Explanatory Memorandum to COM(2025)60 - Research and Training Programme of Euratom for the period 2026-2027 complementing Horizon Europe - the Framework Programme for Research and Innovation - Main contents

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dossier	COM(2025)60 - Research and Training Programme of Euratom for the period 2026-2027 complementing Horizon Europe - the Framework Programme ...
source	COM(2025)60
date	28-02-2025

1. CONTEXT OF THE PROPOSAL

• Reasons for and objectives of the proposal

This proposal for a Euratom Research and Training Programme for 2026-2027 (the ‘Programme’) effectively extends the current 2021-2025 Euratom Research and Training Programme (the ‘2021-2025 Programme’)¹ for the remaining 2 years ² of the current multiannual financial framework (MFF)³.

The proposed Programme, while separate, retains most of its predecessor’s features, including its key research activities ⁴. The Programme’s financial envelope had already been set at EUR 598 million (current prices) when the MFF was adopted. The proposal sets out the budget for direct and indirect actions, the general and specific objectives, and describes the support instruments.

1. The Commission will aim to implement the Programme with the following priorities:

- Safety research will provide: (i) tools and guidance for the operators of nuclear power plants (NPPs) and for safety authorities to monitor the safety of existing nuclear installations; (ii) know-how and solutions to enable future NPPs, including small modular reactors (SMRs), to meet the safety requirements; and (iii) tools and methods for safety authorities to test new designs and facilitate licencing. Funding for research projects in this area will be highly selective, as most of the fission budget will be absorbed by co-funded partnerships.

- The Programme will provide the co-funded European Partnerships in fission research (radiation protection, radioactive waste management, nuclear materials) with additional funding to ensure they can adapt to the changing research landscape and include new stakeholders and all Member States.

- The Programme will seek to maintain the EU’s leadership position in fusion research by launching a co-programmed European Partnership that will bring together stakeholders in the public and private sectors to tackle bottlenecks in the process for designing and building a first fusion power plant.

- The Programme will continue to support long-term actions in education and training by offering students and researchers mobility and access to infrastructure, giving stakeholders and users stability and predictability. Emphasis will be placed on greater interaction between these actions, partnerships and ongoing and new projects.

- The Programme will continue to fund research into developing techniques to support nuclear safeguards, security and non-proliferation efforts, given the substantial increase in the deployment of nuclear fission technologies worldwide.

If no action is taken on nuclear research at European level, it is likely that only the larger Member States will have the capability to maintain national programmes. Intra-European cooperation is likely to be limited to those larger Member States and to bilateral arrangements. Smaller Member States could face scientific isolation and a loss of expertise. The Programme is intended to be inclusive of all Member States and research efforts, while complementing the EU’s Framework Programme, which supports non-nuclear research.

The Commission started preparations for the proposal by consulting the Euratom Scientific and Technical Committee (STC), as required by the legal basis ⁵. The STC delivered an opinion ⁶ which the Commission took into consideration when preparing this proposal.

• Consistency with existing policy provisions in the policy area

The Programme will carry over the research activities of its predecessor. It is consistent with and complements the Horizon Europe Framework Programme for Research and Innovation ⁷ in the area of nuclear research. It applies Horizon Europe’s rules for participation and dissemination and uses the same instruments, including European Partnerships ⁸. The provisions on synergies ⁹ also ensure that the two programmes complement each other.

• Consistency with other Union policies

By supporting excellent research and ensuring the right conditions for research and the development of new skills, the proposal is consistent with EU policies that seek to increase EU’s competitiveness.

The Programme will support research initiatives in nuclear safety and the strategic areas supported in the Net-Zero Industry Act ¹⁰. It will also support the safety initiatives of the recently established European Industrial Alliance on Small Modular Reactors.

The Programme will contribute to implementing Chapter 7 of the Treaty establishing the European Atomic Energy Community (the ‘Treaty’) on nuclear safeguards ¹¹. It will also contribute to the EU’s security agendas and strategies by supporting nuclear security research.

Research funded by the Programme will support the implementation of the Euratom Directives on the safety of nuclear installations ¹², the safe management of spent fuel and radioactive waste ¹³, and radiation protection ¹⁴.

The Programme will also continue to support the implementation of the European Instrument for International Nuclear Safety Cooperation ¹⁵ and the nuclear and radiological aspects of the Neighbourhood, Development and International Cooperation Instrument ¹⁶.

2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

The Treaty states that the Commission is responsible for promoting and facilitating nuclear research in the Member States and for complementing it by conducting a Community research and training programme (Article 4). That programme is to be adopted by the Council acting unanimously on a proposal from the Commission (Article 7).

