EUROPEAN COMMISSION

Brussels, 3.9.2025

COM(2025) 476 final

2025/0268(NLE)

Proposal for a

COUNCIL REGULATION

establishing the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania for the period 2028-2034, and repealing Regulation (EU) 2021/101

{SWD(2025) 255 final} - {SWD(2025) 256 final}

EXPLANATORY MEMORANDUM

1.CONTEXT OF THE PROPOSAL

•Reasons for and objectives of the proposal

The programme has been conducted through several financial programming periods since the early 2000s, and according to the ongoing revision of the decommissioning plan, the activities should end in 2049. The decommissioning of these reactors is a first-of-a-kind activity entailing technological challenges such as the dismantling of graphite cores and the subsequent management of substantial amounts of irradiated graphite.

The programme is about to meet several key milestones, with the help of funding under the 2021-2027 multiannual financial framework. These include: (i) the completion of dismantling of the top and bottom parts of the reactor core at Unit 1; (ii) the kick-off of the contract for dismantling central parts of reactor cores; and (iii) the kick-off of the contract for the design and construction of the graphite interim storage facility. However, a substantial amount of additional funding will be needed to address the main remaining radiological safety issues related to the decommissioning of the Ignalina nuclear power plant.

The programme originated during the negotiations for the accession of Lithuania to the European Union. Lithuania's commitment to close and subsequently decommission the two Soviet-designed nuclear reactors by a commonly agreed date is enshrined in the Lithuania's Accession Treaty 1 . As an act of solidarity and acknowledging the long-term nature of the decommissioning of the Ignalina nuclear power plant and the exceptional financial burden related to it, the European Union committed itself, through Protocol No 4 of Lithuania's Accession Treaty 2 , to provide adequate financial assistance, based on actual payment needs and absorption capacity, for the decommissioning of Ignalina nuclear power plant.

•Consistency with existing policy provisions in the policy area

•Consistency with other Union policies

2.LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

•Legal basis

•Subsidiarity (for non-exclusive competence)

•Proportionality

Under the next multiannual financial framework (2028-2034), the programme will focus on the radiological safety challenges related to the decommissioning of the Ignalina nuclear power plant where the greatest EU added value can be achieved (i.e. progressive decrease of the level of radiological hazard for workers, the public, and the environment in Lithuania but also in the EU as a whole).

•Choice of the instrument

3.RESULTS OF EX-POST EVALUATIONS, STAKEHOLDER CONSULTATIONS AND IMPACT ASSESSMENTS

•Ex-post evaluations/fitness checks of existing legislation

(i)deeper involvement of the Member State for increased ownership together with stronger accountability of the decommissioning operator (final beneficiary);

(ii)streamlining of procedures to enhance the timeliness and effectiveness of the management cycle;

(iii)better alignment with the performance of other decommissioning programmes.

•Stakeholder consultations

The proposals for EU programmes under the 2028-2034 multiannual financial framework were preceded by seven public consultations, including on EU funding for the single market, and cooperation between national authorities, EU funding for competitiveness, and implementing EU funding with Member States and regions. The consultations targeted a wide range of stakeholders, including the general public, businesses, SMEs, public authorities, recipients of EU funding, civil society organisations, academia and international stakeholders.

•Collection and use of expertise

•Impact assessment

–EU leveraging on the safety objectives;

–maximising knowledge gain for the decommissioning of nuclear reactors across the EU and beyond.

•Regulatory fitness and simplification

•Fundamental rights

4.BUDGETARY IMPLICATIONS

5.OTHER ELEMENTS

•Implementation plans and monitoring, evaluation and reporting arrangements

•Detailed explanation of the specific provisions of the proposal

2025/0268 (NLE)

Proposal for a

COUNCIL REGULATION

establishing the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania for the period 2028-2034, and repealing Regulation (EU) 2021/101

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the 2003 Act of Accession, and in particular Article 3(2) of Protocol No 4 attached thereto,

Having regard to the proposal from the European Commission,

Whereas:

(1)In accordance with Protocol No 4 on the Ignalina nuclear power plant attached to the 2003 Act of Accession 11 , Lithuania committed itself to the closure of Unit 1 and Unit 2 of the Ignalina nuclear power plant by 31 December 2004 and 31 December 2009 respectively, and to the subsequent decommissioning of those units.

