Proposal for a COUNCIL DECISION on the partial suspension of the Agreement between the European Union, of the one part, and Israel, of the other part, on the participation of Israel in the Union programme Horizon Europe – the Framework Programme for Research and Innovation
Date: 2025-07-28
Institutions: Directorate-General for Research and Innovation, European Commission
Subjects: Framework Programme for Research and Development, Israel, innovation, research and development, revision of an agreement, scientific cooperation, technical cooperation, withdrawal from an agreement

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   EUROPEAN COMMISSION  Brussels, 28.7.2025  COM(2025) 620 final 2025/0250 (NLE)  Proposal for a COUNCIL DECISION on the partial suspension of the Agreement between the European Union, of the one part, and Israel, of the other part, on the participation of Israel in the Union programme Horizon Europe – the Framework Programme for Research and Innovation  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

This proposal concerns a decision of the Council on the partial suspension of the application 
of the Agreement between the European Union, of the one part, and Israel, of the other part, 
on  the  participation  of  Israel  in  the  Union  programme  Horizon  Europe  –  the  Framework 
Programme for Research and Innovation1. The partial suspension concerns the participation of 
entities  established  in  Israel  in  activities  funded  under  the  Accelerator  of  the  European 
Innovation Council (EIC). 

Article  2  of  the    Euro-Mediterranean  Agreement  establishing  an  association  between  the 
European Communities and their Member States, of the one part, and the State of Israel,  of 
the other part (Hereinafter referred to as “the Euro-Mediterranean Agreement”) provides that 
“Relations between the Parties, as well as all the provisions of the Agreement itself, shall be 
based on respect for human rights and democratic principles, which guides their internal and 
international policy and constitutes an essential element of this Agreement”. 

The Protocol to the Euro-Mediterranean Agreement between the European Communities and 
their Member States, of the one part, and the State of Israel, of the other part on a Framework 
Agreement between the European Community and the State of Israel on the general principles 
governing the State of Israel's participation in Community Programmes2, (hereinafter referred 
to as the ‘Protocol to the Euro-Mediterranean Agreement’), establishes the general principles 
for  the  participation  of  Israel  in  Union  programmes,  leaving  the  Commission  and  the 
competent  authorities  of  Israel  to  determine  the  specific  terms  and  conditions,  including 
financial  contributions,  with  regard  to  such  participation  in  each  particular  programme 
(Article  5).  The  European  Union  programme  Horizon  Europe  -  the  Framework  Programme 
for Research and Innovation - was established by Regulation (EU) 2021/695 of the European 
Parliament and of the Council 3 (hereinafter referred to as the ‘Horizon Europe Programme’) 
and the Agreement between European Union, of the one part, and Israel, of the other part, on 
the  participation  of  Israel  in  the  Union  programme  Horizon  Europe  –  the  Framework 
Programme  for  Research  and  Innovation4  (hereinafter  referred  to  as  “the  Agreement”)  has 
been applied since 1 January 2021, the start of the Horizon  Europe Programme, and  covers 
Israel’s participation in all Pillars of the Programme.  

The  proposed  act  is  for  the  Council  to  adopt  a  decision  regarding  the  suspension  of  the 
Agreement, based on Article 218(9) TFEU. The Council Decision should be adopted to allow 
-  in  accordance  with  Articles  79  (2)  of  the  Euro-Mediterranean  Agreement  -  to  partially 
suspend the Agreement immediately in view of the special urgency determined by the rapidly 
deteriorating  humanitarian  situation  in  the  Gaza  Strip  following  the  military  intervention  of 
Israel, the blockade of humanitarian aid and the violations of human rights, which may lead to 
a further dramatic worsening of the situation on the ground. 

