Progress in Implementing the European Union Coordinated Plan on Artificial Intelligence (Volume 1): Luxembourg

Table of contents

• Set enabling conditions for AI development and uptake in the European Union
• Make the European Union the right place: Excellence from lab to the market
• Ensure AI technologies work for people
• Build strategic leadership in priority sectors

The European Union (EU) Coordinated Plan on Artificial Intelligence (AI) is a strategic initiative by the European Commission and EU Member States to promote AI development, investment and co-operation. In 2024, the OECD conducted a survey and interviews to take stock of implementation progress made by the EU Member States in implementing the actions set in the EU Coordinated Plan on AI. Drawing on the information collected, the OECD prepared country notes for each EU Member State. This document presents the country note for Luxembourg, which summarises key initiatives and implementation progress.

Key messages

• Strategic artificial intelligence (AI) vision under review: Luxembourg’s AI strategy, first adopted in 20191, focuses on applied, human-centric AI and strategic investments across seven pillars, including ethics and data. The strategy is currently undergoing a revision to address emerging challenges and opportunities associated to the development of generative AI, with the goal of ensuring that the country remains at the forefront of AI innovation.

• High-performance computing (HPC) investment: Luxembourg is investing in its HPC infrastructure through initiatives such as LuxConnect and LuxProvide, supporting industries including finance, healthcare and research with state-of-the-art computational power.

• AI talent development: Luxembourg supports AI education and skills development through programmes like the European Master for High-Performance Computing (EUMaster4HPC) and Artificial Intelligence for and by Teachers (AI4T), ensuring the next generation of talent is equipped for AI challenges.

• Support for AI start-ups: Luxembourg’s Digital Tech Fund and initiatives like Fit 4 Digital – AI are strengthening the AI innovation ecosystem by providing funding and consultancy services to AI start-ups.

• Emphasis on AI in agriculture: Luxembourg has made efforts in applying AI to agriculture, with initiatives that leverage AI technologies to optimise farming practices, enhance sustainability and improve food production systems, supporting both environmental and economic goals.

Set enabling conditions for AI development and uptake in the European Union

Acquire, pool and share policy insights

Luxembourg’s strategy Artificial Intelligence: A Strategic Vision for Luxembourg was adopted in 2019 (Government of Luxembourg, 2019[1]). It consists of seven main pillars: i) Luxembourg as a living laboratory for applied AI; ii) data: the cornerstone of AI; iii) ethics, privacy regulation and security; iv) boosting investments and developing strategic partners; v) AI for the public sector; vi) skills and lifelong learning; and vii) international co‑operation. In addition, the country places applied as well as human-centric AI at the top of its agenda, especially in its economic priority areas.

The Ministry of State (Ministère de l’Etat), the department supporting the Prime Minister, is the primary co‑ordinator of the AI strategy, while the Ministry of the Economy focuses on related areas such as cloud and quantum strategies. Governance mechanisms, such as the Interministerial Committee for Digital Policy launched in 2024, ensure co‑ordination across ministries, with each ministry represented by senior civil servants. Furthermore, the national AI strategy is currently undergoing a comprehensive review, a process initiated in the first quarter of 2024 and concluded in May 2025^1. This update has been partly driven by the rapid emergence of generative AI. The review process is led by the Ministry of State and involves a broad range of stakeholders such as the Ministries of the Economy, for Digitalisation, of Health and of Finance. To ensure broader societal engagement, the government has also worked with the High-level Committee for Digital Transformation (Haut Comité à la transformation numérique), a formal structure bringing together public and private stakeholders. Governed by the Ministry for Digitalisation, it includes representatives from employers, employees, civil society and groups addressing age-sensitive issues and the digital divide. Workshops have been organised to gather initial feedback, with further consultations planned for the end of 2024 (Government of Luxembourg, 2024[2]).

The overarching focus of the strategy remains on responsible AI, ensuring alignment with emerging standards, and providing practical tools to help citizens and small and medium-sized enterprises (SMEs) adopt AI. A strong emphasis is also placed on applied AI, research and innovation, particularly around data reuse and the development of data spaces, especially in the health sector. The political goal is to maintain alignment while also diversifying AI applications.

Luxembourg’s budget allocation methodology does not provide for a global budget line earmarked for the AI strategy, instead different sectoral budgets have to be considered. An example is the budget for the Luxembourg National Research Fund (Fonds National de la Recherche, FNR), or research, development and innovation funding channels, which provide a large amount of funding to AI-based projects.