(2)In accordance with its obligations under the Act of Accession and with Union assistance, Lithuania shut down the two units within the respective deadlines and made significant progress towards their decommissioning. Further work is necessary in order to continue the decrease of the level of radiological hazard. Based on the available estimates, additional financial resources are required for this purpose beyond 2027.

(3)The decommissioning of the nuclear power plant covered by this Regulation is to be carried out in accordance with Union legislation on nuclear safety, namely Council Directive 2009/71/Euratom 12 , and waste management, namely Council Directive 2011/70/Euratom 13 . Pursuant to this legislation, the ultimate responsibility for nuclear safety and for the safety of spent fuel and radioactive waste management remains with Lithuania.

(4)Recognising that the early shutdown and consequent decommissioning of the Ignalina nuclear power plant with two 1 500 MW RBMK-type reactor units inherited from the Soviet Union was of an unprecedented nature and represented for Lithuania an exceptional financial burden not commensurate with the size and economic strength of the country, Protocol No 4 to the 2003 Act of Accession stated that the Union assistance under the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania (the ‘Programme’) is to be seamlessly continued and extended beyond 2006, for the period of the next Financial Perspectives.

(5)This Regulation lays down an indicative financial envelope for the Programme. 

(6)In implementing the Programme, consistency, coherence and synergies with relevant Union policies and programmes, in particular with the Instrument for Nuclear Safety Cooperation and Decommissioning established by Council Regulation [XXX] 14 , should be ensured.

(7)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 the Programme, the funding should duly consider the evolving policy needs and Union priorities as identified in relevant documents published by the Commission, in European Parliament resolutions, and Council conclusions, while ensuring sufficient predictability for the budget implementation.

(8)Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council 15 applies to the Programme. 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, indirect management, financial assistance, financial instruments and budgetary guarantees.

(9)In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council 16 , Council Regulation (EC, Euratom) No 2988/95 17 , Council Regulation (Euratom, EC) No 2185/96 18 , and Council Regulation (EU) 2017/1939 19 , 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-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 Council 20 . 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.

(10)The Programme is to be implemented in accordance with Regulation (EU) [XXX] of the European Parliament and of the Council 21 [Performance Regulation] which establishes the rules for the 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, 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.

(11)This Regulation does not prejudge the outcome of any future State aid procedures that may be undertaken in accordance with Articles 107 and 108 of the Treaty on the Functioning of the European Union (TFEU).

(12)The financing pursuant to this Regulation should concentrate on activities implementing the safety objectives of the decommissioning.

(13)The Programme should involve the creation of knowledge and the sharing of experience. Knowledge and experience gained and lessons learnt under the Programme with regard to the nuclear decommissioning process and waste management should be disseminated across the Union and beyond, in coordination and synergy with the Commission’s nuclear installations at the Joint Research Centre (JRC) sites, as such measures bring the greatest Union added value and contribute to the safety of the workers and the general public as well as protection of the environment. The scope, procedure and economic aspects of cooperation should be detailed in multiannual work programmes and could also be subject to agreements between the Member States or between the Member States and the Commission.

(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, in consistency and complementarity with actions carried out under Regulation [XXX] of the European Parliament and of the Council 22 [Global Europe] and Council Regulation [XXX] 23 [INSC-D].

(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 international best practices.

(16)Increased efficiency of the Programme implementation should be achieved via a proportionate reduction of the workforce operating on decommissioning activities at the Ignalina nuclear power plant. In view of the dismantling activities to be performed during 2028-2034 and considering the choice of the Ignalina nuclear power plant to outsource the full dismantling of reactor shaft central zones, the reduction of the workforce involved in the decommissioning activities should be at least one third compared to the number of full-time equivalent (FTE) at the end of 2024.

