching, and managing a dedicated booster-type initiative.85

increase 

the 

Sweden  with focus  on ‘intermediaries’ and ‘networks  and  process’ in  November  2023  in  Finland.  The  final
policy  dialogue  in  January  2024  in  Madrid  was  devoted  to  the ‘policy  and  legal  context,  governance  and
funding’.
83 European  Commission: Directorate-General  for  Research  and  Innovation,  Kosova,  H.  and  Vanrie,  P.
(eds.), Mutual  learning  exercise  on  knowledge  valorisation:  focus  on  skills, inter-sectoral cooperation  and
incentive systems: final report, 2024.
84 The English version of the Strategy is available on About the Slovenian Intellectual Property Office, GOV.SI
85 https://hsbooster.eu/news

48

Assessment  of  the  progress  towards  the  ERA  Action  7  objectives
over the 2022-2024 period

7.3.1.

Assessment  of  progress  towards  Specific  Objectives:  main  initiatives
and outcome

The implementation of most objectives under this action was completed in the first reporting
period, such as development and endorsement of Guiding Principles along with the Code of
Practice  on standardisation  in the  ERA. During the  second  reporting period,  the  initiatives
went  beyond  the  initially  outlined  scope  and  included development  of additional  codes  of
conduct and other activities to enhance knowledge sharing and valorisation.

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on  the specific
objectives of ERA Action 7.

Table 8 Assessment of the progress towards Action 7 Specific Objectives: initiatives
and outcome

Specific objectives86

Main initiatives implemented

Main outcome

Develop  and  endorse  Guiding
Principles 
knowledge
for 
valorisation

Develop  a  Code  of Practice  for
smart  use  of  IP  together  with
stakeholders

Develop  a  Code  of  Practice  for
researchers on standardisation

 Development and adoption
of Guiding Principles for
knowledge valorisation by
the Council on 2 Dec. 2022

 Co-creation of the CoP with
the community of practice
and the ERA Forum in 2022,
adoption by the Commission
on 1 March 2023

 Guiding Principles for

knowledge valorisation
available for use by the R&I
stakeholders



The CoP for smart use of IP
available for use by the R&I
stakeholders

 Scoping study followed by a



co-creation process
including ERA Forum,
Standard Development
Organisations, universities
and practitioners, adoption
by the Commission on 1
March 2023

The CoP on standardisation
available for use by the R&I
stakeholders

Source: Technopolis Group, based on data collected through desk and interviews

7.3.2.

Challenges and opportunities towards future ERA initiatives

The implementation of ERA Action 7 was on time and delivered on the expected objectives
and even beyond, i.e., producing additional two Codes of Practices.

The main challenges ahead is to increase understanding of knowledge-valorisation principles
and practices among stakeholders through the enhanced uptake of the CoPs by R&I actors
and ultimately full implementation.

In the future, actions on more effective promotion of the existing Codes could be envisaged
together  with  measures  to  improve  knowledge  valorisation,  including  more  focus  on
intermediaries,  knowledge  transfer  offices,  professionalisation  of  valorisation  services,
improving the understanding of IP and the use of standardisation of research results, as well
as promotion of the industry-science collaboration.

86 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

49

8. Action 8: Strengthen sustainability, accessibility and resilience

of research infrastructures

Key  findings  Action  8:  Strengthen  sustainability,  accessibility  and  resilience  of
research infrastructures

During the review period, ERA Action 8 initiatives have advanced the ERA by enhancing the
role of research infrastructures (RIs) in the ecosystem, fostering cooperation, and addressing
sustainability challenges.







The 2024 Strategic Landscape Analysis, now decoupled from the ESFRI Roadmap,
provided  a comprehensive  overview of  the  RI ecosystem, identifying  synergies,  gaps,
and challenges, and aligning RIs with societal priorities such as the twin transition

The ESFRI  Roadmap  update (2024-2026)  introduced  a  call  for  new  RI  projects  and
upgrades,  with  a significant focus  on  financial  sustainability of  the  RI  ecosystem and
introducing  environmental  considerations  as  additional  key 
requirement. The
performance monitoring for ESFRI Landmarks has also been conducted, reinforcing
efforts  to  enhance  RI  resilience  and  adaptability and  to  maintain  their  world  class
position.

The revised European Charter of Access (2024) seeks to improve RI accessibility and
governance, promoting collaboration with socio-economic actors and championing open
science. Horizon  Europe  funding  for  RIs  also  played  an  important  role  in  supporting
trans-national access to RIs.

 New  opportunities  for cooperation  between  RIs  and  stakeholders have  been
launched, including the ERIC Forum Meetups and ESFRI-EOSC Task Force. Initiatives
like the RITIFI project  and specific ESFRI activities seek to strengthen RI-Technology
Infrastructure (TI) and RI-industry collaborations, addressing shared challenges.

These efforts have strengthened the role of RIs in EU R&I ecosystems, contributing to ensure
a broader accessibility,  enhancing their  efficiency,  and supporting  long-term development.
Nonetheless, challenges  persist. Future efforts  will  focus on  increased  strategic  alignment
with EU priorities, enhancing resilience, fostering interaction with Tis and industry, addressing
funding gaps and supporting long-term sustainability to maximise the impact of RIs.

Objectives and scope of ERA Action 8

Purpose of the action:87

Action 8 aims to strengthen the European research infrastructure ecosystem to ensure
sustainable excellence and competitiveness within the ERA. Key initiatives include preparing
the framework for the next ESFRI Roadmap, conducting a strategic analysis of the European
research  infrastructure  landscape  to  identify  gaps,  and  piloting  new  funding  models  for
infrastructure sustainability. Efforts will also focus on improving equitable access to research
infrastructure services through the revision and update of the European Charter for Access.
Additionally, a permanent monitoring framework for the ERIC Regulation will be proposed,
reinforcing the impact and governance of European research infrastructures.

87 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

50

Figure 8 Identified problems and defined objectives of ERA Action 8

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

In  addition  to  these  objectives,  the Action  also  delivered  several  activities  that  were  not
originally foreseen under the remit of ERA Action 8 but either fall within the larger remit of the
European  Commission  or  of  the European  Strategy  Forum  on  Research  Infrastructures
(ESFRI).  These have been  clearly  identified  in  the ESFRI  Activity  report  2021-2023,
published in December 2024.

Status of ERA Action 8 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):88



Strategic  analysis  of  the  European research infrastructure landscape:89 ESFRI
developed  a  new  methodology  for  landscape  analysis,  incorporating  surveys  and
strategic gap analysis based on user needs and impact. This ongoing work involved large
domain-specific and cross-cutting assessments, with contributions from ESFRI working
groups.

 Broader and sustainable access to research infrastructures: Two parallel surveys
targeting RIs and RI stakeholders, implemented in May-June 2023, identified evolving
challenges  and  needs  for  accessing  research  infrastructures.  Key  findings  informed
recommendations  for  the  European  Charter  of  Access  to  Research  Infrastructures,
aimed at improving legal, institutional, financial, and technical frameworks.90

 Update  of  the  ESFRI  Roadmap  and  performance  monitoring  framework: ESFRI
completed in 2022 the first batch of performance monitoring for 12 ESFRI Landmarks,
with subsequent batches in progress. Reports highlighted strong overall performance but
underscored challenges in achieving sustainable funding.91

88 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.
89 ESFRI, ESFRI Landscape Analysis 2024.
90 ESFRI, ESFRI Report on Access to Research Infrastructures and Charter on Access to RIs, 2024.
91 See https://www.esfri.eu/monitoring

51





ERIC framework report: The third Commission report on the ERIC Regulation, adopted
in  August  202392, emphasised  the  growing  number  of  ERICs  as  an  important  legal
framework  for  integrating  resources  in  the  ERA.  Recommendations  focused  on
enhancing  access  to  the  ERIC  programme,  increasing  funding  synergies,  engaging
international partners, and addressing operational challenges.

Enhanced cooperation between research infrastructures  and stakeholders: New
and  reinforced  collaboration  channels  were  established, 
the  ESFRI
Stakeholder Forum, which held its inaugural meeting in September 2022, and the ESFRI-
EOSC Task Force, which convened for its first meeting in June 2023. These initiatives
aim to reduce fragmentation in Europe’s research data landscape, promote FAIR data
productivity,  and  integrate  ERICs  into  the  ERA.  A  new  Horizon  Europe  grant  was
awarded to the ERIC Forum to further these efforts.93

including 

Between mid-2023 and late 2024, several key milestones were achieved in advancing the
objectives of ERA Action 8. Pursuing the work carried out under the first phase, several tools
and  initiatives  have  been  instrumental  in  advancing  this  action.  A  major  focus  for  ESFRI
under the second phase of the ERA Policy Agenda was the implementation of its updated
2024-2025  workplan, which  includes the  delivery  of  a  comprehensive  landscape  analysis,
updated ESFRI Roadmap, and ongoing monitoring of existing ESFRI projects.

8.2.1.

Provide a strategic analysis of the EU research infrastructure landscape

From  2024  onward,  ESFRI  has  decoupled  the  Roadmap  from  the Landscape  Analysis,
making  the  latter  a  standalone  document. Published  in  June  2024, the  Analysis offers  a
detailed  review  of  Europe’s  RI ecosystem,  identifying  synergies,  complementarities, gaps,
and challenges.

The findings from the analysis highlight the need for interdisciplinary collaboration, leveraging
shared  resources  and  digital  technologies  to  address  complex  challenges.  The  report
emphasises  the  need for sustainable funding strategies to  ensure  the  resilience  of RIs. In
addition,  the  findings  shed  light  on  some  of  the  shifts  in  the  landscape,  marked  by
interdisciplinary  requirements  and  the  incorporation  of  AI,  which  emphasises  the  need  to
enhance cross-domain collaboration and foster synergies within the ESFRI ecosystem.

The ESFRI Portfolio online tool offers concise, regularly updated summaries of RIs across
all domains, serving as both part of the report and a standalone resource for the scientific
community and stakeholders.

The 2023 ESFRI report on energy and supply challenges94 examines the impact of the
energy crisis and resource shortages on European RIs, particularly energy-intensive facilities
like synchrotrons and computing centres. Exacerbated by the Russian aggression in Ukraine
and rising  inflation,  these  challenges threaten  RI sustainability and  operations.  The  report
provides  recommendations  to  ESFRI,  Member  States  and  the  European  Commission,
including calls for increased funding, energy price caps, greening initiatives, and measures
under  the  Critical  Raw  Materials  Regulation.  It  also  highlights  the  need  to  support  the
Ukrainian research community and enhance the resilience of RIs to future crises (see also
the ESFRI Report on RIs’ support to the Ukrainian Research Community95).

92 European Commission: Third Report on the Application of Council Regulation (EC) No 723/2009 of 25 June
2009 on the Community legal framework for a European Research Infrastructure Consortium (ERIC).
93 European Commission: Second implementation project for the ERIC Forum.
94 ESFRI, Report on Energy and Supply Challenges of Research Infrastructures, 2023.
95 ESFRI, Report on the Support of Research Infrastructures to the Ukrainian Research Community, 2023.

52

By  strategically  analysing  the  challenges  and  gaps  in  the  RI  landscape,  the  insights  from
these analyses will shape the framework for future Roadmap updates and guide efforts to
establish a more efficient and fully functional European RI ecosystem.

8.2.2.

Update the roadmapping and monitor the development of the EU RI
landscape

The ESFRI  Roadmap  update, which  builds  on  the  Landscape  Analysis, was launched  in
October  2024  and  is  expected  to  be  concluded  in  2026.96 In  parallel,  ESFRI  projects
introduced  with  the  2016,  2018,  and  2021  Roadmaps  will  undergo  the  ESFRI  Roadmap
monitoring exercise.

ESFRI monitors  the  quality  and  performance  of  the  Landmarks through  a  systematic
process. The monitoring framework includes KPIs, qualitative assessments, hearings, and
site  visits.  Monitoring,  conducted  every  five  years,  ensures  regular  dialogue,  assesses
individual Landmark quality, identifies challenges, and gathers insights into the broader RI
ecosystem. The process, managed by the ESFRI Monitoring Committee, aims to enhance RI
performance, address gaps in the European landscape, and guide future RI opportunities.
All eligible Landmarks have been monitored before the end of 2024.

The ESFRI  policy  brief  on  the  assessment  of  impact  of research infrastructures,
published in July  2023,  underlines  the  growing  importance  of  assessing  the  societal,
economic, and scientific impact of RIs to facilitate strategic planning, resource allocation, and
enhance accountability and transparency. The report distinguishes impact assessments from
performance-monitoring  and  offers 
including
governments  and  the  European  Commission,  to  adopt  best  practices,  develop  monitoring
frameworks, and align RI policies with user and societal needs.97

to  stakeholders, 

recommendations 

8.2.3.

Foster the access to RIs across the EU

In  November  2024,  an updated  European  Charter  of  Access 
to  Research
Infrastructures98 was  published. This  update  was  based  on  two  surveys  developed in
January  2024 by  the  ESFRI  Drafting  Group  on  Access99 which produced  outcomes  and
subsequent  recommendations  to  enhance  the  governance  and  accessibility  of  research
infrastructures,  foster  collaboration,  and  enhance  workforce  skills.  The  updated  Charter
further  encourages  engagement  with  diverse  social  and  economic  sectors – such  as
business, industry, and public services – to maximise the value of investments in RIs and
promote innovation, competitiveness, and efficient resource use.

In  addition,  significant  funding  has  been  allocated  to RIs  within  Horizon  Europe.100 The
activities outlined in the Horizon Europe RI Work Programme (WP) are designed to enhance
access to infrastructures and promote integration with initiatives like EOSC. Through Horizon

96 In this context a call for proposals for new research infrastructure projects and major upgrades had been
launched in Spring 2025.
97 In  this  context,  the  OECD  Global  Science  Forum  and  ESFR  held  a  workshop to  examine  research
infrastructure  (RI)  funding  data  in  July  2024,  see https://www.esfri.eu/esfri-events/oecd-esfri-workshop-
expenditures-ris
98 European Commission: European Charter for Access to Research Infrastructures – Principles and guidelines
for access and related services, 2024.
99 ESFRI, Report on Access to Research Infrastructures and Charter on Access to RIs, 2024.
100 European Commission: Horizon Europe Work Programme 2023-2025: Research Infrastructures (European
Commission Decision C(2024) 2371 of 17 April 2024).

53

Europe support cooperation between ERA and international partners shall be increased and
strategic priorities be advanced.

8.2.4.

Increase cooperation between RIs and stakeholders

The cooperation between RIs and stakeholders has also been enhanced as part of the ERA
Action 8 initiatives, especially through the establishment of the ESFRI Stakeholder Forum
Meetups.  These  events,  set  to  be  organised  bi-annually  as  of  2023,  bring  together  RIs,
policy-makers,  socio-economic  actors,  research  organisations,  and  higher  education
institutions,  with  the  aim of raising awareness,  fostering cooperation,  facilitating mutual
learning, and engaging diverse stakeholders in deliberation and co-design processes for RIs.
The Second  ESFRI  Stakeholder  Forum  Meetup took  place  on  17  September  2023  and
focused on Funding, Access, Industry, and Interaction with Technology Infrastructures (TIs).

Cooperation between RIs and industry stakeholders, including users, collaborators, and
component  providers,  is  also  a  key  priority.  The  ESFRI Drafting Group  on  Industrial  Co-
operation was formed with the aim of exploring and better understanding these collaborations
and identifying support needs. Two ESFRI reports on this topic were published in July 2023
and  September  2023.101 Those  reports  identify  the  need  for  strategic  policy  actions  to
enhance mutual benefits and optimise resource use. They highlight ESFRI’s role in fostering
RI cooperation between industry  and  TIs,  and  providing recommendations  to  strengthen
impact.  The Research
these  collaborations 
(RITIFI) project brings
Infrastructures  and  Technology  Infrastructures  for  Impact
together RIs and TIs from 19 European countries to enhance the integration and structure of
the European R&I landscape, and to develop a functional framework and tailored guidelines
for integrating RI and TI services to meet end-user needs.

for  greater  societal  and 

industrial 

In addition, several initiatives have been put in place to enhance collaboration between RIs
and e-infrastructures. Specifically, the ESFRI-EOSC Task Force – established in June 2023
and running until the end of 2026 – is working to strengthen collaboration between the ESFRI
Forum and EOSC Steering Board. This Task Force focuses on aligning collective interests
to  support  an  integrated  ecosystem  of  RIs,  with  two  primary  goals:  (1)  Reducing
fragmentation in Europe’s research data landscape; and (2) Increasing productivity of FAIR
data.

Assessment  of  the  progress  towards  the  ERA  Action  8  objectives
over the 2022-2024 period

8.3.1.

Assessment  of  progress  towards Specific Objectives:  main  initiatives
and outcome

The initiatives under ERA Action 8 have driven significant progress in strengthening Europe’s
RI  ecosystem.  Key  achievements  include  the  standalone  Landscape  Analysis, enhanced
monitoring frameworks, updated access policies, and the integration of RIs within Horizon
Europe priorities (see above). Cooperation between RIs, industry, and e-infrastructures has
been strengthened through  initiatives  like  the  ESFRI-EOSC  Task  Force  and dedicated
projects such as RITIFI. Networking events and funding mechanisms have further supported
collaboration and strategic planning across the RI landscape.

101 ESFRI, Report on Cooperation of ESFRI RIs with Industry, 2023; ESFRI, Survey Report on Cooperation
of ESFRI Research Infrastructures (Landmarks) with Industry, 2023.

54

The  table  below  summarises  the  main  initiatives  and  outcome  delivering  on  the  specific
objectives of ERA Action 8.

Table 9 Assessment of the progress towards Action 8 Specific Objectives: initiatives
and outcome

Specific objectives102

Main initiatives implemented

Main outcome

Provide  a  strategic  analysis  of
the  EU  research  infrastructure
landscape

Update the ESFRI Roadmap and
implement  the  RI  performance
monitoring

Foster the  access  to  RIs  across
the EU

 ESFRI Landscape Analysis



2024

 ESRI RIs portfolio
 ESFRI report on energy and

supply challenges

 ESFRI Roadmap
 European Research

Infrastructure Consortium
Landmark Analysis

 ESFRI policy brief on the
assessment of impact of
Research Infrastructures

 OECD-ESFRI virtual

workshop

 Updated European Charter
of Access to Research
Infrastructures
Funding has been allocated
to RIs within Horizon Europe



Improved understanding of
RI gaps, synergies, and
challenges

 Enhanced resources for

stakeholders and resilience
strategies

 Strengthened RI monitoring,

planning, and policy
alignment

 Advanced integration and

funding strategies



Improved access to RIs and
global collaboration

Increase  cooperation  between
RIs  and  stakeholders,  including
through EOSC

 ESFRI Stakeholder Forum

 Enhanced cooperation, data

Meetups

 ESFRI-EOSC Task Force

sharing, and RI-TI
integration

Source: Technopolis Group, based on data collected through desk and interviews

The  importance  and  role  of research infrastructures  in  the  EU  R&I  ecosystem  have  been
highlighted in several Council Conclusions and featured in EU Presidency declarations
and events throughout the three-year ERA Policy Agenda cycle.103 Further to this, RIs have
also  featured  in  a  few  EU  Presidency declarations  and  events,  including  the  Tenerife
Declaration  on ‘Global  Dimension  and  Sustainability  of  Research  Infrastructures’ of
September 2023.104 The ICRI Brisbane Statement of December 2024 highlights the critical
role of RIs in addressing global challenges, fostering international collaboration, integrating
digital and Indigenous knowledge systems, and advancing interdisciplinary and translational
research through sustainable governance and strategic investment.

Considerable progress has been made in the context of ESFRI, starting from the updates
to  the  roadmapping  process.  This  round  introduces  new  requirements,  including  the
integration  of  environmental  considerations.  Proposals  must  also  emphasise  the  financial
sustainability of the proposed infrastructure and provide a more detailed description of its role
within the European RI Landscape. Additionally, there is an increased focus on data security

102 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
103 For instance, the Council Conclusion on Research Infrastructures of December 2022, but also the Council
Conclusions  on  Knowledge  Valorisation  of  May  2024,  and  the  Council  Conclusions  on  ‘Strengthening  the
competitiveness of the EU, reinforcing the ERA and overcoming its fragmentation’ of November 2024, which
both reference research and technology infrastructures.
104 EOSC, Tenerife Declaration on “Global Dimension and Sustainability of Research Infrastructures”, 2023.

55

and  adherence  to  the Open  Science principles  to  ensure  alignment  with  current  policy
priorities.105

The ESFRI  Landscape  Analysis  2024 has  also  developed  an  updated  methodology,
drawing  from  prior  ESFRI  experience  and  integrating  a  more  prominent  role  for  key
stakeholders. This report allows ESFRI to pilot the new approach, which involves direct input
from  RIs  and  stakeholders,  alongside contributions  from  external  experts  for  a  more
comprehensive assessment of gaps and challenges. The methodology will  be refined and
adjusted for future Landscape Analysis reports.

Furthermore, ERIC as a legal entity is helping to recognise European RIs and facilitate their
knowledge exchange, resource-sharing, and cross-border collaboration. By the end of 2024,
there were 28 ERICs in place, including two additional ones that have been created since
July  2023: LOFAR (the  LOw  Frequency  ARray)  and INFRAFRONTIER  ERIC – both
established in December 2023. In addition, two more ERICs were announced in the reporting
period: CTAO (Cherenkov  Telescope  Array  Observatory)  and EHRI (European  Holocaust
Research Infrastructure) – both have since been created (January 2025).

Research infrastructures form a crucial component of one of the three key pillars of Horizon
Europe. Notably, while the Work Programme 2021-22 devoted EUR 608 million over its two-
year term106, the Work Programme 2023-24 dedicated EUR 662 million to RIs.107

8.3.2.

Challenges and opportunities towards future ERA initiatives

Since  its  creation, ESFRI  has  become  a  vital  tool  for  promoting  scientific integration
across Europe. However, the landscape of RIs in Europe still faces some challenges.
According  to  the  Landscape  Analysis 2024, the  RIs are at  a “transformative  crossroad”,
marked by rapid technological advancements, evolving governance dynamics, and pressing
societal challenges while facing constrained budgets. Many RIs struggle with operational and
upgrade  costs,  and  lack  adequate  support  to provide access  to  a  wide  range of  users.
Ensuring  sustainability  and  securing  sufficient  funding  to  maintain  operations  and  remain
state-of-the-art, despite budget constraints at both EU and national levels, is recognised as
a crucial challenge.

There  are  also  gaps  in  integrating  emerging  technologies,  managing  (FAIR)  data,  and
advancing Open Science practices, which can affect the global competitiveness of European
RIs. The  Landscape  Analysis 2024 also reveals  pervasive  challenges  across  disciplines,
such as the need for a formalised assessment and management of risks associated with the
overreliance on external products and technologies, but also talent retention and competence
and  skills  gaps  that  would  require  RI-oriented  training  programmes.  The  report  further
mentions the  need  to  strengthen  synergies  and  interoperability  among  RIs  and  e-
infrastructures  through  the  development  of  solutions,  standards,  funding  instruments,  and
best practices to ensure seamless data-sharing and management.

While  the  use  of  the ERIC  legal framework  has  proven  successful  in  supporting
European  research  infrastructures,  challenges  remain  regarding  their  financial  and
operational sustainability, but also linked to the legal framework itself (e.g., participation of
international  organisations, practical  application of  the  TNA for  instance  for  in-kind
contributions, etc.). The third report on the ERIC Regulation highlights the need for enhanced
efforts  to  strengthen  access  to  ERIC  programmes  and  improve  the  availability  of  their

105 European  Commission: Launch  of  Roadmap  update  for  Research  Infrastructures:  environmental
considerations now and additional key requirement, 2024.
106 European Commission, Horizon Europe Work Programme 2021-2022: Research Infrastructures (Decision
C(2022)2975 of 10 May 2022).
107 European Commission, Horizon Europe Work Programme 2023-2025: Research Infrastructures (Decision
C(2024) 2371 of 17 April 2024).

56

services.  Additionally, the  report  emphasises  the  importance  of  fostering  greater
synergies  among  different  funding  sources  to  address  operational  challenges  and
facilitate interactions with international partners. The report also highlights that collecting
comprehensive information about all components of the ERIC system and its activities would
enable to further enhance the impact of the ERIC framework. This data would support the
development  of  joint  services  aimed  at  advancing  FAIR,  green,  and  digital  transitions,
ensuring that ERIC continues to align with Europe’s broader R&I objectives.

The ESFRI Landmark Monitoring process has  been positively received by most RIs.
Key  observations  include  strong  scientific  excellence,  pan-European  and  often  global
relevance, effective e-needs management, and impactful collaborations.