Luxembourg aligns its AI policy monitoring with the European Commission’s Digital Decade policy programme. Additionally, projects supported and followed by the annual AI4Gov call for projects are regularly monitored and qualitatively evaluated along their lifecycle (Government of Luxembourg, 2024[3]).

Tap into the potential of data and foster critical computing capacity

Luxembourg is focused on accelerating its digital transformation through strategic data and HPC initiatives. These efforts aim to enhance digital infrastructure, promote the responsible use of data and integrate advanced technologies across key sectors such as finance, healthcare and research. In doing so, it fosters collaboration between public and private entities while aligning with European Union (EU) standards.

Box 1. In focus: LuxConnect and LuxProvide

LuxConnect and LuxProvide are integral to Luxembourg’s digital and HPC ecosystem, supporting the country’s goal of becoming an EU hub for digital services and innovation. Established by the Luxembourg government, LuxConnect offers state-of-the-art data centre infrastructure and connectivity, providing secure, energy-efficient solutions for cloud services, data storage and digital transformation. Its data centres play a vital role in supporting Luxembourg’s digital economy by offering the backbone for businesses and research institutions to store and process large amounts of data.

Under the governance of the Ministry of State and the Ministry of the Economy, LuxProvide – a 100% subsidiary of LuxConnect – is in charge of the acquisition, launch and operation of MeluXina, Luxembourg’s national supercomputer. LuxProvide seeks to facilitate access to the use of MeluXina’s computational capabilities by companies operating in areas such as healthcare, finance and logistics.

Together, LuxConnect and LuxProvide form a comprehensive ecosystem that drives innovation and digitalisation in Luxembourg, fostering collaboration between industry, research and public institutions.

Sources: LuxConnect (2024[4]), Homepage, https://www.luxconnect.lu/ (accessed on 6 November 2024).

Table 1. Set enabling conditions for AI development and uptake in the European Union: Key initiatives

Name	Start year	Short description (main goals)	Funding (including EU funding use)
Clarence	2023	Clarence, a joint venture between Proximus Luxembourg, a leader in convergent information and communication technology (ICT) and telecom services, and LuxConnect, offers a sovereign, fully disconnected cloud solution tailored for governments, regulated industries, international organisations and enterprises handling sensitive data in the European Union. Its core mission is to deliver an innovative cloud solution that ensures the highest levels of confidentiality, security and operational autonomy (LuxConnect, 2023[5]).	Not reported
Data-Driven Innovation Strategy for the Development of a Trusted and Sustainable Economy in Luxembourg	2019	Led by the Ministry of the Economy, Luxembourg’s data-driven innovation strategy is built on three key pillars: i) enhancing digital infrastructure capacity; ii) promoting the experimentation and integration of advanced digital technologies into industry; and iii) ensuring a robust regulatory, intellectual property, investment and financing framework (Government of Luxembourg, 2024[6]).There has been a request to renew the national data strategy, recognising that AI and data are deeply interconnected. On the Ministry for Digitalisation’s side, significant progress is being made on a public data strategy, which is set to be published in 2025. The key question remains whether this will be a standalone strategy or part of a broader national data framework.	Not reported
Luxembourg National Data Service (LNDS)	2022	The LNDS aims to accelerate economic, ecological and societal transitions through the efficient and responsible use of data, with a focus on improving the secondary use of data. A key emphasis is placed on sharing public sector data to enable value creation for data partners, which include public and private organisations interested in using or providing data, or both. Collaboration with research institutions, ministries and other national organisations enhances the use of existing data, while active participation in the development of data spaces, standards, and best practices at the EU level ensures alignment with broader initiatives (LNDS, 2024[7]).	Not reported
MeluXina	2021	Luxembourg’s national supercomputer MeluXina was launched as part of the European High Performance Computing Joint Undertaking (EuroHPC JU) initiative. Operated by LuxProvide, it delivers HPC capabilities to support innovation in sectors such as finance, healthcare, research and manufacturing. MeluXina is designed to handle large-scale data processing, simulations and AI applications, playing a key role in Luxembourg’s push to become a leader in digital transformation and data-driven innovation (LuxProvide, 2024[8]).	Not reported

Make the European Union the right place: Excellence from lab to the market

Luxembourg has put in place a range of initiatives to support AI-related innovation. These initiatives are generally not limited to AI and encompass other dimensions of the digital transition. They include the Digital Tech Fund, which provides crucial backing for technology start-ups, and the extensive projects funded by the Luxembourg National Research Fund, which supports fellowships or doctoral grants, also in the field of AI. These initiatives contribute to fostering AI development and ensuring that innovative ideas can transition from the lab to the market.