According to the Treaty, the European Parliament is not consulted, but in the past the holder of the Council’s rotating Presidency invited Parliament to make comments on proposed regulations setting up the Euratom Programmes. The European Economic and Social Committee will be kept informed, as required by the legal basis (Article 7).

• Subsidiarity (for non-exclusive competence)

The Programme helps Member States, irrespective of their national choice to generate or consume nuclear fission power, to work together to develop the opportunities offered by nuclear science and to reduce the risks of the different applications of ionising radiation.

The Programme is of interest not only to the 12 Member States that operate NPPs as part of their national energy mix, but also to the many other Member States that operate reactors for research purposes or radioisotope production. Indeed, it is of interest to all EU countries that use radioisotopes for medical purposes. All Member States stand to benefit from developing and sharing competencies in nuclear safety and the safe management of radioactive waste.

The development of fusion energy, which calls for research efforts on a very large scale, is in the interest of all EU Member States. Finally, all Member States use or benefit from radiation in medical, industrial, agricultural, environmental and security applications. The harmonised standards laid down by the various Euratom directives clearly underline the need for a uniform approach to technical matters and training across the EU.

Nuclear security is a national responsibility. However, to reinforce capacity building at the EU and national level, the Programme’s direct actions help to address some of the security challenges facing the EU and the global dimensions of those challenges in the fields of mitigation of CBRN security risks, nuclear and radiological material detection and forensics analysis, along with appropriate training. Safeguards are the exclusive competence of the Euratom Community and continuous technical support, research and development in this area through direct actions are crucial to keep the Euratom safeguards system efficient and effective.

• Proportionality

The Programme provides for measures to support researchers and coordinate Member States’ research efforts with a view to avoiding duplication, retaining critical mass in key areas and ensuring that public funds are spent to best effect. Such measures may lead to additional public and private investments in R&I. They are also needed to support policymaking and meet the objectives set out in EU policies. The proposed measures do not go beyond what is required to achieve the Community’s objectives.

• Choice of the instrument

The Programme will be implemented by a Council regulation, as was its predecessor. This creates rights and obligations for beneficiaries that are binding in their entirety and directly applicable in all EU Member States and countries associated with the Programme. This is also consistent with the way in which other EU spending programmes are set up.

3. RESULTS OF EVALUATIONS, STAKEHOLDER CONSULTATIONS AND IMPACT ASSESSMENTS

• Evaluations/fitness checks of existing legislation

This proposal drew on the ex post evaluation ¹ of the 2014-2020 Euratom Research and Training Programmes ² and the interim evaluation ³ of the 2021-2025 Programme.

The ex post evaluation concluded that the 2014-2020 Programme had provided significant support for nuclear safety, security and radiation protection, and helped to ensure that Europe meets the highest standards in those fields. The 2014-2020 Programme also contributed to the long-term decarbonisation of the EU’s energy system by: (i) providing a knowledge base and solutions for the long-term operation of existing NPPs; (ii) advancing knowledge and technologies necessary for the development of fusion energy; and (iii) building the safety case for advanced nuclear systems. The Programme also helped to maintain and further develop essential nuclear skills through effective knowledge management and a wide offer of education and training, while continuously supporting nuclear-related policies. The Programme has been of particular benefit to smaller Member States, which could take advantage of economies of scale and open access to JRC facilities. Member States not using nuclear power participated mainly in projects on radiation protection, medical applications and radioactive waste management. Some of them also participated in research on nuclear safety and nuclear data to maintain important competencies in those areas.

Following the ex post evaluation, the interim evaluation of the 2021-2025 Programme confirms its continued relevance and significant support for the safe and secure use of nuclear technologies through its wide research portfolio of direct and indirect actions.

The evaluation concluded that maintaining the Programme’s scope and budget for fission research at the same level as for 2021-2025 Programme would provide continuity in research for the safe operation of existing NPPs in Europe and for the safety assessment of new reactor technologies. However, funding for research projects in this area will be highly selective, as most of the fission budget will be absorbed by co-funded partnerships. Nor will the present scope and level of funding be sufficient if the EU wants to (i) catch up with international competitors, (ii) address key issues for the development of SMRs, advanced fuels and fuel cycles, and (iii) substantially increase nuclear skills in the EU.

The Programme should continue to provide funding in 2026-2027 for the co-funded European Partnerships in fission research: PIANOFORTE (radiation protection), EURAD-2 (radioactive waste management) and Connect-NM (nuclear materials). These Partnerships are the result of long-term efforts by the research community, stakeholders and Member States to make progress together with a common research agenda and to address key challenges in all the fields concerned. While scientific progress has been made to date, the Commission will push to further improve the organisation and operation of the partnerships to ensure that the research funded by the Euratom Programme remains relevant for all EU citizens and that it addresses the most pressing challenges in radiation protection, radioactive waste management and nuclear materials. The Commission will pay particular attention to the partnerships so as to systematically consider the long-term perspectives of a broad range of stakeholders and Member States in a sustainable way.

