EUROPEAN
COMMISSION
Brussels, 3.9.2025
COM(2025) 598 final
2025/0265 (CNS)
Proposal for a
COUNCIL REGULATION
establishing the Instrument for Nuclear Safety Cooperation and Decommissioning for
the period 2028-2034 and repealing Regulations (Euratom) 2021/100 and (Euratom)
2021/948
{SWD(2025) 254 final}
EN EN
EXPLANATORY MEMORANDUM
1. CONTEXT OF THE PROPOSAL
• Reasons for and objectives of the proposal
This explanatory memorandum accompanies the Commission proposal for a Council
Regulation (Euratomestablishing the Instrument for Nuclear Safety Cooperation and
Decommissioning for the period 2028-2034 (‘INSC-D’) 1. The proposal is made in the
context of the next Multiannual Financial Framework (MFF), as outlined in The Road to the
next Multiannual Financial Framework2. This instrument is planned to enter into force in
2028 with the start of the next MFF3.
Reasons behind the proposal
In an effort to streamline the commitments of the Euratom Community and to reduce the
administrative burden for the adoption of the new proposal, this regulation merges the current
following external and internal instruments:
(1) the Council regulation establishing the European Instrument for International
Nuclear Safety Cooperation (INSC)4, which targets EU nuclear and radiation safety
cooperation with partner countries;
(2) the financial programmes for decommissioning of nuclear facilities and the
management of radioactive waste56, which target decommissioning activities in
Bulgaria and Slovakia7, as well as at the JRC sites in Geel, Ispra, Karlsruhe and
Petten.6
The INSC-D proposal is motivated by two main factors: 1) the Commission’s firm intention
to continue the current INSC during the next MFF; 2) legal obligations to continue the
ongoing JRC decommissioning works. In line with this, the planned activities of the new
instrument continue those practised in the current INSC and in the JRC nuclear
decommissioning and waste management programme (NDWMP). Some small changes have
also been introduced to leverage the lessons learned during implementation of the 2021-2027
MFF, to follow recent developments in nuclear technology, and to better accommodate
possible changes in future context and EU priorities.
The external and internal components remain distinctive where necessary to allow clarity in
allocation of resources and to consider the different needs. The Instrument’s external
component of the Instrument will complement Global Europe, and its internal component will
pursue the objectives of the JRC’s current NDWMP.
Problems the proposal is expected to tackle
1
Proposal for a Council (Euratom) Regulation establishing the Instrument for Nuclear Safety
Cooperation and Decommissioning for the period 2028-X, 16.5.2025.
2
The road to next multiannual financial framework, Strasbourg, 11.2.2025, COM(2025) 46 final.
3
Communication COM(2025) 570: A dynamic EU Budget for the priorities of the future – The
Multiannual Financial Framework 2028-2034: 26ff3426-b1db-44d5-ad9c-a646febb3222_en.
4
Council Regulation (Euratom) 2021/948 of 27 May 2021 – European Instrument for International
Nuclear Safety Cooperation complementing the NDICI – GE on the basis of the Euratom Treaty.
5
Council Regulation (Euratom) 2021/100 of 25 January 2021 establishing a dedicated financial
programme for the decommissioning of nuclear facilities and the management of radioactive waste.
6
Council Regulation (EU) 2021/101 of 25 January 2021 establishing the nuclear decommissioning
assistance programme of the Ignalina nuclear power plant in Lithuania.
7
For these decommissioning programmes there are no new Commitment Appropriations foreseen but
only Payment Appropriations.
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Ensuring high-level nuclear safety, as well as adequate radiation protection of the public and
the personnel exposed to occupational radiation has always been a priority for the European
Union. Since large-scale nuclear accidents may have transboundary impacts, and radioactive
contamination may disperse over several countries, Euratom has consistently pursued nuclear
safety cooperation with partner countries, especially with those located in the geographical
proximity but also beyond.
The instrument for nuclear safety cooperation and decommissioning contributes to enhancing
nuclear and radiation safety in partner countries to ensure nuclear safety for EU citizens and
to protect the environment. It is of direct interest to the Community, as reducing the potential
threat of nuclear or radiation accidents in non-EU countries increases nuclear safety and
security in the EU and global reassurance on the peaceful uses of nuclear energy.
The Euratom Treaty established the Joint Nuclear Research Centre (which has now become
the JRC) as a research institute responsible for implementing nuclear research programmes
and other tasks assigned by the Commission. The JRC currently owns nuclear research
facilities in four Member States, namely in Geel (Belgium), Karlsruhe (Germany), Ispra
(Italy) and Petten (The Netherlands). Some of these facilities are permanently shut down,
while others are still in operation. The JRC is responsible for the safe management of spent
nuclear fuel and radioactive waste in these facilities in line with the corresponding European
Directive8 and with the relevant regulations in the host countries.
The European Commission is liable for decommissioning the disused nuclear installations in
line with decommissioning plans submitted to the nuclear safety authorities of the respective
host Member States. This work is in progress and the instrument’s internal component aims to
continue and advance the activities and to disseminate valuable knowledge acquired during
the process of decommissioning and handling radioactive waste, both at JRC sites and under
Nuclear Decommissioning Assistance Programmes (NDAP)9, to all EU Member States.
Thus, the new instrument seeks to fulfil two-fold requirements under the legal basis of the
Euratom Community.
Main objectives
External component: to promote high levels of nuclear safety, radiation protection, safe
management of spent nuclear fuel and radioactive waste and the application of efficient and
effective safeguards in partner countries. This objective will be achieved by transferring EU-
related expertise and best practice to the key stakeholders in partner countries, including by
building partnerships with nuclear regulatory authorities and their technical support
organisations.
Internal component: to pursue the decommissioning of the Commission’s nuclear installations
at the relevant JRC sites, in line with the needs identified in the respective decommissioning
plans, and to safely manage the associated spent fuel, nuclear material and radioactive waste.
Institutional background
European engagement to support international nuclear safety cooperation started between
1991-2006, after the Chernobyl accident with the ‘Technical Assistance to the
Commonwealth of Independent States’. Over more than three decades, considerable expertise
8
Council Directive 2011/70/Euratom of 19.7.2011 establishing a Community framework for the
responsible and safe management of spent fuel and radioactive waste. (OJ L 199, 2.8.2011, p. 48, ELI:
http://data.europa.eu/eli/dir/2011/70/oj).
9
OJ L 236, 23.9.2003, p. 944; OJ L 157, 21.6.2005, p. 29. OJ L 157, 21.6.2005, p. 11. OJ L 236,
23.9.2003, p. 33.
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and experience encompassing the complete field of nuclear safety has been accumulated at
various EC institutions and in expert organisations within the Euratom Community.
With regard to the case of the Instrument’s internal component, the European Commission
established a decommissioning programme in 1999 to address the legacy from past and
ongoing nuclear research activities. Since then, a dedicated directorate with a specific
programme coordinates the decommissioning activities at all the JRC sites. This proposal
envisages making good and effective use of the relevant institutional knowledge in the next
MFF period. The JRC has initiated a knowledge management programme under the current
MFF to share experience and know-how accumulated during ongoing decommissioning
activities financed by the EU at JRC sites, in Lithuania, Slovakia and Bulgaria.
• Consistency with existing policy provisions in the policy area
Relevant existing policy provisions
The external component provides an enabling framework through which external action
policies and international obligations concerning nuclear and radiation safety can be
implemented in cooperation with partner countries. In this sense, it is an adapted continuation
of the European Instrument for International Nuclear Safety Cooperation (INSC) under
Regulation (Euratom) 2021/948. The external component will therefore complement the
‘Global Europe’ neighbourhood, development and international cooperation instrument and
continue to pursue the following objectives:
• promotion of a high level of nuclear safety and radiation protection;
• promotion of the safe management of spent nuclear fuel and radioactive waste;
• promotion of efficient and effective safeguards of nuclear materials.
The proposal for the external component includes the following enhancements compared to
the current INSC:
• ensuring support for the safe use of innovative technologies (such as small modular
reactors) following possible and predicted developments in applications of nuclear
technology;
• providing a fast and proper response in exceptional cases (including war situations);
• extending the scope of support to nuclear power plant operators;
• increasing support for enhancing emergency preparedness and response capabilities;
• increasing support for environmental remediation activities, to contribute more to the
global efforts to protect the environment;
• enabling a more comprehensive implementation approach, including in the selection
of aid procedures and beneficiaries of cooperation.
The INSC-D’s internal component aims to continue and advance the JRC’s ongoing
decommissioning activities. In this sense, it can also be considered as the direct continuation
of the JRC’s current NDWMP under Regulations (Euratom) 2021/100. Therefore, it will
pursue objectives similar to those of the current NDWMP, including the dissemination of
obtained know-how on decommissioning to the EU Member States.
• The proposal also contains a new item for the internal component: a concrete
timeline for the negotiations with the Member States concerned on the potential
transfer of nuclear liability from the JRC to the host Member State.
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Timing of the proposal
The external component will replace the INSC in 2028, to ensure a seamless continuation of
related activities.
The internal component of the INSC-D will replace the JRC’s NDWMP, to ensure the
seamless continuation of JRC decommissioning activities.
• Consistency with other EU policies
When implementing this Regulation, consistency with other areas of external action and with
other relevant EU policies will be ensured. As reflected in the United Nations 2030 Agenda
for Sustainable Development10 and consolidated by the European Green Deal11, this includes
taking into account the impact of all policies on sustainable development at all levels –
nationally, within the EU, in other countries, and at a global level.
Synergies with actions under other EU programmes will be sought to maximise the impact of
the interventions. Actions funded under the external component of this proposal should be
consistent and complementary to those carried out under Global Europe12, the Decision on the
Overseas Association, including Greenland13, as well as the common foreign and security
policy.
The internal component intends to seek potential synergies at EU and international level in
knowledge management and dissemination of valuable information obtained while
implementing the JRC’s NDWMP and nuclear decommissioning assistance programme in
Lithuania, Slovakia and Bulgaria (NDAP). This will include active knowledge transfer to EU
nuclear safety authorities, decommissioning operators and radioactive waste management
organisations and cooperation with international organisations (e.g. the International Atomic
Energy Agency and the OECD’s Nuclear Energy Agency).
2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY
• Legal basis
The legal basis of this proposal is Article 203 of the Treaty14 establishing the European
Atomic Energy Community (‘the Community’).
Article 203 of the Euratom Treaty15 is the basis of the procedure for the antecedent legal
instruments covering both the internal and the external component. It empowers the Council,
acting on a proposal from the Commission and after consulting the European Parliament, is to
take appropriate measures to pursue the objectives of the Euratom Community.
• Subsidiarity (for non-exclusive competence)
The EU does not have exclusive competence for nuclear safety cooperation with non-EU
10
https://sdgs.un.org/2030agenda
11
The European Green Deal, COM(2019) 640 final, European Commission, Brussels, 11.12.2019.
12
Proposal for a Regulation of the European Parliament and of the Council establishing Global Europe,
2025/551, 16/07/2025. Global Europe - European Commission
13
Proposal for a Council (EU) Decision on the Overseas Association, including Greenland, DG XXX,
xx.x.2025 (to be filled in when the proposal is ready).
14
Consolidated version of the treaty establishing the European Atomic Energy Community (2016/C
203/01), Official Journal of the European Union, 17.6.2016, C 203., p. 1, ELI:
http://data.europa.eu/eli/treaty/euratom_2016/oj).
15
If action by the Community should prove necessary to attain one of the objectives of the Community and
this Treaty has not provided the necessary powers, the Council shall, acting unanimously on a proposal
from the Commission and after consulting the European Parliament, take the appropriate measures.
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countries. Many EU Member States are not only signatories to relevant multilateral treaties
under the umbrella of international organisations (e.g. the International Atomic Energy
Agency, the UN or the OECD’s NEA), but also have bilateral agreements with other countries
on the peaceful use of nuclear energy. These agreements can comprise joint research and
development activities or providing professional assistance in selected areas of nuclear
technology. National nuclear safety regulators often have bilateral cooperation agreements
with regulators in partner countries to promote regulatory information exchange and share
experiences. Besides the World Association of Nuclear Operators, nuclear power plant
operators usually cooperate with each other by means of international ‘users’ clubs’ grouping
the operators of a certain type of nuclear power plant to share operating experience and good
practice.
• Despite this rich palette of multilateral and bilateral cooperation possibilities
available to EU Member States, nuclear safety cooperation with partner countries
under the EU and Euratom Community umbrella offers significant advantages and
can provide added value. The EURATOM’s status as a supranational community
brings political influence, access to multilateral treaties aimed to address global
challenges, and consequent leverage.
• A global presence is provided through the EU delegations, which ensure a network
for obtaining first-hand and reliable information on developments affecting countries
worldwide.
• The Community complements Member States activities in dealing with potentially
dangerous situations or handling particularly expensive interventions.
• The Community can carry out interventions at larger scale, through coordinated
efforts and beyond the possible contributions of individual Member States or other
single donors. For large-scale, ambitious projects like remediation of uranium mining
legacy sites in Central Asia, or actions to continue addressing the effects of the 1986
Chernobyl accident, common EU action creates efficiencies in coordinating funds.
• The Community can leverage the significant joint expertise and reputation of all its
Member States combined.
• The Community makes it possible to fulfil EU legal obligations efficiently by
decommissioning permanently shut down nuclear facilities at the JRC.
For the internal component, bilateral agreements may still play a special role. The European
Commission will conduct bilateral negotiations with each affected host Member State (i.e.
Belgium, Germany, Italy and the Netherlands) to determine whether the Member State would
be prepared to voluntarily take over the involved JRC nuclear facility and continue
implementing the decommissioning programme according to plans. If a host Member State
were willing to enter into such an agreement, the European Commission would still fully
finance the relevant decommissioning programme.
