BREMEN, Germany — The next two days are crucial for the European Space Agency as it seeks governmental support for increased space investments and enhanced European autonomy. The ESA Council Meeting at Ministerial Level (CM25), taking place Nov. 26–27, will gather ministers from 23 member states, alongside associated nations, to decide on program support and funding for the next three years.
ESA Director General Josef Aschbacher announced a finalized package of 22.2 billion euros ($25.7 billion) to reporters on Nov. 25. The proposal allocates roughly one-sixth each to science, exploration, and space transportation. Earth observation receives almost 13%, while connectivity and secure communications account for nearly 9%. A noteworthy addition is the 1.2 billion euro European Resilience from Space (ERS) initiative, focusing on a constellation of optical and radar imaging satellites for security, including defense, alongside support for the IRIS² secure broadband constellation and low Earth orbit navigation satellites.
Aschbacher expressed optimism, stating, “I have to say that we are in really good shape. The spirit is good. We are on a good track, and we are working very well.” He acknowledged some late-night discussions, particularly regarding launch activities and the novel scope of security and defense. He also added, “Sometimes there’s a bit more discussion on launch activities, and a bit more on security and defense, because that is so new in terms of its scope. There’s also discussions on some of the other programs. This is going on across the board.”
While every ESA ministerial sets the agency’s direction for the coming triennium, CM25 holds added significance amidst growing calls for increased European space spending, including for defense, due to evolving geopolitics. An official emphasized the escalating investments by other global actors like the United States, China, and India, including in dual-use space capabilities, noting that: "Other global actors, such as the United States, China and India, but also Japan and Russia, are scaling up their investments, including in dual-use space capabilities. Meanwhile, Europe risks falling behind, not because of lack of expertise but because of insufficient and fragmented investment. CM25 is a decision point."
A key aspect is the response to potential NASA funding uncertainties for collaborative science and exploration programs like the EnVision mission to Venus, the LISA gravitational wave observatory, and the New Athena X-ray telescope. While officials are hopeful about continued NASA support, contingency plans are being prepared. The potential cancellation of Mars Sample Return (MSR) also impacts ESA, which is developing the Earth Return Orbiter. ESA seeks support to repurpose the spacecraft into a standalone science and telecommunications orbiter if MSR is halted.
“This is on the table at the ministerial, going towards autonomy and self-determination and resilience,” one official said.
In exploration, ESA is exploring alternative uses for its European Service Module for Orion, considering Earth orbit or lunar applications, and plans to pause production after the sixth module while assessing options. Funding is also sought for Argonaut, a large cargo lander, for which a Thales Alenia Space–led consortium was selected for development pending 600 million euros in funding requested at CM25. The Argonaut lander is viewed as a potential negotiating tool for European astronaut landings, with ESA currently holding three Artemis seats through Gateway contributions but none for lunar surface missions.
“To have Europeans on the moon, we need a currency,” an official said. Discussions are underway with NASA regarding Argonaut missions "as a potential currency to exchange for landing Europeans on the moon.”
ERS further contributes to the autonomy discussion. The CM25 proposal represents the initial phase, with subsequent steps involving co-funding by ESA and the European Commission. The commission has proposed a fivefold increase in its space and defense investments, reaching approximately 130 billion euros in its next seven-year budget starting in 2028.
ERS also raises concerns due to ESA's expanded defense role. Aschbacher stated that ESA developed ERS at member states’ request: "We are a space agency, and space, as you know, is dual use by nature". Renato Krpoun, chair of the ESA Council, clarified that this meant “nothing aggressive” in space: "That has been clarified by the council.” He added that any satellites ESA helps develop for defense purposes would ultimately be operated by member states or the European Commission.
“ESA is not the agency that will operate these systems. We can prepare it, but we should not operate it.”
At CM25, ESA will formally present its program package to members. About 20% of ESA’s budget is “mandatory,” with contributions based on economic size. The remaining portion is optional, allowing countries to choose their level of support. Germany is expected to significantly increase its contributions compared to 2022, and Italy may also boost its contribution significantly. Aschbacher cautioned that ESA does not expect the full 22.2 billion euros to be funded, anticipating approximately 90% subscription.
“It is roughly 90% on average that is being subscribed,” he said. “So anything that is, I would say, above 20 billion will be considered a good success.”
Marco Fuchs, chief executive of OHB, expressed high expectations for Germany's commitments: "Obviously, with Germany being the host, the expectation is high that Germany makes significant commitments". Ralf Zimmermann, head of space exploration at Airbus Defence and Space, emphasized the importance of member states agreeing on significant programs for Europe to move forward: "It is very important for exploration that the member states agree on some significant programs which allow Europe to move forward.”
“We will not be on the same baseline as the U.S. or China, but we need to find our role, and it should be an autonomous role,” he added.
Military funding will also be a factor, with Germany potentially allocating defense funding through ESA for programs like supporting launch vehicle companies Isar Aerospace and Rocket Factory Augsburg. Aschbacher noted that Belgium and Poland included military funding in their contributions at the last ministerial, although he downplayed the overall significance of increased military funding for the agency. He added: "We do not ask where the money comes from, whether the money is from the ministry of defense or the ministry of research or ministry of the economy".
“Europe has to increase its investment in space, and I see it slowly happening now through the ministerial,” he said.