The  EU  condemns  Hamas’  terrorists  attacks  on  Israel,  which  have  triggered  a  spiral  of 
violence  in  the  region  and  calls  for  an  immediate  ceasefire  in  Gaza,  for  the  unconditional 

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4 

OJ L 95, p. 143, ELI: http://data.europa.eu/eli/agree_internation/2022/323(10)/oj 
OJ L 129, 17.5.2008, p. 40, ELI: http://data.europa.eu/eli/prot/2008/372/oj 
OJ L 170, 12.5.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/695/oj. 
OJ L 95/143, 23.02.2022, p.1, https://eur-lex.europa.eu/eli/agree_internation/2022/323(10)/oj/eng 

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release of all hostages and for an end to the conflict. The EU continues to support the ongoing 
diplomatic efforts to reach a comprehensive agreement. 

Diplomatic engagement carried out by the High Representative of the European Union with 
Israel  has  led  to  improvements  on  the  ground  in  terms  of  access  of  aid  into  Gaza  (trucks 
accessing,  opening  of  crossing  points,  rebuilding  of  critical  infrastructure)  and  also 
contributed to the announcement of the Humanitarian truce announced by Israel on 27 July. 
Notwithstanding  these  efforts  however  change  is  not  yet  at  the  desired  scale  and  the 
humanitarian situation remains severe.  

On this basis, the European Commission considers that there is a case for a partial suspension 
of the Israeli’s association to the Horizon Europe programme. 

In view of this situation, the proposed act is for the Council to adopt a decision regarding the 
suspension of the Agreement, based on Article 218(9) TFEU. The Council Decision should be 
adopted to allow - in accordance with Article 79(2)  of the Euro-Mediterranean Agreement in 
conjunction  with  customary  international  law  as  codified  in  Article  60  of  the  Vienna 
Convention  on  the  Law  of  the  Treaties  between  States  and  International  Organizations  or 
between  International  Organizations  (1)  (3),  point  (b)  VCLT-  to  partially  suspend  the 
Agreement on account of a material breach by Israel of Article 2 of the Euro-Mediterranean 
Agreement,  and  as  a  matter  of  special  urgency,  with  immediate  effect  given  the  risk  of  a 
severe further deterioration of the humanitarian situation on the ground. 

The  scope  of  the  association  of  Israel  to  the  Horizon  Europe  programme  includes  the 
association  to  Pillar  3  including  the  European  Innovation  Council  (EIC).  The  EIC  is 
implemented,  in  particular,  through  the  EIC  Accelerator  calls  which  provide  both  grant  and 
investment support for single eligible entities (SMEs and exceptionally small mid-caps). The 
support is at a high level of technology readiness (TRL levels 6 to 8 for the grant component, 
and  potentially  above  this  for  the  investment  component)  meaning  that  the  technologies 
supported are likely to be market deployed in a short time frame. The support is provided for 
all fields of technology with a focus on breakthrough and disruptive technologies. Suspending 
the  association  of  Israel  with  regard  to  such  measures  also  for  this  reason  appears  as  an 
appropriate and proportionate measure responding to the breaches of the Euro-Mediterranean 
Agreement. 

• 

Consistency with existing policy provisions in the policy area 

The  proposal  is  consistent  and  complementary  with  the  Euro-Mediterranean  Agreement 
establishing an association between the European Communities and their Member States, of 
the one part,  and the State of  Israel,  of the other part,  and with   the Protocol  setting  up the 
framework  Agreement  between  the  European  Community  and  the  State  of  Israel  on  the 
general principles governing the State of Israel’s participation in Community programmes. 

• 

Consistency with other Union policies 

This  initiative  is  consistent  with  the  EU’s  external  relations  (including  considerations  of 
human rights and fundamental freedoms). 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

Following the recent decision by Israel to introduce a blockade to the access of humanitarian 
aid to Gaza, the humanitarian situation has deteriorated to an unprecedented and unsustainable 
level,  driven  by  ongoing  bombardments,  military  operations,  mass  displacement,  and  the 

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collapse  of  basic  services.  Based  on  UN  reports,  90%  of  households  face  severe  water 
insecurity and malnutrition rates are rising sharply. Severe shortages of medicine, equipment, 
and  medical  staff  indicate  an  urgent  need  for  humanitarian  assistance.  Virtually  the  entire 
Gaza  population  is  at  risk  of  famine,  with  children  and  vulnerable  people  in  a  particularly 
dramatic situation.  