• Proportionality
Compliance with the proportionality principle
Under thethe proportionality principle, any Union action should not go beyond what is
necessary to address the issue in question or meet the objectives outlined in the Treaties. In
this respect, based on the results of various evaluations and available evidence, the INSC and
the NDWMP in the current and previous MFF periods have proven to be efficient tools to
cover the needs of partner countries and the European Commission, as well as the objectives
of the EU in the area of international nuclear safety cooperation and decommissioning.
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In line with the principle of proportionality, the proposed Regulation does not go beyond what
is necessary to achieve its objectives as reflected in the prioritisation of activities and the
budget allocated.
• Choice of the instrument
One of the objectives of the Euratom Treaty is to attain a high level of nuclear safety in the
EU. This should also be achieved outside of the EU. Since the Euratom Treaty has not
provided the necessary powers, appropriate measures must be taken on the basis of
Article 203. The proposed instrument takes the form of a Regulation, ensuring its uniform
application, binding nature in its entirety and direct applicability.
3. RESULTS OF EX POST EVALUATIONS, STAKEHOLDER
CONSULTATIONS AND IMPACT ASSESSMENTS
• Ex post evaluations/fitness checks of existing legislation
Evaluations for the previous and current instruments that will be covered by the INSC-D’s
external component for the MFF 2028-2034 included:
• an external mid-term review evaluating nine EU External Financing Instruments
(EFIs) over the period from 2014 to mid-2017;16
• an independent ex post evaluation of INSC for the 2014-2020 period;17
• the ex-ante impact assessment of the INSC proposal for the 2021-2027 period;18
• the mid-term review of the INSC for the 2021-2027 period19.
The most recent report on the mid-term review of the 2021-2027 external financial
instruments was issued in March 2024. It summarises the results of two distinct procedures: 1)
the final evaluation of the EFIs under the MFF 2014-2020 and 2) the mid-term review of the
EFIs under the 2021-2027 MFF. The following descriptions focus on the results of the mid-
term review for the 2021-2027 MFF period and the previous mid-term review performed in
2017.
All the above reports concluded that the external financing instruments were fit for purpose
and the achievement of objectives was on track. The instruments set the scope, objectives and
procedures for implementing the policies. The reports have also shown that the enabling
nature of the EFIs allows covering most needs and goals of the EU external action.
• The regulation corresponding to the ongoing INSC20 has slightly adjusted the scope
and objectives of the instrument to emphasise transparency and cooperation with
partner countries.
• There is a strong continuity between the INSC regulations corresponding to the
previous and current MFF periods. Despite some new aspects introduced for the
2021-2027 period (e.g. striving for greater nuclear transparency in the partner
countries), the basic logic of the instrument and the modes of operation remained
practically unchanged.
16
External evaluation of the INSC (2014 - mid 2017), GDSI Consortium, June 2017.
17
Evaluation of the INSC 2014-2020, Expert Facility for the INSC, Contract No 2020/419-010, LDK
Consultants Global EEIG, December 2021.
18
Impact assessment accompanying the ‘Proposal for a Regulation (EU) establishing a European
Instrument for Nuclear Safety complementing the NDICI, SWD (2018) 337 final, Brussels, 14.6.2018.
19
Evaluation of the European Union’s External Financing Instruments (2014-2020 and 2021-2027),
Volume I: Synthesis Report and Volume II: Annexes, Particip GmbH Consortium, March 2024.
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• Considering its main objectives (e.g. promoting nuclear safety culture in partner
countries, etc.), the INSC is fully aligned with EU political principles and priorities.
• The ability to set common objectives with the partner countries was identified as an
area of weakness.
• There is a discernible trend to plan and implement fewer, but larger actions and
projects. It is also discernible for the INSC because the number of contracts has been
steadily decreasing since 2014.
• The INSC results framework remained mainly output-oriented, in spite of repeated
efforts to introduce an outcome- and impact-oriented framework.
• The INSC has repeatedly proven its high flexibility through rapidly initiated,
adjusted, stepped-up or suspended cooperation with Belarus, Iran, and especially
Ukraine, thanks to fast budget allocations, and agile coordination.
The report states that there could be possibilities for bringing the INSC more into alignment
with the Instrument for Pre-Accession Assistance and the Neighbourhood, Development And
International Cooperation Instrument – Global Europe (NDICI-GE), and vice versa.
Evaluation findings and the proposed new programme
Evaluation findings Proposed INSC-D
As a worldwide instrument with a global Enabling instrument: Based on lessons learned
outreach, the INSC positions the EU as a from the INSC, improvements are proposed to
leading actor in nuclear safety and allow more flexibility and enable the EU to
safeguards cooperation, both through intervene in future unforeseen circumstances.
bilateral partnerships and as part of the
international architecture. These changes were motivated by the feedback
provided during the mid-term review, recent
The INSC allows the EU to engage in technological developments in the peaceful use
policy-level dialogue with partner of nuclear energy, geopolitical changes in the
countries, particularly in the EU past years and by efforts to improve the
neighbourhood region, where nuclear management and implementation of the
safety issues may potentially have instrument.
significant implications for the EU
Member States and the security of
European citizens.
Streamlining instruments resulted in a Further streamlining of the external financing
simplified EFI structure and more unified instruments: In the 2014-2020 MFF several
programming processes, using unified independent EFIs operated under the Global
multiannual indicative programme Europe heading. When designing the 2021-
templates, etc. 2027 MFF, the Commission streamlined the
EFIs to ensure better recognition of changed
The transition between the previous and geopolitical realities and better management of
currently ongoing EFIs was not seamless, related programmes. As the result of this
because time pressure in 2021 and simplification, 11 previously separate
capacity constraints meant the EU instruments were placed under the NDICI-GE.
prioritised progress in programming and The INSC, as a special-purpose instrument with
delivery over introducing internal Euratom legal basis, stayed separate from
institutional changes. External
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circumstances (e.g. final phase of NDICI-GE.
COVID-19) further compounded the
situation already stressed by high staff Further streamlining of EFIs is proposed in the
turn-over and lack of sufficient resources. next 2028-2034 MFF as Global Europe will
build on NDICI-Global Europe, the IPA III
instrument for pre-accession assistance, the
Ukraine Facility, the Reform and Growth
Facility for the Western Balkans, and the
Reform and Growth Facility for the Republic of
Moldova.
The evaluation confirmed that keeping Merging INSC with JRC decommissioning: The
the INSC as a separate instrument – due INSC is merged with JRC decommissioning.
to its very specialised, technical nature The proposed INSC-D merges two regulations
and its different legal basis – was an into a single instrument.
adequate decision.
An external component will complement
More consistency is needed between Global Europe and pursue similar objectives to
parts of a specific instrument, between the current INSC.
different instruments, as well as with An internal component will pursue the
donors. objectives of the JRC’s nuclear
decommissioning and waste management
programme (NDWMP).
Recent evaluations performed for the JRC decommissioning programme
The JRC’s internal audit service audited the NDWMP in 2024 and made six recommendations
to improve the programme’s implementation. The JRC submitted an action plan that was
agreed and implemented to address all issues:
• JRC oversight arrangements (important);
• JRC internal organisation of NDWMP responsibilities (very important);
• decommissioning plans for the JRC sites (very important);
• cost estimates for decommissioning the JRC nuclear sites (very important);
• NDWMP budget flexibility needs (very important);
• human resources planning and allocation (important).
Stakeholder consultations
Open public consultation
In line with the respective rules, the Commission has carried out an open public consultation
on the EU funding for external action under next MFF20. The results of this consultation for
the INSC were as follows:
About 50% of the respondents were positive about the objectives of the INSC and agreed to a
large extent or somewhat with the INSC objectives21. Only 13% of the respondents were
completely against it and 27% did not have a definite (either positive or negative) opinion.
20
Open Public Consultation, EU’s next long-term budget (MFF) – EU funding for external action, 2025.
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14522-EUs-next-long-term-
budget-MFF-EU-funding-for-external-action_en
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The above results indicate that most of the respondents support providing EU assistance to
partner countries in the area of nuclear and radiation safety and safeguards.
Consultations with other stakeholders
Results synthesised from stakeholder consultations were used to complement the conclusions
subtracted from documentary evidence. When drafting evaluation documents that constituted
the basis of the 2021-2024 mid-term review report assessing EFIs, the following types of
consultations with stakeholders were held:
• In-person and remote semi-structured interviews with about 350 key stakeholders,
including staff from the European Commission (working in its Secretariat-General
and Directorates-General such as International Partnerships, Neighbourhood and
Enlargement Negotiations, Foreign Policy Instruments, etc.), from the European
External Action Service, and from EU Delegations.
• External stakeholders such as representatives from UN agencies, EU Member States
and partner country governments were also interviewed.
• The Commission organised targeted consultations with specific stakeholder groups,
constituted by experts from EU Member States and representatives of relevant UN
agencies and international financial institutions, among others.
• Three e-Surveys supplemented the above consultations, providing voluntary
additional contributions mainly from the EU Delegations.
The main messages communicated by the stakeholders consulted are summarised in Annex III
of Volume II of the mid-term review report. The details are not repeated here and for the sake
of brevity only the most important points are quoted.
Stakeholders agreed that the EFIs should be more flexible in responding to crises and sudden
changes in the geopolitical situation. It was also emphasised that a greater consistency must
be ensured between the internal and external policies of the EU and between the EFIs
themselves. The substantial contribution of the EFIs to the Sustainable Development Goals of
the 2030 Agenda was generally acknowledged and it was pointed out that organising activities
around the SDGs tend to increase consistency between internal and external policies.
The introduction of the new broad instrument (NDICI-Global Europe) in the current MFF was
generally welcomed and further simplification of the overall architecture of the EFIs was
encouraged. Addressing thematic dimensions in geographic programmes was also positively
received and there was a general agreement that the combination of geographic and thematic
programmes tends to bring positive results.
Consistency and complementarity of the INSC-D proposal with Global Europe will be
ensured, primarily by implementing international cooperation activities related to the peaceful
use of nuclear energy in areas that are ancillary to the broader objectives of Global Europe, in
line with the development and international cooperation policy for health, agriculture,
industry and social projects.
• Collection and use of expertise for the INSC
The three evaluation reports referred to before were prepared as part of independent
assessments conducted between 2017 and 2024 by selected consortia consisting of
distinguished external expert companies. In addition to documentary evidence, the
21
These objectives were: support the strengthening of nuclear safety, radiation protection, radioactive
waste management and nuclear safeguards with beneficiary countries located across the EU
neighbourhood region and beyond.
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assessments relied on extensive in-person and remote consultations, which also included a
large number of European Commission staff members. Even though a considerable part of the
information included in the evaluation reports directly from Commission employees, the
reports reflect the conclusions of independent external experts and by no means be considered
as Commission self-assessment reports.
All the above-mentioned assessment reports are publicly available.
As far as the opinion of relevant international professional organisations on the EU nuclear
safety cooperation with partner countries is concerned, the 7th IAEA Convention on Nuclear
Safety Review Meeting in 2017 officially acknowledged the outstanding added value of the
INSC by declaring that ‘the implementation of the instrument for nuclear safety cooperation
programme for assisting non-EU countries was identified as a good practice’22.
During the past three decades, the Euratom Community systematically applied the INSC as an
efficient tool to achieve and maintain a high level of nuclear safety, radiation protection and
efficient safeguards in partner countries. The role of the INSC in transferring regulations and
best practices of the Community has also been recognised by the European Nuclear Safety
Regulators Group (ENSREG) in its position paper23 on the INSC. The ENSREG also created
a working group to comment on the INSC multiannual indicative programmes, review mid-
term reports of the instrument, and make proposals on the necessity and feasibility of potential
projects assisting partner countries.
Use of external expertise for the JRC decommissioning programme
The JRC’s nuclear decommissioning and waste management programme underwent a mid-
term evaluation in 2024. Its findings and recommendations24 are as follows:
Findings
• Significant progress in stakeholder management has been seen at JRC sites.
• Safe retrieval, treatment and storage of historical wastes has progressed at JRC Ispra
and Petten.
• Due to the time-dependent nature of many costs, project delays are synonymous with
cost increases, although the ‘earned value management’ monitoring indicators show
that the programme is overall financially efficient.
• The governance framework is fit for purpose and adapted to the objectives of the
NDWMP.
• The implementation of the NDWMP is in line with the EU acquis and EU and
national legislation and policies.
• Knowledge products have been produced in line with targets across all NPP sites.
• The knowledge management has encouraged the collaboration and the sharing of
information among the three nuclear decommissioning assistance programmes.
22
Rapporteur’s Report for Euratom of 29 March 2017 in the 7th Review Meeting under the Convention on
Nuclear Safety.
23
ENSREG – INSC Position paper (2014-26)_133, https://www.ensreg.eu/international-cooperation.
24
Interim evaluation of the programmes for the decommissioning of nuclear facilities and the
management of radioactive waste, European Commission Directorate-General for Energy, Revised Final Report
and Annexes, April 2025.
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Recommendations
• Anticipate and prepare the licensing demands through early engagement of the
regulator to limit their impact on the programme’s delivery.
• Improve the procurement organisational capacities.
• Develop and implement monitoring indicators to measure the impact of the use of the
knowledge products developed within the NDWMP and NDAP.
• Ex ante evaluation
The Better Regulation Tool #9 states that ‘programmes that provide continuity as regards their
broad content and structure and are small’ require only an ex-ante evaluation. As a result,
comprehensive ex ante evaluation report25 was prepared to accompany the INSC-D proposal
analysing the effects of different policy options.