Table 2. Make the European Union the right place: Excellence from lab to the market: Key initiatives

Name	Start year	Short description (main goals)	Funding (including EU funding use)
Digital Tech Fund	Not reported	The Digital Tech Fund, part of the Digital Luxembourg initiative, is a seed fund designed to support ICT start-ups and strengthen the country’s technology ecosystem. It operates as a joint public-private partnership, with contributions from the government, the Société Nationale de Crédit et d’Investissement (SNCI), the University of Luxembourg and other key stakeholders. The fund focuses on investing in areas such as cybersecurity, financial technology (fintech), big data, digital health, media, next‑generation communication networks and the Internet of Things. Managed by venture capital firm Expon Capital, the fund also aims to facilitate the transfer of new technologies from public research, particularly from the University of Luxembourg’s Interdisciplinary Centre for Security, Reliability and Trust (SnT) to the business sector (Government of Luxembourg, 2024[9]).	EUR 30 million
Fit 4 Digital – AI	2024	As of October 2024, an existing digitalisation support for SMEs has been augmented to focus on AI-specific measures. This programme provides businesses with the opportunity to collaborate with an experienced AI consultant who will help identify challenges, set objectives and prioritise development actions. The initiative includes a feasibility analysis of selected AI use cases, supported by a qualitative and quantitative review of internal data. The consultant will also develop a detailed roadmap, outlining an action plan with cost estimates for investments, the selection of AI solutions and a projected return on investment (LuxInnovation, 2024[10]).	Not reported
Luxembourg National Research Fund (FNR)	Not reported	The FNR provides a variety of research funding instruments that, while not exclusively focused on AI, are available to support AI-based projects. These include fellowships, doctoral grants and funding for companies looking to adopt innovative technologies (FNR, 2024[11]).	Not reported
National Research and Innovation Strategy	2020	Luxembourg’s National Research and Innovation Strategy aligns with its national AI strategy, positioning AI as a key enabling technology across its research priority areas. The country aims to scale AI for specific use cases, such as personalised healthcare and education, and become a “living laboratory” that demonstrates the societal benefits of AI at the national level. Leveraging its small size, Luxembourg seeks to rapidly scale AI initiatives and position itself as a global leader in AI implementation while contributing to the development of ethical standards and legal frameworks (Government of Luxembourg, 2020[12]).	Not reported

Ensure AI technologies work for people

Nurture talent and improve the supply of skills necessary to enable a thriving AI ecosystem

Luxembourg is committed to nurturing AI talent and building the skills necessary for a thriving AI ecosystem through a variety of initiatives. These include professional development programmes for educators to integrate AI into classrooms, accessible AI learning courses for the general public, and advanced training programmes such as an EU master’s programme in HPC. Additionally, short-term reskilling initiatives and extracurricular technology schools are aimed at addressing the growing demand for digital and AI competencies.

Table 3. Ensure AI technologies work for people: Key initiatives

Name	Start year	Short description (main goals)	Funding (including EU funding use)
AI for and by Teachers (AI4T)	2021	The Erasmus+ project AI4T was a three-year collaboration involving partners from five EU countries: France, Ireland, Italy, Luxembourg and Slovenia. With contributions from ministries of education, universities, research centres and private companies, the project aimed to develop a professional learning path for secondary school teachers. Its goal was to help teachers better understand the opportunities and risks associated with AI in the classroom. The project resulted in a handbook and a tailored training programme to challenge biases, deepen knowledge and promote the informed use of AI in education (Script, 2024[13]).	Not reported
Elements of AI – Luxembourg	2024	The Elements of AI course in Luxembourg offers a free, accessible introduction to AI, tailored for individuals from all backgrounds. The programme combines online learning with webinars from local AI experts and support groups, helping participants understand AI’s fundamentals and its real-world applications. Upon completion, learners receive a certificate from the University of Luxembourg, contributing to the country’s goal of improving digital skills across its population (Elements of AI, 2024[14]).	Not reported
European Master for High-Performance Computing (EUMaster4HPC)	2020	The EUMaster4HPC is a new EU-funded master’s programme aimed at developing a highly skilled workforce in HPC to support the EU digital transformation. Co‑ordinated by the University of Luxembourg, the programme brings together expertise from EU universities, research centres and industry to create a comprehensive graduate-level curriculum. The two-year programme covers HPC fundamentals, offers specialisations, mentorship and internships, and is designed to equip students with the skills needed to drive the adoption of HPC technologies across the European Union (EUMaster4HPC, 2024[15]).	EUR 7 million
Skillsbridges	2024	In the 2024/25 academic year, Luxembourg’s Ministry of Education is launching Skillsbridges, a new short-term professional training programme. Aimed at helping adults adapt to evolving technologies and the changing job market, the initiative focuses on both upskilling and reskilling. Skillsbridges target a diverse audience, including both employed individuals and job seekers, addressing labour shortages and supporting professional transitions. Programmes will cover a range of topics, including AI for administrative teams, and will be delivered in person or through blended learning, with courses lasting from 40 to 240 hours (CNFPC, 2024[16]).	Not reported
Luxembourg Tech School (LTS)	2016	LTS is a digital education initiative allowing students aged 12 to 19 to learn about cutting-edge technologies while gaining business and industry knowledge. As a three-month extracurricular programme, LTS uses a project-based approach to develop future digital leaders by involving students in hands-on, team-based projects in fields like coding, game development, fintech, AI and space. With over 200 students participating across more than 10 schools, LTS empowers young learners to apply technology in real-world and creative contexts, helping to meet Luxembourg’s growing demand for digital skills (LTS, 2024[17]).	Not reported

