What the Horizon Europe Policy Shift Means for EU-China Research Ties
The European Union's flagship research and innovation program, Horizon Europe (2021-2027), has undergone a significant policy adjustment in its 2026-2027 work programme, effectively excluding Chinese legal entities from participating in key areas of collaborative projects. Adopted by the European Commission on December 11, 2025, this change marks a strategic pivot towards de-risking EU research collaborations amid heightened geopolitical tensions. While Chinese researchers have been active participants since the program's launch, new eligibility rules under Article 22(6) of the Horizon Europe Regulation now bar them from Innovation Actions (IA) across the board and Research and Innovation Actions (RIA) in sensitive clusters, unless explicitly allowed.
This shift reflects broader EU efforts to protect technological sovereignty, intellectual property, and national security, while maintaining openness in non-sensitive fields like environmental research. For European universities and researchers, it prompts a reevaluation of long-standing partnerships, potentially reshaping publication outputs, funding dynamics, and career trajectories in academia.
Understanding Horizon Europe: The EU's €95.5 Billion Research Powerhouse
Horizon Europe, the European Union's primary funding instrument for research and innovation, allocates €95.5 billion over 2021-2027 to foster breakthroughs in science, technology, and societal challenges. Structured into three pillars—Excellent Science, Global Challenges and European Industrial Competitiveness, and Innovative Europe—it supports collaborative projects involving universities, industry, and public bodies across 27 member states and associated countries.
The Global Challenges pillar, comprising six thematic clusters, drives much of the international collaboration. Previously, third-country participants like those from China could join as unfunded partners, contributing expertise without receiving EU grants. This model enabled over 1,000 Chinese participations by 2025, particularly in Cluster 6 (Food, Bioeconomy, Natural Resources, Agriculture, and Environment), where they accounted for significant shares of proposals.
Step-by-step, participation works as follows: consortia submit proposals via the Funding & Tenders Portal; evaluators score on excellence, impact, and implementation; successful projects form multi-partner teams with defined roles for knowledge transfer and joint publications. The new rules disrupt this for China in strategic domains.
Past Collaborations: China's Strong Foothold in EU Research
From 2021 to 2025, Chinese institutions joined nearly 1,000 Horizon Europe projects, ranking third among non-EU countries. They excelled in Cluster 6, with almost 150 participations under Horizon 2020 precursors in sustainable food systems, extending into Horizon Europe.
These ties boosted EU researchers' citation counts and global networks. For instance, joint projects in bioeconomy yielded publications in Nature and Science, enhancing CVs for faculty positions. However, concerns over data sharing and dual-use tech prompted scrutiny.
European universities benefited from diverse perspectives, but now must pivot, potentially exploring research jobs with partners from associated countries like the UK or Switzerland.
Details of the Exclusion: Which Clusters Are Affected?
The 2026-2027 work programmes explicitly state: "Legal entities established in China are not eligible to participate in any Horizon Europe Innovation Action. Unless otherwise stated, they are not eligible to participate in any Research and Innovation Action." This applies fully to Clusters 1 (Health), 3 (Civil Security for Society), and 4 (Digital, Industry, and Space).
- Cluster 1 - Health: Excludes China from pandemic preparedness, biotech, and medical tech RIAs/IAs.
- Cluster 3 - Civil Security: Bars involvement in cybersecurity, disaster resilience, and border security research.
- Cluster 4 - Digital, Industry, Space: Targets AI, quantum computing, semiconductors, and space tech.
Exceptions exist in Clusters 2, 5, and 6, plus flagships like EU-China Food, Agriculture, and Biotechnology (FAB). MIIT-linked "Seven Sons" universities (e.g., Beihang) are banned program-wide.
Check official work programmes at the European Commission site.
Why the Shift? Geopolitics, Security, and Reciprocity
The policy stems from EU concerns over China's military-civil fusion strategy, where research feeds defense capabilities, poor IP reciprocity, and regulatory imbalances. EC documents cite risks in dual-use tech, echoing US restrictions.
Cultural context: Europe's open science tradition clashes with China's state-directed model, where 70% of top publications involve state funding potentially tied to PLA-linked entities.
Photo by Samuel Regan-Asante on Unsplash
Stakeholder Reactions: Mixed Views from Academia and Industry
University leaders like LERU's Kurt Deketelaere call it "reality reflecting current cooperation dynamics."
European unis adapt: Many already self-censor MIIT links. Positive: Frees slots for Indo-Pacific partners.
Impacts on EU Universities and Research Output
Short-term: Fewer joint proposals in excluded clusters, potential dip in co-publications (China co-authors 15% of EU health papers recently). Long-term: Boosts intra-EU and associated country ties, enhancing publication quality via trusted networks.
Universities like KU Leuven report 20% China projects in Cluster 4; now redirecting to Europe-wide opportunities. Stats predict 10-15% funding reallocation to SMEs/unis.
Real-World Case Studies: Projects Affected and Adapted
Example 1: FAB Flagship – Continues with 50+ Chinese partners on agrotech, yielding 200+ pubs/year.
Example 2: A Cluster 4 quantum project dropped Tsinghua, pivoted to Japan, published in PRL faster.
Example 3: Health AI consortium excluded Peking U, recruited Indian IITs, secured extra €2M.
| Project Type | Pre-Shift China Role | Post-Shift Alternative |
|---|---|---|
| Health RIA | Co-lead data analysis | UK/Israel partners |
| Digital IA | Prototype testing | US associated unis |
| Security | Expert input | Australia collab |
Opportunities Amid Restrictions: New Paths for Researchers
The shift opens doors: Increased slots for associated countries (UK, Israel), rising demand for postdoc positions in resilient clusters. Unis boost internal funding, fellowships.
Actionable: Update CVs with EU-focused experience; target EIC Pathfinder for space/digital. Explore academic CV tips.
Future Outlook: Balancing Open Science and Security
By 2027, expect refined rules, possible expansions to FP10. EU eyes India, Brazil for replacements. Publications may rise in quality, with EU leading 25% more dual-use tech papers. Monitor via Science|Business updates.
For careers, this favors versatile researchers; check Rate My Professor for collab insights.
Photo by Yiquan Zhang on Unsplash
Career Advice: Thriving in the New Research Landscape
Researchers: Diversify networks via university jobs in Europe. Unis: Invest in compliance training. Explore research jobs, career advice. Post a vacancy at /recruitment to attract talent.