The High Representative has presented to the Foreign Affairs Council of 23 June a review of 
Israel’s compliance with the Article 2 of the Euro-Mediterranean Agreement. The review has 
concluded  that  there  are  indications  that  Israel  would  be  in  breach  of  its  human  rights 
obligations under the Article 2 of the Euro-Mediterranean Agreement. 

Diplomatic engagement with Israeli authorities has been intensive at various levels but has not 
led to a significant, sustainable, change of the situation on the ground. 

The  European  Union  has  therefore  the  right  to  respond  to  such  a  breach  in  a  way  that  is 
proportionate and in  view of promoting the end of the violations identified in  the review of 
compliance  with  Article  2  of  the  Euro-Mediterranean  Agreement.  In  particular,  in  line  with 
Article 79, “In the selection of measures, priority shall be given to those which least disturb 
the functioning of the Agreement”. 

On this basis, the European Commission considers that there is a case for a partial suspension 
of the Israeli’s association to the Horizon Europe Programme. 

Once  the  Decision  is  adopted  by  the  Council,  the  Commission  will  notify  the  Association 
Council about  the partial  suspension of application of the Agreement in  writing,  along  with 
the reasons  of special urgency justifying  that decision, in  compliance with  Article  79 (2) of 
the Euro-Mediterranean Agreement. 

Article 218(9) of the Treaty on the Functioning of the European Union (TFEU) provides for 
decisions  ‘suspending  the  agreement  and  establishing  the  positions  to  be  adopted  on  the 
Union’s behalf in a body set up by an agreement, when that body is called upon to adopt acts 
having  legal  effects,  with  the  exception  of  acts  supplementing  or  amending  the  institutional 
framework of the agreement.’ 

• 

n.a 

• 

Subsidiarity (for non-exclusive competence)  

Proportionality 

The present proposal does not go beyond what is necessary to achieve the objective pursued, 
namely,  to  suspend  the  participation  of  Israeli  entities  in  the  EIC  Accelerator  calls,  which 
provide both grant and investment support for single eligible entities (SMEs and exceptionally 
small mid-caps). Suspending the association of Israel with regard to such measures appears as 
an  appropriate  and  proportionate  measure  responding  to  the  breaches  of  the  Euro-
Mediterranean Agreement, given that the EIC Accelerator support is provided at a high level 
of  technology  readiness  meaning  that  the  technologies  supported  are  likely  to  be  market 
deployed in a short time frame with a focus on breakthrough and disruptive technologies. 

• 

Choice of the instrument 

The objectives of this proposal can only be achieved by an act that suspends the application of 
the  international  agreement.  Therefore,  a  Council  decision  suspending  the  Association 
Agreement  is needed. 

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RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

Stakeholder consultations 

Collection and use of expertise 

Impact assessment 

Regulatory fitness and simplification 

Fundamental rights 

3. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

4. 

BUDGETARY IMPLICATIONS 

Any  budgetary  implication  will  be  assessed  through  the  regular  automatic  contribution 
mechanism foreseen in the Association Agreement 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

Explanatory documents (for directives) 

Detailed explanation of the specific provisions of the proposal 

5. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

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2025/0250 (NLE) 

Proposal for a 

COUNCIL DECISION 

on the partial suspension of the Agreement between the European Union, of the one 
part, and Israel, of the other part, on the participation of Israel in the Union programme 
Horizon Europe – the Framework Programme for Research and Innovation 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 186 and Article 188, second paragraph in conjunction with Article 218(9) thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

The Agreement between the European Union, of the one part, and Israel, of the other 
part,  on  the  participation  of  Israel  in  the  Union  programme  Horizon  Europe 
(hereinafter  “the  Agreement”)  applies  since  1  January  2021.  According  to  the 
Agreement, legal entities established in Israel may participate in indirect actions of the 
Horizon Europe Programme under terms and conditions equivalent to those applicable 
to legal entities established in the European Union, including respect for the European 
Union  restrictive  measures.  The  Agreement  is  based  on  the  Euro-Mediterranean 
Agreement establishing  an association between the European Communities and their 
Member  States,  of  the  one  part,  and  the  State  of  Israel,  of  the  other  part5  and  its 
integral Protocol on association to Union programmes. 