The analysis has shown that only one option26 is able to satisfy all the relevant requirements.
The impacts of past and ongoing nuclear safety cooperation components and the expected
impact of the INSC-D in the partner countries can be summarised as follows:
• enhanced regulatory capacities and capabilities of the national nuclear
regulator;
• creation or further development of a competent technical support organisation
assisting the nuclear regulator;
• implementation of a national nuclear emergency response centre equipped with
state-of-the-art accident diagnosis, prognosis and decision support tools;
• creation or further development of a national radiation monitoring system with
early warning capabilities;
• provision of comprehensive training and tutoring to regulators and technical
support organisation experts;
• participation in the EU stress-tests and the following ENSREG peer-review;
• remediation of legacy sites contaminated with radioactive material.
For JRC decommissioning activities, the implementation of the NDWMP effectively
improved the nuclear and radiation safety at the JRC sites involved for the benefit of EU
citizens and the environment.
It is expected that by continuing the NDWMP:
• the legal obligations and commitments of the EC will be duly fulfilled;
• the nuclear and radiation hazards at the involved JRC sites will be further
reduced;
• the complete release of involved facilities from regulatory control will be
achieved in the final programme implementation phase;
25
Ex ante evaluation of a new instrument combining the current European Instrument for International
Nuclear Safety Cooperation with the JRC decommissioning activities, SWD (2025) XXX, Brussels,
June 2025.
26
Option d) = merging with another EC instrument under the same legal basis.
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• considerable technological know-how and practical knowledge will be created
and shared with EU stakeholders involved in decommissioning and waste
management.
For the internal component implementing the nuclear decommissioning and waste
management programme, the JRC has started investigating the option of transferring the
nuclear liability to the host Member States (Italy and the Netherlands). This has not yet been
decided, but the option to negotiate this is included in the new basic act with a proposed
deadline of two years after the entry into force of the Instrument.
The NDWMP gives the local economy opportunities to contribute to the implementation of
the programme through participation in open call for tenders in the multi-faceted areas of
expertise entailed by decommissioning and waste management. The opportunities that
decommissioning activities offer help both skills development and social development.
Moreover, decommissioning obsolete nuclear facilities and addressing radioactive waste
management issues by applying the best international standards using state-of-the-art
methodologies contributes to a safer and cleaner environment. The programme helps protect
people and the environment from radioactivity-related hazards.
Explanation of policy choices
When developing the INSC-D proposal, several policy options were investigated.
Option A - the baseline (keep two separate instruments). This was rejected as contradicting
the Commission’s simplification goals.
Option B - ending the programme. This was rejected due to its high risk of diminishing EU
influence in global nuclear safety cooperation and conflicting with Euratom’s legal and
political obligations.
Option C - full integration with another EU instrument. This was rejected due to legal barriers
stemming from the Euratom Treaty, which prevented merging nuclear safety activities with,
for instance, Global Europe.
Option D - merging the two Euratom instruments. This was selected as the preferred solution.
It met all the requirements: aligning with the Euratom Treaty’s legal framework, adhering to
EU external action procedures, and advancing the Commission’s simplification agenda. By
consolidating international nuclear safety cooperation and JRC decommissioning obligations
into a single instrument, this option ensured feasibility, consistency, and regulatory efficiency,
making it the optimal choice for the INSC-D proposal.
• Simplification
The proposed INSC-D formally merges two previously separate regulations into a single
instrument. This merger is motivated and justified by multiple strategic and regulatory factors,
e.g. by the regulation simplification goals of the Commission and the Better Regulation
agenda. According to the simplification principles for the next MFF, overlapping processes
and potential administrative burdens should be eliminated by bringing together programmes
which may require similar technical and/or logistical support.
This merger is made possible by the same legal basis (Euratom). The MFF simplification
efforts aim at reducing complexity within the EU for better transparency and coordination and
for creating a simpler regulatory and financial framework for stakeholders (agencies, Member
States, contractors). The merger also aligns with the ‘joined-up governance’ principle of the
EN 11 EN
new European innovation agenda, promoting cross-agency collaboration over fragmented
approaches.
Merging an instrument (the INSC) and a programme (NDWMP) that were initially separate,
but which belong to the same legal basis and share common objectives, contributes to the
simplification promoted by the European Commission.
• Fundamental rights
The instrument has no impact on fundamental rights.
4. BUDGETARY IMPLICATIONS
In its Communication of 16 June July 202527, the European Commission proposed to allocate
EUR 966.000.000 to the INSC-D Instrument.
5. OTHER ASPECTS
• Implementation plans and monitoring, evaluation and reporting arrangements
The implementation of the INSC-D will be monitored by means of the performance
framework for the post-2027 budget. This framework provides for an implementation report
during the implementation phase and a retrospective evaluation to be performed in accordance
with Article 34(3) of Regulation 2024/250928. The evaluation willmust be conducted in
accordance with the Better Regulation Guidelines29 and will be based on indicators relevant to
the instrument’s objectives.
The methodological rationale behind the use of a common performance framework is that
applying performance indicators aggregated across programmes can considerably simplify the
various reporting obligations for all future MFF programmes. It is anticipated that this
approach will make it possible to significantly reduce the administrative burden by reducing
the number of indicators and by attributing indicators to each intervention field.
• Geographic scope
The geographic scope of the external component of the proposed INSC-D is worldwide.
However, priority will be given to persons and entities from acceding countries, candidate
countries, including Ukraine, potential candidate countries, and European Neighbourhood
Policy countries.
The geographic scope of the internal component is limited to the JRC sites involved in the
JRC decommissioning activities, i.e. Geel in Belgium, Ispra in Italy, Karlsruhe in Germany
and Petten in the Netherlands.
27
A dynamic EU Budget for the priorities of the future - The Multiannual Financial Framework 2028-
2034, COM(2025) 570 final.
28
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (recast), Brussels, 26.9.2024.
29
Better Regulation Guidelines, SWD (2021) 305 final, Brussels, 3.11.2021.
EN 12 EN
2025/0265 (CNS)
Proposal for a
COUNCIL REGULATION
establishing the Instrument for Nuclear Safety Cooperation and Decommissioning for
the period 2028-2034 and repealing Regulations (Euratom) 2021/100 and (Euratom)
2021/948
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty establishing the European Atomic Energy Community, and in
particular Article 203 thereof,
Having regard to the proposal from the European Commission,
Having regard to the opinion of the European Parliament30,
Whereas:
(1) The purpose of this Regulation is to establish the rules and the procedures for the
nuclear safety cooperation and decommissioning activities carried out by the European
Atomic Energy Community (‘the Community’) under the Instrument for Nuclear
Safety Cooperation and Decommissioning (the ‘Instrument’).
(1) In order to maintain and promote the continuous improvement of nuclear safety and
the regulation thereof, the Council adopted Directive 2009/71/Euratom31. That
Directive and the high standards of nuclear safety, radiation protection, and radioactive
waste and spent fuel management implemented in the Community are examples to be
used in order to encourage partner countries to adopt similar high standards.
(2) The Community and its Member States are contracting parties to the Convention on
Nuclear Safety adopted on 17 June 199432 and the Joint Convention on the Safety of
Spent Fuel Management and on the Safety of Radioactive Waste Management adopted
on 5 September 199733.
(3) The Member States are parties to the Treaty on the Non-Proliferation of Nuclear
Weapons (NPT)34, concluded a Comprehensive Safeguards Agreement and signed an
Additional Protocol to that agreement with the International Atomic Energy Agency35.
30
Opinion of …, OJ ….
31
Council Directive 2009/71/ Euratom of 25 June 2009 establishing a Community framework for the
nuclear safety of nuclear installations (OJ L 172 2.7.2009, p. 18, ELI:
http://data.europa.eu/eli/dir/2009/71/oj).
32
OJ L 318, 11.12.1999, p. 21, ELI: http://data.europa.eu/eli/convention/1999/819/oj.
33
International Atomic Energy Agency (IAEA), Joint Convention on the Safety of Spent Fuel
Management and on the Safety of Radioactive Waste Management, adopted 5 September 1997, entered
into force 18 June 2001. Available at: https://www.iaea.org/topics/nuclear-safety-conventions/joint-
convention-safety-spent-fuel-management-and-safety-radioactive-waste
34
Treaty on the Non-Proliferation of Nuclear Weapons (NPT), opened for signature 1 July 1968, entered
into force 5 March 1970, 729 U.N.T.S. 161. Available at:
https://www.un.org/disarmament/wmd/nuclear/npt/.
EN 13 EN
(4) Since the Treaty establishing the European Atomic Energy Community (‘the Euratom
Treaty’) covers both internal and external policies and provides for synergies between
the two, this Instrument has two components addressing respectively external and
internal activities.
(5) The Instrument’s external component should support activities in international nuclear
safety cooperation, building on the actions previously supported under Council
Regulation (Euratom) 2021/94836. The external component is consistent with and
complements the external action supported under Regulation (EU) 202X/XXXX
[Global Europe]. 37
(6) The Instrument’s internal component should support activities in the area of the
Commission’s decommissioning and management of radioactive waste (the JRC
decommissioning and waste management programme), addressing the Commission’s
nuclear liabilities coming from past nuclear research performed at the Joint Research
Centre (JRC) sites, namely JRC-Geel in Belgium, JRC-Karlsruhe in Germany, JRC-
Ispra in Italy and JRC-Petten in the Netherlands, building on the actions previously
supported under Council Regulation (Euratom) 2021/10038.
(7) Programme evaluations have shown that the complex Union funding architecture is a
factor hindering the impact of the Union budget, due to administrative burden.
Therefore, the activities carried out in the field of international nuclear safety
cooperation and decommissioning of JRC nuclear research facilities under Regulations
(Euratom) 2021/100 and (Euratom) 2021/948 should be regrouped to be governed by a
single legal act.
(8) The general objective of the Instrument is to contribute to a high level of nuclear
safety, radiation protection, safe management of spent fuel and radioactive waste,
decommissioning and the application of efficient and effective safeguards of nuclear
materials.
(9) This Regulation also aims to provide increased flexibility in the programming
approach, including among aid modalities and eligible entities, to respond to
unpredicted needs as identified across evaluations and consultations under Regulation
(Euratom) 2021/948.
(10) Cooperation provided by the Community under this Regulation is not aimed at
promoting nuclear energy in partner countries39.
35
Model Additional Protocol to the Agreement(s) Between State(s) and the International Atomic Energy
Agency for the Application of Safeguards (INFCIRC/540), approved by the IAEA Board of Governors
15 May 1997. Available online in: INFCIRC/540 - Model Protocol Additional to the Agreement(s)
Between State(s) and the International Atomic Energy Agency for the Application of Safeguards
36
Council Regulation (Euratom) 2021/948 of 27 May 2021 establishing a European Instrument for
International Nuclear Safety Cooperation complementing the Neighbourhood, Development and
International Cooperation Instrument – Global Europe on the basis of the Treaty establishing the
European Atomic Energy Community, and repealing Regulation (Euratom) No 237/2014 (OJ L 209,
14.6.2021, p. 79, ELI: http://data.europa.eu/eli/reg/2021/948/oj).
37
Regulation (EU) …/… [Global Europe] of the European Parliament and of the Council establishing the
Global Europe instrument (OJ, …, … ELI: …).
38
Council Regulation (Euratom) 2021/100 of 25 January 2021 establishing a dedicated financial
programme for the decommissioning of nuclear facilities and the management of radioactive waste, and
repealing Regulation (Euratom) No 1368/2013 (OJ L 34, 1.2.2021, p. 3, ELI:
http://data.europa.eu/eli/reg/2021/100/oj).
39
Council Regulation (Euratom) 2021/948 of 27 May 2021 establishing a European Instrument for
International Nuclear Safety Cooperation complementing the Neighbourhood, Development and
EN 14 EN
(11) This Regulation lays down an indicative financial envelope for the overall Instrument.
For the purpose of this Regulation, current prices are calculated by applying a fixed
2% deflator.
(12) In a rapidly changing economic, social and geopolitical environment, recent
experience has shown the need for a more flexible multiannual financial framework
and Union spending programmes. To that effect, and in line with the objectives of this
Regulation, the funding should duly consider the evolving policy needs and Union’s
priorities as identified in relevant documents published by the Commission, in Council
conclusions and European Parliament resolutions while ensuring sufficient
predictability for the budget implementation.
(13) Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council40
applies to the Instrument. It lays down the rules on the establishment and the
implementation of the general budget of the Union, including the rules on grants,
prizes, non-financial donations, procurement, and indirect management in the form of
financial instruments and budgetary guarantees.
(14) The amount of the appropriations allocated to the Instrument as well as the
programming period and the distribution of funds among the various activities should
be reviewed based on the results of the evaluation carried out pursuant to Article 10 of
Regulation (EU, Euratom) 202X/XXXX of the European Parliament and of the
Council 41[Performance Regulation].
(15) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)
No 883/2013 of the European Parliament and of the Council42, Council Regulations
(EC, Euratom) No 2988/9543, (Euratom, EC) No 2185/9644 and (EU) 2017/193945, the
financial interests of the Union are to be protected through proportionate measures,
including the prevention, detection, correction and investigation of irregularities and
fraud, the recovery of funds lost, wrongly paid or incorrectly used and, where
appropriate, the imposition of administrative sanctions. In particular, in accordance
with Regulations (EU, Euratom) No 883/2013 and (Euratom, EC) No 2185/96, the
European Anti-Fraud Office (OLAF) may carry out investigations, including on-the-
International Cooperation Instrument – Global Europe on the basis of the Treaty establishing the
European Atomic Energy Community, and repealing Regulation (Euratom) No 237/2014 (OJ L 209,
14.6.2021, p. 79, ELI: http://data.europa.eu/eli/reg/2021/948/oj).
