Brexit: The Erasmus and Horizon Programmes (European Union Committee Report)

Lord Jay of Ewelme Excerpts

Monday 1st April 2019 Lords Chamber

Moved by

[Lord Jay of Ewelme]

That this House takes note of the Report from the European Union Committee Brexit: the Erasmus and Horizon programmes (28th Report, HL Paper 283).

[Lord Jay of Ewelme (CB)]

My Lords, the committee’s report on Erasmus and Horizon was published on 12 February, so it has not yet received an official government response. None the less, due to the interest and concern among the public and in this House about the potential impact of Brexit on participants in the Erasmus and Horizon programmes and on the UK’s research and education sectors, I hope that Members of the House will understand why the committee wanted to bring this report to the House for debate now.

The report was drafted following agreement by negotiators on the withdrawal agreement and political declaration in the closing weeks of last year. It therefore considers the implications for UK participation in Erasmus and Horizon of leaving the EU under the terms of the withdrawal agreement compared to a no-deal scenario. Despite the turmoil at the other end of the Palace at the moment, the withdrawal agreement remains the only negotiated deal on the table, and the Prime Minister has certainly shown tenacity in sticking with it.

The inquiry found that, if the withdrawal agreement, or one with similar provisions for UK participation in EU programmes, were to be ratified, our involvement in Erasmus+ and Horizon 2020 could continue largely unchanged until both programmes draw to a close at the end of 2020—an encouraging conclusion, but the end of 2020 is alarmingly close. In a no-deal scenario, which cannot, alas, be ruled out, the situation would be much trickier. At the time our report came out, the Government had said that they wanted to preserve access to both programmes and had issued a guarantee to underwrite funding for UK participants until the end of 2020. This guarantee was, however, contingent on the EU agreeing to continue UK participation as a third country. It was also unclear how the Government intended this guarantee to operate in practice.

Since that time, the EU has pressed forward with its own no-deal contingency plans. For Erasmus, the EU has agreed that Erasmus+ placements active at the point of a no-deal Brexit can continue up to a maximum of 12 months. It is unclear how this would be administered and what advice and support is being offered to UK Erasmus participants. There is no equivalent contingency measure for Horizon 2020. The EU has, however, published a proposal to maintain the UK’s eligibility to receive funding from EU programmes for agreements entered into before the withdrawal date in a no-deal scenario. If adopted, this proposal should ensure that UK research projects, including those funded by bodies such as the European Research Council and Marie Skłodowska-Curie actions, which are not open to third countries, could continue to be financed in 2019. This is subject to the condition that the UK commits to contribute to the financing of the EU 2019 budget and agrees to EU controls and audit requirements. Will the Minister confirm that the Government intend to fulfil those conditions and so avoid disruption for UK beneficiaries of EU spending programmes in a no-deal scenario? I should be grateful if he would also confirm how such a system would be administered.

Whatever the terms of the UK’s withdrawal from the EU, it is in our mutual interest to preserve current close levels of UK-EU co-operation on research and innovation to provide opportunities for young people and teachers to study, work and train abroad. The inquiry found—no surprise, perhaps—that the UK is a respected and important partner in the Erasmus and Horizon programmes. It is a popular destination for students from the EU and a world leader in research, with an exceptionally strong science base. It is clear, however, that the benefits of UK participation in these programmes do not flow only one way and that their value cannot be measured simply in financial terms. The inquiry received 50 evidence submissions, as well as oral testimony, and witnesses were unanimously positive about the impact of Erasmus and Horizon on the United Kingdom.

In the first two years of the current programme, Erasmus+ supported nearly 5,000 UK projects and 128,000 UK participants took part in internal exchanges. Although best known as a mobility programme for university students, Erasmus+ also supports study, work and training placements in vocational education and training, adult education and schools. Witnesses to the inquiry called Erasmus,

“an overwhelming force for good”,

and,

“one of the most important achievements of the EU”.

For participants, going on an Erasmus placement leads to better employment outcomes, increased confidence and independent thinking and greater cultural awareness. There are also wider positive implications for the UK including “tangible economic benefit” from international students and higher standards of education resulting from international collaboration, shared innovations and best practice.

