Belgium - Flanders AI Policy Plan

Overview

The Flanders AI Policy Plan 2024-2028 represents the second strategic iteration of the Flemish government's commitment to establishing the region as a leading European hub for artificial intelligence. Building upon the foundation laid by the 2019-2024 plan, this updated framework allocates an annual budget of approximately €70 million to foster a robust ecosystem that bridges the gap between fundamental research and industrial application. The plan is orchestrated by the Department of Economy, Science and Innovation (EWI) and is designed to address the rapidly evolving technological landscape, particularly the rise of generative AI and the regulatory requirements introduced by the European Union's AI Act. By focusing on a 'triple helix' model—collaboration between government, academia, and industry—the policy aims to ensure that Flanders remains competitive while maintaining high standards of ethical integrity and social responsibility. The plan emphasizes the transition from broad exploration to focused implementation and scaling, recognizing that while the first phase successfully established research excellence, the current phase must prioritize the 'valorization' of this knowledge. This involves supporting Small and Medium-sized Enterprises (SMEs) in integrating AI into their business processes, enhancing the digital skills of the workforce through the AI Academy, and ensuring that AI development aligns with the democratic values of the Flemish community. The plan also emphasizes the importance of data infrastructure, advocating for the creation of high-quality, interoperable datasets that can fuel AI innovation across sectors such as healthcare, manufacturing, and public administration. Through this comprehensive approach, Flanders seeks to create a sustainable AI economy that benefits both the private sector and the general public, ensuring that the region remains at the forefront of the global digital transformation.

Definitions

Within the context of the Flanders AI Policy Plan 2024-2028, several key terms are defined to provide a common language for stakeholders. Artificial Intelligence (AI) is understood in alignment with the OECD and EU definitions, referring to machine-based systems that can, for a given set of human-defined objectives, make predictions, recommendations, or decisions influencing real or virtual environments. The plan specifically highlights 'Generative AI' as a priority area, acknowledging its unique capabilities in creating new content and the specific challenges it poses for intellectual property and misinformation. Furthermore, 'Trustworthy AI' is a cornerstone definition, encompassing the requirements of lawfulness, ethics, and robustness, ensuring that AI systems deployed in Flanders are technically sound while respecting fundamental rights and societal norms. The policy also defines the roles of various institutional bodies. The 'Knowledge Center Data & Society' (Kenniscentrum Data & Maatschappij) is defined as the primary advisory body for the ethical and legal implications of AI. The 'Flemish AI Research Program' is defined as the collaborative network of Flemish universities (KU Leuven, UGent, VUB, UA, and UHasselt) and research institutes (such as imec and VITO) tasked with fundamental AI research. 'Valorization' is defined as the process of creating value from knowledge by making it available and usable for economic and societal applications. These definitions serve to clarify the scope of the policy and ensure that all participants in the Flemish AI ecosystem are working toward a unified set of objectives with a shared understanding of the technical and regulatory landscape, facilitating smoother collaboration and more effective policy implementation across the region.

Governance and Institutional Framework

The governance of the Flanders AI Policy Plan 2024-2028 is characterized by a multi-layered structure designed to ensure coordination across various sectors and levels of government. At the helm is the Flemish Department of Economy, Science and Innovation (EWI), which provides the strategic direction and manages the budgetary allocations. EWI works in close partnership with VLAIO (Flanders Innovation & Entrepreneurship), the agency responsible for supporting businesses and promoting innovation. VLAIO acts as the primary interface for SMEs, providing grants, coaching, and access to AI expertise. This institutional arrangement ensures that policy goals are translated into actionable support for the private sector, fostering an environment where innovation can thrive under government guidance. Complementing the administrative oversight are the specialized centers of excellence. The Flemish AI Research Program (VAIA) coordinates the academic efforts, ensuring that research tracks are aligned with the region's economic strengths. Simultaneously, the Knowledge Center Data & Society (Kenniscentrum Data & Maatschappij) provides the necessary ethical and legal oversight, acting as a bridge between researchers, policymakers, and the public. This center is responsible for developing tools such as impact assessments and ethical guidelines that help developers navigate the complexities of AI regulation. By separating the technical research, industrial support, and ethical oversight into distinct but interconnected bodies, the Flemish government has created a governance framework that is both specialized and holistic, capable of addressing the multifaceted challenges of the AI era. This structure also includes a Steering Committee composed of international experts and local stakeholders to provide independent advice and ensure the plan remains globally relevant.