40
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,
ELI: http://data.europa.eu/eli/reg/2024/2509/OJ).
41
Regulation (EU) (EU, Euratom) …/… [Performance Regulation] (OJ, …, … ELI: …).
42
Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of
11 September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF)
and repealing Regulation (EC) No 1073/1999 of the European Parliament and of the Council and
Council Regulation (Euratom) No 1074/1999 (OJ L 248, 18.9.2013, p. 1,
ELI: http://data.europa.eu/eli/reg/2013/883/oj).
43
Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European
Communities financial interests (OJ L 312, 23.12.95,
p. 1,ELI: http://data.europa.eu/eli/reg/1995/2988/oj).)
44
Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks
and inspections carried out by the Commission in order to protect the European Communities’ financial
interests against fraud and other irregularities (OJ L 292., 15.11.96,
p. 2,ELI: http://data.europa.eu/eli/reg/1996/2185/oj).).
45
Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the
establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L 283, 31.10.2017, p. 1,
ELI: http://data.europa.eu/eli/reg/2017/1939/OJ).
EN 15 EN
spot checks and inspections, with a view to establishing whether there has been fraud,
corruption or any other illegal activity affecting the financial interests of the Union. In
accordance with Regulation (EU) 2017/1939, the European Public Prosecutor’s Office
(EPPO) may investigate and prosecute fraud and other illegal activities affecting the
financial interests of the Union as provided for in Directive (EU) 2017/1371 of the
European Parliament and of the Council46. In accordance with Regulation (EU,
Euratom) 2024/2509, any person or entity receiving Union funds is to fully cooperate
in the protection of the Union’s financial interests, to grant the necessary rights and
access to the Commission, OLAF, EPPO and the European Court of Auditors and to
ensure that any third parties involved in the implementation of Union funds grant
equivalent rights.
(16) The Instrument is to be implemented in accordance with Regulation (EU, Euratom)
202X/XXXX [Performance Regulation], which lays down rules for expenditure
tracking and the performance framework for the budget, including rules for ensuring a
uniform application of the principles of ‘do no significant harm’ and gender equality
referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509
respectively, rules for monitoring and reporting on the performance of Union
programmes and activities, rules for establishing a Union funding portal and rules for
the evaluation of the programmes, as well as other horizontal provisions applicable to
all Union programmes such as those on information, communication and visibility.
(17) The forms and methods of implementation of Union funding laid down in this
Regulation should be chosen on the basis of their ability to achieve the specific
objectives of the actions and to deliver results, taking into account, in particular, the
costs of controls, the administrative burden, and the expected risk of non-compliance.
That should include consideration of the use of lump sums, flat rates and unit costs, as
well as financing not linked to costs as referred to in Article 125(1), point (a), of
Regulation (EU, Euratom) 2024/2509.
(18) Coordination of the activities implemented under this Regulation should be achieved
via ongoing work and dialogue with Member States, partner countries and their
relevant authorities, in particular the competent regulatory authorities in the field of
nuclear safety, safeguards and decommissioning to avoid duplication.
(19) To ensure consistent external action implementation, the rules and procedures laid
down in Regulation (EU) 202X/XXXX [Global Europe] should apply to the
implementation of the Instrument’s external component, where appropriate, and the
implementing provisions under this Regulation should refer to the provisions provided
for in that Regulation.
(20) For the Instrument’s external component, annual or multiannual action plans and
measures referred to in this Regulation should constitute work programmes within the
meaning of Regulation (EU, Euratom) 2024/2509. Annual or multiannual action plans
should consist of a set of measures grouped into one document.
(21) The Commission should adopt multiannual indicative programmes that are consistent
with and complement the multiannual indicative programmes referred to in Chapter 1
of Regulation (EU) 202X/XXXX [Global Europe].
46
Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight
against fraud to the Union’s financial interests by means of criminal law (OJ L 198, 28.7.2017,
p. 29,ELI: http://data.europa.eu/eli/dir/2017/1371/oj).
EN 16 EN
(22) The overall policy framework for the implementation of the external component of the
Instrument should be constituted by the policies as set out in association agreements,
partnership and cooperation agreements, multilateral agreements, nuclear cooperation
agreements, memoranda of understanding, and other agreements that establish a
relationship between the Community and its partner countries, as well as European
Council conclusions and Council conclusions, summit declarations, conclusions of
high-level meetings with partner countries, communications from the Commission and
joint communications from the Commission and the High Representative of the Union
for Foreign Affairs and Security Policy.
(23) The external component of the Instrument may finance actions in any partner countries
in compliance with the criteria set out in this Regulation. Priority should be given to
persons and entities from acceding countries, candidate countries, including Ukraine,
potential candidate countries, and European Neighbourhood Policy countries.
(24) International Cooperation will be based on the Fundamental Safety Principles as
stipulated in the IAEA safety standards.
(25) Considering the continued need for safety improvement for the peaceful use of nuclear
energy in partner countries, the Instrument should pursue the objectives of promotion
of the highest level of nuclear safety, radiation protection, safe management of spent
fuel and radioactive waste and the application of efficient and effective nuclear
safeguards in partner countries. This includes remediation of radiologically
contaminated legacy sites and enhancing regulatory capacity.
(26) Considering that the peaceful uses of nuclear energy continue to develop, the
Instrument should be fit to carry out activities in emerging fields related to nuclear
safety and emergency preparedness and response, for instance by contributing to the
safety of small and modular reactors and radiological protection in new radiological
medical applications.
(27) Russia’s war of aggression against Ukraine is causing damages to the Ukrainian
infrastructure, including to the country’s nuclear power facilities, as shown by the
drone attack on 14 February 2025 to the Chernobyl’s New Safe Confinement. As
regards Union support for Ukraine-related needs in the field of nuclear safety,
appropriations mobilised from the Ukraine Reserve referred to in Article 6 of Council
Regulation (EU, Euratom) 202X/XXXX [MFF Regulation] may be made available for
support provided under the external component of the Instrument in the form of non-
repayable support, financial instruments and provisioning of the budgetary guarantee.
Support provided to Ukraine under the external component of the Instrument of this
Regulation in the form of loans under Council decision 77/270/Euratom should be
provided within the amount established in Council decision 77/270/Euratom and
ceiling referred to in Article 6 (2), second sub-paragraph of the Global Europe
regulation. If those loans are to be provided to Ukraine as sovereign state, they should
be covered by the guarantee provided in accordance with Article 2(3), second
subparagraph of Council Regulation (EU, Euratom) 202X/XXXX [MFF Regulation].
Accordingly, it is appropriate to provide for derogation from Article 214(1) of
Regulation (EU, Euratom) 2024/2509 and set no provisioning rate for those loans to
Ukraine as provided by Article 24 (3), last paragraph of the Global Europe Regulation.
(28) With a view to ensuring consistency, the budgetary guarantee and financial
instruments, including when combined with non-repayable support in blending
operations, under the external component of the Instrument should be implemented in
accordance with the applicable rules of Regulation (EU) 202X/XXXX [Global
EN 17 EN
Europe] through agreements concluded for that type of support under Global Europe
delivery mechanisms.
(29) For the external component, where Union support under the Instrument is to be
provided in the form of a budgetary guarantee or a financial instrument, including
where combined with non-repayable support in a blending operation, it is necessary
that such support is provided exclusively through the Global Europe delivery
mechanisms in accordance with the applicable rules of the Global Europe delivery
mechanisms.
(30) Close cooperation with international organisations pursuing objectives similar to those
of the Instrument, as referred to in Chapter 10 Title II of the Euratom Treaty, in
particular with the International Atomic Energy Agency (IAEA), is considered
necessary for a successful cooperation on nuclear safety.
(31) The most efficient use of available resources can be achieved through coherence and
complementarity between the Union’s external financing instruments, as well as
through the creation of synergies with other Union policies and programmes. In order
to maximise the impact of combined interventions to achieve a common objective, this
Regulation should allow for the combination of funding with other Community and
Union programmes, provided that the contributions do not cover the same costs.
(32) The previous financial programme under Regulation (Euratom) 2021/100
demonstrated the additional Community added value by the collection and the
dissemination of knowledge. On the basis of Article 8 of the Euratom Treaty, and
pursuant to Article 7 of Council Directive 2011/70/Euratom47, the JRC is responsible
for managing its historical nuclear liabilities and decommission its nuclear
installations that have been shut down in accordance with the relevant national
legislation. Accordingly, the Nuclear Decommissioning and Waste Management
Programme at the JRC was launched in 1999 with a communication to the European
Parliament and the Council48, and since then the Commission has provided regular
updates on the progress of that programme49
(33) The Commission has concluded that the best option to satisfy requirements stemming
from Article 5(1), point (f), and Article 7 of Council Directive 2011/70/Euratom is to
pursue a strategy combining decommissioning and radioactive waste management
activities while initiating the discussions between the JRC and host Member States
regarding a potential transfer of the decommissioning and spent fuel and radioactive
waste management liabilities in the case of mutual agreements between the
Commission and the host Member States. The JRC should provide for and maintain
adequate resources to fulfil its obligations with respect to decommissioning and the
safety of spent fuel and radioactive waste management.
(34) In order to ensure uniform conditions for the implementation of this Regulation,
implementing powers should be conferred on the Commission. Those powers should
47
Council Directive 2011/70/Euratom of 19 July 2011 establishing a Community framework for the
responsible and safe management of spent fuel and radioactive waste (OJ L 199, 2.8.2011, p. 48, ELI:
http://data.europa.eu/eli/dir/2011/70/oj).
.
48
Communication from the Commission to the European Parliament and the Council of 17 March 1999 on the
decommissioning of obsolete nuclear installations and waste management: Historical liabilities resulting from
nuclear activities carried out at the JRC under the Euratom Treaty (COM (1999) 114 final).
.
49
SEC(2004) 624, COM(2008) 903 and COM(2013) 734.
EN 18 EN
be exercised in accordance with Regulation (EU) No 182/2011 of the European
Parliament and of the Council50.
(35) The Commission should immediately adopt applicable implementing acts to adopt or
amend annual or multi-annual action plans and measures under the Instrument’s
external component where, in duly justified cases relating to the need of a swift
response by the Community, imperative grounds of urgency so require.
(36) In accordance with Article 9 of Council Decision 2010/427/EU, the High
Representative, in its capacity of Vice-President of the Commission, shall ensure the
overall political coordination of the Union’s external action, ensuring its unity,
consistency and effectiveness, in particular through the implementation of the present
Instrument.
(37) The references to external assistance instruments in Council Decision
2010/427/EU51 should be read as references to this Regulation and to the Regulations
referred to herein. The Commission should ensure that this Regulation is implemented
in accordance with the role of the European External Action Service as provided for in
that Decision.
(38) In order to ensure continuity in providing support to the relevant policy areas and to
allow implementation to start from the beginning of the multiannual financial
framework 2028-2034, this Regulation should apply from 1 January 2028.
(39) In the framework of the Union’s restrictive measures, adopted on the basis of Article
29 TEU and Article 215(2) TFEU, no funds or economic resources may be made
available, directly or indirectly, to or for the benefit of designated natural or legal
persons, entities or bodies. Therefore, such natural or legal persons, entities or bodies,
as well as legal persons, entities or bodies owned or controlled by them should not be
supported.
(40) Regulations (Euratom) 2021/100 and (Euratom) 2021/948 should therefore be
repealed,
HAS ADOPTED THIS REGULATION:
CHAPTER I
GENERAL PROVISIONS
50
Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011 laying down the
rules and general principles concerning mechanisms for control by Member States of the Commission’s exercise of
implementing powers (OJ L 55, 28.2.2011, p. 13, ELI: http://data.europa.eu/eli/reg/2011/182/oj).
.
51
Council Decision 2010/427/EU of 26 July 2010 establishing the organisation and functioning of the European
External Action Service (OJ L 201, 3.8.2010, p. 30, ELI: http://data.europa.eu/eli/dec/2010/427/oj).
EN 19 EN
Article 1
Subject matter
This Regulation establishes the Instrument for Nuclear Safety Cooperation and
Decommissioning (the ‘Instrument’) and lays down the objectives of the Instrument, its
indicative budget for the period from 1 January 2028 to 31 December 2034, the forms of
Union funding and the rules for providing such funding under the Instrument. It also
addresses the specificities of each of the Instrument’s two components: the external
component and the internal component.
Article 2
Instrument objectives
1. The general objective of the Instrument’s external component is to contribute to a
high level of nuclear safety, radiation protection, safe management of spent fuel and
radioactive waste, decommissioning and the application of efficient and effective
safeguards of nuclear materials in partner countries, in complementarity with
Regulation (EU) 202X/XXXX [Global Europe], and building on the activities within
the Community including the relevant Euratom regulatory framework.
2. The general objective of the Instrument’s internal component is to support the
decommissioning of the Commission’s nuclear installations at the Joint Research
Centre (JRC) sites, in line with the needs identified in the respective
decommissioning plans and to safely manage the associated spent fuel, nuclear
material and radioactive waste. In addition, the Instrument shall support knowledge
deriving from the nuclear decommissioning process and the management of the
resulting radioactive waste that will be shared with the Community’s stakeholders.
3. The Instrument’s external component has the following specific objectives:
(a) to promote an effective nuclear safety and radiation protection culture, and the
implementation of the highest nuclear safety and radiation protection standards,
including for security of supplies, emergency preparedness and response,
capacity development and transparency in decision-making processes of the
authorities in partner countries;
(b) to support responsible and safe management of spent fuel and radioactive
waste and the decommissioning and remediation of former nuclear sites and
installations in partner countries;
(c) to strengthen efficient and effective safeguards for nuclear material in partner
countries.
