Research Funding Organisations’ Policies on Open Research in Ireland

Introduction

Ireland has a relatively young formalised research policy and funding system. To develop itself as a knowledge-based economy, Ireland has invested over the last decades in science and technology research and innovation as part of its strategic development priorities (DFHERIS, 2022). Although Ireland has made significant investments in translating State-funded research into commercialisable outputs, the 2021 National Open Research Foundation (NORF) Landscape Report found that in the Irish research ecosystem, there is little comparable infrastructure for supporting the goals and implementation of open research (NORF, 2021).

This gap is particularly problematic when publicly funded researchers are engaged in commercialisable research; lack of policy and best practices leaves publicly funded researchers navigating competing interests vis-a-vis open research mandates and intellectual property rights in public-private research partnerships (PPRP).

As Lattu and Cai (2023, p.95) note:

“The influence of the [Open Science] movement on university–industry research collaboration (UIRC) is a recent phenomenon that is yet to be extensively explored…previous studies have…explored how openness…may face challenges when university researchers collaborate with industry partners and have addressed tensions that may concern the norms (or value and belief systems) of participants in UIRC, which were intensified by the OS movement”

Our NORF-funded project, Review of Open Research in Connected Health (ROCHE), is focusing on open research in PPRP, particularly in digital health research and development, to explore the gaps and potential opportunities for open science and university-industry partnerships. Drawing on interviews, policy analysis, and international comparators, we intend to support the development of policy and implementation of open science in PPRP. To date, we have learned that the Irish research ecosystem, i.e. funders, non-departmental state bodies such as Knowledge Transfer Ireland, professional research support staff in Ireland’s public Research Performing Organisations (RPOs) spin-outs, start-ups, and Small and Medium Enterprises (SMES) partnering with the public sector, may not be aware of the opportunities presented by open research for advancing innovation. These are opportunities that many other European countries, such as Finland^[i] have fully embraced. It appears that, in Ireland, it is left to the funding bodies to develop guidelines which results in a myriad of policies and a confusing landscape for universities and businesses.                                 

In this paper we examine open research policies which currently exist in PPRPs in Ireland. PPRPs are a derivative of public-private partnerships (PPPs) defined as “long term agreements between the government and a private partner whereby the private partner delivers and funds public services using a capital asset, sharing the associated risks” (OECD, 2024, p.3). As a subset, PPRPs are defined as “innovation-based relationships focusing on joint research and development activities” (Pertkmann and Schildt, 2015, p.1134). 

We draw on the NORF Landscape (2021) document, the NORF National Action Plan for Open Research 2022-2030 (2022) and the UNESCO Working Group on Open Science Policies and Policy Instruments (2022) as guidelines to examine the development and implementation of Open Research policies and practices of funders in the Irish Research ecosystem.  By situating the state of open research and funder policies in the international landscape, we identify gaps in policy and practice that need to be addressed by research stakeholders in Ireland and suggest other implications for science policy. Open research may seem abstruse but it has the potential to accelerate discovery and research competitiveness, support and foster international collaboration, and reduce fraud and waste in the research pipeline, all of which are highly relevant to addressing problems of global importance.

Terminology

Broadly, open science is defined as making scientific knowledge “openly available, accessible and reusable for everyone…to increase…collaborations and sharing of information for the benefits of science and society” (UNESCO, 2021, p.7). Open science incorporates Open Research Data which UNESCO define as “openly used, reused, retained and redistributed by anyone, subject to acknowledgement… [it should be] … available in a timely and user-friendly, human- and machine-readable and actionable format” (UNESCO, 2021, p.10).

The UNESCO definition sets the benchmark for many of the Irish funding agencies. Ireland’s National Open Research Forum (NORF) embed this definition of Open Science in their National Action Plan for Open Research (2022) and endorse these “core values of open research” (NORF, 2022, p.4). NORF explains that the term open research is meant to include all disciplines and is interchangeable with the terms Open Science and Open Scholarship. As the Higher Education Authority (HEA) and the Health Research Board (HRB), acting as co-chairs of NORF, and the Department of Agriculture, Food, and the Marine (DAFM); the Environmental Protection Agency (EPA), the Irish Research Council (IRC), Science Foundation Ireland (SFI), and Teagasc provided initial formal endorsement, it can be assumed that there is an agreed alignment with its Open Science definitions, which stem from UNESCO (NORF, 2019).