Key Focus Areas

The Flanders AI Policy Plan 2024-2028 identifies four primary pillars of action: Research, Implementation, Ethics/Society, and Education. In the realm of Research, the plan prioritizes 'Human-Centric AI' and 'Sustainable AI,' focusing on systems that are explainable, energy-efficient, and capable of collaborating with human workers. The research agenda is not static; it is designed to be agile, allowing for the rapid integration of emerging trends like Large Language Models (LLMs) and neuro-symbolic AI. By maintaining a high level of fundamental research, Flanders aims to attract international talent and secure its position in global research networks, while also providing a solid foundation for applied innovations in local industries. The second pillar, Implementation, focuses on the 'AI-readiness' of the Flemish economy. This involves targeted support for sectors where Flanders has a competitive advantage, such as Industry 4.0, personalized healthcare, and smart logistics. The plan emphasizes the role of 'Digital Innovation Hubs' (EDIHs) as physical and virtual spaces where companies can test AI technologies before investing. The third pillar, Ethics and Society, ensures that AI development does not occur in a vacuum. It promotes public dialogue and develops practical tools for bias detection and privacy protection. Finally, the Education pillar addresses the skills gap. Through the AI Academy, the policy aims to provide lifelong learning opportunities, ranging from basic AI literacy for the general public to advanced technical training for engineers, ensuring that the Flemish workforce is prepared for the structural changes brought about by automation. This pillar also includes initiatives to integrate AI into the primary and secondary education curricula, fostering a future-ready generation of digital citizens.

Implementation Framework

The implementation of the Flanders AI Policy Plan is executed through a series of structured programs and funding instruments. The Flemish government utilizes a 'funnel' approach to innovation, where fundamental research funded through the AI Research Program feeds into applied projects supported by VLAIO. For companies, this means access to various forms of assistance, including 'AI Kickstart' vouchers for initial feasibility studies and larger R&D grants for the development of proprietary AI solutions. The framework also includes 'Living Labs,' which are real-world environments where AI applications can be piloted in collaboration with end-users, ensuring that the technology meets actual market needs and societal requirements. To ensure the effective rollout of these programs, the policy plan emphasizes the importance of data availability. The Flemish Data Utility Company (Vlaams Datanutshuis) plays a crucial role here, working to create a 'data space' that allows for the secure and sovereign sharing of data between public and private actors. This infrastructure is essential for training high-quality AI models that are relevant to the Flemish context. Additionally, the implementation framework includes a strong focus on international collaboration. Flanders actively participates in European programs like Horizon Europe and Digital Europe, leveraging regional funding to secure additional resources and expertise from the broader EU ecosystem. This integrated approach ensures that the policy is not just a statement of intent but a well-funded and operationally sound roadmap for technological advancement, providing a clear path for Flemish entities to transition from conceptual AI research to market-ready applications.

Monitoring and Evaluation

To maintain accountability and ensure the 2024-2028 plan achieves its intended impact, the Flemish government has established a rigorous monitoring and evaluation mechanism. The Department of EWI, in collaboration with an external steering committee of experts, conducts annual reviews of the plan's progress. These evaluations are based on a set of Key Performance Indicators (KPIs) that include the number of AI-related patents filed in Flanders, the volume of private investment leveraged by public funding, the number of SMEs that have successfully integrated AI into their operations, and the participation rates in AI Academy training programs. These metrics provide a data-driven overview of the ecosystem's health and allow for mid-course corrections if certain targets are not being met. Beyond quantitative metrics, the evaluation process also includes qualitative assessments of the societal impact of AI. The Knowledge Center Data & Society is tasked with monitoring public perception and the ethical performance of AI systems deployed within the region. This includes tracking the adoption of 'Ethics by Design' principles among Flemish developers and assessing the effectiveness of AI in public services. The findings of these evaluations are compiled into reports submitted to the Flemish Parliament, ensuring democratic oversight of the policy's execution. This commitment to transparency and continuous improvement is intended to build public trust in AI, which the Flemish government views as a prerequisite for the widespread adoption and long-term success of the technology. The evaluation framework also considers the region's performance relative to other European tech hubs, ensuring that Flanders remains a competitive and attractive environment for AI innovation.