4. The Instrument’s internal component has the following specific objectives:
(a) to support the decommissioning plan and to carry out the activities in
accordance with the national law of the host Member State for the dismantling
and decontamination of the Commission’s nuclear installations at the JRC
sites, to carry out the safe management of associated radioactive waste and,
where appropriate, to prepare the optional transfer of the related nuclear
liabilities from the JRC to the host Member State;
EN 20 EN
(b) for the JRC to continue developing ties and exchanges among Union
stakeholders on nuclear decommissioning, with a view to ensuring the
dissemination of knowledge and the sharing of experience in all relevant areas,
such as regulation and training, and developing potential Union synergies.
The transfer referred to in the first subparagraph, point (a), shall be voluntary for any host
Member State and subject to a bilateral agreement concluded between the Commission and
the host Member State. That bilateral agreement shall stipulate that all costs of the
decommissioning of the Commission’s nuclear installations at the JRC sites and storage of the
associated radioactive waste are to be paid by the Community and shall fully comply with
Directive 2011/70/Euratom. The nnegotiation between the Commission and the host Member
State shall be concluded within two years from the date of entry into force of this Regulation.
Article 3
Budget
1. The indicative financial envelope for the implementation of the Instrument for the
period from 1 January 2028 to 31 December 2034 shall be EUR 966 000 000 in
current prices.
2. Additionally, financial resources for Ukraine mobilised through article 6 (2) of
Regulation (EU) 202X/XXXX [Global Europe] from the Ukraine Reserve in
accordance with Article 6 of Regulation (EU, Euratom) 202X/XXXX [MFF
Regulation] may be used, where appropriate, to provide for Union support to Ukraine
under this Regulation.
3. Appropriations may be entered in the Union budget beyond 2034 to cover the
expenses necessary and to enable the management of actions not completed by the
end of the Instrument.
4. The financial envelope referred to in paragraph 1 of this Article, the financial
resources referred to in paragraph 2 of this Article and the amounts of additional
resources referred to in Article 3 may also be used for technical and administrative
assistance for the implementation of the Instrument, such as preparatory, monitoring,
control, audit and evaluation activities, corporate information technology systems
and platforms, information, visibility and communication activities, including
corporate communication on the political priorities of the Union and all other
technical and administrative assistance or staff-related expenses incurred by the
Commission for the management of the Instrument.
5. For the Instrument’s external component, the rules and procedures concerning carry
overs, annual instalments, repayments, revenue and recoveries from financial
instruments financed under this Instrument or its predecessors, and surpluses from
the budgetary guarantees and loans provisioned under this Instrument or its
predecessors, laid down in Article 22 of Regulation (EU) 202X/XXXX [Global
Europe] shall apply to the implementation of this Regulation.
EN 21 EN
Article 4
Additional resources
Member States, Union institutions, bodies and agencies, partner countries, international
organisations, international financial institutions, or other third parties, may make additional
financial or non-financial contributions to the Instrument. The additional financial
contributions shall constitute external assigned revenue within the meaning of Article 21(2),
points (a), (d), or (e) or Article 21(5) of Regulation (EU, Euratom) 2024/2509.
Article 5
Alternative, combined and cumulative funding
1. The Instrument shall be implemented in synergy with other Community and Union
programmes. An action that has received a Community and a Union contribution
from another programme may also receive a contribution. The rules of the relevant
Union programme shall apply to the corresponding contribution, or a single set of
rules may be applied to all contributions and a single legal commitment may be
concluded. If the Union contribution is based on eligible costs, the cumulative
support from the Union budget shall not exceed the total eligible costs of the action
and may be calculated on a pro-rata basis in accordance with the conditions for
support.
2. Award procedures under the Instrument may be jointly conducted under direct or
indirect management with Member States, Union institutions, bodies and agencies,
partner countries, international organisations, international financial institutions, or
other third parties (‘partners to the joint award procedure’), provided the protection
of the financial interests of the Union is ensured. Such procedures shall be subject to
a single set of rules and lead to the conclusion of single legal commitments. For that
purpose, the partners to the joint award procedure may make resources available to
the Instrument in accordance with Article [4] of this Regulation, or the partners may
be entrusted with the implementation of the award procedure, where applicable in
accordance with Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509. In
joint award procedures, representatives of the partners to the joint award procedure
may also be members of the evaluation committee referred to in Article 153(3) of
Regulation (EU, Euratom) 2024/2509.
Article 6
Implementation and forms of Union funding
1. The Instrument shall be implemented in accordance with Regulation (EU, Euratom)
2024/2509, under direct management or in indirect management with entities
referred to in Article 62(1), point (c) of that Regulation.
2. Union funding may be provided in any form in accordance with Regulation (EU,
Euratom) 2024/2509, in particular grants, prizes, procurement, non-financial
donations, budgetary guarantees, financial instruments and blending operations.
EN 22 EN
CHAPTER II
IMPLEMENTATION OF THE INSTRUMENT’S DIFFERENT COMPONENTS
SECTION 1: SPECIFIC PROVISIONS FOR THE IMPLEMENTATION OF THE
INSTRUMENT’S EXTERNAL COMPONENT
Article 7
Policy framework
The policies, as set out in association agreements, partnership and cooperation agreements,
including nuclear cooperation agreements, multilateral agreements, legally non-binding
instruments, such as memoranda of understanding, declarations and other agreements that
establish a relationship between the Union and/or the Community and its partner countries, as
well as European Council conclusions and Council conclusions, summit declarations,
conclusions of high-level meetings with partner countries, strategies and communications
from the Commission and joint communications from the Commission and the High
Representative of the Union for Foreign Affairs and Security Policy, shall constitute the
overall policy framework for the implementation of the Instrument.
Article 8
Implementation and eligibility in alignment with Global Europe
1. Unless otherwise specified in this Regulation, Union financing for the Instrument’s
external component shall be implemented in accordance with this Regulation,
Regulation (EU, Euratom) 2024/2509, and as appropriate Chapter II and Chapter III
of Title II of Regulation (EU) 202X/XXXX [Global Europe] with the exception of
Articles 19, 20(2) and (3) and 26 of that Regulation. The eligibility rules set out in
Articles 20(1) and (4) to (12) of Regulation (EU) 202X/XXXX [Global Europe] shall
apply to all actions financed under the external component.
2. Where Union support is provided in the form of a budgetary guarantee or a financial
instrument, including where combined with non-repayable support in a blending
operation, it shall be exclusively provided through the Global Europe delivery
mechanism and implemented in accordance with the applicable rules of the Global
Europe delivery mechanism through agreements concluded for that type of support
under the Global Europe delivery mechanisms.
3. Union support in the form of a budgetary guarantee shall be provided within the
maximum amount of the budgetary guarantee established by the Global Europe
Regulation.
4. Where the Instrument makes use of the Global Europe delivery mechanism, it shall
provide the provisioning for the budgetary guarantee and the financing to financial
instruments, including when combined with non-repayable support in the form of a
blending operation.
EN 23 EN
Article 9
Euratom loans
1. Union support to Ukraine in the form of loans under Council Decision
77/270/Euratom shall be provided within the maximum amount referred to in Article
6 (2), second sub-paragraph of Regulation (EU) 202X/XXXX [Global Europe]. The
provisions of the Article 24 (3), last paragraph of Regulation (EU) 202X/XXXX
[Global Europe] shall apply to loans to Ukraine under Council Decision
77/270/Euratom.
2. The provisioning rate for Union support in the form of loans to Armenia under
Council Decision 77/270/Euratom shall be the provisioning rate set out in Article 24
of Regulation (EU) 202X/XXXX [Global Europe].
Article 10
Multiannual indicative programmes
1. The implementation of the Instrument’s external component shall be carried out
through multiannual indicative programmes adopted by means of implementing acts
in accordance with the examination procedure referred to in Article 17(3). Such
multiannual indicative programmes shall:
(a) aim to provide a coherent framework for cooperation between the Community and
partner countries or regions concerned, in a manner consistent with the overall
purpose and scope, objectives, principles and policy of the Community and based on
the policy framework referred to in Article 7 of this Regulation;
(b) constitute a general basis for the nuclear safety cooperation under the Instrument and
set out the Community’s goals for cooperation, having regard to the needs of the
countries concerned, the Community’s priorities, the international situation and the
activities of the partner countries concerned;
(c) indicate the added value of the cooperation referred to in point (b) and how to avoid
overlapping other programmes and initiatives, in particular those of international
organisations pursuing similar objectives and those of other major donors;
(d) set out the geographic and policy priorities selected for Union financing, the specific
objectives, and, where appropriate, the indicative financial allocations and the
methods of implementation.
(e) be based on dialogue with the partner countries or regions which involves relevant
stakeholders, especially the governmental and regulatory authorities and the
organisations designated by them, as well as, where appropriate, on consultations
with the European Nuclear Safety Regulators Group (‘ENSREG’) established by
Commission Decision 2007/530/Euratom52.
52
Commission Decision 2007/530/Euratom of 17 July 2007 on establishing the European High Level
Group on Nuclear Safety and Waste Management (OJ L 195, 27.7.2007, p. 44, ELI:
http://data.europa.eu/eli/dec/2007/530/oj).
EN 24 EN
2. The multiannual indicative programmes may be reviewed on an ad hoc basis as
necessary for their effective implementation, in particular where there are substantive
changes in the policy framework referred to in Article 6 or following a situation of
crisis or post-crisis. The examination procedure referred to in Article 17(3) shall also
apply to reviews, which have the effect of significantly amending the content of the
multiannual indicative programme.
Article 11
Adoption of action plans and measures
1. Annual or multiannual action plans and measures under the Instrument’s external
component shall constitute work programmes within the meaning of Regulation (EU,
Euratom) 2024/2509.
2. The Commission shall adopt, by means of implementing acts, the action plans and
measures referred to in paragraph 1. Those implementing acts shall be adopted in
accordance with the examination procedure referred to in Article 17(3).
3. The examination procedure referred to in paragraph 2 shall not be required for:
(a) special measures and support measures for which the Union funding does not
exceed EUR 10 million;
(b) technical amendments, provided that they do not substantially affect the
objectives of the action plan or measure concerned, such as:
(i) change of method of implementation;
(ii) reassignments of funds between actions contained in an action plan;
(iii) increase of the budget of action plans and measures by not more than
20% of that budget.
When adopted in accordance with this paragraph, special measures and support
measures as well as technical amendments shall be communicated to the Member
States through the committee referred to in Article 17(1), within one month of their
adoption. They shall also be communicated to the European Parliament.
4. On duly justified imperative grounds of urgency relating to the need for a swift
response from the Community, the Commission shall adopt or amend the action
plans or measures referred to in paragraph 1 of this Article by means of immediately
applicable implementing acts in accordance with the procedure referred to in
Article 17(4).
Article 12
Criteria for international cooperation
1. The external component of the Instrument may finance actions in partner countries in
compliance with the criteria set out in this article.
2. A common understanding or a reciprocal agreement between the partner country and
the Community shall be the basis for cooperation.
3. Partner countries seeking to cooperate with the Community on nuclear safeguards
shall be parties to the Treaty on the Non-Proliferation of Nuclear Weapons and shall
EN 25 EN
have concluded a Comprehensive Safeguards Agreement with the IAEA or shall
have the Additional Protocol with the IAEA in force.
4. Partner countries seeking to cooperate with the Community on nuclear safety, shall
be active parties to the Convention on Nuclear Safety and the Joint Convention on
the Safety of Spent Fuel Management and on the Safety of Radioactive Waste
Management or other relevant conventions or have taken steps demonstrating a firm
commitment to accede to such conventions.
5. Partner countries seeking to cooperate with the Community on emergency
preparedness and response, radiation protection or radioactive waste management
and not meeting criteria (3) or (4) should not have any nuclear installations on their
territory.
6. Cooperation with partner countries not fulfilling the criteria in Articles 12(3) to (5)
shall be of exceptional nature, upon direct request from the concerned partner
countries, and limited to support requested by them in case of a nuclear accident or
radiological emergency event as referred to in the Convention on Early Notification
of a Nuclear Accident and the Convention on Assistance in the Case of a Nuclear
Accident or Radiological Emergency.
7. Cooperation with candidates or potential candidates, who are not in a position to
meet the criteria in Articles 12(3) to (6) due to their country status, is an exception.
8. In order to ensure and monitor compliance with the cooperation-related objectives of
the Instrument, the partner country concerned shall accept the evaluation of the
actions undertaken. That evaluation shall allow the monitoring and verification of
compliance with the objectives and shall be a condition for continued payment of the
Community contribution.
Article 13
EUROPEAN EXTERNAL ACTION SERVICE (EEAS)
The Instrument’s external component shall be implemented taking into account the role of the
EEAS as provided for in Council Decision 2010/427/EU, in particular Articles 3 and 9
thereof.
SECTION 2: SPECIFIC PROVISIONS FOR THE IMPLEMENTATION OF THE
INSTRUMENT’S INTERNAL COMPONENT
Article 14
Work programmes
1. The implementation of the Instrument’s internal component shall be carried out by
work programmes referred to in Article 110 of Regulation (EU, Euratom) 2024/2509.
The work programme for the Instrument’s internal component shall:
(a) aim to provide an overview of the activities planned over the period covered by
the multiannual work programme;
EN 26 EN
(b) constitute a general basis for the implementation of the activities covered by
this Regulation and be based on the highest nuclear safety standards and best
practices in addressing the Community’s nuclear liabilities.