Background

OECD countries have been encouraged to adapt legal frameworks and implement policy initiatives to encourage open science (OECD, 2015). A UNESCO Recommendation on Open Science in November 2021^[ii] has been unanimously adopted by Member States. Recommendations include developing an enabling policy environment for open science and fostering a culture of open science. UNESCO (2021) specifies that open science principles should also guide research funded by the private sector and encourages both the public sector and private sector to engage in discussions on how open science principles and priorities can be enlarged and mutually shared. Specifically, UNESCO encourages equitable PPPs for open science where global and public interest is fostered without market dominance on the part of any commercial entity.^[iii]

National Open Research Forum (NORF)

In 2010, the European Commission (EC), as part of the Europe 2020 Flagship Initiative, published recommendations on access to, and preservation of, scientific information, stipulating publicly funded, peer-reviewed research publications and data should be shared through established open science framework policies (EC, 2010). In order to respond to targets set by the Commission, Ireland’s National Open Research Forum (NORF) was established in 2017, connecting expert representatives from research funding and performing organisations, science policy, the library sector, enterprise and other key stakeholders. NORF continues to provide a space to communicate, cooperate and consult on policy, procedure and other strategic issues in research networks across Ireland (NORF, 2019). NORF oversaw the publication of the National Framework on the Transitions to an Open Research Environment in 2019, which was informed by further recommendations by the EC on access to, and preservation of, scientific research (EC, 2018). A National Action Plan was developed by NORF in 2022 with recommendations to assist and support the transition to an open research environment at a national level (NORF, 2022) This plan outlines actions to implement a culture of open research, with the aim of attaining 100% open access to research publications by 2030 through a network of interoperable repositories, and alignment with the FAIR principles will be supported by data stewards as experts in the field of research data management (NORF, 2022).

Funders in Ireland

Table 1 below outlines funders in the Irish ecosystem and the next section expands on these funders and examines their Open Science policies and practices, or lack thereof.

Table 1: Funders in Ireland

Open Research policies and practices of Research Performing Organisations in Ireland

Science Foundation Ireland (SFI)

Established by the Irish Government in 2000, SFI funds basic and applied research in STEM areas; in doing so it promotes and assists the development and competitiveness of industry, enterprise, and employment in Ireland^[iv]. Ministerial approval was granted in 2014 to permit SFI to enter into strategic partnerships with major international funding bodies.

NORFs Landscape document (2022, table 1, p.92) indicates that SFI has an open access/open research policy for its funded projects/Principal Investigators. However, the status is self-reported by researchers at the final reporting stage of research (NORF, 2021, p.92). Likewise, the open research section of SFI’s website has information regarding open access and research data management. SFI reports that in relation to intellectual property “where practicable, discoveries and advancements in knowledge arising from the Research Programme are translated for public benefit” (SFI, 2022, p.16). However, apart from specific policies around open access and research data management, an examination of its website fails to show any specific policies relating to open research^[v].

Department of Agriculture, Food and the Marine (DFAM)

The Department of Agriculture, Food, and the Marine (DFAM) is guided by the Open Data Directive which encourages the default release of data produced from publicly funded research producing institutions (EU, 2019). There is a particular emphasis in this Directive on the early and active provision of data for use and re-use to stimulate economic growth and innovation. These obligations are applied to those projects which are subsidised by public funding and those “co-funded by public and private-sector entities”, however, exemptions are noted for the confidentiality of third party intellectual property rights and trade secrets (EU, 2019, (28)).

Budget projections for 2024 signal a 32% reduction in funding for the Department’s policy, consultancy and research allocation (Department of Public Expenditure, NDP Delivery and Reform, 2024). NORF’s Open Research Landscape Report (2021) notes that DAFM does not provide specific funding to support open science. However, the Department pledges to facilitate the sharing of research data from projects funded by its Competitive Research Funding Programmes through its Open Access Policy, with a specific mandate for compliance for publications after October 2013 (DAFM, n.d.).

Environmental Protection Agency (EPA)

Following the enactment of the Environmental Protection Agency Act (1992), the EPA was established to protect the atmosphere, land and water from pollution and preserve a high quality environment. The Agency funds research on climate change, the circular economy, and the protection and restoration of the natural environment, and has recently announced €14.3m for 33 new research projects (EPA, 2024a).

