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Summary of "A Post-Brexit Agreement for Research and Innovation"

Core Content

This report outlines the findings from a simulated negotiation process between the UK and the EU aimed at creating a post-Brexit research and innovation agreement. The exercise was conducted by the Wellcome Trust and Bruegel, with the goal of understanding the potential structure and content of such an agreement, as well as the challenges that might arise during real negotiations.

The UK is set to leave the EU on 31 January 2020, and while the terms of withdrawal have been discussed for over three years, there has been limited attention to the post-Brexit relationship in the research and innovation sector. This report emphasizes the importance of such an agreement, given the mutual benefits of scientific collaboration and the global competition in research and innovation, particularly from China and the US.

Main Themes of the Agreement

The simulated negotiation identified several key themes that should be included in a post-Brexit research and innovation agreement:

1. Full Participation in Horizon Europe

   • The UK's inclusion in Horizon Europe is seen as a win-win for both parties.
   • The agreement aims to maintain cooperation levels as close as possible to the pre-Brexit status.

2. Financial Contribution

   • The UK agreed to pay its way by contributing to the running costs of Horizon Europe.
   • A "correction mechanism" was proposed to address any significant imbalance in financial contributions and receipts.

3. Governance and Soft Influence

   • The UK would accept the jurisdiction of the Court of Justice of the European Union (CJEU) and the European Court of Auditors (ECA) in research matters.
   • The EU team sought to provide the UK with an appropriate level of influence without granting formal voting rights.

4. Dispute Settlement

   • A mechanism was agreed for resolving disputes in the research and innovation context, ensuring cooperation remains stable and functional.

5. Researcher Mobility

   • Arrangements for the exchange of researchers and their families were prioritized.
   • The agreement focused on establishing "reciprocal" and "favourable" conditions rather than detailed systems.

6. Regulation and Common Standards

   • The teams agreed on a compromise: the UK would adopt regulatory approaches "compatible to the extent possible" with EU standards.
   • This wording was based on similar language in the October 2019 Political Declaration.

7. Free Flow of Data for Research

   • A backstop mechanism for data sharing was included to ensure continuity in research.
   • The teams hoped that this could be replaced by a broader EU decision on the adequacy of the UK's data protection arrangements.

8. Erasmus, Euratom and Access to Infrastructure

   • These areas were not discussed in detail, but they are likely to be important in future negotiations.

9. Implementation Timeline

   • There is a need to implement "enhanced" provisions quickly to ensure the UK can participate in Horizon Europe from its start on 1 January 2021.

10. Unaddressed Issues

    • Several topics, such as participation in Erasmus and Euratom, and access to research infrastructures not covered by Horizon Europe, were not fully explored in the simulation.

Key Recommendations

• Prioritise the Research and Innovation Agreement: The UK and EU should treat this as a priority to ensure continuity and growth of their research collaboration.
• Avoid No-Deal Brexit: A no-deal scenario would make negotiations more difficult and could jeopardize the UK's participation in Horizon Europe.
• Consider Standalone Agreement: A standalone science deal offers the best chance for the UK to participate fully in Horizon Europe from the start.
• Start Negotiations Early: Given the time constraints and the need to align with Horizon Europe's launch, negotiations should begin as soon as possible.

Project Limitations

• The negotiation was limited to three sessions, which is much shorter than a real negotiation process.
• Some important issues, such as Erasmus and Euratom, were not addressed in detail.
• The focus was primarily on research, with limited attention to innovation.
• The agreement was not intended as a legal prediction, but rather as a demonstration of feasibility and a guide for future discussions.
• Participants were drawn mainly from the research community, which may have skewed the outcome towards cooperation rather than confrontation.

Next Steps

• The UK and EU should begin the negotiation process immediately to ensure an agreement is reached before the start of Horizon Europe.
• The agreement should be framed as part of a broader EU-UK relationship, but with a focus on research and innovation.
• The political will exists for a post-Brexit agreement, but real negotiations will need to manage the complexities of sovereignty, single market access, and broader political considerations.

Conclusion

The simulation showed that a post-Brexit research and innovation agreement is feasible, but requires careful negotiation to address both technical and political challenges. Maintaining UK participation in Horizon Europe is critical to preserving the collaborative research environment that has been a cornerstone of European science. The agreement should be seen as a starting point, not a final product, and further discussions are necessary to refine it in the context of the broader EU-UK relationship.