Many  RIs  are  adapting  to  ESFRI’s  comprehensive  KPI  framework  but  face  challenges  in
quantifying user data and demonstrating social or economic impacts. Sustainability remains
a  significant  concern  due  to  funding  uncertainties  and  a  lack  of  long-term  membership
commitments.  Despite 
these challenges,  RIs  generally  exhibit  sound  governance,
management, and financial practices.

To  address  these  challenges  and  gaps,  the  next  cycles  of  ERA  activities  should  further
enhance the strategic  alignment  of  the  EU  RIs  landscape  with EU  priorities.  While
recurrent  tasks  such  as  roadmapping,  landscaping,  and  stakeholder  engagement  will
continue,  critical  areas  like  infrastructure  financing,  international  cooperation,  improving
resilience  and the greening  of  RIs,  could  take  a  more  central  role.  Additionally,  the
research  and technology
Commission  will  present  a  comprehensive  strategy 
infrastructures (RIs and TIs).108

for

9. Action 9: Promote international cooperation

Key findings Action 9: Promote international cooperation

The  initiatives  under  ERA  Action  9  have  advanced  the  EU’s  strategic  objectives  for
international cooperation in R&I, with several initiatives going beyond the set of objectives.







The Commission continued coordinating the Multilateral Dialogue on Principles and
Values  in International  R&I  Cooperation,  which  featured  a  series  of  thematic
workshops and a ministerial meeting adopting the ‘Brussels Statement’. The Dialogue is
bringing together countries and stakeholders to build a common understanding of key
principles and  values in  R&I,  including  academic  freedom, ethics, Open Science,  and
gender equality.

The Commission launched the development of a structured European Framework for
Science Diplomacy, supported by working groups consisting of scientists and diplomats
and  high-level  conferences,  which  will  enhance  the  EU’s  role  as  a  global  leader  in
science diplomacy.

The Commission and Member States initiated pilot initiatives based on a Team Europe
approach for the EU to become more strategic in its R&I relations with Africa and China,
and undertook efforts to better coordinate European players in multilateral settings.

These efforts have strengthened EU leadership in global R&I, promoted shared values, and
positioned science and technology as integral tools for international cooperation and strategic
autonomy.

108 European Commission: Ekaterina Zaharieva - Mission letter, 2024.

57

Objectives and scope of ERA Action 9

Purpose of the action:109

Action  9  aims  at  fostering  a  positive,  balanced  environment  for  international  collaboration
based on reciprocity, and it emphasises ethical values and standards, as well as academic
freedom and human rights in R&I international cooperation. To implement the objectives sets
out in the 2022-2024 ERA Policy Agenda for Action 9, the ERA Forum Standing Subgroup
on a Global Approach to Research and Innovation has established its workplan. This Action
promotes multilateralism, reciprocal openness, and bilateral relations in R&I, which align with
European values and strategic autonomy when cooperating with countries outside of the EU.

Figure 9 Identified problems and defined objectives of ERA Action 9

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 9 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):110

 ERA  Forum  Standing  Subgroup  on  the  Global  Approach:  Established  in  February
2022 with a mandate echoing the ERA Policy Agenda, the subgroup convened nine times
by October 2023 to advance international R&I cooperation initiatives.

 European Science Diplomacy Agenda: The development of a European Framework for
Science  Diplomacy  started  in  late  2022  with  the  establishment  of  a  Steering  Team
involving the key stakeholders.

 Multilateral Dialogue  on Principles and Values: Initiated with an event in July 2022,
following the Marseille Declaration and the Council Conclusions for Principles and Values

109 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
110 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

58

for International Cooperation in Research and Innovation, a series of thematic workshops
addressed the principles and values in international R&I cooperation.

 Pilot initiatives based on a Team Europe approach: Drawing inspiration from the Team
Europe Initiatives (TEI), pilot initiatives based on Team Europe Approach were launched
focusing on specific regions or countries, most notably a pilot initiative on cooperation with
China focusing on a level playing field and areas of mutual benefit, and a pilot initiative
focusing on Africa.

 Horizon  Europe  actions:  Strengthened  international  R&I  cooperation  with  specific
initiatives,  including  the  first ‘Africa  Initiative’ to  address  locally  adapted  solutions  for
Africa's challenges.

From mid-2023  to  late  2024,  the  implementation  of  ERA  Action  9  consisted  of  several
initiatives  aimed  at  enhancing  international  cooperation  in  R&I,  reinforcing  shared  values,
and promoting the EU’s strategic autonomy in global R&I partnerships. It should be noted
that ERA  Action  9 does  not  cover  the  entire implementation  of  the EU  Global  Approach
strategy, which itself is monitored through specific implementation reports.

9.2.1.

Promote a European strategy for international cooperation in a changing
world, in the context of strategic autonomy and research security

Following  the  policy  developments  in  2023  and  the  adoption  of  the  Economic  Security
Strategy (January 2024),  the ERA Standing Subgroup on a Global Approach to  Research
and Innovation decided to add research security as one of its priorities.

The  Council  Recommendation  on  enhancing  research  security was  adopted  in  May
2024, providing guidance to Member States on enhancing research security, addressing risks
such  as  undesirable  knowledge  transfer,  foreign  interference,  and  ethical  violations. The
Commission  is  encouraged  to  explore  structural  support  options,  including  the  potential
establishment of a European Centre of Expertise on Research Security.

9.2.2.

Pursue multilateral dialogues

The Multilateral Dialogue on Principles and Values for International Cooperation in R&I
was  set  out  in  the  Global  Approach  to  R&I aiming  to  identify  commonalities,  discuss
differences,  and  learn  from  each  other’s  experiences.  Each  Multilateral  Dialogue,  which
includes  key EU partners abroad,  focuses  on  one  principle  or value. Since October 2022,
eight  workshops  have  taken  place,  including  on  academic  freedom,  ethics  and  research
integrity, gender equality and inclusiveness, and Open Science.

In  the  period  under  review,  four  workshops were organised with  each  one  focusing  on  a
specific theme:

 Research  excellence (1  June  2023) – workshop to  share  experiences  and
approaches  on  the  understanding  of  research  excellence  in  different  parts  of  the
world;  including  how  policy-makers  in  different  contexts  apply  the  concept  of
excellence to the design and implement R&I policies.

 Knowledge  valorisation (2  October  2023) – workshop focusing  on  policy
developments,  strategies  and  best  practices  in  the  field  of  intellectual  assets
management (including national IP strategies), and how to enhance collaborations
between industry, and academia, and stakeholder engagement in R&I.

 Research security (7 December 2023) – workshop to provide a platform for open
dialogue on distinctions and commonalities in the conceptualisation and application
of research security in different national contexts.
Encouraging  equitable R&I partnerships  with  low- and  middle-income
countries (18  January  2024) – workshop focusing  on  best  practices  and  key
challenges in developing equitable partnerships in international research.



59

Moreover, an international ministerial conference111 was held in February 2024 to reach
broad  consensus  on  the  importance of  shared  principles  and  values  in  international  R&I
cooperation. The conference fostered a strong understanding of the different cultural contexts
among participating countries, with political recognition given to the progress achieved. Apart
from  providing  political  recognition  at  international  level  of  the  work  carried  under  the
Multilateral  Dialogue,  the  conference  endorsed  the  Brussels  Statement,  a ministerial-level
document on the principles and values underlying international cooperation in research and
innovation.

9.2.3.

Development of science diplomacy

An  increasing  number  of  recent  EU  policy  documents  in  the  foreign  and  security  policy
domain  have  made  explicit  or  implicit  reference  to “science diplomacy” and  the need  for
foreign policy to be based on the best possible evidence. The first Biennial Report on
the Global Approach to R&I highlighted the lack of coordination and of an EU-wide approach
to  science  diplomacy,  leaving  the  EU  vulnerable  in  a  rapidly-evolving  geopolitical  and
technological  landscape,  especially  compared  to  more  targeted  approaches  by  other
international  actors.  The  urgency  to  act  in  this  domain  was  emphasised  by  EU  Research
Ministers during their July 2023 meeting in Spain, where science diplomacy was discussed
for the first time at a ministerial level.

With  support  of  stakeholder  communities,  the  Commission published a European
Framework  for  Science  Diplomacy in  February  2025,  which is  built  around  four  work
strands:112

 How  to  use  science  diplomacy  strategically  to  tackle  geopolitical  challenges  in  a

fragmented, multipolar world?

 How to  make  European  diplomacy  more strategic,  effective,  and  resilient  through

scientific evidence and foresight?

 How to strengthen science diplomacy in EU and Member State diplomatic missions

and foster the EU’s global science diplomacy outreach?
 How to build capacity for European science diplomacy?

To develop concrete recommendations for a European Framework for Science Diplomacy,
the Commission established five working groups, which delivered those recommendations in
June  2024. Moreover,  the  Commission organised,
together  with the  Union  for  the
Mediterranean (UfM) and the Arab League, a High-Level Meeting on Science Diplomacy on
2 October 2024 in Cairo. This followed the first EuroMed Science Diplomacy Conference that
was held at the UfM headquarters in October 2023.

9.2.4.

Development of Team Europe pilot initiatives

One important element, drawing inspiration from the Team Europe Initiatives, has been the
development of pilot initiatives focusing on specific regions or countries to unify efforts for a
more coordinated and effective strategy in international research cooperation.

A bilateral pilot initiative on cooperation with China focuses on establishing a level playing
field and areas of mutual benefit, as well as outlining the main elements of the Joint Roadmap
for  the  future  of EU-China  cooperation  in  science,  technology  and  innovation, was under
discussion between the EU and China during the reporting period.

111 The  conference was  attended  by  ministers/delegates  from  57  countries,  including  the  27  EU  Member
States,  15 countries  Associated  or  negotiating Association  to  Horizon  Europe,  15  international  cooperation
partner countries, as well as representatives of the OECD, UNESCO, and the International Science Council.
In addition, 16 stakeholder organisations representing the European academic and scientific communities were
invited to attend the event in an online format.
112 These issues were discussed at the first European Science Diplomacy Conference that was held on 18-19
December 2023 in Madrid, in cooperation with the Spanish Presidency of the Council of the EU.

60

The ERA  Forum Standing  Subgroup on  the  Global  Approach  to  Research  and  Innovation
adopted a recommendation regarding the development of a possible ARISE 2.0 programme
in the context of the capacity building component of the African Union-EU Innovation Agenda.
It  underlined  the  need  to  pool  Team  Europe-Africa resources in  the  design  and
implementation  of  ARISE  2.0,  enhancing  synergies  between  relevant  African Union,
European Union, and respective Member State initiatives.

Assessment  of  the  progress  towards  the  ERA  Action  9  objectives
over the 2022-2024 period

9.3.1.

Assessment of progress towards Specific Objectives: main initiatives
and outcome

The objectives of ERA Action 9 have been achieved and even exceeded in several areas:



A Council Recommendation on enhancing Research Security was adopted in May
2024,  providing  guidance  to  the  European  Commission,  Member  States,  and  the
various players in the European R&I ecosystem on how better to confront foreign
interference in R&I.



 With the adoption of the Brussels Statement in February 2024, the EU has reached
an important milestone in the development of the Multilateral Dialogue on Principles
and Values in International R&I Cooperation. The statement provides a solid basis
for taking the Multilateral Dialogue to the next global level.
The EU has taken significant steps to develop a European Framework for Science
Diplomacy through  a 
to  a  set  of
thorough co-creation  process 
recommendations on  which future policy  action can  be built.  These  efforts  aim  to
position science diplomacy as a critical tool for addressing geopolitical challenges
and fostering international cooperation.
The EU successfully launched two pilot initiatives on China and Africa, which will
enable  the  EU  to  be  much  more  strategic  in  engaging  with  international  partners
based on the Team Europe approach.

leading 



The table below summarises the main initiatives and outcome of the Action  along the five
specific objectives.

Table 10 Assessment  of  the  progress  towards  Action  9  Specific  Objectives:
initiatives and outcome

Specific objectives113

Pursue Multilateral
Dialogues with partner
countries and
international for
promoting shared
values and principles

Establish a European
Science Diplomacy
Agenda, coordinating
efforts between the EU
and Member States in
multilateral initiatives

Main initiatives
implemented

 Multilateral Dialogue
on Principles and
Values for
International R&I
Cooperation

Main outcome

 Ministerial (Brussels) Statement on principles
and values for international cooperation in
research and innovation

 Enhanced global collaboration via thematic

workshops on topics like academic freedom,
research security, and gender equality

 European Science

 Development of recommendations for a

European Framework for Science Diplomacy

Diplomacy
Conference

 EU Science

Diplomacy Working
Groups

113 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

61

Establish a coordinated
approach towards
bilateral and regional
cooperation through
pilot initiatives and
engagement in
multilateral platforms

 Development of pilot

initiatives based on
a Team Europe
approach

 Discussion on
coordinated
engagement in
multilateral platforms
and initiatives

 Pilot initiative on cooperation with China

focusing on a level playing field and areas of
mutual benefit

 Recommendation on a Team Europe-Africa
approach to the development of a possible
ARISE 2.0 programme

 Mapping of bilateral and multilateral

cooperation of ERA members and observers

 Following discussions on coordinated

engagement in multilateral platforms and
initiatives, the ERA subgroup decided not to
pursue this due to lack of added-value

Source: Technopolis Group, based on data collected through desk and interviews

9.3.2.

Challenges and opportunities towards future ERA initiatives

The initiatives implemented helped to deliver on all promised action objectives. Significant
progress was made in fostering institutional synergies, notably between Horizon Europe and
the Global  Gateway,  ensuring  research  and  innovation  benefits  are  integrated  across
initiatives.  The action  also  strengthened  science  diplomacy  through  the  development  of  a
European  Framework  on  Science  Diplomacy  and  a  network  engaging  Member  States’
foreign ministries. Moreover, it successfully implemented safeguards to maintain research as
an  open  and  safe  endeavour,  balancing  openness  with  security  in  Horizon  Europe.
Stakeholder  co-creation  was  emphasised,  particularly  with  the  academic  community,  to
ensure broad support for sensitive issues such as research security.

However,  some  challenges  remain  in  balancing  the  principles  of  openness  and  strategic
autonomy. Future steps would also require a roadmap to guide implementation, enhanced
communication  strategies  to  address  stakeholder  concerns,  and  further  development  of
science diplomacy to adapt to an evolving geopolitical context.

Assessment of the ERA Actions under ERA Priority 1 – Deepening
a truly functional internal market for knowledge

ERA Priority 1 focuses on deepening a truly functional internal market for knowledge while
strengthening the European R&I ecosystem. The following analysis evaluates the progress
made under each ERA Action associated with this priority.

 Circulation  and  open  sharing  of  knowledge  and  research  output and

strengthening research careers

First, the circulation and open sharing of knowledge and research outputs has progressed
through different actions.

ERA Action 1 aimed to enable the open sharing of knowledge and the reuse of research
outputs, advancing the  European Open  Science Cloud.  The  EOSC  EU  Node  became
operational  in  October  2024,  serving  as  the  backbone  of  a  federated Open  Science
framework. Key milestones included the EOSC Observatory, integration of FAIR principles
into national strategies, and initiatives such as OSCARS and EOSC Beyond, which expanded
infrastructure  for  smaller  research  communities.  Monitoring  tools  like  EOSC  Track  and
PathOS  yielded  detailed  insights  into  national  contributions  and  socio-economic  impacts,
while open-access publications rose to 78.2% EU-wide in 2021 (dipping slightly to 77.7% in
2022),  narrowing  gaps  between  Member  States.  Horizon  Europe  mandates  and  the
OpenAIRE Open  Science Observatory  further  boosted  the  share  of Open  Access

62

publications to 61.4% by November 2024. Despite these gains, persistent challenges remain
in  harmonising  commitments,  ensuring  financial  sustainability,  and  addressing  policy
disparities,  emphasising  the  need  for  ongoing  coordination  and  investment  to  fulfil  the
potential of Open Science.

As  next  step,  the strengthening  of  the Open  Science  implementation  and  EOSC
governance seems essential. Future efforts should focus on harmonising policies, fostering
sustained  investments  beyond  the  Horizon  Europe  framework,  and  expanding  the  EOSC
Federation  to  address  disparities  in  access  and  capacity.  Enhanced  synergies  with
complementary ERA actions, such as ERA Action 3 on research assessment and ERA Action
2  on  copyright  frameworks,  will  be  essential  to  maximise  the  impact  of  Open  Science
practices in Europe.

ERA Action 2 sought to propose an EU copyright and data legislative and regulatory
framework  fit  for  research. Efforts under  this  action pinpoint  barriers  to  accessing  and
reusing  publicly  funded  research  outputs  while  proposing  legislative  and  non-legislative
measures  to  strengthen  EU  copyright  and  data  frameworks.  Studies  conducted  between
2022 and 2024 highlighted key  obstacles, including  restrictive  copyright  laws,  inconsistent
implementation  of  research  exceptions,  and  complex  compliance  requirements  under
existing digital and data legislation. To address these issues, a major study on ERA Action 2
identifies policy options on an EU-wide Secondary Publication Right, harmonised research
exemptions to EU copyright rules, and standardisation across frameworks such as the Data
Governance Act and Open Data Directive. Although no formal legislative proposals emerged,
these  findings  informed  discussions in  the  ERA  Forum  and  laid  the  groundwork  for  future
policy  measures.  The  major  ERA  Action  2  study  underscored  the  need  for  clearer  legal
frameworks and consistent recognition of researchers’ rights. Balancing diverse stakeholder
perspectives and navigating regulatory complexity remain critical challenges, which the next
ERA  Policy  Agenda should address  to  foster  a  more  open  and  collaborative  research
environment.

To reduce legal barriers for knowledge circulation and support the broader adoption
of  Open  Science  practices  across  Europe, expert  studies  recommend  that  future
measures should streamline copyright and data legislation, including harmonised Research
Exceptions and an EU-wide Secondary Publishing Right. This would enhance Open Access
and reuse of publicly funded research results as well as publications and data for scientific
purposes, aligning with broader Open Science and research assessment reforms.

ERA Action 4 enabled to promote attractive research careers, talent circulation, and
mobility, improving the attractiveness and sustainability of research careers through a 2023
Council  Recommendation  on  a  European  Framework  for  Research  Careers,  updating  the
European  Charter  for  Researchers.  Tools  such  as  the  ERA  Talent  Platform  and
ResearchComp  offered  integrated  resources  for  career  development,  while  a  Mutual
Learning  Exercise  supported  balanced  talent  circulation.  The  share  of  foreign  doctorate
students in the EU-27 rose to 22.7% in 2022, despite persistent disparities. Developments
like  the upcoming Research  and  Innovation  Careers  Observatory  and the ‘Talent
Ecosystems’  initiative  aided  early-career  pathways,  yet  challenges  remain  in  integrating
transversal skills, establishing structured mentorship, and ensuring data consistency. Further
success under ERA Action 4 depends on continued investment in these initiatives and robust
monitoring  through  ReICO  to  ensure  long-term  impact  on  researcher  mobility  and  career
stability.

To  address the  data  gaps  and  challenges  in  integrating  transversal  skills  and  career,
structured mentorship programmes, the inclusion of transversal skills in evaluations,
and  the  development  of  a  training  catalogue linked  to  the  Pact  for  Skills could  be
envisaged.  Integrating  ResearchComp  into  PhD  curricula  and  advancing  cross-sectoral
mobility initiatives will strengthen the ERA’s ability to attract and retain top talent.

63

ERA Action  7 has  advanced  the  shift  from  traditional  knowledge  transfer  to
comprehensive  knowledge  valorisation  practices.  Guiding  principles  and  codes  of
practice  on  intellectual  asset  management,  standardisation,  citizen  engagement,  and
industry-academia collaboration have established a robust framework for R&I stakeholders.
The  EU  Knowledge  Valorisation  Platform  along  with  the  Science  Monitor  and  Knowledge
Valorisation  Talks  have  enhanced  best  practice-sharing  across  Member  States.  Mutual
Learning  Exercises  and  Horizon  Europe  projects  have  reinforced  innovative  approaches
such  as  co-creation  and  citizen  engagement,  though challenges  persist  in  ensuring  the
uptake of these practices among smaller institutions and less experienced stakeholders.

Greater capacity-building and intermediary support services will be vital to maintaining
current  momentum. Strengthened dissemination  strategies,  targeted  support  for
knowledge transfer offices, and the promotion of industry-research-science collaboration
will further enhance the valorisation and uptake of R&I results.

ERA  Action  8  has contributed  to strengthen  the  European  research  infrastructure
ecosystem. The Landscape Analysis 2024 provided a comprehensive overview of RI gaps,
synergies,  and  challenges,  informing  the  update  of  the  ESFRI  Roadmap  with  a  focus  on
sustainability  and  interdisciplinary  collaboration.  Monitoring  of  ESFRI  Landmarks  has
improved RI performance assessment, while the updated European Charter of Access aims
to widen access across the EU. Despite progress, disparities in national R&D expenditure
persist, and securing sustainable funding remains challenging. The ESFRI-EOSC Task Force
technology
and 
infrastructures,  and  industry,  promoting  FAIR  data  and  digital  integration.  However,  the
financial  and  operational  sustainability  of  ERICs  and  other  RIs  requires  continued  efforts,
including  stronger  synergies  between  national  and  EU  funding.  Leveraging  emerging
technologies and aligning RIs with societal priorities could further enhance the impact and
resilience of Europe’s RI ecosystem.

like  RITIFI  advance  collaboration  with  e-infrastructures, 

initiatives 

To address persistent challenges in research infrastructures, Europe should secure long-
term  sustainability  through  harmonised  funding  strategies,  and  stronger  synergies
between  RIs,  technology  infrastructures,  and  industry.  Efforts  should  focus  on  further
embedding  RIs  in  EU  priorities,  fostering  interdisciplinary  collaboration  and  private-sector
engagement, integrating emerging  technologies, and addressing funding gaps to enhance
resilience and global competitiveness. The development of a comprehensive and sustainable
RI/TI strategy would ensure Europe’s RIs/TIs remain innovative, sustainable, and impactful
in terms of societal and policy objectives.

 Fostering the inclusiveness and resilience of knowledge ecosystems

Complementarily, the inclusiveness  and  resilience of knowledge  ecosystem has  also
been a core focus to achieve the ERA Priority 1 objectives.

Under ERA Action  3, efforts  to  reform the  assessment  system  for  research,
researchers,  and  institutions have centred on  the  Coalition  for  Advancing  Research
Assessment.  By  mid-2024,  CoARA  had  expanded  to  over  700  members,  with  150
organisations  developing  action  plans  under  CoARA  Boost’s  cascading  grants.  Working
groups  and  national  chapters  facilitated  knowledge  exchange,  while  initiatives  such  as
GraspOS,  OPUS,  and  SciLake  piloted  new  frameworks  for  qualitative  assessment, Open
Science,  and  AI-assisted  evaluation.  The  European  Universities  Initiative  and  European
Excellence  Initiative  also  embraced  assessment  reforms. Despite  marked  progress,
challenges  persist  in  promoting  diversity,  ensuring  systematic  qualitative  evaluation,  and
addressing  cultural  and  structural barriers. Sustained  efforts  are vital  to  achieve  inclusive,
high-quality, and transparent research assessment across Europe.

Strengthening  national  and  international  participation  in  CoARA,  integrating  diversity
dimensions  into  assessment  practices,  and  ensuring  alignment  with  EU  funding

64

instruments like  Horizon  Europe could support  more  inclusive  and  comprehensive  evaluation
systems.  Addressing  structural  barriers  and  fostering  community-based  learning,  including  on
qualitative evaluation methods and inclusivity in assessment criteria, will amplify impact.

ERA Action  5  enabled significant  progress to  promote  gender  equality  and  foster
inclusiveness, taking note of the Ljubljana Declaration, with Gender Equality Plans and
intersectionality driving advances in tackling gender-based violence and enhancing women’s
leadership roles. Horizon Europe Projects such as GenderSAFE, GENDERACTIONplus, and
INSPIRE have supported institutional reforms through guidelines, training, and monitoring.
The proportion of women in Grade-A academic positions across the EU-27 rose from 19.7%
to  27.3% during  the 2010er  years,  although  disparities  remain.  Mandatory  GEPs  under
Horizon  Europe  have  pushed  public  research  institutions  to  reinforce  gender  strategies,
influencing private funders to adopt similar plans. Challenges persist in fragmented national
support, limited resources, and insufficient understanding of inclusive practices. The related
ERA Forum Sub-group introduced frameworks like a Zero-Tolerance Code of Conduct, yet
institutional  capacity  and  political  commitment  must  be  strengthened  to  sustain  progress.
Further efforts are also needed to move beyond compliance to transformative change.

Moving forward, enhanced capacity-building support, streamlined GEP guidelines, and the
promotion  of  inclusive  evaluation  systems,  while  fostering  collaboration  between  research
managers  and policy-makers, could ensure sustained progress towards gender equality across
the ERA.

