What changed between the draft committee report and the plenary report

Added:(13a) The Programme should ensure the highest standards of radiation protection for workers involved in decommissioning activities and for the general public and the environment, including health and safety measures, skills development, and fair working conditions, in full respect of Union laws, standards and the precautionary principle. Given the potentially severe and long-term risks associated with nuclear installations and the management of radioactive waste, all activities under the Programme should avoid placing undue burdens on future generations.

Removed:Recital 20: (20) Activities under the Programme should be conducted with a joint financial effort by the Union and Lithuania. A Union co-financing threshold has been established in line with the co-financing practice established under the predecessor programmes. Taking into account the practice of comparable Union programmes and the strengthened Lithuanian economy, from the inception of the Programme until the end of the implementation of the activities financed under this Regulation, the Union co-financing rate should be as close to 86% as possible of eligible costs. The remaining co-financing should be provided by Lithuania and sources other than the Union budget, such as international financial institutions and other donors. Since the beginning of the Programme, Lithuania has contributed about 14% to direct decommissioning activities. However, as the Ignalina Programme does not cover certain related activities, including physical and fire safety, Lithuania’s actual contribution is higher. At the same time, Lithuania continues to bear full responsibility for the socio-economic development of Visaginas, a city, which was purpose- built in connection with the construction and operation of the nuclear power plant and which remains significantly affected by highest unemployment rates due to the premature closure of the plant.

Added:(14) The JRC should facilitate the dissemination of knowledge on nuclear decommissioning among different Union stakeholders in a coordinated way, for example by carrying out market analysis, reviews and assessments of knowledge needs in the Union and, where relevant, third countries, identifying potential directions for cooperation, interested stakeholders and spheres in which knowledge created in the implementation of the Programme would bring the greatest added value, and developing formats for knowledge sharing. The dissemination of knowledge created should be financed by the JRC. Any Member State should be able to initiate the development of ties and exchanges for knowledge dissemination. Where relevant, such exchanges could involve third countries, where such cooperation aligns with the Union’s strategic interests and priorities, in consistency and complementarity with actions carried out under Regulation [XXX] of the European Parliament and of the Council [Global Europe] and Council Regulation [XXX] [INSC-D]. In order to strengthen the Union’s technological sovereignty and strategic autonomy in the nuclear decommissioning sector, knowledge generated under the Programme should primarily reinforce Union capacities. Any dissemination beyond the Union should be duly controlled and subject to appropriate confidentiality requirements, ensuring the protection of the Union’s security interests, intellectual property and technological leadership.

Removed:In the current programme the co-financing rate was kept at 86%, and it is important to ensure that the EU support in the new programme remains at this level.

Added:(15) The decommissioning of the Ignalina nuclear power plant should be carried out with recourse to the best available technical expertise, and with due regard to the nature and technological specifications of the installations to be decommissioned, in order to ensure safety and the highest possible efficiency, taking into account European and international best practices, ensuring the highest level of nuclear safety and environmental protection, and considering the need to minimise risks throughout the entire lifecycle of decommissioning activities.

Removed:Article 3 – paragraph 1 – subparagraph 1 – point a: (a) to adequately assist Lithuania in implementing the decommissioning of the Ignalina nuclear power plant, with specific emphasis on managing the radiological safety challenges;

Added:(15a) In light of the evolving security environment and the threats posed to critical infrastructure, including to nuclear decommissioning sites, by unmanned aerial systems, as demonstrated by the drone attack on the Chernobyl nuclear power plant in February 2025, the Programme should also be able to finance measures to increase the security of the nuclear facility site from such hybrid threats.

Removed:Article 3 – paragraph 1 – subparagraph 2: The knowledge referred to in point (b) of the first subparagraph shall be disseminated at Union level, and, under certain conditions, beyond, in all relevant areas, developing potential Union synergies, under programme Instrument for Nuclear Safety Cooperation and Decommissioning (INSC-D), as set out in Article [X] of Regulation (Euratom) [XXX].

Added:(16) The efficiency of the Programme should be enhanced through improved organisation and the optimal use of human resources. In view of the dismantling activities to be performed during 2028-2034 and the planned outsourcing of the full dismantling of reactor shaft central zones, targeted upskilling, reskilling and training measures should be implemented to support the adaptation and redeployment of personnel. Where workforce adjustments due to outsourcing are considered, they should only take place once the outsourcing has been implemented and should be coupled with retraining and reskilling policies. Such adjustments should not endanger the safe and effective conduct of the decommissioning process.