Article  2  of  the  Euro-Mediterranean  Agreement  states  that  respect  for  human  rights 
and  democratic  principles  should  guide  the  internal  and  international  policy  of  the 
Parties and that they should constitute an essential element of their cooperation under 
the agreement. 

Article  79(2)  of  the  Euro-Mediterranean  Agreement  provides  that  a  Party  may  take 
appropriate  measures  if  it  considers  that  the  other  Party  has  failed  to  fulfil  an 
obligation  and  may  act  without  further  consultation  in  cases  of  special  urgency  and 
that in the selection of measures, priority shall be given to those which least disturb the 
functioning of that Agreement.  

The EU condemns Hamas’ terrorists attacks on Israel, which have triggered a spiral of 
violence  in  the  region  and  calls  for  an  immediate  ceasefire  in  Gaza,  for  the 
unconditional release of all hostages and for an end to the conflict.  

The  High  Representative  has  presented  to  the  Foreign  Affairs  Council  of  23  June  a 
review  of  Israel’s  compliance  with  the  Article  2  of  the  Euro-Mediterranean 
Agreement. The review has concluded that there are indications that Israel would be in 
breach of its human rights obligations under the Article 2 of the  Euro-Mediterranean 
Agreement.  

5 

OJ L 147, 21.6.2000, p. 3, ELI: http://data.europa.eu/eli/agree_internation/2000/384/oj . 

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(6)  With  its  intervention  in  the  Gaza  Strip  and  the  ensuing  humanitarian  catastrophe, 
including  thousands  of  civilian  deaths  and  rapidly  rising  numbers  of  spreading 
extreme  malnutrition  specifically  of  children,  Israel  is  violating  human  rights  and 
humanitarian  law  and  thus  is  in  breach  of  an  essential  principle  of  the  EU-Israel 
cooperation under the Euro-Mediterranean Agreement. 

(7) 

(8) 

It  is  appropriate,  in  accordance  with  Article  79(2)  of  the  Euro-Mediterranean 
Agreement, read in conjunction with customary international law as codified in Article 
60  of  the  Vienna  Convention  on  the  Law  of  the  Treaties  between  States  and 
International  Organizations  or  between  International  Organizations,  to  partially 
suspend the Agreement  on account  of  a material breach by  Israel  of Article 2  of the 
Euro-Mediterranean Agreement, and as a matter of special urgency.  

The functioning of the Agreement will not be disproportionately affected since it does 
not  target  the  overall  EU-Israel  cooperation  and  dialogue  in  research,  technological 
development  and  demonstration,  but  is  aimed  at  temporarily  suspending  the  EIC 
Accelerator calls, which provide both grant and investment support for single eligible 
entities (SMEs and exceptionally small mid-caps). Suspending the association of Israel 
with  regard  to  such  measures  appears  as  an  appropriate  and  proportionate  measure 
responding to the breaches of the Euro-Mediterranean Agreement. 

HAS ADOPTED THIS DECISION:  

Article 1 

The Agreement between the European Union, of the one part, and Israel, of the other part, on 
the  participation  of  Israel  in  the  Union  programme  Horizon  Europe  shall  be  partially 
suspended to the effect that from the date of effect of the suspension legal entities established 
in Israel shall not be eligible to participate in calls for grant and investment support under the 
Horizon Europe EIC Accelerator.  

Ongoing  agreements  with  entities  established  in  Israel  concerning  the  EIC  Accelerator 
support shall not be affected. The suspension shall take effect thirty calendar days following 
the day of its notification to the Association Council.  

Article 2 

This Decision shall enter into force on the date of its adoption. 

Done at Brussels, 

For the Council 
The President 

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