Build strategic leadership in priority sectors

Luxembourg is advancing its AI efforts across various sectors, particularly in the public sector and agriculture. In the public sector, the government is implementing guidelines for responsible AI use, enhancing data governance and fostering innovation through collaboration between government and technology developers. These efforts aim to improve transparency, ethical AI usage and public service efficiency. In agriculture, Luxembourg is investing in sustainable farming techniques, using AI-driven tools to optimise crop and grazing management, reduce resource consumption and support climate-resilient practices. These initiatives align with the country’s broader goals of digital transformation and sustainability.

State of AI in healthcare

Luxembourg’s health data governance framework, grounded in the country’s Social Security Code, led to the creation of the eHealth Agency (Agence eSanté) (Government of Luxembourg, 2024[18]). The agency plays a central role in setting data standards and ensuring secure data management and interoperability across the healthcare sector. Prioritising both internal and cross-border data exchange, it has implemented initiatives like the Dossier de soins partagé (DSP) for electronic health records and MaSanté @ UE services, supporting secure data sharing within Luxembourg and with European partners (Government of Luxembourg, 2024[19]). In addition, the Healthnet network fosters secure connections among healthcare providers, enhancing collaborative efforts and data exchange (eSanté Luxembourg, 2024[20]).

AI advancements in Luxembourg’s health sector are primarily supported by the Ministry of Health and Social Security and the Luxembourg Institute of Health (LIH). Although the eHealth Agency itself has not led AI initiatives, the national AI strategy laid a comprehensive foundation for data governance tailored to AI applications (Digital Luxembourg, 2019[21]). The strategy prioritises the secondary use of health data to advance AI development and, in alignment with this goal, the LIH launched the Dataspace4Health initiative. This programme provides a secure environment for researchers to access health data while ensuring privacy and data ownership safeguards (Dataspace4Health, 2024[22]). Through these efforts, Luxembourg is creating a robust framework to support AI innovations in healthcare while balancing data security and accessibility.