ERA Action  6 underpinned safeguarding academic  freedom  and  addressing foreign
interference in R&I. The 2024 Council Recommendation on Enhancing Research Security
provides a framework to mitigate knowledge transfer risks, foreign interference, and ethical
violations. A Mutual Learning Exercise involving 12 Member States facilitated best-practice
sharing and a common understanding of threats. Work is also progressing on a European
one-stop-shop  digital  platform  for  tackling  foreign  interference,  due  in  2025.  While  these
advancements highlight the EU’s commitment, further efforts are needed to ensure effective
implementation at national and institutional levels.

Future priorities should include scaling the one-stop-shop platform, exploring alternative
international
support  structures 
collaboration to counter foreign interference. These efforts will ensure a secure and open
research environment aligned with EU values.

freedom,  and  strengthening 

for  academic 

Finally, the ERA Action 9 has strengthened the EU’s role in international R&I cooperation,
combining  strategic  autonomy  with  shared  values  such  as  academic  freedom  and
inclusiveness. The European Economic Security Strategy and the Council Recommendation
on Enhancing Research Security  underscore  the  balance  of  safeguarding  research  while
maintaining  openness.  International  co-publications  rose  to  342  per  1,000  public-sector
researchers in 2022 (from 218 in 2010), although disparities persist among Member States.
The  Multilateral Dialogue  on  Principles  and  Values  has  promoted  shared  priorities,  and
developing a  European  Framework  for  Science  Diplomacy  has  reinforced  the  EU’s
leadership  in  addressing  geopolitical  challenges.  Balancing  openness  with  strategic
autonomy  remains  crucial,  necessitating  clear  guidelines  and  robust  stakeholder
engagement.

Future efforts should incorporate science diplomacy into broader EU external actions
while ensuring coherence across international R&I initiatives. These efforts should focus
on balancing openness and strategic autonomy, aligning research and foreign policies, and
anchoring  science  diplomacy  and  research  security  as  important  elements  of  the  EU’s
international strategy.

65

ERA PRIORITY 2: Taking up together the challenges posed
by  the  twin  green  and  digital  transition,  and  increasing
society’s participation in the ERA

The following sections summarise the key findings on the implementation of ERA Actions 10
to 14, highlighting their contributions to ERA Priority 2 objectives.

10. Action  10:  Make  EU  R&I  missions  and  partnerships  key

contributors to the ERA

Key  findings  Action  10:  Make  EU  research  and  innovation  Missions  and  European
Partnerships key contributors to the ERA

Progress  has  been  made  in  achieving  the  objectives  set  out  for  this  ERA  Action.  These
initiatives have enhanced the critical role of Missions and Partnerships in advancing EU policy
objectives and contributed to tackle the key challenges.
Advancing EU Missions:















The Mutual Learning Exercise on Missions was implemented between May 2023 and
November 2024, and supported the development of effective national frameworks for
implementing EU Missions.

Main work on EU Missions to share information, create awareness and build ownership
of EU Missions at national level, regional and community level has been continuing the
Working  Groups  of  the  Strategic  Configuration  of  the  Horizon  Europe  Programme
Committee.

The five  EU  Mission 
Implementation  Platforms,  Climate  ADAPT  (Climate
Adaptation), NetZeroCities (Cities), Mission Ocean and Waters’ platform (Oceans and
Waters), the Mission Soil Platform (Soil), and Cancer Mission Implementation (Cancer),
contribute  to  the  achievement  of  the  missions’  objectives.  Each  serve  as  knowledge
hubs,  fostering  strategic  alignment  between  EU,  national,  and  regional  activities,
stakeholder engagement and community management, coordination of relevant CSAs,
knowledge dissemination  and communication, support for the uptake and diffusion of
solutions produced by the mission, etc.

Citizen-focused platforms, including the Citizen Resilience Scan (Climate Adaptation
Mission)  and  NetZeroCities  (Cities  Mission),  engaged  communities  in  participatory
policy-making.

Two  European  Mission  Forums were  held  to  enhance  mission  coordination  and
engagement.

The TRAMI project (2022-2024) supported missions with the launch of tools like the
Mission  Data  Platform  (November  2023),  enabling  governance  monitoring  and
facilitating mutual learning, also via the European Mission Network (EMiN) to connect
key players from the business sector, academia, civil society organisations as well as
governmental actors.

The 2023  EU  Missions  Assessment  Report  and  EC  Communication and  Staff
Working Document highlighted the importance of public awareness, governance and its
ability to leverage other sources of funding, including private funding to enhance mission
impact.

66

Strengthening European Partnerships:







The Partnership  Knowledge  Hub (PKH)  offered  an  important  coordination  and
cooperation platform to strengthen the partnership landscape, enabling the exchange
of views between the EC and the Member States and Associated Countries, including
through  regular  workshops  focusing  on  relevant  topics  such  as  the  administrative
burden or the phasing out strategy, and the development of an Opinion Report (2023)
that further shape the partnership landscape.

A dedicated expert group supported the monitoring and evaluation efforts, producing a
Biennial  Monitoring  Report (2024)  that  assessed  Partnership  alignment  with  EU
objectives. It states that “European Partnerships continue to be a cornerstone of ERA
by aligning R&I agendas, improving skills  and increasing the absorption  capacities of
European businesses. The European Partnerships allow the EU to team up with public
and private partners to help speed up the development of new solutions for the green
and digital transitions and to strengthen Europe’s resilience.”

Annual  European  Partnership  Stakeholder  Forums facilitated  knowledge-sharing
with  the  stakeholder  community  and  provided  actionable  insights  to  enhance
governance and strategic alignment.

Next, Missions will continue to diversify funding strategies beyond R&I programmes, while
addressing  challenges  related  to  governance,  and  alignment  with  policy  actions,  and
enhancing citizen engagement and work on the monitoring framework to maximise their long-
term societal impact by 2030. European Partnerships seek to improve portfolio coordination,
better  alignment  with  EU  and  national  policies,  while  further  improving  performance
measurement  and  monitoring  framework,  to  maximise  their  impact  and  address  strategic
priorities effectively and further leverage co-investments.

Objectives and scope of ERA Action 10

Purpose of the action:114

Action 10 focuses on the EU Missions and European Partnerships connected with Horizon
Europe.  It  aims  to  implement  these  initiatives  in  a  way  that  maximises  their  impact,
establishes  them  as  key  contributors  to  the  ERA,  and  ensures  that they  support  the  twin
green and digital transition.

114 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

67

Figure 10 Identified problems and defined objectives of ERA Action 10

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 10 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):115

The previous phase of ERA Action 10 saw progress in both raising awareness and building
ownership  of  EU  R&I  Missions  at  various  governance  levels,  as  well  as  in  monitoring  the
performance  of  European  Partnerships  to  ensure  their  alignment  with  ERA  values  and
principles. Key initiatives included:







Five  EU  R&I Missions were  launched  under  the  Horizon  Europe  Framework
Programme,  addressing five priority  areas:  climate  resilience,  cancer,  oceans  and
waters, smart cities, and soil health. These Missions have been integrated into major
EU  policies,  such  as  the  European  Green  Deal  and  Beating  Cancer  Plan,  providing
opportunities for advancing ERA Action 10 objectives.

TRAMI project supported  the Missions  by fostering knowledge exchange  and  mutual
learning,  as  well  as  developing  tools  like  the  Mission  Data  Platform  to  monitor
implementation  structures. Supported  by  TRAMI, EMiN was
governance  and 
established,  bringing  together  over  100  members  from  the  private  sector,  academia,
civil  society,  and  government.  EMiN  facilitates  cooperation,  the  exchange  of  best
practices, and alignment of Mission goals with national and regional priorities.

Partnership  Knowledge  Hub produced  its  first  biennial  monitoring  report,  providing
critical insights into the performance of European Partnerships. The PKH also played a
pivotal  role  in  structured consultations  for  selecting  new  partnerships  under  Horizon
Europe’s Strategic Plan 2025-2027.

115 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

68



Annual European Partnership Stakeholder Forum events offered a platform for the
Partnership  community  to  connect,  share  knowledge,  and  address  key  challenges.
These events facilitated the exchange of insights to improve partnership performance
and alignment with EU priorities.

10.2.1. Share  information,  create  awareness  and  build  ownership  of  EU  R&I

Missions at national level, regional and community level

The Mutual  Learning  Exercise  on  Missions ran  from  May  2023  to  November  2024,
involving  17  countries  and  focusing  on  four  key  areas:  establishing  national  governance
structures,  developing  mission  portfolios,  securing  funding  and  creating  synergies,  and
fostering citizen engagement. Through discussions, workshops and country visits (Austria,
Sweden, Czechia, and Belgium), the MLE produced five reports that offer valuable insights
for  building  effective  national  frameworks  and  ensuring  that  time-bound,  ambitious  EU
Missions lead Europe towards smart, inclusive, and sustainable growth. MLEs covered four
main  topics  of  interest,  namely  the  creation  of  national  governance  structures,  mission
portfolios, securing funding and creating synergies, and citizen engagement.

These efforts sit within a broader landscape of initiatives designed to engage Member States
and  Associated  Countries.  The five  EU  Mission  Implementation  Platforms,  Climate
ADAPT (Climate  Adaptation), NetZeroCities  (Cities), Prep4Blue (Oceans and Waters), the
Mission  Soil  Platform  (Soil),  and  Cancer  Mission  Implementation  (Cancer),  each  serve  as
knowledge hubs, fostering strategic alignment between EU, national, and regional activities.
They  offer  digital  toolboxes  and  resources,  share  data  and  best  practices,  promote  peer-
learning and -twinning, and encourage broader outreach and citizen engagement. They also
collect  data  to  support  monitoring,  ensuring  sustained  momentum  towards  mission
objectives.

In  addition,  during  the  review  period,  the Transnational  Cooperation  on  the  Missions
Approach project  concluded,  having  been  active  from  April  2022  to  March  2024.116 The
project delivered several outputs, including mappings of governance structures and actors, a
Missions  Playbook  synthesising  best  practices,  various  mutual  learning  events  and
workshops as well as the creation of EMiN, which brings together key players from the private
sector, academia, civil society organisations, and governments.

Another European Mission Forum was held in March 2024 to enhance coordination and
engagement.  It  provided  updates  on Mission  policies,  governance  structures,  and  the
implementation of tools such as the Mission Playbook and Citizen Observatory. The event
consolidated EMiN as a network for collaboration, improving alignment of strategies across
governance layers to address systemic challenges. The event underscored the importance
of  fostering  transdisciplinary  collaboration,  enhancing  citizen  involvement,  and  promoting
knowledge-sharing to ensure the success and inclusivity of EU Missions.117

In  September  2023,  the EU  Missions  Assessment  Report was  published,  providing  a
comprehensive review of the progress and relevance of Horizon Europe’s five Mission areas.
Key conclusions include the importance of interdisciplinary approaches, fostering synergies
among  missions,  and  ensuring  sustainable governance structures and  alignment  between

116 For  a  description  of  the  project,  including  its  objectives  and  results  see https://www.trami5missions.eu;
https://cordis.europa.eu/project/id/101056814/results
117 Trami, Transnational Cooperation on the missions approach - Report on 1st European Mission Forum
EMiF, 2023; Trami, Transnational Cooperation on the missions approach - Report on 2nd European Mission
Forum EMiF, 2024.

69

research, policy, and citizens. The report also  calls for increased focus on monitoring and
recommends enhanced stakeholder participation to build trust in mission outcomes.118

To  match  the  strategic  nature  of  the  review  and  assessment  exercise,  a Commission
Communication was adopted in July 2023, accompanied by a Staff Working Document that
presents the technical evidence of the EU Missions assessment and the review of mission
areas. Challenges  remain,  including  increasing  public  awareness,  improving  governance,
and  leveraging  additional  funding, esp. private.  This  Communication  proposes  funding
beyond Horizon Europe, and several actions to address the issues encountered so far, with
the aim for the Mission approach to achieve its transformative potential.

Several  initiatives  have  been  launched  and are  currently running  to foster  citizen
engagement across various domains, mainly through the Mission Implementation Platforms.
The Climate Mission involves citizens at local and regional levels, supported by tools such
as the Citizen Resilience Scan. Many cities, for example, are using the Climate City Contract
(CCC) process to bring together local industry, utility providers, universities, NGOs, chambers
of commerce, supermarkets, and even football clubs. The Cancer Mission engages patients,
caregivers, and families, ensuring tailored approaches through national Mission hubs. The
Ocean Mission fosters broad public participation and ocean literacy via ‘Plastic Pirates’, the
EU4Ocean Coalition, ‘Choose your fish’ campaigns, and targeted outreach to young people,
consumers,  and  artists.  The  Cities  Mission  supports  participatory  policy-making  via  the
NetZeroCities  platform,  empowering  communities  to  co-design  climate-neutral  solutions.
Lastly,  the  Soil  Mission  has  created  a  community  of  ‘soil  guardians’  and  is  testing  novel
engagement activities such as rural trekking and involving prison inmates in soil protection
and  restoration,  alongside  local  dialogues  and  citizen  science.  These  approaches
demonstrate  the  breadth  of  public  interest  in  EU  Missions  and  the  value  of  co-creation  to
ensure alignment with local priorities. The Horizon Europe Work Programme 2023-2024 also
implementation
contains cross-cutting  activities that  aim 
transversely.

the Missions’ 

to  support 

10.2.2. Monitor the performance of Partnerships and how they contribute to the

new ERA and its set of values and principles

In  June  2023, the Partnership Knowledge Hub published  an  opinion  feeding  into  the
selection process for additional Partnerships, as well as featuring lessons learned from the
selection process under the first Strategic Plan (2021-2024), and ways to enhance synergies,
transparency, and better alignment with EU objectives in the upcoming Partnerships.119 The
European Commission proposed 10 new co-funded or co-programmed candidate European
Partnerships for the second half of Horizon Europe120, out of which nine were included in the
second  Horizon  Europe  Strategic  Plan121: co-funded Partnerships  on  brain  health,  forests
and forestry, raw materials, cultural heritage resilience, and social transformations, and co-
programmed  partnerships  targeting  innovative  materials,  solar  photovoltaics,  textiles,  and
virtual worlds.

The Biennial  Monitoring Report (BMR) serves  as  the cornerstone  for  monitoring and
reporting on  European  Partnerships.  The  BMR  has  been  supporting  the  strategic

118 European Commission: Directorate-General for Research and Innovation, Angelis, J., Reid, A., Griniece,
E., Hallersjö Hult, E. et al., Study supporting the assessment of EU missions and the review of mission areas
– Mission areas review report, 2023.
119 European Commission: Opinion of the Partnership Knowledge Hub on the European partnerships under
the Second Strategic Plan, 2023.
120 European Commission: Co-funded and co-programmed European Partnerships under the second Horizon
Europea Strategic Plan: Draft concept papers for proposed candidate partnerships, 2023.
121 European Commission: The second Horizon Europe strategic plan 2025-2027.

70

coordinating process for European Partnerships, launched for this purpose. It covers the 49
partnerships  of  the  first  Horizon  Europe  strategic  plan,  and  highlights  their  progress  in
leveraging  co-investment,  achieving  policy  objectives,  and  fostering  synergies  with  EU
Missions and other programmes. In addition to addressing the partnerships’ contributions to
the green and digital transitions, and resilience at the partnerships’ role, the second BMR,
published in 2024, also focused on technological sovereignty and international positioning
of European R&I.122

Furthermore, ERA-LEARN complemented  these  efforts  by  revising  its RIPE  toolkit,  now
R2IPE, to meet Horizon Europe’s monitoring requirements and offering updated guidance on
evaluation  practices. Two annual Partnership Stakeholder Forums were co-organised with
the European Commission in 2023 and 2024:

 The Partnership Stakeholder Forum 2023 brought together over 250 stakeholders to
address  key  challenges  such  as  fostering  international  collaboration,  improving
governance,  and  addressing administrative complexity,  providing  actionable  insights to
refine and enhance European Partnerships.

 The Partnership  Stakeholder  Forum  2024 marked 

two  decades  of  European
Partnerships, celebrating their impact in fostering collaboration across borders, pooling
resources,  and  tackling  pressing  societal  challenges.  Held  in  December  2024,
discussions centred on enhancing governance, strengthening synergies across initiatives,
and encouraging greater investment, including from private stakeholders, to ensure long-
term impact.

Assessment of the progress towards the ERA Action 10 objectives over the
2022-2024 period

10.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

Progress under ERA Action 10 has been notable in advancing European Partnerships and
Missions  to  align  with  ERA  values  and  principles.  The  table  below  summarises  the  main
initiatives and outcomes delivering on the specific objectives of ERA Action 10.

Table 11 Assessment of the progress towards Action 10 Specific Objectives: initiatives
and outcome

Specific
objectives123

Share
information,
create
awareness
and build
ownership of
EU R&I
missions at
national
level,
regional and

Main initiatives put in place

Main outcome

 Mutual Learning Exercise on Missions





Five EU Mission Implementation
Platforms, Climate ADAPT (Climate
Adaptation), NetZeroCities (Cities),
Prep4Blue (Oceans and Waters), the
Mission Soil Platform (Soil), and
Cancer Mission Implementation
(Cancer), each serving as knowledge
hubs, fostering strategic alignment
between EU, national, and regional
activities







Increased awareness and ownership of
EU R&I missions among Member
States and stakeholders.

Enhanced cooperation between
national and regional stakeholders on
mission-related activities.

Promotion of best practices via the
Mission Playbook and citizen
observatories.

Increased citizen engagement and
participatory policy-making

122 European  Commission: Performance  of  European  partnerships – Biennial  monitoring  report  2024  on
partnerships in Horizon Europe, 2024.
123 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

71

community
level

Monitor the
performance
of
partnerships
and how
they
contribute to
the new ERA
and its set of
values and
principles.







Two European Mission Forums were
held to enhance mission coordination
and engagement

TRAMI project to support missions
and improve collaboration

Launch of citizen-focused mission-
related initiatives, often through the
mission implementation platforms

 Creation of the Partnership

Knowledge Hub as a central
monitoring platform (already in 2021)

 Expert groups to support the EC with

monitoring an evaluation resulting with
Biennial Monitoring Reports to assess
partnership alignment with EU
priorities

 European Partnership Stakeholder
Forums to facilitate knowledge
sharing and collaboration among
European Partnerships

 Dedicated expert group to support the
EC with monitoring and evaluation



Launch of thematic Partnerships (e.g.,
Sustainable Blue Economy
Partnership, FutureFoodS
Partnership) and inclusion of nine new
Partnerships in Strategic Plan 2025-
2027.



Recommendations for strengthening
the impact of the Missions











Improved monitoring and reporting
mechanisms for partnerships,
supporting ERA objectives

Regular performance assessments
through PKH to inform policy
adjustments and improvements

Improved policy alignment between EU
partnerships and multi-level policies
and enhanced stakeholder
investments, including private-sector
contributions

Most of the partnerships (across all
types) mobilised further public
investment at the national level to
scale-up project results, or follow-up
projects with additional
EU/national/regional funding

Recommendations for further
improving, streamlining and
strengthening the impact of European
Partnerships

Source: Technopolis Group, based on data collected through desk and interviews

The EU Missions are structured to include direct grants, co-funding from Member States and
Associated  Countries,  and  contributions  from private  stakeholders.  Missions  also draw on
synergies with other EU funding programmes, such as the LIFE Programme, Digital Europe,
CEF,  CAP,  Euratom,  EU4Health,  EMFAF  and Cohesion  policies,  to  enhance  resource
mobilisation and alignment with broader EU policy objectives. Funding is allocated based on
the EU Mission Work Programmes, with calls  for proposals targeting key priorities aligned
with the European Green Deal, the Biodiversity Strategy, and other strategic goals.

During  the  review  period,  based  on  the  Horizon  Europe  Work  Programme  2023-2024,
significant financial resources were allocated across the five EU Missions (up to 10% from
the Horizon Europe Pillar 2).

European  Partnerships  receive  funding  from  Horizon  Europe’s  budget,  with  additional
contributions from Member States, Associated Countries, and private partners. According to
the BMR 2024, the  total estimated EU commitment  to partnerships under Horizon Europe
amounts to EUR 24.9 billion, while the estimated commitment from other sources exceeds
EUR 38.6  billion.  This  total  funding  represents  approximately  26%  of  Horizon  Europe’s
overall budget and 39.8% of the Pillar 2 budget.

10.3.2. Challenges and opportunities towards future ERA initiatives

EU Missions, designed as long-term endeavours with a 2030 horizon, have already achieved
significant  progress.  Building  on  the  European  Commission’s  2023  Communication  on
Missions, three challenges remain central: the need for a stronger governance system and
political steer, deeper co-investment and alignment of Member State programming (including
greater private and philanthropic engagement), and enhanced visibility through citizens’ and

72

stakeholders’  participation.  These  efforts  will  be  reinforced  in  the  Horizon  Europe  Work
Programmes (2025-2027).

Mission  Platforms,  mutual  learning  activities,  and  the  Strategic  Programme  Committee
subgroups will remain pivotal for EU Missions. Similarly for Partnerships, PKH and BMR offer
capacity-building,  awareness-raising,  and  performance  measurement.  The  next  BMR  is
scheduled  for  2026,  and  new  Partnerships,  stemming  from  the  second  Horizon  Europe
Strategic Plan, will be launched in 2025 and 2026. Building on these foundations will help
improve  coordination,  and  guide  portfolio  and  resource
strengthen  engagement, 
interventions,  ensuring  a  solid  framework  for  future  Missions  and  Partnerships  across
Europe.

11. Action 11: An ERA for green energy transformation

Key findings Action 11: An ERA for green transformation

ERA Action 11 has advanced the EU’s green energy transition by prioritising investments in
research and innovation to support climate objectives and sustainable growth:









The  revision  of  the Strategic  Energy  Technology  (SET)  Plan aligned  its  objectives
with the European Green Deal and REPowerEU. Providing a policy framework for Green
Energy, the plan now focuses on digitalisation, circularity, and skills development, with
enhanced monitoring and reporting mechanisms.

The ERA  pilot on  green  hydrogen resulted  in  a  Strategic  Research and  Innovation
Agenda (SRIA), supported by the Temporary Working Group (TWG) under the SET Plan
and  the  Horizon  Europe  SET4H2  project.  These  initiatives  promote  collaboration,
infrastructure scaling, and cross-sector partnerships.

Three  EC  Staff  Working  Documents outlined  strategies  for  hydrogen  valleys,  solar
energy innovation, and broader clean energy objectives, reinforcing the EU’s position in
global energy innovation.

The ERA4FutureWork  initiative aims  to  guide  R&I  funding  for  the  future  of  work,
producing  a  SRIA  through  workshops  and  consultations  that  emphasise  ethical,
adaptive, and collaborative environments in digital and AI-driven workplaces.

The initiatives under ERA Action 11 have strengthened cooperation among policy-makers,
industry,  and  academia  to  drive  the  adoption  of  low-carbon  technologies  and  establish
Europe as a global leader in green energy innovation. Yet, the green energy transformation
still faces challenges in ensuring coherence among Member State efforts, aligning national
and EU priorities, and fostering synergies with the Clean Hydrogen JU. Regulatory hurdles
and delays in the permit process remain a bottleneck for hydrogen deployment. Sustained
Member  State  engagement,  streamlined  governance,  and  enhanced  stakeholder
participation are essential to maximise the transformative potential of these efforts.

Objectives and scope of ERA Action 11

Purpose of the action:124

Action 11 aim to prioritise investments in R&I, to drive the green transition. Its objectives
include enhancing access to excellence, translating R&I outcomes into economic impact, and
strengthening policies that promote the free circulation of knowledge. Initiatives linked to this

124 European Commission: ERA policy agenda – Overview of actions for the period 2022-2024, 2022.

73

action  aim  to bolster collaboration  between  private  and  public  R&I sectors  across  MS,
supporting the EU’s ambitious targets for sustainable growth and climate objectives.

Figure 11 Identified problems and defined objectives of ERA Action 11

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 11 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):125

 Agenda  process  on  the  ERA Pilot  on Green Hydrogen: Launched  following  the
Council Conclusions of 1 December 2020, the ERA pilot on green hydrogen focused on
identifying urgent research and innovation  needs. The agenda process included three
thematic  workshops  (on  transport,  infrastructure,  market  stimulation,  and  production)
throughout 2021, culminating in the publication of a Strategic Research and Innovation
Agenda (SRIA) for green hydrogen on 18 March 2022.

 Building  a  European  Research  Area  for  clean  hydrogen – The  role  of  EU  R&I
investments  to  deliver  on  the  EU’s  hydrogen  strategy: The  EC’s  Staff  Working
Document  (2022)  outlines  how  the  Commission,  alongside  the  Clean  Hydrogen  Joint
Undertaking,  will  actively  support  the  implementation  of  the  ERA  Pilot  on Green
Hydrogen, ensuring alignment with the EU’s Hydrogen Strategy.