The results of Euratom-funded fusion research are impressive, but they are not sufficient to bring fusion energy to the market in time to support the EU’s decarbonisation efforts and to boost competitiveness. It is necessary to identify the critical issues and risks involved in constructing the fusion power plant that should drive Euratom-funded research now and in the coming years, relying on past and ongoing EU-led initiatives, notably ITER. The first step was the setting up of the Commission’s Fusion Expert Group ⁴ in 2024 which, like the previous Consultative Committee on Fusion ⁵, brings together Member States in an advisory body to support the steering, coordination and harmonisation of fusion-related initiatives in the Union.

The Programme must evolve to address the technology bottlenecks that require additional focus and investment, while involving more private financing and industry experience and increasing international collaboration with reliable partners where there is a clear added value for the EU. The Commission has already started to prepare a co-programmed European Partnership in this field which will bring together stakeholders in the public and private sectors. The 2026-2027 actions will pave the way for this milestone-driven partnership and for supplementary innovation actions. A new partnership of this kind also means rethinking the role and activities of EUROfusion, which will play a major role in developing the fundamentals of fusion science. Further details will be provided in the Communication on the Union’s future fusion strategy, which is currently being prepared.

The evaluation concluded that the JRC benefits the Euratom Community and a number of external stakeholders by providing highly relevant analyses and studies on the whole spectrum of activities from nuclear safety to security and safeguards. Analyses on ways to treat, minimise and recycle nuclear waste or to evaluate their characteristics and behaviour were deemed to be of great importance for the European nuclear sector. By providing nuclear data, measurements and reference materials, the JRC made an essential contribution, especially to the safety and security assessment of current systems and future technologies such as SMRs. In the area of safeguards and non-proliferation, the JRC’s expertise and research made a valuable contribution both at European and international level, including as part of the Commission’s programme to support the International Atomic Energy Agency (IAEA).

The JRC’s projects for non-power applications are equally relevant and served to advance the EU’s policy goals in the medical and space spheres. The results of direct actions research make an ongoing and essential contribution to the safe and secure use of nuclear technology. The JRC’s education and training activities provided significant added value to EU Member States, far exceeding national-level capacities. Its direct actions in the sphere of education and training together with the access to its nuclear facilities complement Member States’ capacities and represent a high added value at EU level, contributing to independent research within the Euratom Community. The JRC’s direct actions also support the implementation and monitoring of EU policies in nuclear safety, radioactive waste management, radiation protection, nuclear safeguards as well as non-proliferation initiatives.

As part of its strategy for its nuclear activities and in line with recommendations from the interim evaluation, the JRC will focus on optimising the use of its nuclear infrastructures and ensure their sustainable operation. The JRC is continuing with the construction of the new building in Karlsruhe (Wing M) and is working towards concentrating experimental activities using radioactive materials to two sites (Karlsruhe and Geel). Using the new portfolio approach in its work programme, the JRC will continue to improve synergies across various research domains, making the most of both nuclear and non-nuclear activities. The JRC will also improve its foresight capability and make better use of its current capacities for analysing trends and defining its own nuclear research. It will also provide Member States with useful scientific knowledge to develop their radioactive waste national strategies and will help them share experiences and good practices. In the area of nuclear competencies, in addition to continuing to provide specialised training, the JRC will continue to develop methodologies to support Member States assessment and monitoring of the human resource needs in the nuclear sector through the European Human Resources Observatory on Nuclear.

• Stakeholder consultations

From March to May 2024, the Commission carried out a joint call for evidence and a public consultation for the interim evaluation of the 2021-2025 Programme and the preparation of this proposal ⁶. That consultation provided valuable insights into the Programme’s effectiveness and highlighted key areas for improvement. It revealed a high level of stakeholder participation in Euratom-funded projects and identified the Programme’s benefits and challenges. Further details are provided in Annex V to the staff working document on the interim evaluation.

• Collection and use of expertise

In the course of carrying out the interim evaluation and drawing up its proposal, the Commission held a number of meetings with stakeholders, collected input and drew on expertise from the following sources:

- an opinion of the Euratom STC on priorities for European nuclear research and training ⁷;

- an independent report by an expert panel to assess the JRC’s direct actions as part of supporting the interim evaluation of the 2021-2025 Programme ⁸;

- independent reports by individual experts on the indirect actions as part of the interim evaluation of the 2021-2025 Programme ⁹;

- the interim evaluation of the Fusion for Energy Joint Undertaking (F4E JU)¹⁰;

- the High-Level European Round Table on Fostering Fusion Innovation on 14 March 2024 ¹¹;

- the EU blueprint for fusion energy on 23 April 2024 ¹²;

- the outcome of the stakeholders’ meeting on ‘Euratom Research in Action and Opportunities for Europe’¹³.

