Members of the public have until Sept. 15 to weigh in on the National Institutes of Health’s plan to curb how much taxpayer money goes to journals to publish some federally funded research.

The agency, which is the nation’s largest funder of biomedical research, wants to do that by capping—or potentially disallowing—the amount of money it gives to NIH-funded researchers who want to make their work publicly accessible by paying publishers article processing charges. A July 30 request for information memo outlined five potential options, which the NIH says are all aimed at balancing the “feasibility of providing research results with maximizing the use of taxpayer funds to support research.”

Jay Bhattacharya, director of the NIH, has said the policy could be a mechanism for ending what he sees as the “perverse incentives” driving the $19 billion for-profit academic publishing industry and making it “much harder for a small number of scientific elite to say what’s true and false.”

But open-information advocates and experts who have reviewed the NIH’s proposed plans for capping the amount it will pay for article processing charges said it likely won’t reform academia’s incentive structure or rein in publishers, including some that charge academic researchers as much as $12,690 per article to make their work freely accessible to the public and more likely to get cited.

“It is important to keep in mind that any cap is a cap on the amount that can be budgeted to be paid from a grant. It is not a cap on what publishers can charge. What publishers charge may be influenced by a budget cap, but many other factors will also impact on that,” said Lisa Janicke Hinchliffe, a professor and coordinator for research professional development at the University of Illinois library. “It is more likely that a budget cap causes publishers that charge less to raise their fees—the ceiling will become the floor—than it is that publishers charging more will lower their fees.”

The proposal, which if adopted would go into effect Jan. 1, 2026, is aimed at addressing one of the many criticisms the Trump administration has made about federally funded academic research and the journals that publish the results.

In May, Robert F. Kennedy Jr., head of the Department of Health and Human Services, which oversees the NIH, said he was considering preventing federally funded scientists from publishing in leading medical journals and launching in-house journals instead, claiming without evidence that pharmaceutical companies control the journals.

Then, in July, the NIH sped up the implementation of a Biden-era rule requiring federally funded researchers to immediately make their research findings publicly accessible. And earlier this month, Bhattacharya criticized academia’s “publish or perish culture” in a statement about the NIH’s strategy for advancing its mission.

“It favors the promotion of only favorable results, and replication work is little valued or rewarded,” he wrote. “We are exploring various mechanisms to support scientists focused on replication work, to publish negative findings, and to elevate replication research.”

Given all of that context, the publisher fee cap plan is “more or less a warning shot across the bow that the NIH is serious about scholarly communication reform,” said Chris Marcum, who was assistant director for open science and data policy at the White House Office of Science and Technology Policy during the Biden administration. “The administration believes there’s massive market concentration held by just a few scholarly publishers, and they’re no longer going to subsidize the surplus revenues of those journals.”

While the Trump administration is far from alone in its criticism of big academic publishers—just six companies own 53 percent of academic journals—which rely on often-unpaid researchers and peer reviewers, Marcum said that even if the NIH adopted all five of the options it outlined to cap publisher fees, “it’s not comprehensive enough” to meet their stated goals.

“They could eliminate APCs and fix pricing, but the extremely useful tool that they have is influence over the universities,” he added.

For example, one of the options in the NIH’s proposal would increase limits on APCs if the journal paid peer reviewers, but Marcum said he’s concerned that could result in some peer reviewers trying to game the system to enrich themselves. Instead, he said, “if the NIH really wants to move the needle on this, they should think about other ways to compensate reviewers.” Some of those ideas could include giving peer reviewers credit toward their grant applications, including peer review as part of grant work or requiring universities that apply for NIH grants to include considerations for their researchers to engage in peer review.

Heather Joseph, executive director of the Scholarly Publishing and Academic Resources Coalition, said that though the NIH “can’t single-handedly reform the global system of academic research incentives, they can play a leadership role.”

But capping APCs isn’t the only—or most effective—option to make that happen.

“Rather than just limiting the amount of money that the NIH provides researchers to publish in a journal, it could say, ‘If you choose not to publish in a journal and do something else, we’ll provide money to do that,’ and support other mechanisms that allow researchers to break that incentive cycle,” Joseph said. “The NIH could reward them for communicating their findings early and often, making the global conversation of science dynamic in real time so that people can really benefit from it.”

The publishing industry is also not keen on the NIH’s attempt to control article processing charges.

A “free and competitive scholarly marketplace, including not-for-profit societies and other publishers, remains the most effective means of sustaining this vital sector, and bolstering our nation’s leadership position in the sciences,” Carl Maxwell, senior vice president for public policy for the Association of American Publishers, which has opposed open access expansion, wrote in an email to Inside Higher Ed.

“Models are now changing in the face of open access mandates, and AAP is analyzing the options put forth by NIH to identify the plan that will provide authors with maximum freedom to choose how to publish and communicate their work, while at the same time supporting the indispensable publication processes that deliver best-in-class, peer-reviewed articles.”