Temporary  Working  Group  on  hydrogen: In  2023,  the  TWG  was  established  to
implement the SRIA of the ERA Pilot on green hydrogen, coordinating hydrogen-related

125 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

74

research and innovation activities. It is supported by a Horizon Europe Coordination and
Support Action – SET4H2 project – to ensure effective functioning.



European  Strategic  Energy  Technology  Plan (SET  Plan): The  SET  Plan,  a  key
instrument for accelerating clean energy technologies, has been revised to better align
with the European Green Deal, REPowerEU, and the Green Deal Industrial Plan. Its role
has been reinforced in the frame of the Net-Zero Industry Act, and its Steering Group
elevated  in  legal  status.  The  revision  aimed  to  enhance  R&I  efforts,  strengthen  EU
energy  independence,  and  accelerate renewable energy  deployment,  with  a  focus  on
long-term clean energy research.

From mid-2023  to  late  2024,  the  implementation  of  ERA  Action  11  included  several  key
initiatives focused on advancing the green energy transition.

11.2.1. Policy approach for a cooperation framework on R&I driven safe and

sustainable low-carbon energy

2023  and 2024  have seen  the revision  of  the SET  Plan.  It  has  become  one  of  the
components to boost the transition towards a climate-neutral energy system by developing
low-carbon  and  cost-competitive  technologies.  The  Plan,  reinforced  by  the Net-Zero
Industry Act, now has an elevated Steering Group with legal status, enhancing cooperation
among policy-makers, industry, academia, and investors to strengthen Europe’s leadership
in low-carbon technologies.126

11.2.2. The ERA Pilot on Green Hydrogen

The ERA Pilot on Green Hydrogen was set up in 2022 and has led to the definition of the
SRIA. The aim is to identify common research and innovation priorities.

In this context of this initiative, additional strategic documents have been published to further
build a European Research Area for clean hydrogen, including the deployment of Hydrogen
Valleys across Europe and advancing solar energy solutions.127

The  goal  of  the SET4H2 project  is  to  advance  hydrogen  research  and  innovation,  foster
synergies  with  other  renewable  energy  technologies,  and  enhance  European  cooperation
through an integrated and systematic approach, building on the achievements of the ERA
pilot initiative on Green Hydrogen.

The SRIA 2021–2027 of the Clean Hydrogen Joint Undertaking outlines the EU’s roadmap
for advancing hydrogen technologies to support a sustainable energy transition. It prioritises
research and development in green hydrogen production, efficient storage and distribution,
and  innovative  applications  across  sectors such  as  industry,  transport,  and  energy.  The
agenda aims to reduce hydrogen production costs, scale up infrastructure, and foster cross-
sector  partnerships,  aligning  with  EU  goals  for  climate  neutrality  by  2050.  By  funding  and
guiding  targeted  projects,  the  SRIA  seeks  to  position  Europe  as  a  leader  in  the  global
hydrogen economy.

126 European  Commission: SET  Plan  Progress  Report  2024 – Scaling  up  research,  innovation  and
competitiveness in clean energy technologies, 2024.
127 European Commission: ‘Building a European Research Area for clean hydrogen – the role of EU research
and innovation investments to deliver on the EU’s Hydrogen Strategy’ SWD(2022) 15 final, 2022; European
Commission: Towards  a  roadmap  for  accelerating  the  deployment  of  Hydrogen  Valleys  across  Europe:
challenges and opportunities, SWD(2024) 159 final, 2024; European Commission: Solar energy joint research
and innovation agenda with Member States in the context of the European Research Area (ERA), SWD(2024)
160 final, 2024.

75

11.2.3. ERA4FutureWork: a policy approach (at national, regional, local and EU

levels) to address research and development (R&D) funding for the
Future of Work

The ERA Action on the future of work, ERA4FutureWork, was set up to inform policies and
guide  R&I  funding  via  a  new  SRIA. During  the  reporting  period  further  work  has  been
conducted in this direction through workshops and consultations.

The action aimed to address the transformative changes affecting the nature, execution, and
location  of  work, as well  as the  challenges faced  by  workers  and  employers  in  navigating
these shifts and underscored the role of R&I in addressing these complexities.

A milestone in this regard has been the finalisation of the study on Research Perspectives
for the Future of Work in September 2024.128 The project included thematic workshops with
ERA4FutureWork stakeholders to foster dialogue between R&I, employment policy-makers,
and  social  partners, while  identifying  best  practices,  addressing  gaps,  and  recommending
priorities for future R&I investment in the future of work.

Assessment  of  the  progress  towards  the  ERA  Action  11  objectives
over the 2022-2024 period

11.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

ERA  Action  11  has advanced  efforts  toward  a  sustainable  energy  transition.  Key
achievements include the establishment of the ERA Pilot on Green Hydrogen, which defined
a  new  SRIA.  Within  the  context  of  the  SET  Plan  enhancing  hydrogen  R&I  and  European
cooperation is accelerated with support from Horizon Europe and the SET4H2 project. The
revision  of  the  SET  Plan  in  2024  has  strengthened  collaboration  among  stakeholders  to
promote  low-carbon  technologies.  Furthermore,  ERA4FutureWork  was  launched  to  guide
R&I funding  for  the  future  of  work,  producing  a  SRIA  that  highlights  research  gaps  and
opportunities through extensive consultations and workshops.

The table below summarises the main initiatives and outcomes for ERA Action 11.

Table 12 Assessment of the progress towards Action 11 Specific Objectives: initiatives
and outcome

Specific objectives129

Main initiatives implemented

Main outcome

Policy approach for a
cooperation framework on
R&I driven safe and
sustainable low-carbon
energy technologies

 ERA pilot on Green Hydrogen

 Revision of the SET Plan

 SET4H2

 Revision of the plan to make
Europe a leader in the clean
energy transition

 Support provided to

initiatives in the hydrogen
sector

Development of a green
hydrogen R&I ERA pilot
action, while ensuring
consistency with other
related initiatives and
without prejudice to the

 Building a European Research
Area for clean hydrogen – the
role of EU research and
innovation investments to deliver
on the EU’s Hydrogen Strategy





Identification of common
research and innovation
priorities

Identification of four domains
where action is needed:
skills, hydrogen technology

128 See https://www.epc.eu/en/projects/An-EU-Strategic-RI-Agenda-for-the-future-of-work~57ca9c
129 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

76

relevance of a broader
hydrogen R&I policy
approach

ERA4FutureWork: a policy
approach (at national,
regional, local and EU
levels) to address research
and development (R&D)
funding for the Future of
Work



Towards a roadmap for
accelerating the deployment of
Hydrogen Valleys across
Europe: challenges and
opportunities

 Solar energy joint research and
innovation agenda with Member
States in the context of the
European Research Area

 EC report Towards an

ERA4FutureWork initiative

 Study on Research Perspectives
for the Future of Work (SRIA)

infrastructures, monitoring
and tutorials

 Hydrogen Observatory

launched in 2024 and
evolving into a broader
Hydrogen Knowledge Hub

 Call for advanced R&I

methods to design ethical,
adaptive, and collaborative
environments to meet the
evolving demands of AI-
driven and digital
workplaces

Source: Technopolis Group, based on data collected through desk and interviews

The  SET  Plan  was  revised  in  October  2023  and  November  2024  to  better  align  with  the
evolving  context  and  strategic  objectives.  The  revision  incorporates  critical  new  priorities,
such as digitalisation, circularity, materials substitution, and the development of skills – all of
which will be integrated into the Plan’s ongoing work. Additionally, monitoring and reporting
mechanisms  have  been  strengthened  starting  in  2023  to  ensure  enhanced  tracking  of
progress and outcomes.130

The  two  Commission’s  SWDs  also  highlight  significant  progress  in  the  EU’s  efforts  to
advance clean energy technologies. One underscores the collaborative work to accelerate
solar  energy  innovation  and  deployment,  calling  for  enhanced  partnerships  among  EU
Member States, industry, and research institutions to align efforts in solar energy R&I and
support a joint research agenda. The other one outlines the steps taken to establish a robust
hydrogen  economy,  including  increasing  the  number  of
‘Hydrogen  Valleys’,  expanding
funding for hydrogen infrastructure, and launching initiatives to develop skills and knowledge
within the hydrogen sector. Both documents reflect the EU's commitment to strengthening
clean  energy  systems,  increasing  resilience,  and  supporting  the  European  Green  Deal
through targeted research, funding, and cross-sector collaboration.

Another  part  linked  to the ERA  is  the  aspect  of  data  management.  A New  Hydrogen
Observatory was launched in 2024 and is evolving into a Hydrogen Knowledge Hub.

11.3.2. Challenges and opportunities towards future ERA initiatives

The progress described the sections before illustrates the great opportunities and potential
the  ERA  offers  in  the  area  of  the green  energy  transformation.  The  establishment  of a
technology platform on green hydrogen within the SET Plan is another good example.

On the other hand, challenges remain, including the coordination of national level activities
on  hydrogen  R&I. Other  challenges  include ensuring a  continuous high-level
interest of
Member State and their participation in the SET Plan bodies. The aim is to convince Member
States  and  regions to take additional responsibility  and  become  more energy  resource
independent in the long run. To this end, Member States are also encouraged to introduce
regulatory sandboxes.

130 European Commission: SET plan progress report 2023 – Coordinated energy research and innovation for
a competitive Europe, 2023.

77

As the creation of Hydrogen Valleys continues to be driven by regions, a Hydrogen Facility
has  been  set  up  within  the  Clean  Hydrogen  Joint  Undertaking.  It  represents  a  significant
opportunity because it  is  designed  to  provide  project  development  assistance  to  go  from
concept to investment and implementation. While not explicitly part of this ERA Action, this
could be considered an important development relevant to ERA Action 11.

12. Action  12:  Accelerate  the  green/digital  transition  of  Europe’s

key industrial ecosystem

Key  findings  Action  12:  Accelerate  the  green/digital  transition  of  Europe’s  key
industrial ecosystems

The initiatives under ERA Action 12, implemented during the monitoring period, have driven
significant advancements in  accelerating  the  green  and  digital  transitions  of  Europe’s
industrial ecosystems:











Two Mutual  Learning  Exercises on  Industrial  Decarbonisation  and  the  Whole-of-
Government  Approach 
for
decarbonisation strategies, stakeholder engagement, and cross-sector collaboration.

in  R&I  produced

recommendations 

actionable

The ERA  technology  roadmaps  on  low-carbon  and  circular  technologies  and
business  models have  been  widely disseminated,  supported  by  a  digital  interactive
map of over 180 EU-funded clean technology demonstrators, and alongside the launch
of the R&I Deployment Agenda to accelerate industrial decarbonisation investments of
energy-intensive industries.

Several  initiatives and studies  have  enabled to enhance  the  understanding  on  the
role,  opportunities  and  challenges  of  Technology  Infrastructures in  Europe,
preparing  the  evidence  basis  for  a  common  European  approach  to  TIs  as  well  as  to
strengthen their alignment with EU industrial strategies.

Jointly  with  stakeholders,  the  Commission  has  taken  action  to  foster synergies  and
exchange on R&I needs for industrial transformation.

The Industry 5.0 Community of Practice engaged over 200 members and published
its first report, while the Human-Centric ERA Technology Roadmap has also enabled
to support human centric industry transformation.

These efforts have enhanced the coordination and dialogue between public authorities and
industrial  stakeholders,  increasing  the  uptake  of  iR&I  results  to  accelerate  industrial
transformation. and thus contributing to Europe’s competitiveness and strategic autonomy in
achieving the green and digital transitions. Meeting the ambitious objectives of ERA Action
12 requires sustained industry engagement and tackling barriers to R&I uptake. Increasing
alignment amongst Member States and with private stakeholders remains crucial.

Objectives and scope of ERA Action 12

Purpose of the action:131

The purpose  of  ERA  Action  12  is  to  develop  and implement  key  R&I  policy  tools that link
research  and  innovation  with  industrial  innovation  strategies  and  industrial  strategy,
especially  in  the  context  of  the  green  and  digital  transitions.  These  transitions demand

131 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

78

substantial  R&I  investments,  largely  from  industry,  along  with  the  systematic  and  rapid
transfer, scaling and commercialisation of results into EU industrial ecosystems, particularly
benefiting  SMEs  and  start-ups. ERA  Action  12  aims  to  overcome  the  EU’s  challenges  in
translating world-class research into marketable innovations by boosting public and private
investments in essential R&I sectors.

Furthermore,  ERA  Action  12  aims  to  reinforce  collaboration  between  universities  and
industrial ecosystems, support skills development, and promote technological sovereignty. It
strives  to  create  tools  and  strategies  through  engagement  with policy-makers,  industry
leaders, and R&I stakeholders, thereby enhancing Europe’s industrial resilience and global
competitiveness.

Figure 12 Identified problems and defined objectives of ERA Action 12

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda -
Overview of actions for the period 2022-2024

Status of ERA Action 12 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):132

Several key initiatives were undertaken during the first phase of ERA Action 12:

 The ERA industrial technology roadmap on low-carbon technologies was published
in April 2022, providing strategic guidance for decarbonising energy-intensive industries,
with a focus on bridging the innovation gap between EU countries and better exploiting
research and innovation results. The ERA industrial technology roadmap on circular
technologies  and  business  models  in  textile,  construction  and  energy-intensive

132 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

79

industries,  released  in January  2023,  analysed  technologies  and  business  models
across key industrial ecosystems.

 As a follow-up to the first roadmap, the EC published the report ‘Scaling up innovative
technologies  for  climate  neutrality’ mapping  close  to 180  EU-funded  demonstration
projects in these industries.133

 The PSF Mutual Learning Exercise on Industrial Decarbonisation, launched in April
2023  with  10  Member  States  and two Associated  Countries,  ran  until  April  2024.  It
facilitated  the  exchange  of  knowledge  and  experience  on: 1) National  industrial
technology roadmaps and strategies; 2) Policies and financing for R&I investments in low-
carbon technologies; 3) Actors’ engagement; and 4) Framework conditions.

 The PSF Mutual Learning Exercise on the “whole-of-government” (WGA) approach
in R&I was launched in November 2022 with five Member States and ran until April 2024,
facilitating knowledge exchange and sharing best practices in green transition (one of the
components of the MLE) among participating Member States.

 A hybrid workshop in March 2023, which took place in Munich, brought together about
450 representatives of government, business, research and academia to discuss ways to
better leverage the deep-tech green transition and digital solutions to transform EU
industrial ecosystems.

 A workshop in Brussels in June 2023, brought together about 100 representatives of
government, business, research and academia to discuss ways of accelerating R&I and
deployment:  industrial  technology  roadmaps  and  other  best  practices  to  bring  green
innovation to the market.

The period from mid-2023 to late 2024 was marked by several key milestones towards the
achievements of the objectives of ERA Action 12.

12.2.1. Development of an R&I-related policy framework, focusing on integrating

R&I with sectoral industrial policies

Two MLEs have been initiated under the Policy Support Facility (PSF) funded under Horizon
Europe  to  foster  cross-country  knowledge  exchange  and  collaboration  on  R&I  policy
approaches related to the green transition and industrial decarbonisation.

The PSF Mutual Learning Exercise (MLE) on Industrial Decarbonisation, which ran from
April 2023 to April 2024, involved 12 countries and provided a platform to discuss national
decarbonisation  strategies,  R&I  investment  policies  for  low-carbon  technologies,  actor
engagement, and regulatory frameworks. On top of the seven recommendations stemming
from these exchanges, the MLE identified a strong need for a framework action plan and the
establishment of a Community of Practice.

Similarly, the PSF MLE on the “whole-of-government” (WGA) approach in  R&I (green
transition component) explored policy recommendations to integrate R&I with other sectoral
policies for sustainable socio-economic transformations, addressing governance structures
and  cross-sectoral  engagement  strategies.
It  highlighted the  WGA’s  importance  in
addressing transformative challenges like the UN Sustainable Development Goals (SDGs),
bridging  government  silos  and  enhancing  stakeholder  engagement.  This Mutual  Learning
Exercise collaborated with the MLE on industrial decarbonisation by providing know-how on
the  institutional  set-up  for  designing,  implementing  and  monitoring  industrial  technology
roadmaps.  The  MLE  report  lists  tools  for  various  policy  contexts  and  acknowledges

133 European Commission: Scaling up innovative technologies for climate neutrality, 2023.

80

challenges  in  fostering  cross-sector  collaboration and guidance  on  aligning  national  R&I
strategies with broader environmental and industrial goals.

Several PSF country-specific reports have been developed to provide tailored support to
individual Member States to address challenges in their R&I systems, including for Finland,
Bulgaria, and Czechia.

In June 2023, the European Commission released a report entitled ‘Scaling up Innovative
Technologies for Climate Neutrality’, mapping about 180 EU-funded demonstration projects
that  aim  to  advance  climate-neutral  technologies  within  energy-intensive  industries.134 In
September  2023,  an 
to  access  a
comprehensive,  searchable  map  of  clean  technology  demonstrators  across  Europe,
showcasing projects  primarily  supported  through  EU  programmes  like  Horizon  Europe,
Horizon 2020, and the Innovation Fund.135

launched,  allowing  users 

interactive 

tool  was 

12.2.2. Consultation process on R&I-related needs of industry

On 25 January 2024, the Commission organised a meeting to foster synergies between the
ERA Action 12 and the work of the Industrial Forum. Participants from government, industry,
research and innovation communities, and members of the two groups exchanged ideas and
knowledge during the event.

12.2.3.

Industrial technology roadmaps on low carbon technologies for energy-
intensive industries and on circular technologies and business models

Low-carbon technologies

Following up on the first ERA industrial technology roadmap for low-carbon technologies in
energy-intensive  industries,  the  Commission  organised  a  workshop  in  June  2023  with
participants from industry, government and the R&I community on topic: ‘Accelerating R&I
and  deployment:  industrial  technology  roadmaps  and  other  best  practices  to  bring  green
innovation  to  the  market’. Also  during  this  reporting  period,  the  Commission  continued  its
work on the R&I Deployment Agenda for energy-intensive industries, which constitutes
a package  of policy  measures  for  boosting  industrial  R&I  demonstrators  and  mobilising
engagement  and  investments in  industrial  decarbonisation  technologies,  from  R&I  to
deployment, thus contributing to the EC’s Clean Industrial Deal priority (2024-2029).

Circular technologies and business models

As a follow-up to the ERA industrial technology roadmap for circular technologies and
business  models of  January  2023,  a workshop took  place  in  Brussels  in  March  2023
focused on:  ‘Multiplying  the  Rs  in  industrial  innovation:  rethinking,  redesigning,  reusing,
repairing and recycling’. The analysis confirmed that it is crucial to take a life-cycle approach
for  technology  development  to  generate  the  desired  impact,  and  digital  technologies  and
business  models  play  a  key  role  in  the  transition  of  all  three  industrial  ecosystems  to  the
circular economy.

The ERA industrial tech roadmap’s data and analysis served as a tool to help set up the
‘Textiles of the Future’ partnership of Horizon Europe. The Partnership was created in March
2024 by the Commission in support of the textile sector, particularly SMEs, in implementing
a comprehensive R&I programme.

134 European Commission: Scaling up innovative technologies for climate neutrality, 2023.
135 European  Commission: Demonstrators  scaling  up  innovative  technologies  for  climate  neutral-industries
around Europe, 2023.

81

Roadmaps and Transition Pathways

The  roadmaps  provide  the  first  steps towards Transition  Pathways  for  relevant  EU
industrial ecosystems under the updated Industrial Strategy.136 During the review period,
several  EU  industrial  ecosystems  continued  to  progress  in  their  transition, providing
structured guidance for achieving green and digital transformations aligned with the EU 2050
climate  neutrality  goals.  The  technology  roadmaps  have  also  been  quoted  in  relevant
industrial pathways (chemicals, construction, textile, metals).

12.2.4. Coordination  mechanism  to  provide  industry  with  the Technology
Infrastructures needed to test, validate and upscale innovations

In  the  scope  of  ERA  Action  12,  the  European  Commission  is  developing  a European
approach  to  Technology  Infrastructures (TIs)137 in  close  collaboration  with  Member
States, and in line with the Draghi, Letta and Heitor reports which all refer to TIs as vital for
EU  competitiveness  and  innovation  capacity.  A  key  objective  is  to  establish  a  robust
ecosystem of world-class facilities and services, enhancing synergies between research and
technology infrastructures while addressing specific challenges.

The study ‘Policy landscape supporting Technology Infrastructures in Europe’ (2024) offers
a detailed analysis of the policies, strategies, and funding programmes that support TIs at
national, regional, and EU levels, including through country-level reports covering the 27 EU
Member States.138 The study also addressed the gaps, challenges and fragmentation of TI
policies and funding support schemes across Europe, and highlighted the need for a more
coordinated approach at EU level.

Moreover, two reports on the Open Innovation Test Beds (OITB) in Horizon Europe have
also been published in June and July 2023, i.e. ‘Open Innovation Test Beds for Advanced
Materials’ and ‘Open Innovation Test Beds: Improving Access to Knowledge to Accelerate
European Innovation’.
In  addition,  a  session  entitled ‘Empowering Research
Infrastructures  and Technology Infrastructures  as  strategic  assets  and  knowledge
hubs in Europe’ was organised during the ERA Conference 2024, leveraging the experience
of users and hosts of TIs and RIs, as well as Member States representatives.

On a sectorial dimension, an in-depth analysis of the TI sector in the field of aviation has
been  carried  out under the RINGO  project and  further  developed  by  the  Commission  in
collaboration  with stakeholders. A gap analysis for the  update/construction  of  aviation RIs
and  TIs  (April  2024)  has  been  performed,  and  a  roadmap  for  the  update/construction  of
aviation research and technology infrastructures at EU level was published. Furthermore, the
‘Mapping of Technology Infrastructures supporting clean and renewable energy industries in
Europe’ (2024) contributes to the analysis of the TI landscape in this specific field, mapping
technology centres that provide advanced TIs for industry.

In terms of ongoing initiatives, several projects within Horizon Europe are directly targeting
TIs such as RITIFI, Convert2Green, Exploit4InnoMat, CLEANHYPRO, and H2SHIFT.139

136 Communication  COM/2021/350  from  the  Commission  to  the  European  Parliament,  the  Council,  the
European Economic and Social Committee and the Committee of Regions, Updating the 2020 New Industrial
Strategy: Building a stronger Single Market for Europe’s recovery.
137 Since February 2024, a Commission Expert Group supports shaping the EU’s approach to the coordination
and development of TIs.
138 European  Commission: Policy  landscape  supporting  Technology  Infrastructures  in  Europe - Annex  III -
Country Reports, 2024.
139 See 
research-and-innovation/technology-infrastructures_en#projects-and-results

for  a  project  overview: https://research-and-innovation.ec.europa.eu/research-area/industrial-

82

12.2.5. Address the societal adaptation of the green (and digital) transitions

The Industry 5.0 Policy Framework focuses on transforming European industry by aligning
technological  advancements  with  human-centric,  sustainable,  and  resilient  values.140 The
Industry  5.0  Community  of  Practice (CoP) was  launched in  November  2023  to  connect
pioneers  and  advocates  of  Industry  5.0  across  Europe’s  innovation  ecosystem. It  now
includes  more  than  200  members. In  its  first  phase,  spanning up  to May  2024,  the  CoP
produced a final report introducing the Industry 5.0 concept, and an analysis entitled ‘Industry
5.0 as a Transformative Agenda for Industrial R&I and the Prototype Industry 5.0 Learning
and Assessment Tool’ to help industries effectively implement Industry 5.0 principles.141

The ERA Industrial Technology Roadmap on Human-Centric Research and Innovation
for  the  Manufacturing  Sector was  published  in  July  2024.  It  analyses  how  the
manufacturing  sector  can  take  a  leading  role  in  achieving  human-centric  outcomes  in
technology  development  and  adoption. Policy  actions  recommended  include  adopting
human-centricity  considerations  in  education  and  training,  R&I  funding  and  in-company
training and innovation strategies.

Assessment of the progress towards the ERA Action 12 objectives
over the 2022-2024 period

12.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The initiatives under the ERA Action 12 have enabled further integration of R&I with industrial
and  sectoral  policies,  driving  the  green  and  digital  transitions.  Key  progress  includes  the
launch of two MLEs on industrial decarbonisation and the whole-of-government approach in
R&I, 
facilitating  cross-country  knowledge  exchange  and  collaborative  efforts.  The
development of national roadmaps, such as those on low-carbon technologies and circular
technologies  and  business  models,  has  provided  a  structured  approach for  industrial
transformation. The  establishment  of  the  Industry  5.0  Community  of  Practice  has  further
including the  preparatory  work
supported  R&I  in  industry.  Additionally,  new  initiatives,
towards a European approach to Technology Infrastructures, have the potential to strengthen
Europe’s capacity to test and upscale innovations, fostering a more resilient and sustainable
industrial ecosystem.