(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 24 , a committee with monitoring and information functions has been established and co-chaired by a representative of the Commission and of Lithuania.

(18)It should be possible to review the amount of the appropriations allocated to the Programme as well as the programming period based on the results of an implementation report.

(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 25 , 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.

(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 no higher than 86% 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.

(21)Due account was taken of the Court of Auditors’ Special Report No 22/2016 26 , its recommendations, and the reply from the Commission.

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

(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 27 . 

(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 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.

(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,

HAS ADOPTED THIS REGULATION:

Article 1

Subject matter

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.

Article 2

Definitions

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

(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; 

(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.

Article 3

Programme objectives

1.The Programme has the following general objectives:

(a)to 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 via a proportionate reduction of workforce;

(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, and technological challenges.

The knowledge referred to in point (b) of the first subparagraph shall be disseminated at Union level, and 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].

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, third countries. Those activities shall be financed under the INSC-D programme and funded by the Union at 100% of eligible costs.

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.

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).

Article 4

Budget

1.The indicative 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.

2.Budgetary commitments for actions extending over more than one financial year may be broken down over several years into annual instalments.

3.Appropriations may be entered in the Union budget beyond 2034 to cover the expenses necessary and to enable the management of action not completed by the end of the Programme.

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.

Article 5

Additional resources

1.Member States, Union institutions, bodies and agencies, third countries, international organisations, international financial institutions, or other third parties, may make additional financial or non-financial contributions to the Programme. 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.

2.Resources allocated to Member States under shared management may, at their request, be made available to the Programme. The Commission shall implement those resources directly or indirectly in accordance with Article 62(1), point (a) or (c), of Regulation (EU, Euratom) 2024/2509. Such resources shall be additional to the amount referred to in Article 4(1) of this Regulation. Such resources shall be used for the benefit of the Member State concerned. Where the Commission has not entered into a legal commitment under direct or indirect management for additional amounts thus made available to the Programme, the corresponding uncommitted amounts may, at the request of the Member State concerned, be transferred back to one or more respective source programmes or their successors.

Article 6

Alternative, combined and cumulative funding

1.The Programme shall be implemented in synergy with other Union programmes. An action that has received a Union contribution from another programme may also receive a contribution under the Programme. 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 documents setting out the conditions for support.

2.Award procedures under the Programme may be jointly conducted under direct or indirect management by Member States, Union institutions, bodies and agencies, third 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 Programme in accordance with Article 5 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 7

Implementation and forms of Union funding

1.The Programme shall be implemented in accordance with Regulation (EU, Euratom) 2024/2509, under direct management or under indirect management with entities referred to in Article 62(1), point (c) of that Regulation.

2.Union funding under the Programme may be provided in any form in accordance with Regulation (EU, Euratom) 2024/2509, in particular, prizes, procurement and non-financial donations.

Article 8

Eligibility

1.Only activities implementing the objectives set out in Article 3 shall be eligible for Union funding.

2.The work programmes referred to in Article 110 of Regulation (EU, Euratom) 2024/2509 may further specify the eligibility criteria set out in this Regulation or set additional eligibility criteria for specific actions.

Article 9

Co-financing rates

The overall maximum Union co-financing rate applicable under the Programme shall be no higher than 86%. The remaining financing shall be provided by Lithuania and additional sources other than the Union budget.

Article 10

Work programme

1.The Programme shall be implemented by work programmes referred to in Article 110 of Regulation (EU, Euratom) 2024/2509.

2.The work programmes shall reflect the applicable decommissioning plan that is to serve as the baseline for the programme monitoring and evaluation.

Article 11

Committee

1.The Commission shall be assisted by a committee. That committee shall be a committee within the meaning of Regulation (EU) No 182/2011.

2.Where reference is made to this paragraph, Article 5 of Regulation (EU) No 182/2011 shall apply.

3.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 requests.