Removed:Article 3 – paragraph 2: 2. The Joint Research Centre shall coordinate the structuring and dissemination of knowledge, referred to in paragraph 1, first subparagraph, point (b), to Member States and, when relevant and under certain conditions, third countries. Those activities shall be financed under the INSC-D programme and funded by the Union at 100% of eligible costs. Knowledge dissemination shall be subject to appropriate safeguards which ensure that sensitive technical information, critical know-how and strategic capabilities developed with Union funding are protected against uncontrolled transfer or misuse.

Added:(17) An effective monitoring and control of the evolution of the decommissioning process should be ensured by Lithuania and the Commission in order to ensure the highest Union added value of the funding allocated under this Regulation, although the ultimate responsibility for the decommissioning remains with Lithuania. The monitoring and control include effective measurement of progress, and the enacting of corrective measures where necessary. To that end, as part of work programmes adopted in accordance with Article 9 of Council Regulation (EU) 2021/101, a committee with monitoring and information functions has been established and co-chaired by a representative of the Commission and of Lithuania.

Removed:Sharing the knowledge indiscriminately, risks empowering Europe’s competitors, including geopolitical rivals at the expense of the Union’s interest.

Added:(18) It should be possible to review the level of the appropriations allocated to the Programme on the basis of comprehensive implementation report with a view to ensuring the continuous and uninterrupted delivery of decommissioning activities. Any such review should take into account evolving risks, including those related to the protection of critical infrastructure, while ensuring that nuclear safety is maintained at all times.

Removed:Article 3 – paragraph 3: 3. The specific objective of the Programme shall be to carry out the engineering, dismantling and decontamination of the Ignalina equipment and reactor shafts in accordance with the decommissioning plan, including the management of radioactive waste resulting from the decommissioning activities, and to continue with the safe management of the decommissioning and legacy waste. Taking into account the evolving security environment and the threats posed to strategic infrastructure by unmanned aerial systems, the Programme shall be used to finance measures to increase the security of the nuclear facility site from such threats.

Added:(19) Activities co-financed under this Regulation should be identified within the boundaries laid down by the decommissioning plan submitted by Lithuania under Regulation (Euratom) 1369/2013, and its subsequent revisions. The decommissioning plan defines the scope of the Programme, the decommissioning end-state and end-date; it covers the decommissioning activities, their associated schedule, costs and required human resources. Where relevant, in accordance with the provisions of Lithuanian law or within a shorter time frame, in case of any significant event that has an impact on the content of that plan, Lithuania should submit an updated decommissioning plan to the Commission for its consideration in preparing the multiannual work programmes.

Removed:In recent years, nuclear power plants have become target of military strikes - for instance in February 2025, when a drone has caused nearly irreparable damage to the sarcophagus of the Chernobyl reactor, resulting in significant economic cost. Therefore, the Rapporteur proposes to include the anti-drone protection of the site within the scope of the Programme, to safeguard the population and prevent environmental and economic losses. This would also serve to protect the investments the Union has made over the years into the decommissioning of this object.

Added:(20) Activities under the Programme should be conducted with a joint financial effort by the Union and Lithuania. A maximum Union co-financing threshold has been established in line with the co-financing practice established under the predecessor programmes. Taking into account the practice of comparable Union programmes and the strengthened Lithuanian economy, from the inception of the Programme until the end of the implementation of the activities financed under this Regulation, the Union co-financing rate should be as close to 86% as possible of eligible costs. The remaining co-financing should be provided by Lithuania and sources other than the Union budget, such as international financial institutions and other donors. Since the beginning of the Programme, Lithuania has contributed about 14% to direct decommissioning activities. However, as the Programme does not cover certain related activities, including physical and fire safety, Lithuania's actual contribution is higher. At the same time, Lithuania continues to bear full responsibility for the socio-economic development of Visaginas, a city purpose-built for the nuclear power plant, which remains significantly affected by the highest unemployment rate following the closure of the plant. While those challenges are hereby acknowledged, funding under this Programme should not be used to address them, and should, where necessary, be supported by resources from other funds.

Removed:Article 3 – paragraph 4: 4. The detailed description of the specific objective referred to in paragraph 3 of this Article is set out in the Annex.

Added:(21) Due account was taken of the Court of Auditors’ Special Report No 22/2016, its recommendations, and the reply from the Commission.

Removed:The Annex is important part of the regulation therefore it should not be modified after the regulation has been adopted.