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on  the specific
objectives ERA Action 12.

Table 13 Assessment of the progress towards Action 12 Specific Objectives: initiatives
and outcome

Specific objectives142

Main initiatives implemented

Main outcome

 Development of an
R&I-related policy
framework, focusing
on integrating R&I with



PSF Industrial
Decarbonisation Mutual
Learning Exercise



Policy frameworks and reports
guiding integration of R&I with
sectoral policies and climate
neutrality

140 See also ESIR expert group report on Industry 5.0.
141 European Commission: Industry 5.0 Community of Practice (CoP 5.0), 2024. For CoP discussions on
potential further directions see https://research-and-innovation.ec.europa.eu/news/all-research-and-
innovation-news/industry-50-community-practice-discuss-future-directions-achieve-its-goals-2024-10-16_en
142 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

83

Specific objectives142

Main initiatives implemented

Main outcome







Strengthened synergies between
research and industry needs,
fostering innovation and market
uptake
Enhanced policy support for
breakthrough research,
particularly in deep tech and
green innovation

Roadmaps and best practices to
accelerate the deployment of low-
carbon and circular technologies







 Workshop on ‘Accelerating R&I
and deployment: industrial
technology roadmaps and other
best practices to bring green
innovation to the market’
Stakeholder consultation on
‘Multiplying the Rs in industrial
innovation: rethinking,
redesigning, reusing, repairing
and recycling’
Report on ‘Scaling up innovative
technologies for climate neutrality’
Progress towards a common
understanding of the term
Technology Infrastructures as a
policy topic
Better understanding of the policy
landscape supporting TIs in
Europe, including funding
instruments
Preparation of pilot calls to
support TIs under Horizon
Europe
Laying the foundations towards a
European approach to
Technology Infrastructures







sectoral industrial
policies

 Consultation process
on R&I-related needs
of industry

 Policy framework to
better support
fundamental research
at national and
European levels to
generate breakthrough
knowledge and
innovation
Industrial technology
roadmaps on low-
carbon technologies
for energy-intensive
industries and on
circular industrial
technologies



 Coordination

mechanism to provide
industry with the
technology
infrastructures needed
to test, validate and
upscale innovations





on the whole-of-
government approach in
R&I
Scaling up innovative
technologies for climate-
neutrality reporting



Commission initiates
collaboration between ERA
Action 12 and the work of
the Industrial Forum.
 Workshop on "Leveraging
the Deep Tech Green
Transition and Digital
Solutions to Transform EU
Industrial Ecosystems“







ERA Industrial Technology
Roadmap for Low-Carbon
Technologies in Energy-
Intensive Industries
ERA Industrial Technology
Roadmap for Circular
Technologies and Business
Models in the Textile,
Construction and Energy-
intensive Industries
Defence industry pathway,
guided by the European
Defence Industrial Strategy

 Preparatory  work  towards  a
to

European 
Technology Infrastructures

approach 







Expert Group on
Technology Infrastructures
Study ‘Policy Landscape
Supporting Technology
Infrastructures in Europe’
Two reports on the Open
Innovation Test Beds’
instrument in Horizon
Europe
In-depth analysis of the TI
sector in the field of
aviation
Report ‘Mapping of
technology infrastructures
supporting clean and
renewable energy
industries in Europe’
 Workshop on Access







Conditions to Technology
Infrastructures
Session ‘Empowering
research infrastructures
and TIs as strategic assets

84

Specific objectives142

Main initiatives implemented

Main outcome

 Address the social

adaptation of the
green (and digital)
transitions

and knowledge hubs in
Europe’
Industry 5.0 Community of
Practice
IERA Industrial
Technologies roadmap on
Human-centric Research
and Innovation for the
Manufacturing Sector
ESIR Group report on
Industry 5.0











Increased knowledge,
understanding and buy-in of the
Industry 5.0 concept by
stakeholders
Raised awareness towards
human-centric approaches to
industrial transitions, with a focus
on social adaptation

Source: Technopolis Group, based on data collected through desk and interviews

12.3.2. Challenges and opportunities towards future ERA initiatives

The objectives  of  this  ERA Action  have  been  achieved  during  this  period,  with
numerous  and  successful  initiatives  being  implemented  under  the  majority  of  the  specific
objectives. Collaboration with Member States through targeted instruments (i.e., MLEs and
expert groups), for instance the approaches from TIs and aviation, were particularly effective
in gathering interest  and  commitment  from  Member  States.  These  instruments  focus  on
specific  tasks  with  clear  objectives,  such  as  site  visits,  enabling  countries  to  actively
participate and progress faster towards the ERA Action objectives.

Further possible initiatives to pursue the Action’s objectives are already being implemented
or  planned.  This  could  include a comprehensive  mapping  of  the  policy  tools  supporting
industrial R&I and guidance on a policy toolbox of specific applications and practices.

Following  the  report  of  the  expert  group  on  Technology  Infrastructures,  the  European
Commission will continue its efforts to agree on a European approach to Tis and implement
actions  identified  in  the  prospective  European  Strategy  for  Research  and  Technology
Infrastructures. Moreover, the development of pilot areas for TIs in the next Horizon Europe
Work Programme is  planned. To gather additional  evidence, several  new studies are also
considered, including a European Investment Bank (EIB) study on TI funding needs.

Furthermore,  activities  building  on  the  knowledge  and  expertise  in  national  industrial
technology  roadmapping  to  decarbonise  energy-intensive  industries  have  already  started.
For instance, the Net-Zero Industries Innovation Mission 2.0 Mutual Learning was launched
in mid-2023. In June 2023, the European Innovation Centre for Industrial Transformation and
Emissions (INCITE) was set up by the Commission

With  regard  to  potential  future initiatives,  the Heitor Report recommends  establishing  a
European Technology and Industrial Competitiveness Council to provide strategic guidance
on  EU  industrial  policy,  strengthen  synergies  across  EU  programmes,  and  ensure  the
Framework Programme aligns with Europe’s strategic needs, including the green and digital
transitions. By fostering collaboration between public and private sectors, the Council would
encourage  long-term  investments  in  emerging  technologies,  enhance  the  uptake  of
innovations, promoting Industry 5.0, and reduce risks associated with industrial R&D. With
regard  to  technology  infrastructures,  the  Heitor Report  highlights  challenges  in  funding,
coordination,  and  integration  of  these  infrastructures  across  Europe  and  advocates  for
strategic  investment  through  Horizon  Europe  and its  successor  Framework  Programme
(FP10).  Key  recommendations  include  aligning  national,  EU  and  structural  funds  for long-
term financing, and fostering collaboration between RIs and TIs to enhance accessibility and
services.

In  the  future,  the focus could  be  on integrating existing  tools  at  European,  national  and
the  envisaged  European  approach  on  Technology
regional 

implementing 

levels;

85

Infrastructures, including the  selected  pilot actions, devising  a governance  framework and
possible  funding  schemes;  and  developing,  testing  and  implementing  the  policy  toolbox
approach  for  accelerating  decarbonisation  of  energy-intensive  industries  as  well  as
advancing the circular economy.

13. Action 13: Empower Higher Education Institutions

Key findings Action 13: Empower Higher Education Institutions

ERA  Action  13  seeks  to  empower  European  universities  to  lead  the  green  and  digital
transitions.  This  action  strengthens  universities’  roles  as 
fosters
collaboration with non-academic organisations, and supports the development of institutional
frameworks for research excellence and impact:

innovation  hubs, 











The European  Universities  Initiative has  expanded  to  65  alliances  involving  570
higher  education  institutions  and  almost  2,200  partners,  fostering  cross-border
academic  collaboration,  strengthening  research  careers,  and  promoting  institutional
reform.

Launched  to  enhance  collaboration  between  universities,  particularly  in  Widening
Countries,  the European  Excellence  Initiative focuses  on  research  careers,
knowledge  valorisation,  Open  Science,  and  shared  infrastructures.  A  total  of  12  new
projects started in 2024, with additional calls planned for 2025.

The ERA  Forum sub-group on ‘Universities for  ERA’ developed an action plan to
improve coordination between Member States and the EU, aligning Horizon Europe and
Erasmus+ initiatives to boost research capacity and excellence.

The Digital Education Action Plan and ESTEAM fests were developed to enhance
digital competencies and increase female participation in STEM.

Launched in 2024, the Talent Ecosystem Pilot connects universities with private sector
organisations to equip researchers with skills for careers beyond academia.

ERA Action 13 has advanced cross-border collaboration through dedicated initiatives such
as  the  European  Universities  Initiative  and  the  European  Excellence  Initiative.  However,
sustaining  these  efforts  beyond  EU  project-based  funding  remains  a  challenge, as  does
ensuring stronger engagement from Member States in collaborative programmes. Enhancing
mutual  learning  and  exploring  diverse  funding  mechanisms  will  be  critical  to  sustaining
institutional reforms.

Objectives and scope of ERA Action 13

Purpose of the action:143

Action 13 aims to empower European universities to lead the green and digital transitions,
supporting  the  EU’s  goal  of  achieving  the  European  Education  Area  by  2025.  This  action
focuses  on  equipping  universities  and  researchers  with  the resources  and  collaborative
frameworks needed  to  drive  innovation  and  strengthen  Europe’s  global  leadership  in
research and innovation.

143 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

86

A  key  objective  is  to  establish  a  distinctly  European  dimension  in  higher  education,
positioning  universities  at  the  centre  of  innovation  ecosystems  and  promoting  close
collaboration with non-academic organisations. The action also seeks to mainstream a
culture  of excellence across  institutions,  supporting  them  in  making  progress  in  ERA
priorities, fostering sustained quality and impact in research.

Figure 13 Identified problems and defined objectives of ERA Action 13

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024 and interview with European Commission

Status of ERA Action 13 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):144

The  focus  of  the  first  phase  was  on  the development  on  a  policy  approach to  support
European universities through a European Excellence Initiative and the consolidation of the
European  Universities  Initiative.  Other  specific  objectives  were  mainly  addressed  through
other ERA Actions.

The establishment of a dedicated working group to provide direction for developing policy
actions at both EU and MS-levels was key. The developed Action Plan served as a basis for
various actions launched in the current phase.

Next  to  the  policy  developments, implementation  of  the  European  University  Initiative
continued with its second wave and a call in September 2022 leading to an increase to 50

144 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

87

funded alliances. Nine projects selected in 2021 under the European Excellence Initiative
started running in 2022.

13.2.1.

Policy  approach  on  future  EU  level  support  for  higher  education
institutions

In terms of policy alignment, the work of the ERA Forum sub-group on ‘Universities for
ERA’ was key. The sub-group, established to provide direction and drive the implementation
of ERA Action 13, has developed an Action Plan with specific recommendations for short-,
medium- and  long-term  initiatives.  These  recommendations  aim  to  enhance  coordination
between Member States and the EU, ultimately fostering excellence in higher education and
research.

As the  sub-group  included  research  and  education  stakeholders,  Member  States’
representatives as well as relevant Commission services, it provided a forum to exchange,
align,  and  plan  individual  activities as needed.  The  work  of  the  sub-group  and  its
recommendations  have  guided the  funding  and  policy  decisions  at  the  EU-level,  including
bringing synergies to Horizon Europe and Erasmus+ calls for proposals. They are typically
included in the 2023-2025 Horizon Europe Work Programme. Twelve projects were selected
in 2023, and their activities have started in the first quarter of 2024.145

The European  Universities  Initiative has  expanded  significantly  since  2023,  now
comprising  64 alliances  and  more  than  560 HEIs across  Europe.146 The  support  showed
considerable progress made in several priorities in the ERA.147

More  initiatives  and  activities  were  organised  by  other  institutions,  such  as  the  European
University  Association.  For  instance, a  webinar  in  November  2023 on ‘A  new  ERA  for
universities’ discussed the  empowerment  of HEIs in  synergy  with  ERA  and  the  European
Education Area.

13.2.2.

Support universities in their digital transition

The Digital  Education  Action  Plan indicates  policy  initiatives  between  2021  and  2027
focusing  on  high-quality,  inclusive,  and  accessible  digital  education  across  Europe.  In
synergy with ERA priorities on gender and research careers, the Plan’s Action 13 supports
young  female  students  in  developing  digital  competencies,  thereby  encouraging  greater
participation  in  STEM  studies  and  careers, and  promoting  their  inclusion  in  the  digital
economy. Multiple Girls and Women Entrepreneurship, Science, Technology, Engineering,
Arts, and Mathematics Fests (ESTEAM) have been organised in the past two years.148

13.2.3. Develop and adopt a policy approach to equip researchers with the

skills needed for an interoperable career in academia and beyond

A range of initiatives led by other ERA priority areas are also supporting this priority, such as
the  call  for Talent  Ecosystems Pilot Initiative,  launched  in  March  2024  and  starting  in
summer  2025.  It  aims  to  connect  universities  with  private-sector  companies,  allowing  for

145 European  Commission: European  Excellence  Initiative:  new  projects  to  empower  higher  education
institutions and widen cooperation, 2024. The relevant call topic was HORIZON-WIDERA-2023-ACCESS-03-
01: European Excellence Initiative. The initial budget of this call was EUR 54 million.
146 European Commission: New funding for additional European Universities alliances will boost cooperation
in higher education, 2024.
147 European Commission: Progress of University Alliance Projects, 2023.
148 European Commission: Digital Education Action Plan - Action 13.

88

developing  researcher  careers  beyond  academia  and  rendering  them  fit  for  the  labour
market.149

Assessment of the progress towards the ERA Action 13 objectives
over the 2022-2024 period

13.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The  European  Universities  Initiative,  launched  in  2019,  has  seen  significant  growth,
expanding  the  number  of  participating  universities  across  Europe  and  enhancing  cross-
border collaboration.

In this reporting period the number of alliances and involved universities increased. In 2023
30 alliances were selected based on a call in September 2022, while in 2024,  another 14
followed.  There  are  now  65  alliances  and  570  universities  from  35  countries  involved,
supporting the further uptake of the ‘fifth freedom’. They also include almost 2,200 associated
partners, thus contributing to the goal of becoming local knowledge hubs.

Their sustainability beyond the EU project-based funding through transfer in national funding
schemes is however not secured. An investment pathway for European University Alliances
still needs to be developed. A positive development and result of the ERA Forum subgroup
work is a change in the Erasmus+ funding, which can now also be used by the universities
to build capacities in research.

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on  the  specific
objectives of ERA Action 13.

Table 14 Assessment of the progress towards Action 13 Specific Objectives: initiatives
and outcomes

Specific objectives150

Main initiatives implemented Main outcomes

Policy approach on future
EU-level support for the
further development of
Horizon Europe
institutions, including
through a European
Excellence Initiative and
the consolidation of the
European Universities
Initiative

 European Universities
Alliances (2020)

 European Excellence
Initiative (2021, 2023,
2025)

 Acceleration Services in

Support of Universities
(2022)

 Strong network of in the meantime 65
alliances involving over 570 European
higher education institutions, fostering
cross-border academic collaboration

 Strengthened institutional frameworks
fostering research excellence and
innovation within European
universities



Talent Ecosystems (2024)



Improved capacity of participating
universities in ERA priorities (i.e.
research careers, knowledge
valorisation, Open Science) and
development of stronger collaborative
critical mass in R&I

149 HORIZON-WIDERA-2024-ERA-02-03 Talent ecosystems for attractive early research careers – pilot. This
action has a budget of EUR 20 million.
150 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

89

Specific objectives150

Main initiatives implemented Main outcomes

Support universities in
their digital transition,
including through
initiatives such as
Connected Universities

 Communication on a
European strategy for
universities (2022)

 ERA Forum s-ubgroup on
‘Universities for ERA’
(2022)

 Unified, strategic framework to guide
the transformation of European
universities

 Action plan with short-, medium-, and

long-term recommendations to
improve coordination between MS
and the EU in fostering research
excellence

 Expanded support for researcher
mobility within Europe through
resources such as job listings, funding
opportunities, and relocation
assistance

Develop and adopt a
policy approach to equip
researchers with the skills
needed for an
interoperable career in
academia and beyond

 Digital Education Action



Plan (2021-2027)

Initiatives to increase female
participation in STEM

 Development of approaches/tools to
enable sharing of infrastructures and
equipment between universities

Source: Technopolis Group, based on data collected through desk research and interviews

ERA Action 13 offers a range of links to other ERA priorities such as gender equality, Open
Science,  research  assessment  etc.,  as  well  as  policy  areas  such  as  digitalisation.  Direct
funding of digitalisation priorities is achieved through EOSC (ERA Action 1). Initiatives such
as  the  Digital  Education  Action  Plan,  Girls  and  Women  Fests  and  other  events  were
organised in several countries, promoting digital skills and encouraging women’s participation
in STEM fields. This outreach is part of a broader effort to support gender inclusivity in digital
education.151

At  the  EU-level,  the  WIDERA  Work  Programme  of  Horizon  Europe  included  most  actions
envisaged for 2024 in the Action Plan of the ERA Forum subgroup on universities. Member
States  had  agreed  on  specific  topics  of  interest – which then made  it  into  the Work
Programme. Yet, for one agreed topic, no proposal was obtained.

Greater synergies with the European Education Area were achieved through aligned calls,
the Erasmus+ opportunities for research as well as the range of topics under the WIDERA
2024 Work Programme. Erasmus+ funded European University Alliances remain one of the
target  groups  under  the  European  Excellence  Initiative  in  Horizon  Europe. Conversely,
research  and  innovation  capacity-building  was  integrated  in  the  Erasmus+  call  for the
European Universities Initiative’s consolidation phase.

At  the  end  of  2024,  reflections  on  remaining  gaps emphasise several  areas  to strengthen
ongoing  European  University  Alliances  under  the  ERA  Policy  Agenda.  Ensuring  the
sustainability  of  institutional changes  beyond  the  EU  project  funding  is  a  key  priority. The
limited uptake of national funding organisations to test programme-level collaboration in the
2024  WIDERA  Work  Programme represents  an  unrealised  opportunity  at  national  level  to
explore potential coordination synergies.

The European Excellence Initiative officially kicked-off its project activities in the first quarter
of 2024.

151 https://eismea.ec.europa.eu/esteam-fests-and-communities-girls-and-women_en

90

13.3.2. Challenges and opportunities towards future ERA initiatives

Making best practices and key outcomes accessible and openly available to a wider audience
is  needed.  Future  university  alliances  could  focus  on  implementing  targeted,  impactful
objectives linked to specific deliverables and milestones to maximise their influence.

Additionally,  ongoing  engagement  and  mutual  learning  between  the  existing  alliances  are
crucial, as is the need to explore diverse funding sources to support the sustainability and
further  development  of  institutional  reforms.  Addressing  these  areas  in  future  ERA  policy
initiatives could  enhance  the  depth  and  continuing progress  across  European  research
institutions.152

14. Action 14: Bring science closer to citizens

Key findings Action 14: Bring science closer to citizens

ERA Action 14 seeks to enhance public engagement in research and innovation, fostering
trust,  collaboration,  and  societal  uptake  of  scientific  solutions.  The  Action  promotes  co-
creation,  outreach  initiatives,  and  citizen  science  projects  to  connect  individuals  and
communities with the research ecosystem.







The Plastic  Pirates – Go  Europe! initiative  has  been  expanded  to  13  countries,
involving  over  16,000  students  and  800  schools  sampling  more  than  350  rivers  and
coasts.  The  initiative  generated  open-access  data,  scientific  publications,  and
widespread public awareness of plastic pollution. A handbook of lessons learned and a
Coastal Booklet were developed to support further scaling.

The European  City  of  Science  2024 (Katowice,  Poland)  featured  a  year-long
programme of events, including the European Contest for Young Scientists (EUCYS),
the  European  Union  Contest  for  Early-Career  Researchers  (EU  TalentOn)  and  the
EuroScience Open Forum (ESOF), which attracted broad participation, with over 3,500
attendees and 130 sessions highlighting science’s societal impact.

The Mutual Learning Exercise on Public Engagement in R&I, launched in January
2024  and  concluded  in  January  2025.  It  involved  eight  countries  in  discussions  to
identify  best  practices,  challenges,  and  framework  conditions  for  public  engagement.
Four thematic reports were produced.

ERA Action 14 advanced public participation in science through initiatives like Plastic Pirates
and  the  European  City  of  Science.  However,  challenges  remain,  including  the  uncertain
sustainability  of  initiatives  like  Plastic  Pirates.  Addressing  these  gaps, integrating  lessons
learned, expanding engagement with Widening Countries and ensuring sustainable funding
for  impactful  projects  are  key  opportunities  to  enhance  the  reach  and  impact  of  public
engagement in science.

152 European  Commission: Report  on  good  practices  from European  University  Alliances  Projects  (pilot  II),
2024.

91

Objectives and scope of ERA Action 14

Purpose of the action:153

ERA  Action  14  aims  to  empower  citizens  and  local  communities  to  promote  their
engagement, trust and interest in science. It also promotes co-creation and collaboration with
citizens in view of ensuring the societal uptake of the developed solutions and results.154

Figure 14 Identified problems and defined objectives of ERA Action 14

Source: Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 14 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):155

In  2022,  the  European  Commission  launched  new  flagship initiative Researchers  at
Schools as part of the European Year of Youth with calls launched under Horizon Europe
WIDERA  to  support  citizen  science.  In  addition,  the  Mutual  Learning  Exercise  on  ‘Citizen
Science initiatives – Policy and Practice’ was held.

The first European City of Science was Leiden (The Netherlands). It served as a pilot to test
the  feasibility  and  framework  of  the  programme.  This  included  a  year-long  programme  of
events on science, including the organisation of EU TalentOn, EUCYS and ESOF.

The  Plastic  Pirates – Go  Europe!  citizen  science  initiative  expanded  to  11  countries  and
launched successful pilot phases with a minimum of 15 citizen samples involving more than

153 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
154 European Commission: Taking up together the challenges posed by the twin green and digital transition,
and increasing society’s participation in the ERA.
155 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

92

5,000 young citizens as active participants and adding up to a collection of over 300 datasets.
In addition, education material on plastic pollution was developed in ten languages.

The period from mid-2023 to end-2024 marked several advancements for the ERA Action
14. In fact, the Plastics Pirates initiative scaled up with two additional countries (13 Member
States) involved  in  2024, and  a  handbook  with  lessons  learned based  on  the  current
experience was developed to support further implementation. The Mutual Learning Exercise
on Public Engagement in R&I took place from January 2024 until January 2025, providing an
overview of public engagement in R&I, exploring success factors and challenges and sharing
examples and best practices from MLE participating countries. The MLE covered essential
elements  of  the  public  engagement  framework  for  R&I,  reviewed  existing  practices,
successes  and  challenges,  building  a  solid  ground  for  strengthening  the  policy  of  public
engagement in R&I across the EU. For the 2024 edition, the title ‘European City for Science’
was  awarded  to  the  city  of  Katowice,  Poland.  The  programme  generated  interest  and
participation from more than 30 Member States and Third Countries. The activities on science
communication are covered by the Horizon Europe project COALESCE, therefore it has been
decided not to pursue the feasibility study on the EU Science Media Network.

The box below shows a selected set of illustrative initiatives and measures at national level:

The Dutch Open Science NL

In line with EU efforts to promote Open Science, the Dutch adopted its own Open Science
NL  programme.  It  envisages  support for various  forms  of  public  engagement, mobilising
funds, fostering collaboration, and supporting capacity-building and infrastructure. Its broad
goal  is  to  create  a  more  open  and  participatory  research  environment,  including  through
dialogue and citizen science. As part of The Netherlands Research Council, Open Science
NL  is  guided  by  the  NPOS2030  Ambition  Document  and  Rolling  Agenda,  a  strategic
framework that outlines the vision for Open Science in the country, and it provides a roadmap
for achieving it.

The German Impact Unit on science communication

The Impact Unit is a joint project of Wissenschaft im Dialog (WiD) and the Berlin-Brandenburg
Academy of Sciences156. It aims to enhance the evaluation and impact orientation of science
communication, bridging  the  gap  between  theory  and  practice.  The  Impact  Unit  conducts
research  on  various  issues  of  science  communication  and  develops  practical  tools  and
resources  for  practitioners  to  evaluate  their  science  communication  activities  (e.g., online
evaluation  platforms  and  workshops).  It  also  fosters  collaboration  between  researchers,
practitioners, and policy-makers through regular networking activities and other events.