Table 4. Build strategic leadership in priority sectors: Key initiatives

Name	Start year (period covered)	Short description (main goals)	Funding (including EU funding use)
Climate and environment
No initiatives reported.
Health
Artificial Intelligence: A Strategic Vision for Luxembourg	2019	The strategy acts as a vision paper outlining the ambitions of Luxembourg in the field of AI and presenting strategic policy recommendations in key areas to achieve them. The policy vision of Luxembourg’s strategy is to support the development of a human-centric AI based on an efficient and sustainable data‑driven ecosystem (Digital Luxembourg, 2019[21]).	Not reported
Clinnova	2023	Clinnova’s mission is to advance precision medicine by using AI-driven solutions to provide tailored treatments for patients, focusing initially on inflammatory bowel disease, rheumatoid disease and multiple sclerosis. The initiative aims to bridge biomedical research and healthcare by creating an interoperable infrastructure for federated health data across the European Union, driving innovation and supporting Luxembourg’s personalised healthcare goals. (Luxembourg Institute of Health, 2023[23])	Not reported
Dataspace4Health	2024	The Dataspace4Health project aims to transform Luxembourg’s healthcare by creating a secure platform for health data sharing, enhancing patient care through improved diagnosis, treatment, and prevention while respecting EU General Data Protection Regulation and patient rights	Not reported
Public sector
AI Charter	2023	In response to the growing role of AI in parliamentary activities, Luxembourg’s Chamber of Deputies has established an AI Charter that outlines ten key guidelines for the responsible use of AI. These guidelines ensure that AI is used ethically and transparently in parliamentary procedures, promoting accountability and respect for human rights (Chambre des Députés, 2024[24]).	Not reported
AI and data governance workshops	2024	Luxembourg’s Ministry for Digitalisation has organised a series of workshops on AI and data governance for public decision makers. These workshops aim to raise awareness and prepare for the upcoming review of the National AI2030 Strategy, ensuring that key stakeholders are informed and engaged in shaping the future of AI and data governance in the country.	Not reported
Public Sector Innovation Hub	2020	Luxembourg’s Public Sector Innovation Hub, launched through the GovTech Lab, supports innovation within the public sector by fostering the adoption of new technologies and digital solutions. The hub serves as a platform for collaboration between government entities and technology innovators, aiming to enhance public service delivery through cutting-edge digital solutions (gov tech lab, 2024[25]).	Not reported
Mobility
No initiative reported
Agriculture/forestry/rural development
Digital Pilot Farms	2019(-21); 2022(-23)	The Digital Pilot Farms 2 project, part of the European Innovation Partnership for Agricultural Productivity and Sustainability programme (EIP-AGRI) (EC, 2024[26]), focuses on creating a pilot farm network to test innovative plant protection techniques. It aims to make the use of plant protection products more efficient, safe and environmentally friendly by using a digital tool that provides targeted advice to farmers. This tool is openly accessible to all in Luxembourg, helping farmers better manage pests and weeds in a sustainable way (Agriculture Portal, 2024[27]).	EUR 600 000
LIFE	Not reported	The LIFE project, supported by Luxembourg’s FNR Green Era Hub (FNR, 2024[28]), focuses on creating climate-resilient, water-efficient and self‑sustainable agrifood systems. As climate change threatens food security, the project emphasises sustainable techniques like hydroponics and locally sourced fertilisers. It transforms animal manure into nutrient solutions for hydroponic farming, with digital twin technology optimising this process to increase efficiency and reduce resource consumption. A pilot farm in Luxembourg, in collaboration with Fësch Haff SARL, will showcase this integrated approach, combining manure transformation, hydroponics and rainwater capture (LIST, 2024[29]).	Not reported
Méi Weed	2020	The Méi Weed initiative, part of the EIP-AGRI programme (EC, 2024[26]), aims to optimise grazing by adapting a grass growth prediction model to Luxembourg’s pedoclimatic conditions. This project helps farmers manage pastures more effectively, considering challenges from climate change. The model, delivered through a digital tool, will provide forecasts to assist farmers in adjusting grazing areas and supplementing livestock feed, improving both economic efficiency and sustainability (Agriculture Portal, 2024[30]).	EUR 385 000

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[30] Agriculture Portal (2024), Méi Weed (EIP AGRI), Ministerium für Landwirtschaft, Ernährung und Weinbau, Luxembourg, https://agriculture.public.lu/de/innovation-und-forschung-projekte/mei-weed.html (accessed on 6 November 2024).

[24] Chambre des Députés (2024), “La Chambre se dote d’une Charte sur l’intelligence artificielle”, Grand-Duché du Luxembourg, https://www.chd.lu/fr/charteIA (accessed on 6 November 2024).

[16] CNFPC (2024), “Lancement des Skillsbridges, un nouveau format de formation professionnelle continue”, Centre national de formation professionnelle continue, France, https://cnfpc.public.lu/fr/actualites/2024/skillsbridges.html (accessed on 6 November 2024).

[22] Dataspace4Health (2024), We are Project Dataspace4Health: A Pioneering Dataspace and Governance Framework for Secure and Compliant Health Data Exchange, https://www.dataspace4health.lu/.

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[26] EC (2024), European Innovation Partnership ’Agricultural Productivity and Sustainability’, European Commission, https://ec.europa.eu/eip/agriculture/content/EIPAGRIabout.html (accessed on 6 November 2024).

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[11] FNR (2024), Funding Instruments, Luxembourg National Research Fund, https://www.fnr.lu/funding-instruments/ (accessed on 6 November 2024).

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The full book is available in English: OECD (2025), Progress in Implementing the European Union Coordinated Plan on Artificial Intelligence (Volume 1): Member States’ Actions, OECD Publishing, Paris, https://doi.org/10.1787/533c355d-en.

 

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Note

← 1.  In May 2025, Luxembourg launched a new national AI strategy. While not considered here for analytical purposes, it is mentioned for ease of reference (Government of Luxembourg, 2025[229]).