The European Space Agency (ESA) is nearing completion of a €22 billion ($25.6 billion) package of programs for its upcoming ministerial conference next month. This comes despite uncertainties surrounding the U.S. budget and the removal of one mission from consideration. At an Oct. 23 briefing following an ESA Council meeting, agency leaders announced they had almost finalized the program package for the next three years, which will be presented to member states at the ministerial conference in Bremen, Germany, on Nov. 26-27.
“The overall spirit of all the member states was extremely constructive and positive,” said Josef Aschbacher, ESA’s director general, regarding the council discussions. “We still have a lot of work to do. This is normal in the final stretch of preparing the ministerial package.” He noted that the total size of the three-year package remains "more or less unchanged" at around €22 billion. “Not everything is resolved yet,” he added, mentioning another council meeting scheduled for Nov. 7 to finalize any remaining issues.
One notable change is the removal of an Earth science mission, TRUTHS (Traceable Radiometry Underpinning Terrestrial- and Helio-Studies), from the package due to “affordability reasons,” according to Aschbacher. The TRUTHS mission was intended to calibrate climate models through precise measurement of solar radiation. The United Kingdom, previously a key supporter of TRUTHS, reportedly withdrew its support following a recent spending review.
Uncertainties regarding NASA's funding for science and exploration projects that ESA participates in are also present. NASA’s fiscal 2026 budget request suggested canceling the lunar Gateway and ending Orion after Artemis 3, as well as canceling science missions like Mars Sample Return (MSR) and NASA’s contributions to the ExoMars Rosalind Franklin rover. Aschbacher expressed hope in June that a final NASA budget would be completed before the ministerial; however, this is now unlikely. Nevertheless, proposed spending bills from both the House and Senate would overturn many of the proposed cuts. A budget reconciliation bill passed in July also allocated funding for Gateway and additional Orion missions.
“We all know very well that budget decisions have yet to be made in the United States. We are eagerly awaiting those,” Aschbacher stated. “It’s difficult to speculate what those decisions will be.” He indicated that ESA is proceeding with Gateway and the Orion service module. However, he acknowledged that ESA views the continuation of MSR by NASA, for which ESA is developing the Earth Return Orbiter, as unlikely. “We are preparing backup solutions” to potentially convert the orbiter into a standalone Mars mission, he said.
He anticipates that NASA will continue supporting the Rosalind Franklin rover, including providing braking thrusters, radioisotope heating units, and a launch. The Senate's appropriations bill includes funding for these contributions, although the House version does not explicitly mention them.
ESA is also contending with internal funding challenges, as France, a major contributor, has not yet finalized its budget. “France is really making every effort to find funding,” Aschbacher said. “There is no lack of energy and dedication to find good solutions. There’s still five weeks to go.”
Before the ministerial, ESA subjected all proposed projects to independent reviews by the agency's inspector general, resulting in around 400 recommendations that have been implemented. However, Aschbacher noted that not all projects are likely to be funded at their desired levels. “This is my proposal as director general, which is put on the table for ministers to subscribe,” he said. “Of course, the ministers subscribe as they feel fit.” He added that past ministerials have shown that typically 93% to 95% of the proposed package is funded.
The briefing occurred hours after Airbus, Leonardo, and Thales announced an agreement to merge their space businesses into a joint venture called Project Bromo. The new entity would employ approximately 25,000 individuals and generate €6.5 billion in annual revenue, subject to regulatory approval expected within two years. This joint venture could impact ESA, potentially reducing competition on future procurements, as much of Airbus Defence and Space and Thales Alenia Space, two of ESA’s biggest contractors, would be combined. “We have been reflecting on this,” Aschbacher said. “It is clear that this will have an impact.” ESA plans to conduct a detailed assessment of the joint venture and its implications, but only after the ministerial conference. He downplayed concerns about reduced competition, stating, “It’s not a matter of concern. ESA has, over 50 years, always been adapting to changes in the ecosystem.”