14.2.1. Scale-up the Plastic Pirates-Go Europe! initiative

Plastic Pirates – Go Europe! is a citizen science initiative on plastic waste pollution which
expanded  to  13  participating  countries  in  2024  (versus  11  in  2023).  The  initiative  is  an
important  element  of  the  EU  Mission ‘Restore  our  Oceans  and  Waters  by  2030’ as  it
contributes to reducing macro- and microplastics by 2030, including through the mobilisation
of the public. In this framework, Plastic Pirates actively pursues synergies with other projects
like  the  Network  of European  Blue  Schools, the EU4Ocean  Coalition, INSPIRE  project,
SHORE project, ERASMUS MARIS, OTTERS, and others.

156 Adapted from European Commission: Directorate-General for Research and Innovation and Mazzonetto,
M., Public engagement in R&I and framework conditions – Mutual learning exercise on public engagement in
R&I. Third thematic report, 2024.

93

By July 2024, over 16,000 students from more than 800 schools across Europe had sampled
some 350 rivers and coasts across Europe. They gathered in excess of 93,000 plastic items
of  which  more than  51,000 were made  of  single-use plastics.  In  addition, a network of  26
research  institutions  processed  the  samples  in  the  participating  countries  to  make  them
available as open and accessible data for all European researchers.

The initiative also produced a paper gathering 12 lessons learned from the experience in its
implementation across Europe. A dedicated publication (Coastal Booklet) was developed to
support schools and youth groups in sampling at coasts and beaches. The booklet serves as
a step-by-step guide to collect scientific data on plastic pollution at beaches.

Furthermore, on 5-6 November 2024, the Plastic Pirates Summit 2024 took place in Brussels.
It  gathered  students,  teachers,  partners,  scientists,  and policy-makers  to  review  the
outcomes, results, insights, and lessons learned from expanding this citizen science initiative
across Europe.

14.2.2. Launch of the European City for Science

In 2023, Katowice was awarded the European City of Science 2024 based on efforts by
the local government and seven public universities under the consortium ‘Katowice City of
Science’. Katowice is the first city in Central Europe to have been awarded this title. In line
with the blueprint of the European City of Science laid out by Leiden in 2022, the programme
consisted of four main components.

First, it included a year-long programme of science events drawing attention to 50 Polish
and global science issues and structured around five thematic streams, including 50 Weeks
of Science for the Society – a programme of strategic urban, regional and academic events
– Youth in the City of Science, Teachers for Teachers Educational Programme, and special
events programming.

Second, the organisation and hosting of the 35th edition of the European Contest for Young
Scientists targeting 14-20-year-olds with a passion for STE(A)M. The contest took place in
Katowice on 9-14 September 2024 and saw the participation of 143 young scientists from 37
EU and non-EU countries. The winning projects shared a total of EUR 62,000 in prize money,
including four 1st prizes of EUR 7,000, four 2nd prizes of EUR 5,000, four 3rd prizes of EUR
3,500.

Third, the European Union Contest for Early-Career Researchers (EU TalentON), which
took  place  on  9-14  September 2024.  This  hackathon-like competition  targets 21-35  early-
career  researchers  and  is  based  on  the five EU  Missions. In  this second  edition  of  EU
TalentOn,108 participants from 38 countries took part, including female participation of more
than 60%. The winning projects shared a total of EUR 75,000 in prize money, including a first
and second prize per Mission area, complemented by an Alumni Award and a Community
award (a total of 12 winning teams).

Fourth,  the EuroScience Open  Science Forum took  place  on  12-15  June  2024  in  the
International Congress Centre in Katowice. It gathered 3,500 participants from 40 countries
and featured several hundred speakers from Poland, Europe, and the world, 130 thematic
sessions, and six side events.

14.2.3. MLE on Public Engagement in Research and Innovation

The initial objective of the activity – i.e., proposing a policy coordination mechanism on public
engagement  practices,  including  citizen  involvement  in  scientific  processes – was
reformulated around the MLE on Public Engagement in Research and Innovation. The MLE
was launched in January 2024 and completed in January 2025 with the final report scheduled

94

for  release  in March  2025.  Eight  countries  are  participating,  including  Belgium,  Germany,
Ireland, Lithuania, Netherlands, Norway, Slovenia, and Sweden.157

The  MLE  aims  at  exchanging  success  stories,  experiences,  and  challenges  in  fostering
meaningful  public  participation in R&I.158 Project  outcomes include reports  providing 1) an
overview of public engagement in R&I in the EU, 2) summary of successes and challenges
of  public  engagement  based  on  the  experience  across  the  EU  MS,  and 3)  specific  three
framework elements for public engagement in R&I, and 4) public engagement in R&I in the
ERA. Four thematic reports were produced, covering the overview of public engagement in
R&I,  successes  and  challenges  drawing  on  the  Member  States  experiences,  outlining
framework  conditions  for  the  public  engagement  in  R&I,  and  public  engagement  in  the
ERA.159 The final report160 consolidates the lessons learned and presents a solid ground for
policy actions on strengthening the citizens engagement in science in the EU.

Assessment  of  the  progress  towards  the  ERA  Action  14  objectives
over the 2022-2024 period

14.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The initiatives under ERA Action 14 have contributed to increased citizen engagement in the
research  ecosystem across  the  EU.  The  Plastic  Pirates – Go  Europe! initiative  and  the
European  City  of  Science  promoted  citizen  engagement  in  science,  fostered  youth
participation  and  interest  in  R&I,  and  allowed  citizen  participation  in  tackling  development
challenges and contributing to science in this area (e.g., the challenge of plastic pollution in
seas and rivers around Europe). The MLE on Public Engagement in R&I gathered practices
and outlined a framework for citizen involvement in scientific processes that can provide a
solid base for policy action on strengthening public participation in science across the EU.

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on the specific
objectives of ERA Action 14.

Table 15 Assessment of the progress towards Action 14 Specific Objectives: initiatives
and outcome

Specific
objectives161
Scale up the
Plastic Pirates –
Go Europe!
initiative

Main initiatives
implemented
 Promotion of the

initiative across
the Member
States,
showcasing its
results and
successes

Main outcomes



Two additional states took up the initiative

 More than 16,000 students from over 800 schools
have sampled some 350 rivers and coasts across
Europe



Three scientific publications by local partners
published, with two more in the making, based on
the samplings gathered from the rivers and seas

157 See https://projects.research-and-innovation.ec.europa.eu/en/statistics/policy-support-facility/psf-
challenge/mutual-learning-exercise-public-engagement-ri
158 Ibid.
159 European  Commission:  Directorate-General  for  Research  and  Innovation  and  Mazzonetto,  M., Public
engagement in R&I and framework conditions – Mutual learning exercise on public engagement in R&I. Third
thematic report, 2024.
160 European  Commission:  Directorate-General  for  Research  and  Innovation  and  Mazzonetto,  M., Mutual
learning exercise on public engagement in R&I – Final report, 2025.
161 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

95

Specific
objectives161

Main initiatives
implemented

Main outcomes

 A paper gathering 12 lessons learned from the

implementation of the initiative in Europe published

 A Coastal Booklet developed (available in English

and German) to support schools and youth groups in
sampling at coasts and beaches

 Katowice became the 2024 European City of

Science



The programme included 50 Weeks of Science for
the Society

 EUCYS final competition with the participation of
143 young scientists from 37 EU and non-EU
countries and a total of EUR 62 000 in prize money

 EU TalentOn second edition with 108 participants

from 38 countries and a total of EUR 75 000 in prize
money for 12 winning teams

 ESOF gathered 3,500 participants from 40 countries
featuring several hundreds of speakers from Poland,
Europe, and the world across 130 thematic sessions
and six side events.



The activities on science communication are
covered by the Horizon Europe project COALESCE,
therefore it has been decided to not pursue the
feasibility study on the EU Science Media Network





Implementation of
the initiative based
on the Leiden
blueprint, including
four components,
namely the year-
long programme
of events,
conducting
EUCYS, EU
TalentOn, and
ESOF

Feasibility study
by the European
Commission on
EU Science Media
Network

 Exploring

 MLE on Public engagement in R&I launched in

practices and
means of better
public
engagement in
R&I through an
MLE on Public
engagement in
R&I

January 2024 until January 2025





Four thematic reports produced covering the
overview of public engagement in R&I, successes
and challenges drawing on the MS experiences,
outlining framework conditions for public
engagement in R&I and the ERA

Final report published in March 2025 with lessons
learned and policy recommendations to strengthen
citizen involvement in science across the EU

Launch the
European City of
Science

Conduct a
feasibility analysis
for a federated
‘EU Science
Media Network’ to
ensure more
factual journalistic
reporting on
science
Propose a policy
coordination
mechanism on
public
engagement
practices, incl.
citizen
involvement in
scientific
processes

Source: Technopolis Group, based on data collected through desk research and interviews

14.3.2. Challenges and opportunities towards future ERA initiatives

The sustainability of some initiatives under this Action requires attention. Thus, the future of
the Plastic Pirates initiative, despite its success, is uncertain. Only six out of 13 participating
states  committed  national  funding  to  continue  Plastic  Pirates  in  their  respective  countries
beyond the pilots. The Mission Ocean and the Sustainable Blue Economy Partnership were
approached to explore the continuation of the initiative, and several options are on the table
for the initiative’s inclusion in some form in ERA Policy Agenda 2025-2027.

The European City of Science Programme will change its scope in 2026 to include a minimum
of  three  cities  across  three  EU  Member  States  and  Associated  Countries  under  the  new
initiative ‘Science Comes to Town’. It would be important to make sure that the new project
builds on lessons learned from the European City of Science for its increased effectiveness
and impact on the society.

96

Lastly, closer engagement of Widening Countries could be considered to ensure extended
policy learning and balanced development across the EU.

Assessment of the ERA Actions under ERA Priority  2 – Taking up
together  the  challenges  posed  by  the  twin  green  and  digital
transition, and increasing society’s participation in the ERA

ERA Priority 2 focuses on addressing the twin green and digital transitions while increasing
societal uptake of R&I results. ERA Priority 2 has made significant progress in supporting the
twin  transitions  and  enhancing  societal  participation  in  science.  Actions  under  this  priority
have  strengthened  the  alignment  of  R&I  with  EU  policy  objectives,  advanced  stakeholder
engagement, and supported industrial and institutional transformations. However, challenges
such as fragmented governance, insufficient funding diversification, and limited stakeholder
participation in certain regions remain. The following analysis evaluates the progress made
under each ERA Action associated with this priority.

 Tackling the challenges of the twin green and digital transition

ERA  Action 10  advanced  European Partnerships and  Missions’ alignment  with ERA
principles  to  drive  green  and  digital  transitions.  The  European  Mission  Network
coordinated  governance,  while  TRAMI’s  Mission  Data  Platform  improved  monitoring  and
learning. Citizen initiatives such as the Citizen Resilience Scan and NetZeroCities fostered
participatory policy-making. The 2023 EU Missions Assessment Report stressed that the EU
Missions  face  challenges with  governance  complexity,  limited  funding  diversity,  and
insufficient public engagement.

Funding remains overly reliant on Horizon Europe, and EU Missions should transition beyond
the  R&I  programmes  through diversified  funding  strategies  to  deliver  their  intended
impact. Further integration with policy actions also beyond R&I, greater visibility and
inclusiveness through  improved  public  engagement  would  also  maximise  their long-term
societal impact by 2030. The Heitor Report also recommends placing missions under high-
level political ownership for better accountability and integration into broader policy goals.

With  regard  to  European  Partnerships,  the  Partnership  Knowledge  Hub  hosted several
workshops geared  towards improving the  impact  of  the  Partnership  landscape,  while  the
2024 Biennial Monitoring Report assessed their alignment with EU objectives. Despite their
key role in the R&I ecosystem and contributions to the green and digital transitions, European
Partnerships  still  face  challenges,  including  the  fragmentation  of  the  landscape  including
limited  integration  with  the  Missions,  and  gaps  in  co-investment  leverage  and  lifecycle
planning.

To overcome these barriers and maximise their impact, suggestions for the next phase focus
on  the  optimisation  of  the coordination and  synergies  between  European
Partnerships.  This includes improving  portfolio  coordination,  fostering  relevant  horizontal
synergies and multi-level policy alignment to prevent silos, and streamlining the performance
measurement process.

Further  to  this, ERA  Action  11  has  promoted the green  energy  transformation  by
aligning R&I investments with climate neutrality targets. The updated Strategic Energy
Technology  (SET)  Plan  now  reflects  the  European  Green  Deal  and  REPowerEU,
emphasising digitalisation, circularity, and skills. The ERA Green Hydrogen Pilot produced a
Strategic  Research  and  Innovation  Agenda  and  scaled  infrastructure  through  the  Horizon
Europe  SET4H2  project,  while the  Commission  further outlined  strategies  for  hydrogen
valleys, solar innovation, and clean energy. Nonetheless, regulatory bottlenecks, delays with
permits, and limited Member State coherence remain significant challenges. Environment-

97

related government R&D budgets at 2.41% in 2022 are below EU ambitions, showcasing the
need for streamlined governance and enhanced Member State engagement.

Moving  forward, enhanced  coordination  and  the  scaling  up  of  joint  actions  between
Member  States  and  industry  stakeholders,  alongside  mechanisms  like  the  European
Hydrogen  Bank  and  regional  Hydrogen  Valleys,  are  seen  as  critical  to  accelerating
deployment and achieving the ambitious EU’s clean energy objectives.

initiatives.  Two  Mutual  Learning  Exercises

ERA  Action  12  has underpinned Europe’s  industrial  green  and  digital  transitions
(see  above)) provided
through its
recommendations for decarbonisation and collaboration. ERA technology roadmaps on low-
carbon  and  circular  technologies  were  widely  shared,  alongside  a  digital  map  of  180  EU-
funded  clean-tech  demonstrators.  Efforts  to  enhance TIs, included  expert groups, studies,
and pilots, aligning TIs with EU industrial strategies. The Industry 5.0 Community of Practice
published the Industry 5.0 Agenda, while forums fostered cross-sector R&I collaboration and
guided  ecosystem  transition  pathways.  Despite  progress,  challenges  remain  in  industry
engagement,  R&I  uptake,  and  Member  State  alignment,  requiring  stronger  MLEs,  expert
groups,  and  coordinated  TI  strategies  to  fully  realise  the  transformative  potential  of  this
Action’s initiatives.

Future  efforts  should  focus  on  establishing  a European  Strategy  for  research  and
technology Infrastructures, fostering cross-sector and cross-country collaboration to
support the market and societal uptake of technology, and addressing skills gaps through
targeted initiatives like the Industry 5.0 Community of Practice.

 Increasing society’s participation in the ERA

With the aim to empower Higher Education Institutions, ERA Action 13 has positioned
European  universities  to  lead  the  green  and  digital  transitions  while  contributing  to  the
European  Education  Area  by  2025.  The  European  Universities  Initiative  now  includes  64
alliances,  involving  560  institutions  and  fostering cross-border academic  collaboration and
institutional  reform.  The  European  Excellence  Initiative  supports  shared  infrastructures,
knowledge  valorisation,  and Open  Science,  with  12  new  projects  launched  in  2024.  The
Talent  Ecosystem  Pilot,  launched  the  same  year,  connects  universities  with  private
organisations  to  equip  researchers  with  industry-ready  skills. Reliance  on  project-based
funding and limited Member State engagement remain challenges.

To address this, an investment  pathway could be developed to integrate these alliances
into  national  funding  schemes,  ensuring  continuity  and  institutional  reform. Enhancing
synergies between the European Education Area and ERA, particularly through initiatives
like the European Excellence Initiative and Erasmus+, is also seen as essential to support
capacity-building in research and innovation. Additionally, fostering mutual learning between
alliances,  linking  other  research  organisations  and  industry  initiatives,  and  scaling  best
practices  will  be  essential  to  maximising  the  long-term  impact  of  these  networks  for  the
consolidation of Europe’s R&I landscape.

Further to  this, ERA  Action  14  has  fostered  public  engagement  in R&I
through
participatory initiatives such as Plastic Pirates – Go Europe! This programme engaged over
16,000 students across 13 countries, raising awareness of plastic pollution and generating
open-access data. Events like the European City of Science 2024 in Katowice featured broad
outreach, attracting over 3,500 participants to highlight science’s societal impact. The Mutual
Learning  Exercise  on  Public  Engagement  identified  best  practices  across  eight  countries.
However, sustainability challenges for initiatives like Plastic Pirates persist.

Strengthened coordination  of public  engagement  practices,  informed  by  outputs  from
the MLE on Public Participation in R&I, and further embedded into the ERA objectives, would
be essential  to ensure inclusive  and impactful citizen involvement in  the green and digital
transitions.

98

ERA  PRIORITY  3:  AMPLIFYING  ACCESS  TO  RESEARCH
AND INNOVATION EXCELLENCE ACROSS THE UNION

This chapter summarises the key findings on the implementation of ERA Actions 15, 16 and
17, highlighting their contributions to ERA Priority 3 objectives.

15. Action  15:  Build up  regional  and  national  R&I  ecosystems  to
improve regional/national excellence and competitiveness

This action has not been implemented as it did not reach the sufficient number of Member
State  commitments.  However,  the  European  Commission  pilots  this  Action  through  two
Coordination and Support Actions funded through Horizon Europe.162

16. Action 16: Improve EU-wide access to excellence

Key findings Action 16: Improve EU-wide access to excellence

During the review period, ERA Action 16 initiatives sought to improve access to excellence
across the EU’s research and innovation ecosystem, with a particular emphasis on enhancing
synergies between Cohesion policy instruments and the Horizon Europe Programme:







The ERA  Forum  sub-group  on  ‘Access  to  Excellence’ facilitated  the  creation  of
synergies  among  various  authorities  at  national  level  dealing  with  R&I  and  Cohesion
policies as well as between Horizon Europe and ERDF programmes. During its mandate
period of 18 months it acted as a platform of exchange, collecting information on synergy
implementation  in  Member  States  (backed  by  a  survey),  providing  policy  updates,
sharing good practices on building synergies across programmes, monitoring the roll-out
of synergic initiatives and defining activities aimed at boosting scientific and innovation
excellence throughout Europe.

Targeted support was implemented through Horizon Widening Actions, with multiple
calls  under  the  Excellence  Hubs,  Hop-on  Facility,  ERA  Chairs,  Twinning,  and
Dissemination and Exploitation Support Facility, funding over 200 projects in 2024, with
combined  investments  exceeding  EUR 315  million.  These  actions supported the
development of R&I capabilities across less research-intensive regions.

The Horizon Europe WIDERA Pathways to Synergies programme led to the selection
of 16 proposals in 2023.

These  efforts  have  helped  to  improve  access  to  excellence  across  the  EU’s  R&I  system,
including  low  R&I  performing  countries. Despite  progress,  important  challenges  remain  in
effectively  implementing  synergies.  The  RIMA  report highlights the  need  for  user-friendly
guidelines,  enhanced training for managing authorities,  streamlined  processes, and better
communication  on  the  benefits  of  synergy.  Coordination  between  stakeholders  at  EU,
national  and regional levels also  requires improvement to align  planning  and  execution of
R&I and Cohesion policy programmes.

162 See projects COOPERATE and ERA FABRIC.

99

Objectives and scope of ERA Action 16

Purpose of the action:163

ERA  Action  16  aims  at  improving  access  to  excellence  across  the  EU’s  R&I  system  and
specifically  support  low  R&I  performing countries  through  increased  coordination  between
Cohesion policy instruments and the Horizon Europe programme. Action 16 was developed
to complement and strengthen national R&I strategies and interdependent Cohesion policy
programmes and national, regional, and private investments.

Action 16 also covers parts of the objectives of previous Action 18, ‘Support the development
of  EU  countries’  national  processes  for  the  ERA  implementation’,  which  was  not  directly
supported as a stand-alone action.

Figure 15 Identified problems and defined objectives of ERA Action 16

Source: Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 16 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):164

In 2023, the ERA Forum subgroup ‘Access to excellence’ – ‘R&I and Cohesion Managing
Authorities’  Network  was  set  up.  Its  aim  is  to  build  a  stronger  dialogue  and  coordination
between a) the European Commission (DG REGIO and DG RTD) and Member States and
b) different communities within the Member States. Examples of the latter include R&I-related
bodies but also managing authorities of Cohesion policy programmes who address practical
experiences linked to the design and implementation of R&I policies at national and regional
levels, promote synergies, and boost scientific excellence throughout Europe.

163 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
164 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

100

The first meeting of RIMA was held in June 2023 and served to identify existing synergies
between Cohesion funding and Horizon Europe, as well as needs and data gaps.

The  Horizon  Europe  WIDERA  programme  has  been  used  to  support  EU-wide  access  to
excellence  for  Widening  Countries.  Several  actions  are  currently  in  the  Action’s  package
under Horizon Europe, including Teaming, Twinning, and Excellence Hubs, Hop-on Facility,
COST, ERA Chairs, and the calls launched in 2023 under the ‘Pathways to Synergies’ and
‘Dissemination and Exploitation Support Facility’.

RIMA produced a draft report on the results and challenges of synergies between the Horizon
Europe  programme  and  European  Structural  and  Investment  Funds  (ESIF),  including
recommendations  on  moving  forward.  Under  Horizon  WIDENING  sub-programme,  the
Pathways to Synergies programme aimed at better coordination and use of EU-level funding
for R&I selected 16 proposals in 2023 with signature of grant agreements in May 2024. Other
achievements include ongoing calls under the Excellence Hubs, Hop-on Facility, ERA Chairs,
Dissemination and Exploitation Support Facility, and Seal of Excellence (SoE) funding.

The box below showcases examples of good practices on synergies at national level:

The transfer of funds from ERDF to Horizon Europe by Malta and Lithuania165

Malta has been the first Member State to make use of the possibility, foreseen in the 2021-
2027  programming  period,  to  transfer  funds (EUR  5  million  in  total) from  the  European
Regional  Development  Fund  (ERDF)  to  Horizon  Europe. The  transfer  is  organised  in
instalments of EUR 1 million per year for a period of five years. Implementation of the transfer
started in 2023, and the first grants were signed in February 2024. In the first two years of
the transfer,  six  ERA  fellowships  and  one  MSCA  global  fellowship  project  with  Maltese
beneficiaries have been funded and are currently ongoing.

In the case of Lithuania, EUR 18.5 million has been transferred from the ERDF to Horizon
Europe (2024-2025) to support projects under Pillar 1 as well as Pillars 3 and 4. The transfer
process involved three ministries with the lead taken by the Ministry of Finance. Currently,
there are eight projects in Pillar 3 (grants) and ERA fellowships with all funds earmarked for
2024  well  absorbed.  It  is  estimated  that  the  transfer  contributed  to  a  15%  increase  in
incentives to participate in Horizon Europe projects – a direct contribution to strengthening
Lithuania’s R&I system.

Seal of excellence – the case of Bulgaria and France

Bulgaria has been providing support to the European Innovation Council’s (EIC) SoE-holders
mobilising  funds  from  the Recovery  and  Resilience  Facility  (RRF).  After  2024,  it  plans  to
continue 
for  Smart
Transformation’ operating programme.  In  France,  Sorbonne  University  funds  up  to  five
contracts per year for MSCA Postdoctoral Fellowship Seals of Excellence, and the Haut de
France region is planning to fund the holders of the same SoE through the ERDF funds.

Innovation  and  Digitalisation 

funding  under 

‘Research, 

the 

16.2.1. Establishing  a  dedicated  work  stream  in  the  ERA  Forum  to  improve

access to excellence

The ERA Forum sub-group ‘Access to excellence – RIMA’ launched in June 2023 conducted
three meetings throughout 2023 and 2024, with the first held in June 2023. Following the first
meeting exchanges, in view of the lack of complete information on what types of synergies

165 RIMA, Report on the European Synergies of Funds, 2025.

101

are  used  and  with  which  sources,  the  group  decided  to  carry  out  a  mapping  of  ongoing
practices in Member States and regions in implementing ERDF-Horizon synergies.

In  September  2023,  RIMA  disseminated  a  survey  among  its  members  to  enhance  the
understanding  of  current  activities  of  Member  States  on  synergies.  Out  of  16  responding
states, 14 implement synergies with Horizon Europe with the majority of funds coming from
Cohesion Funds, followed  by  RRF.  However,  the  survey  also  indicated a reluctance  of
Member States to use transfer mechanisms for synergies, and the overall underutilisation of
synergies across the Union due to lack of experience and good practices.

In December 2023, RIMA conducted its second meeting which discussed access to tools to
promote excellence and the interplay of synergies and smart specialisation. Delegates also
discussed amendments to the  General  Block  Exemption  Regulation,  and  Member  State
practices in synergies (showcasing Germany and Portugal). Among the main outcomes of
the meeting were the need to streamline the SoE award process, promote communication
about successfully implemented transfers, and find ways to address barriers restricting the
use  of ERDF in financing European  Partnerships  and remove bottlenecks in  their
implementation.