Article 12

Repeal

Regulation (EU) 2021/101 is repealed with effect from 1 January 2028.

Article 13

Transitional provisions

1.This Regulation shall not affect the continuation or modification of actions initiated under Regulation (EU) 2021/101, to which that Regulation shall continue to apply until their closure.

2.The financial envelope for the Programme may also cover technical and administrative assistance expenses necessary to ensure the transition between the Programme and the measures adopted under Regulation (EU) 2021/101.

Article 14

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,

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

1.FRAMEWORK OF THE PROPOSAL/INITIATIVE12

1.1.Title of the proposal/initiative12

1.2.Policy area(s) concerned12

1.3.Objective(s)12

1.3.1.General objective(s)12

1.3.2.Specific objective(s)12

1.3.3.Expected result(s) and impact12

1.3.4.Indicators of performance13

1.4.The proposal/initiative relates to:13

1.5.Grounds for the proposal/initiative13

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 initiative13

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.13

1.5.3.Lessons learned from similar experiences in the past13

1.5.4.Compatibility with the multiannual financial framework and possible synergies with other appropriate instruments15

1.5.5.Assessment of the different available financing options, including scope for redeployment15

1.6.Duration of the proposal/initiative and of its financial impact16

1.7.Method(s) of budget implementation planned16

2.MANAGEMENT MEASURES17

2.1.Monitoring and reporting rules17

2.2.Management and control system(s)17

2.2.1.Justification of the budget implementation method(s), the funding implementation mechanism(s), the payment modalities and the control strategy proposed17

2.2.2.Information concerning the risks identified and the internal control system(s) set up to mitigate them17

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)17

2.3.Measures to prevent fraud and irregularities18

3.ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE20

3.1.Heading(s) of the multiannual financial framework and expenditure budget line(s) affected20

3.2.Estimated financial impact of the proposal on appropriations20

3.2.1.Summary of estimated impact on operational appropriations20

3.2.1.1.Appropriations from voted budget21

3.2.2.Estimated output funded from operational appropriations23

3.2.3.Summary of estimated impact on administrative appropriations24

3.2.3.1.Appropriations from voted budget24

3.2.3.2.Appropriations from external assigned revenues24

3.2.3.3.Total appropriations24

3.2.4.Estimated requirements of human resources24

3.2.4.1.Financed from voted budget24

3.2.5.Overview of estimated impact on digital technology-related investments25

3.2.6.Compatibility with the current multiannual financial framework26

3.2.7.Third-party contributions27

3.3.Estimated impact on revenue27

4.Digital dimensions27

4.1.Requirements of digital relevance27

4.2.Data28

4.3.Digital solutions28

4.4.Interoperability assessment28

4.5.Measures to support digital implementation28

1.FRAMEWORK OF THE PROPOSAL/INITIATIVE 

1.1.Title of the proposal/initiative

1.2.Policy area(s) concerned

1.3.Objective(s)

1.3.1.General objective(s)

1.3.2.Specific objective(s)

1.3.3.Expected result(s) and impact

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.

1.3.4.Indicators of performance

Specify the indicators for monitoring progress and achievements.

1.4.The proposal/initiative relates to: 

 a new action 

 a new action following a pilot project / preparatory action 28  

 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

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.

1.5.3.Lessons learned from similar experiences in the past

1.5.4.Compatibility with the multiannual financial framework and possible synergies with other appropriate instruments

1.5.5.Assessment of the different available financing options, including scope for redeployment

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 2036 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

2.MANAGEMENT MEASURES 

2.1.Monitoring and reporting rules 

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

2.2.2.Information concerning the risks identified and the internal control system(s) set up to mitigate them

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) 

2.3.Measures to prevent fraud and irregularities 

3.ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE 

3.1.Heading(s) of the multiannual financial framework and expenditure budget line(s) affected 

·New budget lines requested

·In order of multiannual financial framework headings and budget lines.

.

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)

EUR million (to three decimal places)

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EUR million (to three decimal places)

3.2.2.    Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

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].

