Explanatory Memorandum to COM(2017)698 - Annex to the proposal for the Research and Training Programme of Euratom (2019-2020) complementing the Horizon 2020 Framework Programme - Main contents
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| dossier | COM(2017)698 - Annex to the proposal for the Research and Training Programme of Euratom (2019-2020) complementing the Horizon 2020 ... |
|---|---|
| source | COM(2017)698  |
| date | 01-12-2017 |
1. CONTEXT OF THE PROPOSAL
• Reasons for and objectives of the proposal
In order to continue the funding of nuclear research and training it is necessary to adopt a new regulation to prolong all research activities carried out under Council Regulation (Euratom) No 1314/2013 on the Research and Training Programme of the European Atomic Energy Community (2014-2018) complementing the Horizon 2020 Framework Programme for Research and Innovation 1 .
The primary aim of Euratom-funded fission research is to enhance the safety of nuclear technologies. This research also contributes to the development of safe, publicly acceptable solutions for the management of radioactive waste and to supporting radioprotection and the development of medical applications of ionising radiation. Euratom fusion research aims to help decarbonise the energy system by developing magnetic confinement fusion. The direct actions of the programme contribute to the implementation of nuclear safeguards in Europe and globally.
The Euratom programme proposal for 2019-2020 continues to complement the Horizon 2020 programme 2 . It determines the budget for direct and indirect actions, sets research and development (R&D) objectives and identifies R&D support instruments.
The proposal will ensure that Union-funded research and training in nuclear science and technology continue in 2019-2020, thereby maintaining a programme that complements, catalyses and coordinates Member States’ activities in order to maximise Union added value.
In accordance with Article 7 of the Euratom Treaty, the current (2014-2018) Euratom programme is bound by a five-year timeframe. The present proposal intends to ensure the seamless continuation of the programme in 2019-2020. This approach will ensure the continuity and coherence of action throughout the full seven-year period, 2014-2020, and therefore greater coherence with the Horizon 2020 timeline. This is all the more important in view of the fact that the Euratom programmes and Horizon 2020 pursue mutually reinforcing objectives.
• Consistency with existing policy provisions in the policy area
The 2019-2020 Euratom programme is carrying over the research activities of the 2014-2018 Euratom programme. It is entirely consistent with the latter and with the impact assessment for 20142020 that was produced prior to its adoption.
• Consistency with other Union policies
The 2019-2020 Euratom programme remains consistent with all relevant Union policies in fields relating to research and innovation in general, and nuclear and related safety aspects in particular. It thus supports the implementation of:
–Council Directive 2009/71/Euratom establishing a Community framework for the nuclear safety of nuclear installations 3 , as amended by Council Directive 2014/87/Euratom 4 ;
–Council Directive 2011/70/Euratom establishing a Community framework for the responsible and safe management of spent fuel and radioactive waste 5 ;
–Council Directive 2013/59/Euratom laying down basic safety standards for protection against the dangers arising from exposure to ionising radiation 6 .
–The programme contributes to the implementation of the chapter 7 of the Euratom Treaty, related to the EU nuclear safeguards system. It also contributes to the EU security agendas and strategies.
• Legal basis
The legal basis for this regulation is Article 7 of the Euratom Treaty.
• Choice of the instrument
The 2019-2020 Euratom programme is implemented through a new Regulation.
• Ex post evaluations/fitness checks of existing legislation
In line with Article 22 of Regulation (Euratom) No 1314/2013 and the Better Regulation Guidelines 7 , the Commission has carried out an interim evaluation of the 20142018 Euratom programme. Its report (COM(2017) 697 final) sets out a strategic overview of the evaluation process and its responses to the recommendations of the independent expert groups. The accompanying Commission staff working documents (SWD(2017) 426 final, SWD(2017) 427 final) cover the areas for evaluation (relevance, efficiency, effectiveness and European added value).
The Commission’s analyses produced no conclusive finding bringing into question the strategy and format of the 2014-2018 programme or requiring it to propose a revision of the programme’s scope, activities or mode of implementation in 2019-2020. Also, the Commission will ensure that any outstanding issues are addressed in the implementing decision on the 2019-2020 Euratom work programme.
The interim evaluation found that the challenges of nuclear safety and diminishing nuclear skills in Europe can be tackled effectively by exploiting synergies between Member State and private sector research efforts and between scientific disciplines and technological sectors. Action at EU level can strengthen the research and innovation framework in the nuclear field and coordinate Member States’ research efforts, thereby avoiding duplication, retaining critical mass in key areas and ensuring the most efficient use of public financing. R&D in fusion energy is long-term and highrisk; conducting it in the context of an EUlevel programme means that the risk is shared and generates a breadth of scope and economies of scale that could not be achieved otherwise.