The third RIMA meeting took place in September 2024, focusing on the future of R&I and
Cohesion policies. It featured two case studies on fund transfers (Malta and Lithuania) and
included discussions on RIMA’s activities report. The report166 examines the challenges of
fostering synergies between Horizon Europe and ESIF, offering recommendations for future
improvements. It further identifies four key challenges in implementing synergies:






Aligning programmes and regulations at EU, national and regional levels
Improving access to information on instruments and opportunities
Enhancing training and capacity-building to leverage synergies effectively
Strengthening coordination among stakeholders, including programming bodies and
beneficiaries

The insights from RIMA activities provide a strong foundation for policy  development, with
targeted recommendations to guide future actions.

16.2.2. Design and implementation of tailor-made support to individual Member

States

The main tool to support individual Member States in implementing synergies is the guidance
outlined in the 2022 Commission’s Notice on Synergies between Horizon Europe and
ERDF programmes (2022/C 421/03).

Member  States  also  have  access  to  various  other  instruments  that  support  and  enable
synergies implementation. Some examples are listed below:



Through the Pathways to Synergies programme instrument, 16 proposals were
selected for funding in 2023 with the signing of grant agreements completed in May
2024.167 A  total  of 11  selected  projects  focus  on  upstream  synergies  between
different  European  funding  programmes,  including  human  resource  development
and internationalisation, while five projects work on downstream synergies between
European 
focus  on  advancement  and
commercialisation of research results.

funding  opportunities, with

a

166 RIMA, Report on European Synergies of Funds, 2025.
167 European  Commission: Pathways  to  Synergies: new projects  bridging  the  gap  between  local  and  EU
funding, 2024.

102





The  call  under Excellence  Hubs launched  in  September  2023  resulted  in  the
selection  of  12  proposals  in  November  2024,  while the Teaming  for  Excellence
initiative  selected  13  projects  for  funding  in  March  2024.  The ERA  Chairs call
complemented this effort with 38 projects obtaining funding in 2024168 and an overall
investment  of  EUR  315  billion  under  the  three  actions  during  2024.  The
Dissemination and Exploitation Support Facility action launched a call in April
2023 with 13 projects funded.
The Hop-On Facility deadline was extended by a year until September 2024 with
109 proposals submitted. The Twinning action allowed for the selection and funding
of 96 proposals in 2024.

In terms of assessing how well synergies have been implementation, the Network of Marie
Skłodowska-Curie Actions National Contact Point (MSCA-NET) carried out a study into
the synergies between its work and various EU programmes and instruments on R&I. The
study covers the MSCA SoE scheme169 funded  by ESIF and the  European Research and
Development  Fund  projects  funded  through  the  COFUND  programme and focused  on
research aligned with the Research and Innovation Strategy for Smart Specialisation (RIS3).

16.2.3. Policy  approach  on  the  potential  of  COST  to  improve  access  to

excellence across the EU

COST Actions focus, inter alia, on promoting excellence and inclusiveness through:






Ensuring equal opportunities and gender-friendly career advancement
Empowering young talents at the beginning of their careers to acquire the necessary
recognition and leadership
Increasing  brain  circulation  between  peripheral  regions  to  research-intensive
territories

On the latter, COST developed a list of Inclusiveness Target Countries (ITCs) which includes
less research-intensive COST Members. Currently, half of the COST budget is invested in
activities across these objectives with a focus on engaging researchers in ITCs.

Assessment of the progress towards the ERA Action 16 objectives
over the 2022-2024 period

16.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on  the specific
objectives of ERA Action 16.

Table 16 Assessment of the progress towards Action 16 Specific Objectives: initiatives
and outcome

Specific
objectives170

Establish a
dedicated work

Main initiatives
implemented

Main outcomes



The ERA Forum
sub-group ‘Access

 A structured dialogue (‘RIMA expert group’)

between the European Commission and R&I-

168 European Commission: Boosting research and innovation in Widening countries with Teaming, Excellence
Hubs, and ERA Chair actions, 2024.
169 MSCA-NET, Policy Brief: Synergies, 2023.
170 European Commission: European Research Area policy agenda – Overview of actions for the period
2022-2024, 2022.

103

Specific
objectives170

Main initiatives
implemented

Main outcomes

stream in the ERA
Forum to improve
access to
excellence

to excellence’ –
‘R&I and Cohesion
Managing
Authorities’
Network launched
in June 2023



Design and
implementation of
tailor-made
support to
individual Member
States

The guidelines on
synergies published
by the Commission
in the Commission
Notice on
Synergies between
Horizon Europe
and ERDF
programmes
2022/C 421/03

 Other instruments
under Horizon
WIDENING sub-
pro-gramme
supporting synergy
imple-mentation

Policy approach
on the potential of
COST to improve
access to
excellence across
the EU

 Current COST
policy on
excellence and
inclusiveness
includes objectives
related to support
to less research-
intensive members

related bodies in Member States and managing
authorities of Cohesion policy programmes on was
set up to address practical experiences linked to the
design and implementation of R&I policies at
national and regional levels that help to promote
synergies and boost scientific excellence and
innovation.



Three RIMA meetings conducted from June 2024
until December 2024 covering policy updates and
exchange of experiences on synergy
implementation at national level, organisation of
synergy governance within Member States, State
aid-related issues, Regional Innovation Valleys,
Mutual Learning Workshop on synergies, Smart
Specialisation (S3) Community of Practice, new
combined Framework Programme-Cohesion Fund
database to streamline matchmaking between
projects and beneficiaries

 Mapping of Member States’ synergy

implementation status, as set out in a dedicated
Notice on Synergies between Horizon Europe and
ERDF programmes, through a survey of RIMA
members

 RIMA report covering challenges of synergies

between Horizon Europe and ESIF, including good
practices and recommendations on moving forward

 Malta transferred EUR 5 million from its ERDF

allocation to Horizon Europe (six ERA fellowships
and one MSCA global fellowship project with
Maltese beneficiaries funded)



Lithuania transferred EUR 18.5 million from ERDF
to Horizon Europe to support projects under Pillars
1, 3, and 4, incentivising participation in HE and
strengthening its R&I system capabilities

 Pathways to Synergies yields 16 funded proposals

signed in May 2024













The call under Excellence Hubs resulted in 12
successful proposals signed in November 2024

The Teaming for Excellence initiative selected 13
projects for funding in March 2024

The ERA Chairs call gathered 38 funded projects in
2024 with overall investments of EUR 315 billion

The Dissemination and Exploitation Support Facility
launched a call in April 2023 with 13 projects
funded

The Hop-On Facility deadline was extended until
September 2024 with 109 proposals submitted

The Twinning action led to 96 funded proposals in
2024

 No additional study was conducted to explore how
COST can further improve access to excellence
across the EU

104

Source: Technopolis Group, based on data collected through desk and interviews

16.3.2. Challenges and opportunities towards future ERA initiatives

Despite available guidelines on synergy implementation, the RIMA report highlights the need
to improve the user-friendliness of guidelines and disseminate them more broadly through
the managing authorities. The report also highlights the need to develop better mechanisms
for exploiting synergies,  such  as  1) training  and  capacity-building  for  the  managing
authorities, 2) improved governance mechanisms, 3) better communication on the benefits
and administration process, 4) streamlining of the implementation rules, 5) provision of legal
clarity,  and 6) inclusion  of  synergies  in  long-term  planning – i.e., how Cohesion  policy
programmes and R&I programmes are being drafted.

Implementation  of  the  dedicated  recommendations  of  the  RIMA  report  could  address  the
existing  bottlenecks,  enhance  coordination  between  Cohesion policy  and  Horizon  Europe
funding, and further promote synergies across the whole R&I ecosystem.

17. Action  17:  Enhance  public  research  institutions’  strategic

capacity

Key findings Action 17: Enhance public research institutions’ strategic capacity

During the monitoring period, ERA Action 17, especially implemented through the Horizon
Europe  projects  RM  ROADMAP  and  CARDEA,  has  advanced  the  promotion  of  excellent
research management across Europe:









Insights into the EU-level research management landscape and current challenges
have been identified.

The umbrella  term  ‘Research  Manager  and  Administrator’  has  been  picked  and
adopted in national and organisational contexts.

A  comprehensive Career  and  Competence  Framework outlining  career  paths  and
skills for research managers has been developed.

A network of 116 Research Managers’ Ambassadors has been established, fostering
collaboration across 40 EU and Associated Countries.

A mutual learning platform and several training opportunities have been launched.


These  efforts  have  strengthened  the  European  research  ecosystem  and  advanced  the
recognition and development of Research Management as a profession. An awareness
campaign  promoting  the  profession  and  supporting  capacity-building  in  less  R&I-intensive
regions  is  being  prepared.  In  the  longer  term,  reflecting  on  the  sustainability  of  these
achievements  beyond  the  duration of  project-based  initiatives  and strengthening  capacity-
building towards Widening Countries is considered necessary.

105

Objectives and scope of ERA Action 17

Purpose of the action:171

ERA Action 17 aims to pave the way towards greater recognition and professionalisation
of  the  Research  Management  profession.  The  action  supports  the  development  of  a
European  network  of  R&I  managers, explores  certification  and  training  programmes,  and
provides policy support to Member States via mutual learning platforms. These efforts will
strengthen research management, ensure excellence across the ERA, and facilitate the flow
of talent and investments in research.

Figure 16 Identified problems and defined objectives of ERA Action 17

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 17 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):172

Two Coordination and Support Actions were initiated in 2022 under the Horizon Europe call
‘Towards a Europe-wide training and networking scheme for research managers’:173

 CARDEA, coordinated by the University College Cork, aims to professionalise research
management as a valued career choice within the European Research Area through the

171 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
172 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.
173 European Commission: Towards a Europe-wide training and networking scheme for research managers.

106

development  of  a  careers  and  competences  framework  for  research  managers  at
European level.

 RM  ROADMAP,  led  by the European  Association  of  Research  Managers  and
Administrators (EARMA),  seeks  to  connect  existing  European  networks  through  an
innovative  community  platform  for  research  management.  The  project  started  in
September 2022, the call to select the 40 Ambassadors was completed in March 2023,
and a Research Management Helix was launched in April 2023.

Additional  initiatives  funded  under  Horizon  Europe  have  also  been  set-up,  including  the
EOSC  Strategic  Research  and  Innovation  Agenda, which  sets  a  vision  to  establish  an
operational ‘Web  of  FAIR  data  and services’ for  science;  but  also  the RITrainPlus project
focusing  on  developing  the  skills  and  competences  of  Research  Infrastructure  managers.
Horizon Europe’s Responsible Research and Innovation (RRI) programme also promotes
the  integration  of  RRI  principles  into  research  management. Building  on  the  foRMAtion
project,  the foRMAtion  Alliance  for  the  Educational  Module focused  on  developing
essential skills and competencies needed in the research management profession, aligning
with the goals of Action 17.

From mid-2023 to late-2024, the implementation of ERA Action 17 made significant strides
through various key initiatives aimed at strengthening research management across Europe.
These  activities  focus  on  increasing  the  recognition  of  the  profession  and  developing and
improving access to  training activities  for research  managers.  Those  activities  also aim at
strengthening capacity-building, especially in less R&I-intensive regions of Europe. Most of
these activities were funded through Horizon Europe.

17.2.1.

Promoting the recognition of the research management profession

Co-creating a common definition of ‘Research Manager and Administrator’

Under  the  RM  ROADMAP project,  a  survey  targeting  the  research  community  has  been
launched in November 2023 and closed in May 2024 with the aim to establish a common
umbrella term to align the definition of the profession. As a result of the survey174, which had
a sample  of 2,212  contributions  from  the  R&I  community,
‘Research Manager  and
Administrator’ was selected as the preferred term.

Identifying the main challenges related to the research managers’ profession

As another result of the first RM ROADMAP survey, the top challenges identified in research
management were described as an “unclear career framework and job architecture” (73% of
respondents)  and  “low  professional  recognition”  (67%  of  respondents). Other  major
challenges identified by more than 50% of respondents include a “lack of institutional policies”
and  a  “lack  of  professional  identity”,  as  well  as  a  “lack  of  opportunities  for  professional
development”.

A separate survey was  implemented in  2023 by  the  CARDEA  project, revealing  similar
challenges for research managers in their work environments.175 That extensive survey of 97
questions received responses from 855 research managers. It explored the demographics,
employment conditions, skills, education, motivation, satisfaction, professional networks, and
mobility  of research managers  to  understand  the  professional  contexts,  challenges,  and
opportunities they face within and beyond the EU.

174 The results of the survey are available in the RM ROADMAP project website.
175 The results of the CARDEA survey are available on the project’s website.

107

Developing  a  first set of policy recommendations  to  increase  the recognition of the
research managers’ profession

A first set of policy implications and recommendations176 for targeted actions at national and
European levels was developed under the RM ROADMAP project (August 2023), in line with
the ERA Action 17 objectives, to increase the recognition of the profession and the range and
accessibility of research managers’ training activities. These recommendations focus on four
key  areas: 1)  Upskilling,  by  expanding  training  opportunities  for  research  managers; 2)
Recognition,  to  establish  research  management  as  a  vital  profession  within  the  R&I
ecosystem; 3) Networking,  through  mapping  and  promoting  opportunities  with  adequate
funding;  and 4) Capacity-building,  by  creating  a  flexible  European-level  value  proposition
adaptable to national and regional contexts.

17.2.2. Developing  a  competence  framework  for  the research manager

profession

Developed  by  the  CARDEA  and  RM ROADMAP projects,  the European  Competence
Framework for Research Managers (RM COMP) is a structured set of desirable skills and
competencies of research managers at different career stages across various sectors. The
project  seeks  to  validate  career  assessment  methodologies;  it  defines  four  profiles  for
research  managers,  from  entry-level  (RM  1)  to  senior  leadership  (RM 4),  across  eight
competence areas, including technical proficiency and relationship management. It outlines
42  competencies  with  672  learning  outcomes,  ensuring  flexibility  for  career  progression
without qualification barriers.

17.2.3.

Increasing networking of research managers and  implement  a  Science
Management  Initiative,  with  at  least  100 participating  institutions  across
Europe

By bringing together stakeholders from 40 European countries, RM ROADMAP aims to build
a more inclusive and interconnected research management community. The project fosters
collaboration and the sharing of best practices through a co-creation process involving 116
research managers’ ambassadors recruited from 40 countries in Europe.

The  RM  dashboard  also  lists  existing  research  managers’  networks  covering  their
geographical  scope,  objectives,  areas  covered  and  relevant  activities.  It  also  lists  43
networking opportunities.

17.2.4. Raising  awareness  and  offering  training  opportunities  and  mutual

learning platforms on research management

European Commission awareness-raising campaign

In  June  2024,  the  European  Commission  collected  75  success  stories  from research
managers through a survey to highlight their critical contributions to scientific advancements
and innovation. These stories will be used to create dissemination materials for an awareness
campaign to promote and support the research management profession across the European
research ecosystem.

Successful cases in research management linked to ERA Action 17

 Overcoming  fragmentation  at  Ca’ Foscari  University  of  Venice (Italy):  A  cross-
functional  working  group  of  20  staff  members,  officially  appointed  by  decree,  was

176 RM  Roadmap, European  Policy  Brief - A  Roadmap  for  Research  Management  (RM)  to  strenghten  the
European Research Area (ERA), 2023.

108

established to enhance research management by sharing knowledge, experiences, and
best practices within the university.

 Joining forces for Research Infrastructure staff recognition: Heads of RIs from EU-
LIFE’s  15  member  institutes  collaborated  to  share  best  practices,  enhance  capacity-
sharing,  and  raise  visibility  for  core  facilities  and  small- to  medium-scale  research
infrastructures.

Source: Example of success stories collected through the Commission survey (2024)

Mutual learning platforms and training opportunities

This RM  professional  opportunity  development  dashboard has  been  developed  as  a
collaborative endeavour between the CARDEA and RM ROADMAP projects, and serves as
a comprehensive hub for RM professionals seeking professional development opportunities.
It offers easy access to data collected under the RM ROADMAP project, showcasing a wide
range of opportunities across Europe, including training,  mobility, networking, and funding
options tailored to research managers.

The CARDEA  Academy,  an  integral part of the CARDEA  online hub,  supports research
managers  through  tailored  training aligned  with  the  CARDEA  Research  Managers
Competency Framework:

 Launching  a  micro-credential  programme  in  November  2024,  the  CARDEA  Academy
focuses  on  essential  skills  for  early-career  professionals  (RM1).  Special  emphasis  is
placed  on  engaging research managers  from  Widening  Countries  and  leveraging
networks like EURAXESS to broaden accessibility.

 The  Academy  also  offers  a  diverse  range  of  professional  development  opportunities,
including workshops, webinars, and virtual conferences, to convey – inter alia – project
management and leadership skills as well as addressing career trends, best practices,
and policy updates.

 Additionally,  the  CARDEA  Hub  provides  open-access  online  resources,  including
recorded  sessions  on  project  management,  leadership,  data  management,  and  career
development.

Under the RITrainPlus seven courses  on research  management were organised until the
end  of  2024.  This Management  Training  Programme  focuses on  effective research
Infrastructure  management  and  public  engagement.  The  continuous  professional
development  courses  provide  insights into  best  practices,  facilitate  discussions on  ethical,
legal, and socio-economic challenges, and encourage innovative solutions.

Assessment of the progress towards the ERA Action 17 objectives over
the 2022-2024 period

17.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The initiatives implemented in the scope of the ERA Action 17 have enabled some progress
towards  the  promotion  of  excellent  research  management  across  Europe.  The  RM
ROADMAP and CARDEA large-scale surveys have enabled a better understanding of the
landscape across Europe, including the challenges faced by research managers. This has
been  complemented  by  the  development  of  a  comprehensive  Competence  Framework
outlining career paths and skills for research managers. Networking initiatives have brought
together  stakeholders  from  40  EU  and  Associated Countries,  fostering  collaboration  and
inclusivity. Training opportunities and the development of a mutual learning platform through
the CARDEA Academy and RITrainPlus, enhanced professional development. Moreover, the

109

selection of the umbrella term ‘Research Manager and Administrator’ by the stakeholders’
community fosters improved recognition of the profession.

The  table  below  summarises  the  main  initiatives  and  outcomes delivering  on  the specific
objectives of ERA Action 17.

Table 17 Assessment of the progress towards Action 17 Specific Objectives: initiatives
and outcome

Specific objectives177

Main initiatives
implemented

Main outcomes

Promote the recognition of
the R&I management
profession at institutional
and government levels



Two projects under
the Horizon
Europe call
‘Towards a
Europe-wide
training and
networking
scheme for
research
managers’:

- RM ROADMAP

- CARDEA

Develop a competence
framework for the
research manager
profession

Increase networking of
research managers and
implement a Science
Management Initiative,
with at least 100
participating institutions
across Europe

Offer training opportunities
and policy support to
Member States through
mutual learning platforms
on research management













RM ROADMAP
CARDEA

RM ROADMAP
CARDEA

RM ROADMAP
CARDEA
EIT’s HEI Initiative
RITrainPlus
BESTPRAC





















Identification of the main challenges
related to the research managers’
profession
Selection of a common term to define the
profession of ‘research managers'
Improved understanding of the research
management landscape in Europe
First set of policy recommendations to
increase the recognition of the research
managers’ profession

Development of a European Career and
Competence Framework for research
managers

Establishment of a network of 116 RM
Ambassadors
Networking events and opportunities for
stakeholders from 40 European countries

Development of platforms and tools to
support professional development and
networking for research managers
Implementation of tailored training
programmes, including microcredentials
and workshops, to enhance skills and
competencies of research managers
Awareness campaigns and dissemination
of best practices to promote the research
management profession

Source: Technopolis Group, based on data collected through desk research and interviews

177 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.

110

Considerable progress has been made particularly through the CARDEA and RM ROADMAP
projects. During this reporting period, key areas of collaboration include the development of
an online dashboard and the creation of a comprehensive training catalogue178.

The  initiatives  in  place,  leveraged  by  existing  networks  such  as  EARMA  (European
Association of Research Managers and Administrators), leading the RM ROADMAP project,
enabled a considerable outreached towards the RM stakeholder community.

The surveys launched by RM ROADMAP and CARDEA, as well as the one implemented in
2024  by  the  European  Commission  to  collect  best  practices,  obtained  a  considerable
response rate and coverage, enabling to provide a comprehensive overview of the current
research manager landscape across Europe.

An awareness-raising campaign has been planned to promote and improve the recognition
of  the  profession.  It  also  aims  to  contribute  to  capacity  building,  particularly  in  less  R&I-
intensive regions, and advancing the European research ecosystem.

17.3.2. Challenges and opportunities towards future ERA initiatives

In  order to  promote  best  practices  related  to  research  management awareness  raising
campaigns will continue to be core of this initiative. The activities of the two Horizon Europe
projects RM ROADMAP and  CARDEA  will carry  on until  mid-2025  and  mid-2026,
respectively, with both contributing to a more comprehensive set of policy recommendations
based on the learnings.

A new Horizon Europe project, called RM Framework, started its work in February 2025. The
long-term  sustainability  and  possible  expansion  of  the  RM ROADMAP’s ambassador’s
network, covering 40 EU and Associated Countries, could be further explored before the end
of  the  project.  The  uptake  of  the Competence Framework  could  also  be  monitored,  and
feedback could be collected to keep refining it and ensure its relevance over the longer term.

Beyond  the  continuation  of  the  current  activities,  additional  support  would  be  needed  to
further  promote  and  enhance  recognition  of  the  research  management  profession  in
Widening Countries,  including  training  and  networking,  to  expand  capacity-building
opportunities.

Assessment of the ERA Actions under ERA Priority 3 – Amplifying
access to R&I excellence across the Union

ERA Priority 3 focuses on amplifying access to R&I excellence across the Union, addressing
disparities  and  ensuring  that  all Member  States  can  both  contribute  to  and  benefit  from
advances.

Widening Countries have shown some convergence with the EU-27 in R&D expenditure as
a  percentage  of  GDP,  particularly  during  the  2017-2020  period,  but  progress  has  slowed.
The ERA Scoreboard 2024 highlights notable negative growth rates in R&D investment since
2017  in  Hungary,  Cyprus,  Malta,  and  Lithuania,  while  Ireland  and  Croatia  demonstrate
positive  outlier  performance.  Sustained  and  strategic  investments  are  required  to  prevent
further divergence and promote balanced growth.

This priority’s actions have delivered measurable progress, though disparities persist.

ERA Action 15 aimed to build robust regional and national R&I ecosystems to improve
competitiveness  and  foster  cross-sectoral  collaboration,  leveraging  synergies  to  drive

178 European Commission, CARDEA - Carrer Acknowledgement for Research (Managers) Delivering for the
European Area.

111

excellence. While this action has not been implemented as initially designed due to limited
Member State commitments, related initiatives have advanced its objectives. For example,
under the ‘widening’ component of Horizon Europe, 25 Excellence Hubs have been created,
strengthening  regional  innovation  ecosystems  in Widening Countries  by  creating  linkages
between academia, research organisations, businesses, local governments, and civil society.
The Regional  Innovation  Valleys initiative,  involving  148  regions,  has  aimed  to  reduce
fragmentation  by  fostering  collaboration  aligned  with  smart  specialisations.  A pilot  of  the
ERA  Hubs  concept was  launched  in  2022,  testing  multi-level  governance  frameworks  to
address societal challenges.

Addressing these disparities will require targeted support to build networks in less connected
regions. Promoting greater openness in R&I cooperation network across disciplines, sectors,
and geographies can further enhance cross-border and cross-sectoral collaboration.

ERA  Action  16  has supported  the  objective  to improve access  to  excellence  by
fostering synergies between  Horizon  Europe and  ESIF. The establishment  of RIMA in
2023 facilitated enhanced coordination between national and regional authorities, and further
seeks to support the streamlining of synergies. With investments exceeding EUR 1 billion,
in supporting the  centres  of
Horizon Europe Widening  Actions have  been  pivotal
excellence  through Teaming  initiatives,  establishing ERA  Chairs,  and  strengthening
regional innovation ecosystems via Excellence Hubs. By 2024, the Widening Countries had
received 14% of the Horizon Europe budget compared to 8% under Horizon 2020. The 2024
Scoreboard highlights significant progress, with some Widening Countries closing the R&D
intensity  gap, while  some persistent  disparities remain. The Pathways  to  Synergies
programme enabled countries like Lithuania to transfer EUR 18.5 million from the ERDF to
Horizon Europe, boosting participation and strengthening national R&I capabilities. Malta and
Spain adopted similar models. COST remained a vital tool, yet further exploration of COST’s
potential to expand access to excellence is needed.

for 

The  interim  evaluations  of  Horizon  Europe  also  suggests  that  the  operationalisation  of
synergies  across  different  programmes  should  be  embedded  into  the  programme  design,
including  coordination 
long-term  planning,  aligned  processes  and  co-creation
mechanisms.  Expanding  Seal  of  Excellence (SoE) initiatives  and  facilitating  their  uptake
across  all  Widening  Countries  could  unlock  additional  potential.  Data  from  the ERA
Scoreboard  indicates  that  while  Cyprus  leads  in  SoE  project  uptake,  other  countries  lag,
reinforcing  the  need  for  broader  engagement.  Lastly,  improving  the  accessibility  and
dissemination of information on available support mechanisms at EU, national and regional
levels through streamlined and efficient structures is also critical.