Article 15
Implementation and forms of Union funding and eligibility criteria for the implementation
of the Instrument’s internal component
Unless otherwise specified in this Regulation, Union financing for the Instrument’s internal
component shall be implemented in accordance with this Regulation, Regulation (EU,
Euratom) 2024/2509.
Only the following activities shall be eligible for Union funding under the Instrument’s
internal component:
(a) safe conservation and operation of shutdown nuclear facilities;
(b) dismantling of obsolete or unused nuclear installations, or both;
(c) safe management of radioactive waste and spent fuel, including collection,
characterisation, treatment, transport and storage;
(d) reduction of the nuclear material inventory at the JRC sites;
(e) development and construction of radioactive wastes management facilities;
(f) production and update of decommissioning plans, technical studies and licensing
files;
(g) external support for project design, evaluation, management;
(h) operational support, including radiation protection, equipment and facilities
maintenance;
(i) negotiation with host Member States in view of the transfer of the Commission’s
nuclear liabilities;
(j) communication and cooperation with external stakeholders;
(k) collection, production, assessment and dissemination of nuclear decommissioning
knowledge, including training activities;
(l) any other activity supporting the achievement of the decommissioning of the
Commission’s nuclear installations at the JRC sites and nuclear decommissioning
and waste management knowledge as referred to in Article 2.
Article 16
Knowledge-sharing provision
1. Knowledge created in the implementation process of the JRC Decommissioning and
Waste management programme shall be disseminated at the Community level.
2. Activities for accomplishing the activity referred to in paragraph 1 shall be financed
under the Instrument. The JRC shall coordinate the structuring and dissemination of
knowledge to Member States.
EN 27 EN
3. The process of dissemination of knowledge shall be included and defined in the work
programmes referred to in Article 16.
CHAPTER III
IMPLEMENTING POWERS, TRANSITIONAL AND FINAL PROVISIONS
Article 17
Committee procedure
1. The Commission shall be assisted by a committee for the Instrument’s external
component. That committee shall be a committee within the meaning of Regulation
(EU) No 182/2011.
2. The committee shall meet in different configurations depending on the topic or
subject matter.
3. Where reference is made to this paragraph, Article 5 of Regulation (EU) 182/2011
shall apply.
4. Where reference is made to this paragraph, Article 8 of Regulation (EU) No
182/2011, in conjunction with Article 5 thereof, shall apply.
5. Where the opinion of the committee is to be obtained by written procedure, that
procedure shall be terminated without result when, within the time-limit for delivery
of the opinion, the chair of the committee so decides or a simple majority of
committee members so request.
6. In accordance with international agreements concluded by the Union, representatives
of partner countries or international organisations may be invited as observers in the
meetings of the committee under the conditions laid down in its rules of procedure,
taking into account the security and public order of the Union or its Member States.
Representatives of partner countries or international organisations shall not be
present in deliberations on matters related to eligibility criteria as per article 8 of this
Regulation.
Article 18
Repeal
Regulations (Euratom) 2021/100 and (Euratom) 2021/948 are repealed with effect from
1 January 2028.
EN 28 EN
Article 19
Transitional provisions
1. This Regulation shall not affect the continuation or modification of the actions
concerned, until their closure, under Regulations (Euratom) 2021/100 and (Euratom)
2021/948, which shall continue to apply to those actions until their closure.
2. The financial envelope for the Instrument may also cover the technical and
administrative assistance expenses necessary to ensure the transition between the
Instrument and the measures adopted under Regulations (Euratom) 2021/100 and
(Euratom) 2021/948.
Article 20
Entry into force and application
This Regulation shall enter into force on the twentieth day following that of its publication in
the Official Journal of the European Union.
It shall apply from 1 January 2028.
This Regulation shall be binding in its entirety and directly applicable in all Member States.
Done at Brussels,
For the Council
The President
EN 29 EN
LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT
1. FRAMEWORK OF THE PROPOSAL/INITATIVE ................................................ 3
1.1. Title of the proposal/initiative ...................................................................................... 3
1.2. Policy area(s) concerned .............................................................................................. 3
1.3. Objective(s) .................................................................................................................. 3
1.3.1. General objective(s) ..................................................................................................... 3
1.3.2. Specific objective(s) ..................................................................................................... 3
1.3.3. Expected result(s) and impact ...................................................................................... 3
1.3.4. Indicators of performance ............................................................................................ 3
1.4. The proposal/initiative relates to: ................................................................................. 4
1.5. Grounds for the proposal/initiative .............................................................................. 4
1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative ............................................................ 4
1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section ‘added value of EU involvement’ is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone. ................................................................................. 4
1.5.3. Lessons learned from similar experiences in the past .................................................. 4
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments ....................................................................................... 5
1.5.5. Assessment of the different available financing options, including scope for
redeployment ................................................................................................................ 5
1.6. Duration of the proposal/initiative and of its financial impact .................................... 6
1.7. Method(s) of budget implementation planned ............................................................. 6
2. MANAGEMENT MEASURES................................................................................... 8
2.1. Monitoring and reporting rules .................................................................................... 8
2.2. Management and control system(s) ............................................................................. 8
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed .................. 8
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them............................................................................................................ 8
2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure) ........................................... 8
2.3. Measures to prevent fraud and irregularities ................................................................ 9
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE .......... 10
EN 1 EN
3.1. Heading(s) of the multiannual financial framework and expenditure budget line(s)
affected ....................................................................................................................... 10
3.2. Estimated financial impact of the proposal on appropriations ................................... 12
3.2.1. Summary of estimated impact on operational appropriations.................................... 12
3.2.1.1. Appropriations from voted budget ............................................................................. 12
3.2.1.2. Appropriations from external assigned revenues ....................................................... 17
3.2.2. Estimated output funded from operational appropriations......................................... 22
3.2.3. Summary of estimated impact on administrative appropriations ............................... 24
3.2.3.1. Appropriations from voted budget .............................................................................. 24
3.2.3.2. Appropriations from external assigned revenues ....................................................... 24
3.2.3.3. Total appropriations ................................................................................................. 24
3.2.4. Estimated requirements of human resources.............................................................. 25
3.2.4.1. Financed from voted budget....................................................................................... 25
3.2.4.2. Financed from external assigned revenues ................................................................ 26
3.2.4.3. Total requirements of human resources ................................................................... 26
3.2.5. Overview of estimated impact on digital technology-related investments ................ 28
3.2.6. Compatibility with the current multiannual financial framework.............................. 28
3.2.7. Third-party contributions ........................................................................................... 28
3.3. Estimated impact on revenue ..................................................................................... 29
4. DIGITAL DIMENSIONS ........................................................................................ 29
4.1. Requirements of digital relevance .............................................................................. 30
4.2. Data ............................................................................................................................ 30
4.3. Digital solutions ......................................................................................................... 31
4.4. Interoperability assessment ........................................................................................ 31
4.5. Measures to support digital implementation .............................................................. 32
EN 2 EN
1. FRAMEWORK OF THE PROPOSAL/INITIATIVE
1.1. Title of the proposal/initiative
Council Regulation (Euratom) establishing the Instrument for Nuclear Safety
Cooperation and Decommissioning for the period 2028-2034.
1.2. Policy area(s) concerned
Nuclear Safety
1.3. Objective(s)
1.3.1. General objective(s)
The Instrument meets one external and one internal objective.
• 1. The general objective of the external component of the Instrument is to
support the promotion of the highest level of nuclear safety, radiation
protection, safe management of spent nuclear fuel and radioactive waste and
the application of efficient and effective safeguards of nuclear materials in
partner countries.
• 2. The general objective of the internal component of the Instrument is to
support the decommissioning of the Commission’s nuclear installations at the
JRC sites and to safely manage the associated spent fuel, nuclear material and
radioactive waste.
1.3.2. Specific objective(s)
Specific objective No
For the external component:
• 1. to promote of an effective nuclear safety and radiation protection culture, the
implementation of the highest nuclear safety and radiation protection standards,
and the continuous improvement of nuclear safety, including the promotion of
transparency in decision-making processes of the authorities in partner
countries relating to the safety of peaceful uses of nuclear installations
• 2. to support responsible and safe management of spent fuel and radioactive
waste and the decommissioning and remediation of former nuclear sites and
installations;
• 3. to establish efficient and effective safeguards for nuclear material in partner
countries.
For the internal component:
• 1. to support the decommissioning plan and to carry out the activities in
accordance with the national law of the host Member State for the dismantling
and decontamination of the Commission’s nuclear installations at the JRC
sites, to carry out the safe management of associated radioactive waste and
where appropriate, to prepare the optional transfer of the related nuclear
liabilities from the JRC to the host Member State;;
• 2. for the JRC to continue developing ties and exchanges among Union
stakeholders on nuclear decommissioning, with a view to ensuring the
EN 3 EN
dissemination of knowledge and the sharing of expertise in all relevant areas,
such as regulation and training and developing Union synergies.
1.3.3. Expected result(s) and impact
For the external component:
• Increased nuclear safety and radiation protection management in external
partner countries in line with Euratom acquis and EU best practices
• Radioactive waste management and decommissioning activities in external
partner countries in line with Euratom acquis and EU best practices
• Improved nuclear safeguards capabilities in external partner countries.
For the internal component:
• Since 2021, the Nuclear Decommissioning and Waste Management
Programme of the Joint Research Centre is financed under a specific legal
basis. The programme that started in 1999 under JRC budget has benefited
from the new approach and enhanced the efficiency for its implementation. The
programme effectively improved the nuclear safety at the JRC sites for the
benefit of the EU citizens and the environment. The continuation of the
programme is needed to fulfil the European Commission’s legal commitments,
reduce the nuclear hazards towards a complete release of the facilities from the
regulatory control and create and share knowledge with the EU stakeholders
dealing with the decommissioning and waste management.
1.3.4. Indicators of performance
The output and result indicators for the purpose of monitoring progress and achievements of
this programme will correspond to the common indicators provided under Regulation xxx
[Performance Regulation].’
1.4. The proposal/initiative relates to:
a new action
a new action following a pilot project / preparatory action53
the extension of an existing action
a merger or redirection of one or more actions towards another/a new action
1.5. Grounds for the proposal/initiative
1.5.1. Requirement(s) to be met in the short or long-term including a detailed timeline for
roll-out of the implementation of the initiative
The external component is a natural progression of the European Instrument for
International Nuclear Safety Cooperation and therefore a similar institutional set-up
would be expected to ensure smooth implementation. The internal component
continues the activities initiated in 1999 to address the nuclear legacy of the Joint
Research Centre. The Instrument aims at progressing in the decommissioning and
dismantling of the obsolete nuclear facilities in line with the site-related
decommissioning plan and ensure the safe management of radioactive wastes.
53
As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.
EN 4 EN
1.5.2. Added value of EU involvement
Reasons for action at EU level (ex-ante) In respect of the external component, the
external partners could benefit from action at Community level due to the flexibility
in the implementation and the access to all the experience of the different Member
States,
For the external component, there is a larger impact, efficiency and visibility than if
individual Member States were to implement. The internal component is a European
Commission legal responsibility in managing its own nuclear research facilities.
For the internal component, the EU involvement is deriving from of the European
Commission’s legal responsibilities regarding the nuclear legacies of its past and
ongoing research activities
1.5.3. Lessons learned from similar experiences in the past
Lessons learned from the implementation of the European Instrument for
International Nuclear Safety Cooperation and its predecessors will be used for the
implementation of the external component.
Lessons learned from the implementation of the previous Nuclear Decommissioning
Assistance Programme will be used for the implementation of the internal
component.
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments
The Programme is one of the funding instruments under the 2028-2034 Multiannual
financial framework and has a high degree of coherence and complementarity with
other key EU priorities and funding schemes.
Regarding the internal component, the promotion and implementation of the highest
standards of nuclear safety and safe management of radioactive wastes is a shared
objective between the two merged instruments (Instrument for Nuclear Safety
Cooperation and Decommissioning Programme). It is aligned with the Nuclear
Decommissioning Programme managed by DG ENER supporting decommissioning
activities in the Member States of the European Union.
When implementing this Regulation, consistency with other areas of external action
and with other relevant EU policies will be ensured. Synergies with actions under
other EU programmes should be sought, in order to maximise the impact of
combined interventions.
Actions funded under this proposal should be coherent and complementary to those
carried out under the Global Europe, the Decision on Overseas Countries and
Territories, the common foreign and security policy and the European Peace Facility
which is outside the EU budget.
1.5.5. Assessment of the different available financing options, including scope for
redeployment
Not applicable, as this proposal is part of the package of new funding programmes
for the 2028-2034 Multiannual Financial Framework (MFF). The proposed
budgetary allocation for this programme is therefore fully covered by the
EN 5 EN
appropriations under Heading 1 of the 2028-2034 MFF, and it does not require any
redeployment from any other programme.
EN 6 EN
1.6. Duration of the proposal/initiative and of its financial impact
limited duration
– in effect from 01/01/2028 to 31/12/2034
– financial impact from 2028 to 2034 for commitment appropriations and from
2028 to 2041 for payment appropriations.
unlimited duration
– Implementation with a start-up period from YYYY to YYYY,
– followed by full-scale operation.