Added:(22) The Programme falls within the scope of the Lithuanian National Programme under Directive 2011/70/Euratom.

Removed:Article 4 – paragraph 1: 1. The financial envelope for the implementation of the Programme for the period from 1 January 2028 to 31 December 2034 is set at EUR 678 000 000 in current prices.

Added:(23) In order to ensure uniform conditions for the implementation of the objectives of the Programme, implementing powers should be conferred on the Commission. Those powers should be exercised in accordance with Regulation (EU) No 182/2011 of the European Parliament and of the Council.

Removed:In the Rapporteur’s view, the term “indicative” is misleading, as it implies uncertainty about the Programme’s funding level. During the next MFF, dismantling of the reactor cores will begin, and once started, this work cannot be interrupted. Any funding uncertainty therefore raises serious nuclear safety concerns.

Added:(24) The methods of implementation and the forms of Union funding laid down in this Regulation should be chosen on the basis of their ability to efficiently achieve the specific objectives of the actions and to deliver results, taking into account, in particular, high level of safety, 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.

Removed:Article 4 – paragraph 4: 4. The financial envelope referred to in paragraph 1 of this Article and the amounts of additional resources referred to in Article 5 may also be used for technical and administrative assistance for the implementation of the Programme, such as preparatory, monitoring, control, audit and evaluation activities, corporate information technology systems and platforms, information communication and visibility 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 Programme, as well as for the protection of the site against unmanned aerial systems.

Added:(25) The Programme replaces the programme established by Regulation (EU) 2021/101 for the period from 1 January 2021 to 31 December 2027. That Regulation should therefore be repealed,

Removed:In recent years, nuclear power plants have become target of military strikes - for instance in February 2025, when a drone has caused nearly irreparable damage to the sarcophagus of the Chernobyl reactor, resulting in significant economic cost. Therefore, the Rapporteur proposes to include the anti-drone protection of the site within the scope of the Programme, to safeguard the population and prevent environmental and economic losses. This would also serve to protect the investments the Union has made over the years into the decommissioning of this object.

Added:HAS ADOPTED THIS REGULATION:

Removed:Article 8 – paragraph 1: 1. Only activities implementing the objectives set out in Article 3 shall be eligible for Union funding. Union funding under the Programme shall be limited to legal entities established in a Member State or in a country associated with relevant Union programmes, unless otherwise justified by duly substantiated security or technical necessity.

Added:Article 1

Removed:Limiting eligibility would strengthen the protection of sensitive technologies, critical infrastructure and strategic know-how. It would also support the Union’s objective of reinforcing technological sovereignty and strategic autonomy. Exceptions can be made only by substantial security or technical necessity.

Added:Subject matter

Removed:Article 9 – paragraph 1: The overall Union co-financing rate applicable under the Programme shall be as close to 86% as possible. The remaining financing shall be provided by Lithuania and additional sources other than the Union budget.

Added:This Regulation establishes the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania (‘the Programme’) and lays down the objectives of the Programme, its budget for the period from 1 January 2028 to 31 December 2034, the forms of Union funding and the rules for providing such funding.

Removed:In the current programme the co-financing rate was kept at 86%, and it is important to ensure that the EU support in the new programme remains at this level.

Added:Article 2

Removed:Annex I – paragraph 1 – point II: deleted

Added:Definitions

Removed:Committing in advance to a substantial workforce reduction before the outsourcing process is successfully completed would create unnecessary operational risk. It is therefore prudent to retain sufficient skilled personnel until a reliable and fully secured outsourcing arrangement is in place.

Added:For the purposes of this Regulation, the following definitions apply:

Removed:Annex I – paragraph 1 – point IV a (new): (IVa) The protection of the nuclear facility from aerial threats posed by unmanned systems.

Added:(1) ‘decommissioning’ means administrative and technical measures which allow the removal of some or all of the regulatory controls from a nuclear facility and which aim at ensuring the long-term protection of the public and the environment, including the reduction of the levels of residual radionuclides in the materials and on the site of the facility;

Removed:In recent years, nuclear power plants have become target of military strikes - for instance in February 2025, when a drone has caused nearly irreparable damage to the sarcophagus of the Chernobyl reactor, resulting in significant economic cost. Therefore, the Rapporteur proposes to include the anti-drone protection of the site within the scope of the Programme, to safeguard the population and prevent environmental and economic losses. This would also serve to protect the investments the Union has made over the years into the decommissioning of this object.

