In February 2021, the European Union included the promotion of synergies between civil, defence and space-related research and development in its Action Plan on Synergies. The plan underlined the need to enhance complementarity among EU programmes and tools to boost investment, increase efficiency and improve outcomes. Under the 2021–2027 Multiannual Financial Framework, the EU is steadily increasing investments in civil, defence and space technologies through research, development and deployment programmes such as Horizon Europe, the Digital Europe Programme (DEP), the Connecting Europe Facility (CEF), the Internal Security Fund, the EDF and the EU Space Programme—supporting the procurement of innovative, cross-sectoral technological solutions.

The European Defence Fund (EDF) and its predecessor programmes are based on a capability-driven approach, taking into account existing EU defence priorities and the tools and processes supporting national and EU-level decision-making. This approach facilitates the convergence of Member States’ defence planning and serves as a reference for more coherent development of European defence capabilities.

Defence-related R&D planning is carried out within the EDF framework. Cohesion policy programmes may also contribute to defence R&D, provided they comply with rules on shared management. Other funding instruments typically focus on civil applications, although relevant regulations often include provisions for dual-use products. For instance, in the field of civil protection, rescEU provides funding for Member States and participating countries to develop EU-level capacities for responding to chemical, biological, radiological and nuclear disasters, where national capabilities prove insufficient.

In February 2022, the Roadmap on Critical Technologies for Security and Defence recognised that existing programmes and tools lacked sufficient resources for the direct support of dual-use activities. It announced that “in 2023, the Commission will review existing EU instruments and promote EU-level incentives for dual-use research and innovation (R&I).” The Commission also analysed the opportunities and limitations of strengthening support for dual-use technologies within the EU’s defence innovation ecosystem.

In May 2022, a joint communication titled Analysis of Defence Investment Gaps and Way Forward identified potential adjustments to the R&D framework for dual-use technologies and suggested improvements in synergies between civil and defence instruments. To address these priorities, the EDF provides financial support for the development of strategic enablers and key capabilities, with Member States cooperating to address them through approved PESCO projects.

The first progress report on the Action Plan, adopted in November 2022, also acknowledged the necessity of this effort.

In June 2023, the Commission adopted a regulation proposal to establish the Strategic Technologies for Europe Platform (STEP) to maintain Europe’s edge in emerging technologies relevant to green and digital transitions. This includes computing-related technologies such as microelectronics, cloud computing, quantum computing and artificial intelligence, as well as biotechnology, biomanufacturing and net-zero technologies. In addition to increasing EDF funding, STEP will enhance EU co-financing through cohesion policy instruments to support the development or production of critical technologies—many of which have dual-use potential.

The Regulation (EU) 2024/795 of the European Parliament and Council, adopted on 29 February 2024, establishes the STEP, which is expected to increase funding available for EDF projects by €1.5 billion between 2024 and 2027. In October 2023, the Commission published its recommendation on critical technology areas and launched a joint risk assessment in cooperation with Member States.