Finally, ERA  Action  17  has sought  to strengthen  research  management  to  build
institutional capacity through advancing the professionalisation of research management
in Europe. The adoption of the umbrella term Research Manager and Administrator has
enhanced the recognition of the profession and created  a foundation for capacity-building.
Through the CARDEA and RM ROADMAP projects, the development of a comprehensive
Competence Framework outlining  career  paths  for  research  managers  has  been  a  key
milestone.  A network  of  116  Research  Managers’  Ambassadors across  40  EU  and
Associated  Countries  has  fostered  collaboration  and  shared  best  practices. Training
initiatives such  as  the  CARDEA  Academy  have  offered  micro-credentials  and  tailored
opportunities,  particularly  for  stakeholders  in ‘widening’
regions.  However,  the ERA
Scoreboard 2024 highlights disparities in collaboration networks among RPOs in Widening
Countries where R&I management capacities remain underdeveloped.

Building on the CARDEA and RM ROADMAP projects, sustained support for ambassador
networks  and  training  platforms  can  deepen  the  impact.  Efforts  should  also  focus  on
embedding the RM COMP framework into institutional practices across all regions.

112

ERA  PRIORITY 4: ADVANCING CONCERTED RESEARCH
AND INNOVATION INVESTMENTS AND REFORMS

This chapter summarises the key findings on the implementation of the ERA Action under
ERA Priority 4.

18. Action  18:  Facilitate  a  national  process  of  ERA  policy  vehicle
preparation  for  identification  of  running  or  planned  measures
contributing to the implementation of the ERA

ERA Action 18 has not been implemented as a stand-alone action, but has been embedded
into ERA Actions 16 and 19.

19. Action 19: Establish an ERA monitoring system

Key findings Action 19: Establish an ERA monitoring system

During the review period, the Action’s priorities and objectives have advanced, ensuring a
comprehensive assessment framework for EU and national-level policy-making:

 Published in  November  2023,  the  first EU-level  Report, provides  an  accurate state of
play of the implementation of the ERA Policy Agenda including progress made towards
the ERA objectives (as set out in the Pact for R&I) at EU-level during the period 2022 to
mid-2023.

 Launched  in  January  2024,  the ERA  Policy  Platform serves  as  a  repository  of  ERA
policies,  activities,  and  achievements,  featuring  public  and  secure  areas  for  data
exchange and reporting. It includes dedicated country and EU reports tracking progress
on ERA actions.

 Published in March 2024, the ERA Scoreboard and Dashboard 2023 provide EU-level
and  national  assessments  and  detailed  data  on  ERA  priorities  and  national  progress,
offering insights into R&D trends and investments.

 Published in April 2024, the ERA Country Reports 2023 document Member States’ and

select Associated Countries’ progress in implementing the ERA Policy Agenda.

While these achievements mark progress, challenges remain. Limited data availability, gaps
in indicator alignment with ERA priorities, and incomplete metrics constrain the effectiveness
of the system. Future efforts should refine the indicator framework, enhance data quality, and
promote the ERA’s achievements.

113

Objectives and scope of ERA Action 19

Purpose of the action:179

Action 19, developed following the Council’s conclusions on the future governance of the
ERA, aims to design a robust monitoring mechanism to assess progress towards ERA
objectives and inform policy-making at both the EU and national levels. The goal of the
framework is to align research and innovation initiatives with the priorities set out in the
Pact for Research and Innovation.

This action focuses on developing a set of tools to facilitate exchanges among actors, track
the overall progress of implemented initiatives, and identify challenges, barriers, and areas
for improvement.

Figure 17 Identified problems and defined objectives of ERA Action 19

Source:  Technopolis  Group,  based  on  European  Commission’s  European  Research  Area  policy  agenda –
Overview of actions for the period 2022-2024

Status of ERA Action 19 implementation at EU level

Summary of the main initiatives during the first phase (2022 to mid-2023):180

The  ERA  Monitoring  Mechanism  was  established  in  the  first  phase.  The  European
Commission  organised  the  development  of  all  required  monitoring  products,  including  the
online  ERA  Policy  Platform.  Thus,  the  platform  includes – among  other  information  and
features – both  ERA  Scoreboard  and  Dashboard,  as  well  as  the  EU-level  Report  and
individual ERA Country Reports for Member States and Associated Countries.

179 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
180 European  Commission:  Directorate-General  for  Research  and  Innovation,  Andriescu,  M.  and  Collier,  N.
(eds.), ERA monitoring 2023 – 18-month review of the implementation of the ERA policy agenda ('EU-level
report'), 2023.

114

19.2.1. Develop  the  online  ERA  policy  platform  with  the  aim  to underpin  a

consistent, robust and quality tested national reporting system

The ERA Policy Platform was launched in January 2024181, serving primarily as a repository
of current ERA policies, activities, and achievements. The platform has a public front-end and
a  closed (login  protected) area,  serving  as  a  space  for storing  non-public  information  and
data. This information is also used to feed the reporting requirements.

19.2.2. Develop the ERA Scoreboard and ERA Dashboard with the aim to monitor

the progress towards ERA priorities at EU and national levels

The ERA Scoreboard 2023 contains an EU-level assessment on the progress made towards
achieving the ERA priorities through 18 established R&I indicators, while the ERA Dashboard
2023 complements  the  Scoreboard  by  providing  more  detailed  data  and  information  on
progress towards ERA objectives at the national level though 55 established R&I indicators.

The ERA Scoreboard and ERA Dashboard 2023 were published in March 2024.

19.2.3. Development  of the  EU-level  Report  and  the  ERA  Country  Reports  to

regularly assess the state-of-implementation of the ERA Policy Agenda

The first ERA EU-level Report 2023 provided an 18-month review of the progress towards
the four ERA priority areas at EU-level. It monitored the period January 2022 to mid-2023. It
is conceived as benchmark report for further monitoring at EU-level.

The ERA EU-level Report is complemented by the annual ERA Country Reports. Dedicated
reports have been produced for all EU Member States and for several countries associated
to Horizon Europe.

Assessment  of  the  progress  towards  the  ERA  Action  19  objectives
over the 2022-2024 period

19.3.1. Assessment  of  progress  towards Specific Objectives:  main  initiatives

and outcome

The continuous developments of the various monitoring tools reflect a commitment to making
these  tools  dynamic  and  comprehensive  for  assessing  the  progress  of  ERA  priorities  and
supporting the research community across Europe.

While the indicator framework benefits from being slightly refined, the overall attempt to reuse
data  from  other  sources  (such  as EUROSTAT,  the  OECD,
the  European  Innovation
Scoreboard or EOSC) provides for coherence and efficiency.

181 European  Commission: Launch of the European  Research Area Policy Platform: a new gateway for the
ERA, 2024.

115

Table 18 Assessment of the progress towards Action 19 Specific Objectives: initiatives
and outcomes

Specific objectives182

Main initiatives implemented Main outcomes

Develop the online ERA Policy
Platform with the aim to have a
consistent, robust and quality tested
national reporting system to feed the
online policy platform, considering
current instruments

Develop the ERA Scoreboard and
Dashboard with the aim to monitor
the progress towards ERA priorities
at EU level and at Member States
level, considering current
instruments

 Development of the ERA

Policy Platform

 ERA Country Reports

 EU-level Report

 ERA Scoreboard

 ERA Dashboard





Tools to track progress
and assess impacts of
ERA actions

Information basis for
evidence-based policy-
making

 Up-to-date monitoring of
EU countries alignment
with ERA objectives



Tracking of R&D trends,
investments, areas of
improvement

Source: Technopolis Group, based on data collected through desk research

19.3.2. Challenges and opportunities towards future ERA initiatives

The challenges that were encountered during the 2023 ERA monitoring cycle mainly related
to the indicator framework for the ERA Scoreboard and Dashboard.

While for a few indicators no data was available, for several indicators only a few data points
were  available.  Moreover,  a  few  indicators  did  not  fully reflect  the  objectives  of  ERA  sub-
priorities.  Such  data  limitations  could  have  a  negative  impact on  the reliability of the ERA
monitoring instruments.

For  the  2024  ERA  monitoring  cycle  a  scrutiny  process  within  the  ERA  Forum  has  been
followed  to  improve  the  indicator  framework.  This  process  resulted  in a refinement  of  the
framework using additional indicators with more reliable data.183

However, it remains important to continue working towards higher data availability and quality
by  collaborating  with  key  data  providers,  and  continuously  assessing and  updating the
indicator framework to ensure better alignment with ERA sub-priorities.

20. Action  20:  Support  to  the  prioritisation,  coordination  and

direction of R&I investments and reforms

This action was not implemented.

182 European Commission: European Research Area policy agenda – Overview of actions for the period 2022-
2024, 2022.
183 See European Commission, Report on methods to improve the Scoreboard and the Dashboard, 2024

116

Assessment of the ERA Actions under ERA Priority 4 – Advancing
concerted R&I investments and reforms

The ERA  Policy  Platform, Scoreboard, and Dashboard as  well  as  the ERA  Country
Reports and  the  first EU-level  Report have all been  central  in  monitoring  and  assessing
developments across the ERA Policy Agenda. The ERA Scoreboard 2023, which analysed
18 indicators, and the ERA Dashboard, covering 55 indicators, highlight substantial progress
in areas such as R&D investment, Open Science, gender equality, global engagement, and
synergies with industrial and sectorial policies.

The ERA Scoreboard 2023 illustrates a steady increase in Gross Domestic Expenditure
on R&D (GERD) for the EU-27, which rose from 1.97% of GDP in 2010 to 2.27% in 2022.
This growth indicates progress, albeit below the 3% target. Furthermore, a narrowing of the
interquartile range for GERD values (from 1.39% in 2010 to 1.15% in 2022) shows reduced
disparities  across  Member  States,  signalling  improved  cohesion  and  a  more  balanced
ERA. On the other hand, while the number of researchers per million inhabitants (FTE) has
steadily increased across the EU-27, rising from 3,055 in 2010 to 4,681 in 2022, the spread
of  the  indicator  between  countries  has  increased  over  time,  highlighting  diverging
performance among Member States.

To  further  advance  on  the  objectives  of  ERA  Priority  4,  the  European  Commission  has
worked  closely  with  Member  States  on  targeted  actions,  including  the Horizon  Policy
Support Facility. Mutual Learning Exercises have helped to foster collaboration among EU
Member  States  and  Associated  Countries  on  pressing  R&I  challenges  linked  to  ERA
priorities.  Through  project-based  exchanges  of  best  practices  and  lessons  learned,  these
exercises address topics ranging from industrial decarbonisation and AI in science to public
engagement in R&I, and bridging the gap between science and policy-making.

To  maximise  impact,  ensure  coherence  and  facilitate  coordinated  actions  and  multi-level
synergies,  a  notable  development  is  the  introduction  of Enhanced  Dialogues initiated  in
2022  between  the  European  Commission  and  Member  States.  By  engaging  12  Member
States,  this  approach  has  facilitated better alignment  of  national  and  EU  R&I  policies and
improved coordination across departments managing R&I. It fosters a more integrated and
coherent  strategy  to  address  shared  challenges,  pool  resources  effectively,  and create
synergies between various national and European frameworks. This initiative underpins the
ERA’s goal of creating a unified and robust internal market for knowledge.

Despite these advances, key challenges remain that demand continued action to fully realise
ERA  Priority  4  objectives.  The  ERA Scoreboards  2023  and  2024  as  well  as  the  ERA
Dashboards 2023 and 2024 reveal areas of limited growth, including challenge-based ERA
actions, scientific leadership, and increased R&I investments in underperforming regions. In
2022, R&D intensity in the EU stood at 2.3% of GDP, below the 3% target and behind
global competitors such as the US, Japan, and South Korea. Additionally, only five Member
States  reached  the  3% R&D  investment  target, reflecting significant disparities  across  the
EU.

 Driving  greater  public- and  private-sector  engagement  and  cross-border
collaboration: Private-sector  investment  in  R&D  remains  insufficient,  hindered  by
Europe’s medium-technology trap and regulatory barriers that restrict innovation. Public
R&D investment, while essential, remains fragmented, with 90% of spending focused
on  national  priorities  and  only  10%  allocated  to  cross-border  collaborations  through
Horizon Europe. The absence of progress toward directing 5% of national R&D budgets
to  joint  cross-border  programmes  further  underscores  the need  for  enhanced
cooperation.



Leveraging innovation procurement for accelerated scaling-up: Expenditure on total
innovation  procurement  (R&D  and  innovative  solutions)  as  a  percentage  of  GDP

117

highlights  further  limitations.  For  the  EU-27,  this  expenditure  averages  1.58%,  with
significant variation across Member States. While Finland and Sweden lead in innovation
procurement,  Cyprus  and  Romania 
lag considerably. Expenditure  on  R&D
procurement  is  particularly  low,  averaging  only  0.06%  of  GDP  across  the  EU-27,
pointing  to  an  underutilisation  of  public  procurement  as  a  driver  for  innovation.  The
development  of  an innovation  procurement  programme,  as  recommended  in  the
Heitor Report,  could  stimulate  faster  scaling-up  of  innovations  by  industry,  leveraging
demand to drive transformative progress in R&I across the EU.

 Advancing structural reforms and supportive regulations: The pursuit of structural
reforms and supportive regulations are required to address institutional fragmentation,
improve  the  attractiveness  of  research  careers,  and  streamline  innovation  processes.
Regulatory hurdles, such as complex permitting procedures, and limited incentives for
knowledge transfer between academia and industry should also be addressed. Building
on the efforts made so far, the Heitor Report also suggests that fostering an attractive
and  inclusive R&D  and  innovation  (RD&I) ecosystem  will  require  Member  States  to
develop ambitious  national  plans  and  investments  in these  areas.  This  could  be
further enhanced by leveraging tools like the European Semester process and Structural
Funds, 
technology
infrastructures and Seal of Excellence projects, alongside targeted support for Member
States with lower success rates in FP initiatives to capitalise on excellence across the
Union.

initiatives  such  as  research  and 

increased  co-funding  of 





Enhancing  the  monitoring  framework  for  better  alignment: The  ERA  monitoring
framework  also  requires  further  refinement.  The  2023 monitoring  cycle  highlighted
persistent data gaps, limited growth metrics, and incomplete alignment of indicators with
ERA priorities. Enhanced collaboration with data providers and updates to the indicator
framework are essential for better monitoring and achieving ERA objectives.184

to  align  priorities,  pool 

Scaling  the  whole-of-government  approach  for  greater  impact:  Looking  ahead,
greater  policy  coordination  at  both  national  and  EU  levels as  well  as  between  them
remains  critical 
foster  cross-border
collaborations.  The whole-of-government  approach could  be  expanded  to  ensure
seamless integration of R&I  policies  across  Member States and with EU priorities. By
putting R&I at the heart of the economy, Europe can boost competitiveness and lead the
clean and digital economy transition. Strengthening European market integration through
the ‘fifth freedom’, entailing the free movement of research, innovation, knowledge, and
education, is seen as key to enhancing the continent’s attractiveness for talent and RDI
investments.

investments,  and 

Thus, sustained  R&I  investments,  alongside  targeted  reforms  to  promote  inclusivity  and
address regional disparities, will strengthen the ERA’s cohesion and effectiveness. The 25th
anniversary  of  the  ERA  in  2025 offers  an  opportunity  to  showcase  its  achievements,
promote its long-term vision, and mobilise broader stakeholder support for its future agenda.
A strong RD&I framework across the entire research, technology, and innovation spectrum
remains essential for establishing a robust ‘Research and Innovation Union’.

184 Most of the issues with the 2023 indicator framework were addressed in the ERA Scoreboard 2024 and the
ERA Dashboard 2024.

118

CONCLUSIONS

The implementation  of  the  ERA Policy  Agenda has  made  significant progress,  thus
significantly contributing to achieving the ERA’s objectives across the four priorities. These
efforts  have  positioned  the  ERA  to better address  critical  global  challenges,  strengthen
Europe’s  knowledge  economy,  and  advance  its  societal  and  strategic  priorities.  However,
persistent challenges require further action to fully realise the ERA's potential.

ERA Priority 1 – Deepening a truly functional internal market for knowledge

Through the ERA Policy Agenda the open sharing of knowledge and research outputs has
advanced reflected  by initiatives  such  as  the  European Open  Science Cloud  (EOSC),
identification of barriers and challenges to access and reuse research results emerging from
EU legislation on copyright, data, and digitalisation as well as policy options to address the
issues,
improved  research  assessment  frameworks,  and  enhanced  gender  equality
strategies.  Key  achievements  include  the  operationalisation  of  EOSC,  growth  in Open
Access publications, the establishment of the Coalition for Advancing Research Assessment
(CoARA),  mandatory  Gender  Equality  Plans  under  Horizon  Europe,
the  framework  for
research  careers  and  ERA Talent Platform, a  strengthened  international  strategy,  and  an
improved  roadmapping  for  research  infrastructures.  Despite  these  achievements,  some
actions have  proven  to  require more long-term  effort  to make  significant advances,  and
disparities  across  the  EU  remain  in  several  areas.  Addressing  these  gaps  and  fostering
synergies across ERA Actions will ensure the development of a more inclusive and resilient
knowledge ecosystem.

ERA Priority 2 – Taking up together the challenges posed by the twin green and digital
transition, and increasing society’s participation in the ERA

Significant  efforts  have  been  made  to  align  R&I  initiatives  with  the  twin  green  and  digital
transition  objectives.  These  include  advancing  EU  Missions  and  Partnerships,  integrating
education, R&I, and industrial policy, promoting clean energy solutions, and fostering citizen
engagement.  Key  instruments,  such  as  the  updated  Strategic  Energy  Technology (SET)
Plan,  instruments  that  support  the  integration  of  European  ecosystems  and  value-chains
such  as  the  development  of  a  European Strategy  for Research  and Technology
Infrastructures,  and  regional  innovation  initiatives,  hold  considerable  potential  to  drive
transformative  progress.  However,  governance  fragmentation,  funding  constraints,  and
uneven engagement from Member States and stakeholders continue to limit the full impact
of  these  efforts. To  effectively  address  the  challenges  of  the  green  and  digital  transitions,
ambitious  initiatives  must  be  supported  by  strengthened  coordination,  diversified  and
sustainable funding strategies, and broader public and stakeholder engagement.

ERA Priority 3 – Amplifying access to Research and Innovations excellence across the
Union

Efforts have improved access to R&I excellence, particularly focusing on Widening Countries,
through mechanisms  such  as Excellence  Hubs,  Seal  of Excellence  projects, and  targeted
Horizon  Europe  initiatives.  The  creation  of  regional  innovation  ecosystems  and  the
professionalisation  of  research  management  have  also  fostered  institutional  capacity-
building.  However,  disparities  in  R&D  intensity,  access  to  collaboration  networks,  and
professionalisation  of  research  management  remain.  Expanding  effective  synergies,
streamlining  funding  mechanisms,  and  strengthening  institutional  capacity  will  help  bridge
these gaps, promoting balanced growth across Member States.

119

ERA  Priority  4 – Advancing  concerted  Research  and  Innovation  investments  and
reforms

Efforts have been made in aligning and coordinating R&I investments through tools such as
the Enhanced Dialogues  and the  renewed  ERA monitoring mechanism.  Increased
investments in R&D and innovation ecosystems, as well as reforms in research careers and
research-industry 
to  strengthen  Europe’s  scientific  and
technological  capacity.  However,  reaching  the  3% GDP R&D  investment  target  and
addressing regulatory bottlenecks require sustained efforts. Scaling innovation procurement,
enhancing monitoring frameworks, and fostering a coordinated Europe-wide R&I investment
push would be pivotal for future success.

linkages,  have  contributed 

Suggestions for improving future ERA policy initiatives

While the ERA has achieved notable milestones, systemic challenges should be addressed
to  consolidate  its  impact.  Based  on  the  evidence  gathered  in  this  report,  the  following is
suggested for improving future ERA policy initiatives:

1. Strengthening co-creation  between Member  States,  associated  countries,  the
Commission and Stakeholders by maintaining the positive momentum of the renewed
ERA  governance  structure,  promoting 
transparency,  collaboration,  and  active
participation  through the ERA Forum, while addressing specific issues through tailored
approaches such as dedicated expert groups, stakeholder involvement or targeted Policy
Support  Facility  Mutual  Learning  Exercises  for  a  more  focused  engagement  geared
towards action implementation.

2. Scaling  the  impact  of  the  ERA  Policy  Agenda by  focusing  the  ERA  Actions  on  key
objectives  where  ERA  can  act  as  a  true  driving  force,  improving  communication  and
raising visibility while fostering stakeholder engagement. In addition, it would be beneficial
to foster the long-term sustainability of ERA initiatives by shifting from FP-funding for the
implementation  of  actions  to  longer-term  initiatives,  possibly  self-sustainable  and
embedded in the Policy Agenda.

3. Enhancing the scope and inclusivity of the ERA Policy Agenda to better reflect the
challenges  and  opportunities  of  the  European  R&I  ecosystem.  The  ERA  could  further
support  the  bridging  of  the gap  between  basic  research,  technology  development,
industrial applications, and societal uptake, fostering a comprehensive approach across
the  entire  R&I  spectrum. To  that  end,  strengthening  the  active  participation  of
stakeholders,  including  industry,  research  organisations,  regional  bodies,  and  civil
society, is seen as essential.

4. Addressing disparities  among  Member  States and  countries associated  to  the
Framework  Programme by  prioritising  efforts  to  reduce  inequalities in  performance,
especially  for  those facing  challenges  in  meeting  targets. Stakeholders  emphasise  the
need for capacity-building initiatives and tailored actions that focus on less R&I-intensive
regions,  fostering  regional  inclusivity,  reducing  disparities,  and  enhancing  cohesion
across Member States and countries associated to the Framework Programme.

As the  ERA celebrates its  25th anniversary  in  2025,  ambitions  need  to  remain  high,
underpinned by an actionable forward-looking agenda. Building on and expanding existing
initiatives, fostering greater inclusivity, and addressing persistent gaps will enable Europe to
remain a global leader in R&I. Sustained and ambitious investments and reforms combined
with  broad  stakeholder  engagement  are  essential  to fully realise  the  European Research
Area.

120

ANNEX 1 – Methodology and data sources

Covering the period from mid-2023 to end-2024, the second ERA EU-level Report provides
a  comprehensive  assessment  of  the  implementation  of  the  ERA  Policy  Agenda  and  the
progress made towards the objectives outlined in the Pact for Research and Innovation. It
assesses achievements across the four ERA priorities and 17 ERA actions, which have been
implemented since 2022.

Data collection and integration

The Report’s development was supported by an extensive data collection process.

 The qualitative analysis focuses on the implementation, milestones, and outcomes of the
ERA actions. Key data sources include documents available on the ERA Policy Platform,
and those available online. Insights were also derived from the European Commission’s
public consultation, ‘The New ERA 4 Years On: Achievements, Lessons Learned, and the
Way Forward’, as well as interviews conducted with action owners185 to understand the
progress  and  challenges  of  each  action.  Information  from  the  ERA  Country  Reports186
was incorporated to provide national-level examples of effective practices. The sources
of the public information consulted is available in the bibliography of Annex 2.

 The  quantitative  analysis  evaluates  progress  toward  the  ERA  priorities  and  objectives
using data from the 2024 ERA Scoreboard. Key performance indicators (KPIs) tracked
trends  and  disparities  at  both  EU  and  Member  State  levels,  while  a  portfolio  and
composition  analysis  of  Horizon  Europe  projects  (CORDIS  database)  assessed  their
contribution to ERA actions.

Validation process

With  regard  to  the  validation  process,  the  draft  report  was  reviewed  in  writing  by  action
owners  to  verify  findings.  The  validation  process  also  entailed  a  workshop  with  the  ERA
Forum representatives, including R&I stakeholders, in February 2025, where conclusions and
recommendations were discussed in view of re-fining the report.

185 So-called ‘Action Owners’ are persons (in the European Commission or at national level) or organisations
that have accepted to take the lead in organising the implementation of an ERA action.
186 ERA Country Reports are published on the ERA Policy Platform.

121

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129

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This EU-level report is the second 18-months review of the
progress towards the priority areas for joint action in the
European Research Area (ERA), as laid down in the Pact for
Research and Innovation in Europe, and of the
implementation of the ERA Policy Agenda. It covers the
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of the renewal of the ERA governance since 2021, the
monitoring will allow for evidence-informed policy-making.

Research and Innovation policy