1.7. Method(s) of budget implementation planned
Direct management by the Commission
– by its departments, including by its staff in the Union delegations;
– by the executive agencies
Shared management with the Member States
Indirect management by entrusting budget implementation tasks to:
– third countries or the bodies they have designated
– international organisations and their agencies (to be specified)
– the European Investment Bank and the European Investment Fund
– bodies referred to in Articles 70 and 71 of the Financial Regulation
– public law bodies
– bodies governed by private law with a public service mission to the extent that
they are provided with adequate financial guarantees
– bodies governed by the private law of a Member State that are entrusted with
the implementation of a public-private partnership and that are provided with
adequate financial guarantees
– bodies or persons entrusted with the implementation of specific actions in the
common foreign and security policy pursuant to Title V of the Treaty on
European Union, and identified in the relevant basic act
– bodies established in a Member State, governed by the private law of a
Member State or Union law and eligible to be entrusted, in accordance with
sector-specific rules, with the implementation of Union funds or budgetary
guarantees, to the extent that such bodies are controlled by public law bodies or
by bodies governed by private law with a public service mission, and are provided
with adequate financial guarantees in the form of joint and several liability by the
controlling bodies or equivalent financial guarantees and which may be, for each
action, limited to the maximum amount of the Union support.
Comments
For the internal component, negotiations with the host Member States during the MFF is
planned for the possible transfer of the nuclear liabilities of the Joint Research Centre.
For the external component, the most suitable implementation method will be chosen, which
will include direct management, implementation by the EBRD, implementation by the IAEA
EN 7 EN
implementation by EU Member States’ pillar assessed organisations, at stage of programming
it is preferred not to exclude possible implementation modalities.
EN 8 EN
2. MANAGEMENT MEASURES
2.1. Monitoring and reporting rules
The monitoring, reporting, and evaluation rules for this programme will follow the
requirements laid down in Regulation xxx [Performance Regulation].
Internal component
The internal component is implemented by the Commission. The JRC is managing
and governing the Instrument through a high-level steering committee, composed of
JRC senior management and meeting three times per year to take strategic decisions,
revise objectives and monitor the progress of the Instrument. The high-level steering
committee is supported by the operational level steering committee, composed of
technical site representatives and representatives from the legal and financial
directorates. The committee meets three times per year to ensure that technical, legal,
financial and procurement tasks are streamlined. It monitors both technical progress
as well as budget implementation.
In line with the European Parliament resolution in 1999 (COM(1999)–114–C5-
0214/1999-1999/2169(COS)), the JRC is since the beginning of the D&WM
programme regularly advised by a group of independent European decommissioning
experts, the D&WM programme Expert Group. Their advice relates to the
decommissioning and waste treatment strategy, the available technology, technical
aspects of the organisation and any other aspects relating to the instrument.
Since the beginning of the D&WM programme, the Commission is periodically
reporting to the Council and the European Parliament the progress and status of the
D&WM programme, thereby providing an updated budget forecast (every four
years).
Moreover, JRC reports on an annual basis on the mid-term targets and the progress
achieved (JRC Management Plan, JRC Activity Report).
2.2. Management and control system(s)
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed
For the external component
Regarding the management modes, there are no fundamental changes envisaged and
the experience acquired by the Commission services and implementing actors under
the predecessor programmes will contribute to better results in the future. Partner
countries are still adjusting to the existing legislative framework and the
implementation for INSC programmes is still in an early stage; as a result a
maximum of continuity should be secured.
The actions to be financed under this Regulation will be implemented under direct
management by the Commission from headquarters and/or through the Union
delegations and under indirect management by any of the entities listed in
Article 62(1)(c) of the Financial Regulation in order to better achieve the objectives
of the Regulation.
EN 9 EN
Concerning indirect management, as stated in Article 157 of the Financial
Regulation, such entities must ensure a level of protection of the EU’s financial
interests equivalent to the one under direct management. An ex-ante pillar
assessment of the entities’ systems and procedures will be carried out, in accordance
with the principle of proportionality and with due consideration for the nature of the
action and the financial risks involved. Where the implementation requires so or
there have been reservations expressed in the Annual Activities Reports, action plans
with specific mitigation measures will be defined and implemented. Additionally,
appropriate supervisory measures imposed by the Commission may accompany the
implementation.
To ensure the effectiveness and efficiency of the operations (and to mitigate the high
level of risk in the external assistance environment), in addition to all the elements of
the Commission wide strategic policy and planning process, internal audit
environment and other requirements of the Commission’s Internal Control
Framework, the implementing services will continue to have a tailored aid
management framework in operation under all the instruments.
The implementing services will continue to pursue the highest standards of
accounting and financial reporting using the Commission’s corporate financial
system (SUMMA) as well as external aid specific tools such as OPSYS.
In relation to compliance with the relevant legislative and procedural framework,
compliance control methods are set out in Section 2.3 (measures to prevent fraud and
irregularities).
For the internal component
Regarding the management modes, there are no fundamental changes envisaged and
the experience acquired by the JRC under the predecessor programmes will
contribute to better results in the future.
External reviews and audits have acknowledged that the instrument has made
important progress and achievement since its launch within the given external and
internal constraints.
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them
For the external component
The operational environment of cooperation under this instrument is characterised by
the risks of not achieving the instrument’s objectives, suboptimal financial
management and/or of not complying with the applicable rules (legality and
regularity errors) related to:
-Economic and political instability and natural disasters and extreme climatic events
that may lead to difficulties and delays in the design and implementation of
interventions;
- limited institutional and administrative capacity in partner countries that may lead
to difficulties and delays in the design and implementation of interventions;
- geographically dispersed projects and programmes (covering approximately many
states, territories and regions) may pose logistical and resource challenges to
monitoring - particularly any ‘on-the-spot’ follow-up of activities;
EN 10 EN
- diversity of potential partners or beneficiaries with their diverse internal control
structures and capacities can fragment and therefore reduce the effectiveness and
efficiency of the Commission’s available resources to support and monitor
implementation;
- limited availability of quantitative and qualitative data on the outcomes and impact
of external assistance implementation in partner countries may hinder the
Commission’s ability to report on and be accountable for results.
In order to deal with the risk of financial errors, the Commission will perform the
appropriate ex ante and ex post controls. Wherever applicable the performance of
systems audits will work as a tool to identify root causes of errors in the entities’
control systems and trigger the necessary mitigating measures. Moreover, to
strengthen its effectiveness in preventing errors, management deficiencies and
irregularities, the Commission is setting up a system for an ongoing targeted risk
assessment at contract and at entity level. Key factors increasing the likelihood of a
high error rate and a negative impact on sound financial management, in particular
linked also to historical data of previous controls and monitoring haven been
identified and aggregated in a risk profiling dashboard. The dashboard will provide
an important tool to target more effectively future controls, monitoring efforts and
other means of mitigation to sensibly reduce the risks of errors, management
deficiencies and irregularities.
For the internal component
The main risk identified and documented in the JRC risk register concerns
unforeseen occurrences, uncertainties, and delays that can lead to cost escalation and
generate non-compliance.
The main mitigating measures to address this risk are:
- Regular contacts with relevant national authorities;
- Strengthened governance in place since beginning of 2025;
- Continued use of the JRC risk register with a regular risk review process with close
follow up of the most important risks and the possibility to carry out thematic
verifications if need be.
2.2.3. Estimation and justification of the cost-effectiveness of the controls
The cost of controls for the Instrument for Nuclear Safety Cooperation &
Decommissioning is estimated to be <4% of the funds managed under this
programme. The estimated risk at payment and at closure is expected to be <2% of
the relevant expenditure on an annual basis.
2.3. Measures to prevent fraud and irregularities
For the external component
The proposal contains appropriate anti-fraud measures as per Financial Regulation.
Regarding the measures to prevent fraud and irregularities, there are no fundamental
changes envisaged and the experience acquired by the Commission services and
implementing actors under the predecessor programmes will contribute to better
results in the future.
Compliance framework is made of inter alia of the following significant component
EN 11 EN
Preventative measures
- Compulsory core training covering fraud issues for aid management staff and
auditors;
- Ex ante assessment to ensure that appropriate anti-fraud measures to prevent and
detect fraud in the management of Union funds are in place in the authorities
managing the relevant funds under joint and decentralised management);
- Ex ante screening of the anti-fraud mechanisms available in the partner country as
part of the assessment of the eligibility criterion of public finance management for
receiving budget support (i.e. active commitment to fight fraud and corruption,
adequate inspection authorities, sufficient judicial capacity and efficient response and
sanction mechanisms);
- Effective anti-fraud mechanisms to prevent and detect fraud, corruption, and other
illegal activities affecting the financial interests of the Union, including cyber-attacks
Detective and corrective measures
- Suspension of EU funding where there is a serious fraud case, including large scale
corruption, until the authorities have taken appropriate action with a view to
correcting and preventing such fraud in the future;
- EDES (Early Detection Exclusion System);
- Suspension/termination of contract;
- Exclusion procedure.
Anti-fraud strategies of the services concerned, aligned with the objectives and
priorities of the Commission’s anti-fraud strategy (CAFS) and its corresponding
Action Plan ensures that the systems used for spending EU funds in third countries
enable relevant data to be retrieved with a view to feeding this data into fraud risk
assessment and management (e.g. double funding, inflation of costs, rigged tender
procedures, conflict of interest, collusion); and wherever necessary, networking
groups and adequate IT/digital tools aimed at early detection and prevention of fraud
risks and fraud cases related to the external aid sector could be set up.
For the internal component
In line with the Financial Regulation and the Rules of Application to perform ex ante
and ex post verifications, the JRC has put in place the Public Procurement Advisory
Group under the Deputy General Director. It performs ex ante controls on the legal
and regulatory aspects of the procurement procedures and gives advice to the
Authorising Officer by sub-delegation (AOS) before the award decision is taken. The
controls carried out by the Group are aimed at reducing legal and reputational risk
for the Commission. These controls are complementary to the other ex-ante controls
executed by the Finance and Procurement Unit and the site’s support services.
The JRC’s ex post controls strategy is implemented using a representative stratified
sampling methodology Multiple selection criteria (including random sampling) were
used to select the 2024 payments for control. In 2024, 134 payments were selected
from various JRC sites. In addition, ex post controls were carried out on 51
EN 12 EN
procurement files related to legal commitments associated to the payments made.
Recommendations from audits are followed up and implemented in timely manner.
The JRC Anti-Fraud Strategy has been updated in December 2024 in line with the
Commission Anti-Fraud Strategy and the latest OLAF methodology.
EN 13 EN
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE
3.1. Heading(s) of the multiannual financial framework and expenditure budget
line(s) affected
(1) New budget lines requested
Heading of multiannual
Budget line Type of expenditure
financial framework
Number Diff./Non-diff.
04 01 04 - Support expenditure for Non-diff.
2 International Nuclear Safety Cooperation -
Decommissioning
04 05 01 – International Nuclear Safety Diff
2
Cooperation
04 05 02 – International Nuclear Safety Diff
2 Cooperation – Provisioning of the Common
Provisioning Fund
04 05 03 – Decommissioning and Waste Diff
2 Management Programme of the Joint
Research Centre (JRC)
04 05 99 01 - Completion of previous INSC Diff
2
programme (prior 2028)
2 04 05 99 02 – Completion of previous Diff
decommissioning programme (prior 2028)
EN 14 EN
3.2. Estimated financial impact of the proposal on appropriations
3.2.1. Summary of estimated impact on operational appropriations
– The proposal/initiative does not require the use of operational appropriations
– The proposal/initiative requires the use of operational appropriations, as explained below
3.2.1.1. Appropriations from voted budget
EUR million (to three decimal places)
Heading of multiannual financial framework Number 2
TOTAL MFF
2028 2029 2030 2031 2032 2033 2034
2028-2034
Operational appropriations
04 05 01 - International Nuclear Safety Commitments (1a) 49 37 44 46 52 57 65 350
Cooperation Payments (2a) p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
04 05 02 - International Nuclear Safety Commitments (1b) p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Cooperation - Provisioning of the
Common Provisioning Fund Payments (2b) p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
04 05 03 - Decommissioning and Waste Commitments (1c) 86 66 77 82 92 101 112 616
Management Programme of the Joint
Research Centre (JRC) Payments (2c) p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Appropriations of an administrative nature financed from the envelope of specific programmes[1]
04 01 04 - Support expenditure for
INSC-D (International Nuclear Safety (3) p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Cooperation - Decommissioning)
=1a+1b+1c+
Commitments 3 135 103 121 128 144 158 177 966
TOTAL appropriations =2a+2b+2c+
Payments 3 p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
EN 15 EN
[1]
Technical and/or administrative assistance and expenditure in support of the implementation of EU programmes and/or actions (former ‘BA’ lines), indirect research, direct research.
4 ‘Administrative expenditure’[1]
Heading of multiannual financial framework
Year Year Year Year Year Year Year TOTAL MFF
DG: <…….> 2028-2034
2028 2029 2030 2031 2032 2033 2034
Human resources 4.136 4.136 4.136 4.136 4.136 4.136 4.136 28.952
Other administrative expenditure p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
TOTAL DG <…….> Appropriations 4.136 4.136 4.136 4.136 4.136 4.136 4.136 28.952
TOTAL
appropriations under
(Total commitments
HEADING 4 of the = Total payments)
4.136 4.136 4.136 4.136 4.136 4.136 4.136 28.952
multiannual financial
framework
EUR million (to three decimal places)
Year Year Year Year Year Year Year TOTAL MFF
2028 2029 2030 2031 2032 2033 2034 2028-2034
TOTAL
appropriations
Commitments p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
under
HEADINGS 1 to
EN 16 EN
4
of the multiannual
financial Payments p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
framework
[1]
The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.