• Stakeholder consultations
In line with the Better Regulation Guidelines, the Commission carried out a public consultation between October 2016 and January 2017 to feed into the interim evaluation of the 20142018 Euratom programme and the proposal for the 2019-2020 Euratom programme. It received 323 responses from individuals and stakeholders, representing all areas of research and various activities (public research bodies, technical support organisations, umbrella organisations, end-users, etc.). The consultation covered all key areas for evaluation, including relevance, effectiveness, efficiency, implementation and EU added value. In all, 75 % of the respondents had participated in the current or previous Euratom programmes.
The overall feedback on the 2014-2018 Euratom programme was positive: 80 % agreed or strongly agreed that the programme is relevant. The approval ratings varied from field to field and were strongest in relation to education and training, and research on waste management and the safety of existing reactors. These latter fields and fusion research are also the areas in which respondents felt the main progress had been made and saw Europe as a world leader. Respondents cited knowledgesharing and mobilising a wider pool of competences as the main aspects of the programme’s added value. On the other hand, only 30 % felt that the programme had some leverage effect on private investments.
• Collection and use of expertise
In the course of preparing its proposal, the Commission collected input and relied on expertise from a number of sources. In 2017, the Euratom Scientific and Technical Committee issued an opinion on the future Euratom programme and two independent expert groups produced a report on the interim evaluation of the 2014-2018 Euratom programme 8 . In 2016, a separate panel of experts carried out a mid-term review of the European joint programme on fusion research, as implemented by the EUROfusion consortium.
• Impact assessment
Based on the same provisions of the 2014-2018 Euratom programme, the 2019-2020 Euratom programme maintains the same scope and is based on the original ex ante impact assessment produced for the whole sevenyear period (20142020) as part of the Horizon 2020 impact assessment (SEC(2011) 1427, Annex 6). The roadmap for the 2019-2020 Euratom programme 9 provides for a new impact assessment only if the Commission proposes major changes for the extension of the programme.
The Commission expert group on the interim evaluation of indirect actions of the 2014-18 Euratom programme made some recommendations addressed to the Commission 10 , in particular about education and training, and about health aspects of radiation protection research. These recommendations will be taken into account when preparing the 2019-2020 Euratom work programme.
Regarding the recommendations concerning indirect actions in fusion research the Commission will interact directly with EUROfusion to ensure that these recommendations are addressed to the extent possible. Their consideration is currently on-going, and the Commission will monitor this process as part of its routine activities of oversight and management of the Euratom programme. 11
The recommendations regarding the direct actions of the Euratom programme will be addressed at the maximum possible scope during the period. In particular, the recommendation to continue education and training activities will be addressed as well as the reinforcing of knowledge management activities and improving open access of the JRC nuclear research infrastructures. The increase of synergies with non-nuclear activities will be considered mainly in the field of nuclear science applications.
Some recommendations concern long-term aspects of nuclear research or instruments that the programme shares with Horizon 2020. The Commission intends to address these in the ex-ante impact assessment for the next Euratom programme under the new (post2020) multiannual financial framework.
Contents
The budget of the proposal is presented in current prices. The attached legislative financial statement sets out the budgetary, human and administrative resource implications.
• Implementation plans and monitoring, evaluation and reporting arrangements
Programme performance will be monitored annually on the basis of a set of key performance indicators (see Annex II) and an ex post evaluation will be carried out by 2022. In addition, performance will be assessed at the level of direct and indirect actions, as follows:
–direct actions: the JRC’s performance is assessed internally by means of an annual internal peer review (productivity and impact evaluation – PRIME) based on an ISOcertified evaluation methodology, and externally through peer review by a number of top-level experts selected in consultation with the JRC’s board of governors;
–indirect actions: individual projects are subject to a compulsory mid-term review.
• Detailed explanation of the specific provisions of the proposal
The following key changes have been introduced compared to the 2014-2018 Euratom programme:
–Article 4 the budget for direct and indirect actions was updated for 2019-2020.
–Article 5 introduces the openness of the 2019-2020 Euratom programme to countries and territories associated to the 2014-2018 Euratom programme.
–Article 22 delete obsolete provisions concerning the evaluation of the programme.
–Article 23 gives an update of the repeal and transitional provisions: these include provisions allowing funds allocated to H2020 financial instruments to be reused by the 2019-2020 Euratom programme (or its successor); the possibility to transfer accumulated but non-committed assigned revenue (contributions from associated countries) to the 2019-2020 Euratom programme; and the smooth continuation of Programme Committee tasks.
– Annex I on the activities to be supported by the 2019-2020 Euratom programme was updated –the European Fusion Development Agreement (EFDA) is now replaced by EUROfusion. The wording concerning the Joint European Torus (JET) in Annex 1 was revised in order not to prejudge the funding possibilities under the 2019-2020 Euratom programme which are likely to depend on the outcome of Brexit negotiations.