Commitment appropriations in EUR million (to three decimal places)

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

===================================================================

The appropriations required for human resources and other expenditure of an administrative nature will be met by appropriations from the DG that are already assigned to management of the action and/or have been redeployed within the DG, together, if necessary, with any additional allocation which may be granted to the managing DG under the annual allocation procedure and in the light of budgetary constraints.

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)

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The staff required to implement the proposal (in FTEs):

Description of tasks to be carried out by:

3.2.5.    Overview of estimated impact on digital technology-related investments

Compulsory: the best estimate of the digital technology-related investments entailed by the proposal/initiative should be included in the table below.

Exceptionally, when required for the implementation of the proposal/initiative, the appropriations under Heading 7 should be presented in the designated line.

The appropriations under Headings 1-6 should be reflected as “Policy IT expenditure on operational programmes”. This expenditure refers to the operational budget to be used to re-use/ buy/ develop IT platforms/ tools directly linked to the implementation of the initiative and their associated investments (e.g. licences, studies, data storage etc). The information provided in this table should be consistent with details presented under Section 4 “Digital dimensions”.

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)

3.3.Estimated impact on revenue 

    The proposal/initiative has no financial impact on revenue.

    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)

For assigned revenue, specify the budget expenditure line(s) affected.

Other remarks (e.g. method/formula used for calculating the impact on revenue or any other information).

4.Digital dimensions

4.1.Requirements of digital relevance

4.2.Data

4.3.Digital solutions

4.4.Interoperability assessment

4.5.Measures to support digital implementation

(1)    OJ L 236, 23.9.2003, p. 33 and p. 944.

(2)    Article 3.1 ‘Recognising that the decommissioning of the Ignalina Nuclear Power Plant is of a long-term nature and represents for Lithuania an exceptional financial burden not commensurate with its size and economic strength, the Union shall, in solidarity with Lithuania, provide adequate additional Community assistance to the decommissioning effort beyond 2006.’ Article 3.2 ‘The Ignalina programme will be, for this purpose, seamlessly continued and extended beyond 2006. Implementing provisions for the extended Ignalina programme shall be decided […] and enter into force, at the latest, by the date of expiry of the current Financial Perspective. […]’ Article 3.4 ‘For the period of the next Financial Perspectives, the overall average appropriations under the extended Ignalina programme shall be appropriate. Programming of these resources will be based on actual payment needs and absorption capacity.’ (2003 Act of accession, Protocol No 4 on the Ignalina nuclear power plant in Lithuania (OJ L 236, 23.9.2003, p. 944)).

(3)    Ignalina nuclear power plant Unit 1 was shut down in 2004 and Unit 2 was shut down in 2009.

(4)    Council Regulation (EC) No 1990/2006 of 21 December 2006 on the implementation of Protocol No 4 on the Ignalina nuclear power plant in Lithuania to the Act of accession of the Czech Republic, Estonia, Cyprus, Latvia, Lithuania, Hungary, Malta, Poland, Slovenia and Slovakia "Ignalina programme" (OJ L 411, 30.12.2006, p.10).

(5)    Council Regulation 1369/2013 and Council Regulation (EU) 2021/101 on Union support for the nuclear decommissioning assistance programme in Lithuania (OJ L 346, 20.12.2013, p.7). 

(6)    This programme is currently among the most advanced in handling the decommissioning of graphite core reactors.

(7)    Article 60, Regulation (EU, Euratom) No 966/2012 of the European Parliament and of the Council of 25 October 2012 on the financial rules applicable to the general budget of the Union.

(8)    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), OJ L, 2024/2509, 26.9.2024.

(9)    Better regulation guidelines, Commission staff working document, SWD(2021)305 final.

(10)    Proposal for a Regulation of the European Parliament and of the Council establishing a budget expenditure tracking and performance framework and other horizontal rules for the Union programmes and activities, COM(2025)545 final.