EN 17 EN
3.2.3. Summary of estimated impact on administrative appropriations
– The proposal/initiative does not require the use of appropriations of an
administrative nature
– The proposal/initiative requires the use of appropriations of an administrative
nature, as explained below
3.2.3.1. Appropriations from voted budget
Year Year Year Year Year Year Year TOTAL
VOTED APPROPRIATIONS 2028 -
2028 2029 2030 2031 2032 2033 2034 2034
HEADING 4
Human resources 4.136 4.136 4.136 4.136 4.136 4.136 4.136 28.952
[1]
Other administrative expenditure p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Subtotal HEADING 4 4.136 4.136 4.136 4.136 4.136 4.136 4.136 28.952
Outside HEADING 4
Human resources 2.424 2.424 2.424 2.424 2.424 2.424 2.424 16.968
Other expenditure of an administrative
p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
nature[2]
Subtotal outside HEADING 4 2.424 2.424 2.424 2.424 2.424 2.424 2.424 16.968
TOTAL 6.560 6.560 6.560 6.560 6.560 6.560 6.560 45.920
[1]
The appropriations for “Other administrative expenditure” will be filled in at a later stage.
[2]
The appropriations for “Other expenditure of an administrative nature” will be filled in at a later stage.
3.2.4. Estimated requirements of human resources
– The proposal/initiative does not require the use of human resources
– The proposal/initiative requires the use of human resources, as explained
below
3.2.4.1. Financed from voted budget
Estimate to be expressed in full-time equivalent units (FTEs)
Year Year Year Year Year Year Year
VOTED APPROPRIATIONS
2028 2029 2030 2031 2032 2033 2034
Establishment plan posts (officials and temporary staff)
20 01 02 01 (Headquarters and
Commission’s Representation 22 22 22 22 22 22 22
Offices)
20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0
(Indirect research) 0 0 0 0 0 0 0
EN 18 EN
54 27 27 27 27 27 27 27
(Direct research)
Other budget lines (specify) 0 0 0 0 0 0 0
• External staff (inFTEs)
20 02 01 (AC, END from the
0 0 0 0 0 0 0
‘global envelope’)
20 02 03 (AC, AL, END and JPD
0 0 0 0 0 0 0
in the EU Delegations)
Admin. Support - at
24 24 24 24 24 24 24
line Headquarters
- in EU
[XX.01.YY.YY] 0 0 0 0 0 0 0
Delegations
(AC, END - Indirect research) 0 0 0 0 0 0 0
55 20 20 20 20 20 20 20
(AC, END - Direct research)
Other budget lines (specify) -
0 0 0 0 0 0 0
Heading 4
Other budget lines (specify) -
0 0 0 0 0 0 0
Outside Heading 4
TOTAL 93 93 93 93 93 93 93
The staff required to implement the proposal (in FTEs):
(1) (2) To be (3) Exceptional additional staff*
covered by
current staff
available in the
Commission
services
(4) (5) (6) To be (7) To be (8) To be
financed under financed from financed from
Heading 4 or BA line fees
Research
(9) Establishment (10) 47 (11) 2 (12) N/A (13)
plan posts
(14) External staff (15) 26 (16) 10 (17) 8 (18)
(CA, SNEs, INT)
Description of tasks to be carried out by:
Officials and temporary staff
External staff
3.2.5. Overview of estimated impact on digital technology-related investments
TOTAL Digital TOTAL
and IT Year Year Year Year Year Year Year MFF
appropriations 2028 -
54
The staff will be financed from the Euratom R&T Programme.
55
The staff will be financed from the Euratom R&T Programme.
EN 19 EN
2028 2029 2030 2031 2032 2033 2034 2034
HEADING 4
IT expenditure
0.763 0.763 0.763 0.763 0.763 0.763 0.763 5.341
(corporate)
Subtotal
0.763 0.763 0.763 0.763 0.763 0.783 0.763 5.341
HEADING 4
Outside HEADING 4
Policy IT
expenditure on
0.36 0.36 0.36 0.36 0.36 0.36 0.36 2.52
operational
programmes
Subtotal outside
0.36 0.36 0.36 .360 0.36 0.36 0.36 2.52
HEADING 4
TOTAL 1.123 1.123 1.123 1.123 1.123 1,123 1.123 7.861
3.2.6. Compatibility with the current multiannual financial framework
The proposal/initiative:
– can be fully financed through redeployment within the relevant heading of the
multiannual financial framework (MFF)
– requires use of the unallocated margin under the relevant heading of the MFF
and/or use of the special instruments as defined in the MFF Regulation
– requires a revision of the MFF
3.2.7. Third-party contributions
The proposal/initiative:
– does not provide for co-financing by third parties
– provides for the co-financing by third parties estimated below:
Appropriations in EUR million (to three decimal places)
Year Year Year Year Year Year Year
Total
2028 2029 2030 2031 2032 2033 2034
Specify the co-
financing body
TOTAL
appropriations
co-financed
3.3. Estimated impact on revenue
– The proposal/initiative has no financial impact on revenue.
EN 20 EN
– The proposal/initiative has the following financial impact:
– on own resources
– on other revenue
– please indicate, if the revenue is assigned to expenditure lines
EUR million (to three decimal places)
56
Appropriations Impact of the proposal/initiative
available for
Budget revenue line:
the current Year Year Year Year Year Year Year
financial year 2028 2029 2030 2031 2032 2033 2034
Article …………
For assigned revenue, specify the budget expenditure line(s) affected.
N/A
Other remarks (e.g. method/formula used for calculating the impact on revenue or
any other information).
N/A
4. DIGITAL DIMENSIONS
4.1. Requirements of digital relevance
N/A
4.2. Data
N/A
4.3. Digital solutions
(19) The European Commission will be responsible for developing and maintaining the
digital solution. Without prejudice to Regulation (EU) 2016/679, the European Commission
shall ensure the security, integrity, authenticity and confidentiality of the data collected and
stored for the purpose of this regulation.
4.4. Interoperability assessment
N/A
4.5. Measures to support digital implementation
N/A
56
As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net
amounts, i.e. gross amounts after deduction of 20% for collection costs.
EN 21 EN
30.09.2025
Määrus, millega luuakse tuumaohutuse koostöö ja
dekomisjoneerimise instrument perioodiks 2028-2034
Otsuse ettepanek koordinatsioonikogule
Kujundada seisukoht
Kaasvastutaja sisendi tähtpäev 31.10.2025
KOKi esitamise tähtpäev 19.11.2025
VV esitamise tähtpäev 27.11.2025
Vastutav ministeerium: Kliimaministeerium
Kaasvastutajad: Rahandusministeerium, Siseministeerium, Sotsiaalministeerium,
Välisministeerium
Seisukoha valitsusse toomise alus ja põhjendus
Algatuse reguleerimisala nõuab vastavalt Eesti Vabariigi põhiseadusele seaduse või
Riigikogu otsuse vastuvõtmist, muutmist või kehtetuks tunnistamist (RKKTS § 152¹ lg 1 p
1);
Algatuse vastuvõtmisega kaasneks oluline majanduslik või sotsiaalne mõju (RKKTS §
152¹ lg 1 p 2);
Sisukokkuvõte
Määrusega pakutakse perioodiks 2028–2034 välja uus instrument, mis ühendab senise
rahvusvahelise tuumaohutuse koostööinstrumendi ja JRC dekomisjoneerimisprogrammi.
Eesmärk on tugevdada tuumaohutust EL-i sees ja välispartneritega, jätkata JRC rajatiste
ohutut sulgemist ning anda paindlikkust kriisidele reageerimiseks. Kavandatav
kogueelarve: 966 miljonit eurot perioodiks 2028–2034. Viiakse ellu koostöös Global
Europe instrumentidega.
Kas EL algatus reguleerib karistusi või haldustrahve? Ei.
Kas nähakse ette uue asutuse loomine (järelevalvelised või muud asutused)? Ei
Kas lahenduse rakendamine vajab IT-arendusi? Mõningal määral. Programm vajab IT-
arendusi; kuid uusi platvorme ei peaks loodama.
Eesmärgid
Eesmärk – Instrument on kaheosaline:
Väline komponent – toetada partnerriike (ELi naabruses ja globaalselt) kõrgeima taseme
tuumaohutuse, kiirguskaitse, kasutatud tuumkütuse ja radioaktiivsete jäätmete ohutu
käitlemise ning tõhusate järelevalvemehhanismide saavutamisel. See hõlmab ka
valmisoleku suurendamist kriisiolukordadeks ja keskkonna taastamist.
Sisemine komponent – jätkata Euroopa Komisjoni teaduskeskuste (JRC) tuumarajatiste
dekomisjoneerimist Belgias, Saksamaal, Itaalias ja Hollandis, hallata ohutult seonduvat
radioaktiivset materjali ning koguda ja jagada dekomisjoneerimisalaseid teadmisi ELi
liikmesriikidega.
Mõju ja sihtrühm
Mõju valdkonnad
Keskkond
Programmi kaudu toetatakse reostunud alade (sh ka välisriikides legacy-paikade)
puhastamist, mis aitab kaasa ökosüsteemide taastumisele ja elukvaliteedi paranemisele.
Koostöö EL partnerriikidega aitab vältida suurõnnetusi (nt Chernobyli või Fukushima
sarnaseid juhtumeid), millel oleks ulatuslik piiriülene keskkonnakahju. Uute tehnoloogiate
ja standardite levik suurendab tuumarajatiste ohutust ka väljaspool EL-i, vähendades
potentsiaalsete õnnetuste riski. JRC rajatiste ohutu sulgemine (Belgia, Saksamaa, Itaalia,
Holland) ja jäätmete turvaline käitlemine vähendavad pikaajalisi kiirgusohte ja
keskkonnasaastet.
Halduskoormus
Kas lahendusega kaasneb mõju halduskoormusele? Jah, halduskoormus peaks
vähenema, kuna ettepanekuga ühendatakse kaks varasemat eraldiseisvat instrumenti,
millega vähendatakse ka aruandluskoormust.
Kas avaliku sektori töökoormus: Ei kasva
Riigivalitsemine
Riigieelarve
Kas lahendusega kaasneb mõju riigieelarve kuludele? Ei. Eesti riigieelarvele otsest mõju ei
ole.
Riigikaitse ja välissuhted
Kaudsed mõjud on. Tuumaohutuse tugevdamine naaberriikides vähendab ohtu, et
võimalike õnnetuste või vahejuhtumite tõttu tekib keskkonna- või tervisekriis.
2
Võimaldab EL-il reageerida kriisiolukordades (nt Ukraina tuumarajatised, millele on juba
sõja ajal tehtud rünnakuid) ning toetada partnerite vastupanuvõimet. See suurendab
kaudselt Euroopa strateegilist julgeolekut. Tuumamaterjalide järelevalve ja ohutu
käitlemine vähendab riski, et radioaktiivseid aineid satuks väärkasutusse või terrorismi
käsutusse.
Kaasamine
Teadusasutused, ülikoolid, Päästeamet, Terviseamet, tehnoloogiaettevõtted,
energiaettevõtted, keskkonnakaitse organisatsioonid
3
Eelnõude infosüsteemis (EIS) on antud täitmiseks ülesanne.
Eelnõu toimik: 19.10.1/25-0565 - COM(2025) 598 Proposal for a COUNCIL REGULATION establishing the Instrument for Nuclear Safety Cooperation and Decommissioning for the period 2028-2034 and repealing Regulations (Euratom) 2021/100 and (Euratom) 2021/948
Arvamuse andmine eelnõu kohta Kliimaministeeriumile vastavalt Riigikantselei 01.10.2025 resolutsioonile.
Osapooled: Siseministeerium; Rahandusministeerium; Sotsiaalministeerium; Välisministeerium
Tähtaeg: 31.10.2025 23:59
Link eelnõu toimiku vaatele: https://eelnoud.valitsus.ee/main/mount/docList/039e4d68-0aa5-45d3-b491-1f6a59ca94ce
Link menetlusetapile: https://eelnoud.valitsus.ee/main/mount/docList/039e4d68-0aa5-45d3-b491-1f6a59ca94ce?activity=2
Eelnõude infosüsteem (EIS)
https://eelnoud.valitsus.ee/main
.
Resolutsiooni liik: Riigikantselei resolutsioon
Viide: Kliimaministeerium / / ; Riigikantselei / / 2-5/25-01839
Resolutsiooni teema: Määrus, millega luuakse tuumaohutuse koostöö ja dekomisjoneerimise
instrument perioodiks 2028-2034
Adressaat: Kliimaministeerium
Ülesanne: Tulenevalt Riigikogu kodu- ja töökorra seaduse § 152` lg 1 p 2 ning Vabariigi Valitsuse
reglemendi § 3 lg 4 palun valmistada ette Vabariigi Valitsuse seisukoha ja otsuse eelnõu järgneva
algatuse kohta, kaasates seejuures olulisi huvigruppe ja osapooli:
-Proposal for a COUNCIL REGULATION establishing the Instrument for Nuclear Safety
Cooperation and Decommissioning for the period 2028-2034 and repealing Regulations (Euratom)
2021/100 and (Euratom) 2021/948, COM(2025)598
EISi toimiku nr: 25-0565
Tähtaeg: 14.11.2025
Adressaat: Rahandusministeerium, Siseministeerium, Sotsiaalministeerium, Välisministeerium
Ülesanne: Palun esitada oma sisend Kliimaministeeriumileseisukohtade kujundamiseks antud eelnõu
kohta (eelnõude infosüsteemi (EIS) kaudu).
Tähtaeg: 31.10.2025
Lisainfo: Eelnõu on kavas arutada valitsuse 27.11.2025 istungil ja Vabariigi Valitsuse reglemendi §
6 lg 6 kohaselt sellele eelneval nädalal (19.11..2025) EL koordinatsioonikogus. Esialgsed materjalid
EL koordinatsioonikoguks palume esitada hiljemalt 14.11.2025.
Kinnitaja: Merli Vahar, Euroopa Liidu asjade direktori asetäitja
Kinnitamise kuupäev: 01.10.2025
Resolutsiooni koostaja: Sandra Metste
[email protected],