Penalties, Liability, and Appeals

As a policy plan rather than a legislative act, the Flanders AI Policy Plan 2024-2028 does not directly impose criminal penalties or civil fines. However, it operates within a strict framework of administrative compliance and legal alignment. Organizations receiving government funding through VLAIO or the AI Research Program are subject to rigorous auditing. Failure to comply with the terms of a grant—such as misusing funds or failing to adhere to mandatory ethical guidelines—can lead to the suspension of funding, the requirement to repay disbursed amounts, and exclusion from future funding calls. This creates a strong financial incentive for compliance with the policy's strategic and ethical objectives. Regarding liability and appeals, the plan defers to the broader legal frameworks of Belgium and the European Union. With the entry into force of the EU AI Act, Flemish entities must comply with its stringent liability regime, particularly for high-risk AI systems. The Flemish policy supports this by providing guidance on how to navigate these legal requirements. In cases where a company or individual feels that a funding decision was made unfairly, they have the right to appeal through the standard administrative procedures of the Flemish government. Furthermore, the plan encourages the use of 'Regulatory Sandboxes,' where companies can test innovative AI applications under the supervision of regulators, providing a safe space to resolve potential legal and liability issues before a full-scale market launch. This approach balances the need for strict oversight with the flexibility required for technological experimentation, ensuring that the legal framework supports rather than stifles innovation.

Relationship to Other Instruments

The Flanders AI Policy Plan 2024-2028 is designed to be highly complementary to both national and international regulatory instruments. Most significantly, it is fully aligned with the European Union's AI Act, serving as the regional implementation roadmap that prepares Flemish stakeholders for the Act's requirements. The plan also intersects with the General Data Protection Regulation (GDPR), ensuring that AI development in Flanders respects the highest standards of data privacy. At the national level, the Flemish plan is coordinated with the Belgian National AI Strategy ('AI 4 Belgium'), ensuring that regional efforts are synchronized with federal initiatives in areas like defense, justice, and social security, which fall under federal jurisdiction. Furthermore, the policy is integrated with other Flemish strategic plans, such as the 'Vlaamse Digitaliseringsstrategie' (Flemish Digitalization Strategy) and the 'Economisch Relanceplan' (Economic Recovery Plan). By linking AI policy to broader digital and economic goals, the Flemish government ensures that AI is not treated as an isolated technology but as a cross-cutting enabler for the entire region. The plan also references international standards from the OECD and UNESCO, particularly regarding the ethical development of AI. This multi-level alignment ensures that Flanders remains a coherent and reliable partner in the global AI landscape, facilitating cross-border research collaborations and making the region an attractive destination for international tech investment. The integration with the European Data Governance Act and the Data Act further ensures that Flemish data initiatives are compatible with the emerging European single market for data.

International Alignment

Flanders positions itself as an active and influential player in the international AI community. The 2024-2028 policy plan emphasizes the importance of 'Digital Sovereignty' within a European context, advocating for the development of AI solutions that reduce dependence on non-European technology providers. To this end, Flanders participates in various 'Important Projects of Common European Interest' (IPCEI) related to microelectronics and cloud technologies, which provide the hardware and infrastructure necessary for advanced AI. The region also maintains strong bilateral ties with neighboring technology hubs in the Netherlands (through the Benelux cooperation), Germany, and France, fostering a regional network of AI excellence that can compete on a global scale. The plan also highlights the role of Flanders in international standardization bodies. By contributing to the development of technical standards at the EU and global levels (such as through ISO and CEN/CENELEC), Flanders ensures that the interests of its local industry are represented. The Knowledge Center Data & Society also engages in international policy dialogues, sharing the Flemish experience in AI ethics and societal impact assessments with organizations like the OECD. This proactive international stance is not only about exporting Flemish expertise but also about importing best practices and ensuring that the Flemish AI ecosystem remains at the cutting edge of global developments, particularly in areas like AI safety and governance. The plan also envisions Flanders as a gateway for international AI companies looking to enter the European market, offering a stable regulatory environment and a highly skilled workforce.

Implementation Timeline

Sources and References