Added:(2) ‘decommissioning plan’ means a document containing detailed information on the proposed decommissioning and covering the selected decommissioning strategy; the schedule, type and sequence of decommissioning activities; the waste management strategy applied, including clearance; the proposed end state; the storage and disposal of the waste from decommissioning; the timeframe for decommissioning; the cost estimates for the completion of decommissioning; and the objectives, expected results, milestones, target dates, as well as the corresponding key decommissioning indicators, including earned value based indicators. The plan is prepared by the nuclear facility license holder and is reflected in the multiannual work programmes of the Programme.

Removed:Annex I – paragraph 1 – point IV b (new): (IVb) The disposal of spent fuel and radioactive waste in a deep geological repository and the funding for the realisation of a deep geological repository.

Added:Article 3

Removed:Annex I – paragraph 1 – subparagraph 1: deleted

Added:Programme objectives

Removed:Lithuania prematurely closed the Ignalina NPP before the adoption of the Directive and was therefore not in a position to accumulate sufficient funds for the storage and disposal of spent fuel and radioactive waste. Also, the Ignalina Programme is a decommissioning support programme; the deep repository is intended for the disposal of long-lived waste, including spent nuclear fuel and irradiated graphite, and graphite is waste generated during decommissioning, so it is logical that it should be financed from the decommissioning programme. Also, the Ignalina Programme is a decommissioning support programme; the deep repository is intended for the disposal of long-lived waste, including spent nuclear fuel and irradiated graphite, and graphite is waste generated during decommissioning, so it is logical that it should be financed from the decommissioning programme.

Added:1. The Programme has the following general objectives:

Added:(a) to adequately assist Lithuania in implementing the decommissioning of the Ignalina nuclear power plant, with specific emphasis on managing the radiological safety challenges and optimising the efficiency of the programme implementation through improved organisation, innovation and the upskilling and reskilling of the workforce, while ensuring that any reduction of the workforce does not create unnecessary operational risks.

Added:(b) to create knowledge on the nuclear decommissioning process and the management of radioactive waste resulting from the decommissioning activities, delivering explicit knowledge products on decommissioning and waste management governance issues, managerial best practices, health and safety protocols for workers and the general public and technological challenges, with a particular focus on preventing environmental contamination and adverse health effects from radioactive materials.

Added:The knowledge referred to in point (b) of the first subparagraph shall be disseminated at Union level, and, where appropriate, beyond, in all relevant areas, developing potential Union synergies, under programme Instrument for Nuclear Safety Cooperation and Decommissioning (INSC-D), as set out in Article [X] of Regulation (Euratom) [XXX].

Added:2. The Joint Research Centre shall coordinate the structuring and dissemination of knowledge, referred to in paragraph 1, first subparagraph, point (b), to Member States and, when relevant, and under certain conditions, to third countries without disclosing any sensitive information held by undertakings. Any dissemination beyond the Union shall be duly controlled and subject to appropriate confidentiality safeguards which ensure the Union’s security interests, intellectual property and technological leadership. Those activities shall be financed under the INSC-D programme and funded by the Union at 100% of eligible costs. Where a third country is granted access to the knowledge or training provided under the Programme, it may be subject to an appropriate financial contribution, which shall be agreed between the Union and the third country.

Added:3. The specific objective of the Programme shall be to carry out the engineering, dismantling and decontamination of the Ignalina equipment and reactor shafts in accordance with the decommissioning plan, including the management of radioactive waste resulting from the decommissioning activities, ensuring the highest standards of radiation protection for workers, the general public and the environment and to continue with the safe management of the decommissioning and legacy waste, while preventing long-term environmental harm and adverse health effects. In light of the evolving geopolitical and security environment, the nuclear decommissioning site shall be adequately protected against hybrid threats, including attacks on critical infrastructure by unmanned aerial systems. To that end, the Programme may be used to finance measures to increase the security of the nuclear facility site from such threats.

Added:4. The detailed description of the specific objective referred to in paragraph 3 of this Article is set out in the Annex. The Commission may amend, by means of implementing acts, the Annex. Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 11(2). Implementation of the Programme and its specific objectives shall be guided by clear targets and milestones and a focus on cost-efficient and transparent spending of the budget.

Added:Article 4

Added:Budget

Added:1. The programme envelope for the implementation of the Programme for the period from 1 January 2028 to 31 December 2034 is set at EUR 678 000 000 in current prices (EUR 602 720 000 in 2025 prices).