According to an analysis of research funding organisations in Ireland by NORF (2021), the EPA does not yet include open access/research specifications in its funding applications or subsequent reporting. However, the EPA’s open access policy does support the deposition of appropriate publications, research data and bibliographic metadata in an agreed repository, which have been funded by their Research Programme. The Agency encourages discussion between researcher and funding body at the early stages to ascertain the archiving and sharing of data generated by the project (EPA, 2024b). It must be noted that this policy specifically precludes “the deposition of data and information resources such as Ordnance Survey mapping and imagery or other commercially obtained resources” (EPA, 2024b, para. 6).

Higher Education Authority (HEA)

Since the publication of NORF’s National Open Research Landscape Report (2021), the Higher Education Authority Act (2022) has guided the HEA, which has a mandate to fund higher education research across disciplines, in accordance with national policy (HEA, 2022, PT.2 S.8.). The first strategic plan published by the HEA since the introduction of the Act (2022) refers to the proposed launch of Taighde Éireann – Research Ireland,  in which it prepares to work in conjunction with this agency, to support and promote open science (HEA, 2024). The Research and Innovation Bill (2024), which was signed into law on June 4th 2024, has no specific mention of open access/research/science.

Impact 2030, the national research policy prepared by the Department of Further and Higher Education, Research, Innovation and Science (DFHERIS), promotes open research, aligning in principle with the Declaration on Open Research Assessment (DORA) and the Leiden Manifesto (DFHERIS, 2022). This policy informed the creation of the HEA’s System Performance Framework 2023 -2028 which delineates the benchmarks from which institutional performance is assessed. While research and innovation are one of the pillars of this document, open access/research is not included as a metric to track (HEA, n.d.).

In contrast to this omission, €3.62m has been pledged since 2022 by DFHERIS to progress the vision of the National Action Plan for Open Research, “working towards 100% open access to research publications” (Government of Ireland, 2022; 2023).

Health Research Board (HRB)

The HRB was established in 1986 following amendments to the Health (Corporate Bodies) Act 1961 which resulted from the merging of the Medico-Social Research Board and the Medical Research Council of Ireland (HRB, 2023a). With an annual budget of €52 million and an investment portfolio of €200 million (HRB, 2023b), the HRB is the largest agency funding health research in Ireland, promoting the link between a healthy population and advancing health research (HRB, 2021). Data and evidence collected by the HRB’s funded research informs government policy ensuring development in line with international benchmarks and European regulations (HRB, 2021).

In the Strategy 2021-2025 (2021), the HRB, in order to ensure success in open research, states that it intends to support open data management through collaborating with national and international partnerships (HRB, 2021). The HRB has aligned with Open Access policies since 2008 in multiple ways. The HRB adheres to the principles set out in the Data Access, Storage, Sharing and Linkage (DASSL) model and is an EU National Point of Reference (NPR). It co-chairs NORF (with the Higher Education Authority (HEA)), and has established an open publishing platform, HRB Open Research, to facilitate fast and transparent access to research data (HRB, 2023c). The HRB’s commitment to Open Science is reflected in their funding proposal and reporting documents which include guidance on making publications and other outputs open (NORF, 2019).

Irish Research Council (IRC)

The Irish Research Council is an associate agency of the Department of Further and Higher Education, Research, Innovation and Science and is mandated to fund research from all disciplines (IRC, n.d.) The IRC receives a fraction of the funding received by the SFI; the report on the 2022-2023 research and development budget indicates an overall reduction in funding in 2023 (DFHERIS, 2024a). Despite this drop in funding to the IRC, investment in research has soared and is estimated to have increased by 11.6% to exceed €1 billion in 2023 (DFHERIS, 2024b). This increase in spending coincides with the amalgamation of SFI and IRC to establish Taighde Éireann – Research Ireland, which is described in the Research and Innovation Bill 2024 that was signed into law on June 4th 2024 (Houses of the Oireachtas, 2024).

Since 2013, the IRC has adopted a policy promoting the deposition of research findings and publications in open access repositories, to which all award recipients must adhere (IRC, 2013). In the Strategic Plan 2020-2024, this commitment to open access has expanded to include “outputs and data sets across all disciplines” (IRC, n.d., p.21). In 2019, the IRC published a statement on Open Access and Plan S acknowledging the importance of knowledge exchange while making a commitment to fund research publication on open access platforms (IRC, 2019).

Marine Institute (MI)

The Marine Institute, Foras na Mara, is guided by the Marine Institute Act 1991, which mandates economic development and protection of the marine environment through research, technology development and innovation (Marine Institute, 2022). The Institute provides a platform for open access to its research publications through its Open Access Repository (Marine Institute, 2024a).