• Impact assessment

This proposal is supported by the interim evaluation of the 2021-2025 Programme, which presented that Programme’s achievements and proposed improvements that are also relevant for 2026-2027.

It was decided to use the interim evaluation as an evidence base to prepare the proposal instead of carrying out an ex ante impact assessment, since the Euratom Programme covers 5 years (rather than 7 years in the case of most MFF spending programmes) and since the proposal has no new financial implications. The interim evaluation was considered to satisfy the requirements of the Financial Regulation regarding an ex ante evaluation since it is sufficiently recent and since the Programme proposed here will retain the main elements of its predecessor.

Use was also made of the findings of the ex ante impact assessment for the 2021-2025 Programme ¹⁴ where they are still relevant.

• Regulatory fitness and simplification

Like its predecessor, the Programme will be implemented using Horizon Europe’s instruments and rules of participation and dissemination. Simplification measures already introduced in Horizon Europe will also apply to the Programme’s applicants and beneficiaries. Thus, the interim evaluation of Horizon Europe may lead to further simplification that will apply to the Euratom Programme. The results of the public consultation on the interim evaluation of the 2021-2025 Programme show that the measures implemented so far, such as simpler audit rules and recognising the beneficiary’s usual accounting practices, have reduced the administrative burden and that the simplification process should continue. The single list of objectives for direct and indirect actions, which further simplified the structure and evaluation of the Programme, is being retained. The likely impacts of simplification and the reduced administrative burden are explored in more detail in the interim evaluation.

• Fundamental rights

The proposed regulation respects fundamental rights and observes the principles recognised in the Charter of Fundamental Rights of the European Union. Recital 21 of the proposed regulation ensures that the Programme’s actions are also in line with the Charter.

4. BUDGETARY IMPLICATIONS

The budget for this proposal uses current prices. The legislative financial statement attached to the proposal sets out the implications in terms of the budget and in terms of human and administrative resources. Those implications have been known since the financial envelope for the Euratom Programmes was agreed for the 2021-2027 MFF.

5. OTHER ELEMENTS

• Implementation plans and monitoring, evaluation and reporting arrangements

The Commission will implement the Programme through direct management and indirect management by European Partnerships (see Article 6 i of the proposal).

The monitoring, evaluation and reporting arrangements for the Programme will be based on those of its predecessor. A final evaluation will be carried out within 4 years of the Programme’s completion to assess its effects on the ground. Direct and indirect actions will be subject to a common final evaluation.

• Detailed explanation of the specific provisions of the proposal

Chapter I sets out the general provisions of the proposed regulation. It includes articles on the subject matter, definitions, Programme objectives, budget, the association of third countries to the Programme, implementation and forms of funding, European Partnerships, open science, eligible actions and rules of participation, and cumulative, alternative and combined funding.

The only changes compared to Chapter I of Regulation (Euratom) 2021/765 are those needed to update the text to the new period covered by the Programme, to update the financial envelope and to remove retroactivity provisions, as this Regulation is expected to come into effect before the start of the Programme.

Chapter II (‘Programming, monitoring, evaluation and control’) includes provisions on work programmes, monitoring and reporting, information, communication, publicity and dissemination and exploitation, evaluation, audits, the committee procedure and the protection of the EU’s financial interests. No changes are proposed there, except for the removal of the requirement for an interim evaluation and the consequential reorganisation of Article 14.

Only minor updates are proposed for Chapter III (‘Transitional and final provisions’), which include repealing Regulation (Euratom) 2021/765, and updating ‘Transitional provisions’ and ‘Entry into force’. Retroactivity provisions are no longer necessary and have been removed.

Only two changes will be made to the Programme’s activities (Annex I). The first is the addition of a provision to ensure funding continuity for European Partnerships and other ongoing actions that may require a top-up ¹. That provision will allow the Commission, via a work programme, to continue to fund grants awarded under the 2021-2025 Programme and effectively cover the 7 years of the 2021-2027 MFF.

The second change to Annex I is in Section (c) on fusion research, which provides for funding for research in that field in addition to the funding provided to the co-funded European Partnership. In line with findings of the interim evaluation, that additional funding will support actions that address the main bottlenecks in fusion development and will involve the private sector. Support will be provided through calls for proposals.