(11)    OJ L 236, 23.9.2003, p. 944, ELI: http://data.europa.eu/eli/treaty/acc_2003/act_1/pro_4/sign .

(12)    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 ).

(13)    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 ).

(14)      COUNCIL REGULATION (EU) …/… establishing the Instrument for Nuclear Safety Cooperation and Decommissioning for the period 2028-2034 and repealing Regulations (Euratom) 2021/100 and (Euratom) 2021/948 (OJ, …, … ELI: …).

(15)    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 ).

(16)    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 ).

(17)    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 ).

(18)    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 ).

(19)    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).

(20)    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, http://data.europa.eu/eli/dir/2017/1371/oj ).

(21)    OJ L.., p.

(22)    OJ L.., p.

(23)    OJ L.., p.

(24)    Council Regulation (EU) 2021/101 of 25 January 2021 establishing the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania and repealing Regulation (EU) No 1369/2013 (OJ L 34, 1.2.2021, p. 6, ELI: http://data.europa.eu/eli/reg/2021/101/oj ).

(25)      Council Regulation 1369/2013 and Council Regulation (EU) 2021/101 on Union support for the nuclear decommissioning assistance programme in Lithuania (OJ L 346, 20.12.2013, p. 7, ELI:  http://data.europa.eu/eli/reg/2013/1369/oj ).

(26)    Special Report No 22/2016 – ‘EU nuclear decommissioning assistance programmes in Lithuania, Bulgaria and Slovakia: some progress made since 2011, but critical challenges ahead’, European Court of Auditors.

(27)    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 the 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 ).

(28)    As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.

(29)    Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations.

(30)    EFTA: European Free Trade Association.

(31)    Candidate countries and, where applicable, potential candidates from the Western Balkans.

(32)    Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.).

(33)    As described in Section 1.3.2. ‘Specific objective(s)’

(34)    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.

EUROPEAN COMMISSION

Brussels, 3.9.2025

COM(2025) 476 final

ANNEX

Proposal for a

Council Regulation

establishing the nuclear decommissioning assistance programme of the Ignalina nuclear power plant in Lithuania for the period 2028-2034, and repealing Regulation (EU) 2021/101

{SWD(2025) 255 final} - {SWD(2025) 256 final}

ANNEX

The following activities are covered under the specific objective set out in Article 3((3):

(I)Dismantling of reactor shafts:

(1)completion of dismantling and decontamination of top and bottom zones (called zones R1 and R2, respectively);

(2)completion of Steam Drum Separators dismantling; 

(3)graphite cores (called zone R3):

(a)dismantling technology engineered and licensed;

(b)dismantling equipment installed and operational;

(c)dismantling and decontamination of the reactor shafts central zone in accordance with the decommissioning plan; progress has to be measured by the quantity and type of materials removed as well as through earned value);

(d)reactor waste interim storage facility in operation.

(4)demolition of relevant buildings.

(II)The Ignalina nuclear power plant (INPP) reorganisation and proportionate reduction of workforce (employees) involved in the decommissioning programme. In view of the scheduled dismantling activities and considering the choice of the INPP to outsource the full dismantling of reactor shaft central zones, the reduction of the workforce involved in the decommissioning activities shall be at least one third compared to the number of full-time equivalent (FTE) at the end of 2024. Progress has to be measured with respect to specific Key Performance Indicators approved in the implementing work programmes.

(III)Safe management of the decommissioning and legacy waste up to interim storage or to disposal (depending on the waste category), including the completion of the waste management infrastructure, and near surface repository. It has to be accomplished in accordance with the decommissioning plan, in its final revision. Progress has to be measured by the quantity and type of waste safely stored or disposed of, as well as through earned value.

(IV)Downgrading of radiological hazards. Progress has to be measured through the safety assessments of the activities and the facility, identifying ways in which potential exposures could occur and estimating the probabilities and magnitude of potential exposures.

The specific objective set out in Article 3(3) shall not cover the disposal of spent fuel and radioactive waste in a deep geological repository and the funding for the realisation of a deep geological repository.