The National Marine Research & Innovation Strategy 2017-2021 describes a commitment to providing open and interoperable research data and metadata with particular reference to membership of the European Marine Observation and Data Network (EMODNET) underpinned by regulatory guidance by EU Directives including INSPIRE and Re-Use of Public Sector Information (Marine Institute, 2017). In the 2023 Corporate Strategy, initiatives mention data ‘acquisition’ and ‘exchange’ (Marine Institute, 2023, p. 14); however more explicit obligations are outlined with regard to dataset and metadata provision and subsequent management in MI research funding guidelines (Marine Institute, 2024b). This includes the application of an embargo which may be applied upon request for 12 months, following which, all datasets must be made available as open access (Marine Institute, 2024b).

Teagasc

In September 1988, under the Agriculture (Research, Training and Advice) Act, Teagasc, the Agriculture and Food Development Authority, was established as the national body funding research, advice and training to the farming sector (Teagasc, 2017). According to the research and development funding report by the Department of Further and Higher Education, Research, Innovation and Science, Teagasc was allocated €91.8 million in 2023, the largest research funder in the government sector (DFHERIS, 2024a, p.69).

Although Teagasc was among the initial stakeholders of the NORF framework, in the national framework on the transition to an open research environment published in 2019, it was noted that open research was not mentioned in the funding applications or reporting requirements (NORF, 2019). However, as part of their 5^th Strategic Goal, in 2021, Teagasc reaffirmed their commitment to NORF’s ambitions to provide access to research data, and pledge to develop T-Stór, Teagasc’s Open Access Repository, to “fully embrace the open research ethos” (Teagasc, 2021, p. 55). Furthermore, as part of the Walsh Scholarship research funding programme, grant recipients are expected to provide access to their publications through open access repositories (Teagasc, 2024).

Conclusion

It would seem that intellectual property rights in PPRP should be straightforward – in keeping with longstanding academic tradition, universities in Ireland have generally waived ownership of scholarly works unless they are performed for the university or for an external sponsor. However, these rights have become increasingly complicated and the interplay of open science, university–industry research collaborations (UIRC), and intellectual property regimes is a relatively recent phenomenon.

Even leaving PPRP aside, as funders have implemented open science, implementation is uneven – much is left to researchers and research teams to negotiate, although some supports are available. Many Irish research organisations are members of OpenAire, a non-profit partnership which promotes open science in Europe and provides model policies and toolkits for members^[vi].

This paper has provided an overview of the current state of open science and commercialisation in the Irish research context. Our assessment points to a patchwork of policies across funders/funding bodies and identifies some important gaps. For example, funding for commercialisation and guidance for the publication of research data is not discussed as a salient issue. Instead, open research is treated as an “afterthought” and considered at the publication stage (open access publications), rather than at the inception stage. In countries such as Finland, there exists a high-level body tasked with overseeing the implementation of open research; and in Denmark, funders such as the Novo Nordisk Foundation have made open science one of the pillars of their university-industry collaboration strategy in some contexts (Norn, et al., 2023). In Ireland, more strategic thinking, successful case studies, and support for open science in PPRP could advance a number of institutional goals for science policy.

Funding information

This project has received funding from Ireland’s National Open Research Forum (NORF) under the 2023 Open Research Fund. NORF is funded by the Higher Education Authority (HEA) on behalf of the Department of Further and Higher Education, Research Innovation and Science (DFHERIS).

Acknowledgments

We would like to thank Marie Dunne, Mia Hinterwaldner, and Paul Anglim for their feedback and editing.

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^[i]  Open science recommendation and checklist for research, development and innovation activities in collaboration between research organisations and companies | Tieteellisten seurain valtuuskunta (edition.fi)

^[ii] Online information meeting on Implementation of the UNESCO Recommendation on Open Science

^[iii] Checklist for universities on implementing the UNESCO Recommendation on Open Science – UNESCO Digital Library

^[iv] What We Do | About us | Science Foundation Ireland (sfi.ie)

^[v]https://www.sfi.ie/funding/sfi-policies-and-guidance/sfi-general-terms-and-conditions/SFI-Discover-Programme-GTCs-Sept-2023-Final.pdf)

^[vi] Toolkit for policy makers on Open Science and Open Access (openaire.eu)

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