Equally important, Erasmus helps to increase opportunities for people from disadvantaged or under- represented groups. Time and again, throughout the inquiry, we heard how much they gain from outward student mobility and how much they would lose if the UK loses access to Erasmus as a result of Brexit.

As for Horizon 2020, the UK has been the second most successful country in terms of funding received and the most successful in terms of participant and co-ordinator numbers. According to statistics published just last week, the UK was the most successful country in the most recent funding round of the European Research Council, with 47 of a total of 222 projects to be hosted by UK institutions.

The UK’s research community does not just benefit financially from participation in Horizon 2020. As the largest multilateral international research programme in the world, Horizon 2020 provides a platform for international research collaboration, providing access to large-scale research infrastructure and facilities and supporting the mobility of the most talented researchers across Europe.

Horizon adds value in other areas, too. For example, the prestigious reputation of EU research programmes helps to attract the best staff from around the world to UK research institutions, and the critical mass and strategic co-ordination across Europe has increased efficiency and reduced duplication. Being part of Horizon and its predecessors has been pivotal in raising the standard of research in the UK and developing the thriving science and research community we enjoy today.

Given the strength of the evidence that the inquiry received on the importance of the Erasmus and Horizon programmes to the UK, it is unsurprising that the committee concluded that the UK should make every effort to remain involved in these programmes. Fortunately, this is, in theory at least, a perfectly feasible option. Negotiations are under way on the successor programmes to Erasmus+ and Horizon 2020—Erasmus and Horizon Europe, which will run from 2021 to 2027. The draft regulations for both provide for full or partial third-party access to them.

The committee concluded that, to preserve current close levels of co-operation on research and innovation and educational mobility, the UK should seek full access to the Erasmus and Horizon Europe programmes as an associated third country. This would of course mean making financial contributions to the programme budgets, but the committee concluded that this would be an essential investment to maintain UK access to all Erasmus and Horizon funding streams and international collaboration opportunities, which raise the standard of education and support excellent science in the UK.

Associate membership would not give the UK voting rights on the budget and strategic direction of the programmes, but the committee was reassured that the strength of the UK’s science base would ensure that the UK remains an influential player in European research and innovation. Association is also the only option that would allow the UK to access the key European Research Council and Marie Skłodowska-Curie schemes, which currently account for 44% of the total UK receipts from Horizon 2020.

The committee concluded that alternative UK funding schemes would be needed if the Government are not willing or able to secure association to these programmes. However, it would be a formidable and risky challenge to try to replicate at a national level the substantial benefits that participation in Erasmus and Horizon brings to the UK. Happily, statements made by the UK Government and EU institutions in recent months indicate that both sides want a close future relationship on science and innovation, youth, culture and education, which we welcome.

It is not possible to begin negotiations on association agreements to the 2021-27 Erasmus and Horizon Europe programmes while they are under negotiation and while the UK is still a member state, but our report calls on the Government to confirm as soon as possible that they intend to seek association. That will maximise certainty and stability for UK students and researchers, and enable them to plan for any changes. I hope that the Minister can give that assurance. In this context, I would be grateful if he could comment on the Written Statement made to this House on 26 March by the noble Lord, Lord Henley, on the Adrian Smith review and its implications for future UK association with Horizon Europe.

Erasmus provides huge benefits to the next generation of British citizens. Horizon supports the excellence of research in our universities. We simply must, in both our and the wider European interest, maintain as close co-operation as we can with Erasmus and Horizon in the future. I beg to move.

--- Later in debate ---

[Lord Jay of Ewelme]

My Lords, I am grateful to all those who have taken part in the debate and I am also grateful for the Minister’s thoughtful reply. The debate has shown that there continues to be real concern both inside and outside the House about the potential cost of Brexit to many of our young people and to our universities. There is a real need for the Government to do all they can to mitigate the adverse effects of that. As my noble friend Lord Krebs said, there really is no upside to this. However, I am sure that the Minister will take that message back to his colleagues, and I much look forward to the government response to our report.

Motion agreed.