1999E0878 — EN — 21.05.2002 — 001.001 — 1
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►B COUNCIL JOINT ACTION
of 17 December 1999
establishing a European Union Cooperation Programme for Non-proliferation and Disarmament
in the Russian Federation
(1999/878/CFSP)
(OJ L 331, 23.12.1999, p. 11)
Amended by:
Official Journal
No page date
►M1Council Decision 2002/381/CFSP of 21 May 2002 L 136 1 24.5.2002
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COUNCIL JOINT ACTION
of 17 December 1999
establishing a European Union Cooperation Programme for Non-
proliferation and Disarmament in the Russian Federation
(1999/878/CFSP)
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Common Strategy of the European Union on
Russia(1) adopted by the European Council on 4 June 1999 which inter
aliaexpressed the European Union's commitment to promote disarma-
ment and curbing of the profileration of weapons of mass destruction(WMD), support for arms control, the implementation of existingagreements and the strenthening of export controls,
Having regard to the Treaty on European Union (TEU), and in parti-
cular Article 14, in conjunction withArticle 23(2) th ereof,
Whereas:
(1)The Agreement on partnership and cooperation establishing a
partnership between the European Communities and theirMember States, of one part, and the Russian Federation, of the
other part(
2) promotes inter alia an increasing convergence of
positions on international issues of mutual concern thusincreasing security and stability;
(2)The Union is prepared to promote cooperative risk reduction
activities and the safe and secure dismantlement of WMD-
related resources in Russia;
(3)Suchactivities would take place in parallel withactivities carried
out by the European Community and bilaterally by the Member
States;
(4)All such activities should be coordinated to the greatest possible
extent to avoid unnecessary duplication;
(5)European Union activities can also be undertaken in cooperation
withoth er countries;
(6)The Commission has agreed to be entrusted with certain tasksnecessary for the implementation of this Joint Action,
HAS ADOPTED THE FOLLOWING JOINT ACTION:
Article 1
1. A European Union Cooperation Programme for non-profileration
and disarmament in the Russian Federation (hereinafter referred to as‘the Programme’) is hereby established.
2. The objective of the Programme is to support the Russian Federa-
tion in its efforts towards arms control and disarmament and, to that
end:
— to cooperate with the Russian Federation in the latter's pursuit of a
safe, secure and environmentally sound dismantlement and/or
reconversion of infrastructure and equipment linked to its WMD;
— to provide a legal and operational framework for an enhanced
European Union role in cooperative risk reduction activities in theRussian Federation through project-orientated cooperation;
— to promote coordination as appropriate of programmes and projects
in this field at Community, Member State and international level.1999E0878 — EN — 21.05.2002 — 001.001 — 2
(1) OJ L 157, 24.6.1999, p. 1.
(2) OJ L 327, 28.11.1997, p. 3.
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Article 2
1. The Programme shall contribute in the first phase to:
— a chemical weapons pilot destruction plant situated in Gorny,
Saratov region, Russia;
— a set studies and experimental studies on plutonium transport,
storage and disposition;
A full description of the activities above is set out respectively in
Annexes I and II.
2. Other projects to be funded under the Programme (in the biolo-
gical, chemical and nuclear fields) in the future shall be determined
by the Council, on a recommendation of a Member State and/or theCommision.
Article 3
1. The Council shall entrust the Commission, for the duration of the
Programme and subject to Article 5, with the task of preparing theprojects to be approved, as well as withsupervising th eir proper imple-mentation. The Commission shall report to the Council, on a regular
basis and as the need arises, under the authority of the Presidency
assisted by the Secretary-General of the Council, High Representativefor the CFSP.
2. The Commission shall be assisted by a unit of experts. The
number of members of the unit and the expertise required from them,
as well as a definition of their tasks are set out in the terms of refer-ence appearing in Annex III. The Commission shall establish asappropriate a Task Force in Moscow, in order to:
— operate in close coordination withpersonnel working under
Community funded projects;
— as appropriate, carry out feasibility studies;
— liaise with the local authorities and with the representatives of other
contributing countries;
— negotiate with the local authorities the arrangements necessary for
the implementation of the Programme;
— monitor the expenditure of the funds committed for the implemen-
tation of the Programme;
— assist Member States in identifying and implementing bilateral
projects.
Article 4
1. The financial reference amount intended to cover the costs related
to the establishment of the Programme shall be as follows:
— EUR 8900 000 for the years 1999 and 2000.
2. The expenditure financed by the amounts stipulated in paragraph
1 shall be managed in accordance with the European Communityprocedures and rules applicable to the budget
3. The European Union shall finance the infrastructure and current
expenditure of the Programme.
4. The Council notes that the Commission intends to direct its action
towards achieving the objectives and the priorities of this Joint Action,
where appropriate by pertinent Community measures.
5. The Council and the Commission shall ensure appropriate coordi-
nation between the Programme, Community assistance and the bilateral
assistance provided by the Member States.
6. This Joint Action shall be the subject to bilateral consultations
with Russia and other partners within the framework of existing poli-tical dialogue meetings.1999E0878 — EN — 21.05.2002 — 001.001 — 3
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Article 5
1. The Council shall review annually the actions taken pursuant to
this Programme and shall take the necessary decisions for the continua-
tion of the Programme beyond 31 December 2001. This review shall
also assess Russian capabilities to absorb and utilise increased assis-tance.
2. Independent evaluations and audit shall be conducted at periodic
stages, depending on progress.
3. The Council may suspend the Programme if the Russian Federa-
tion fails:
— to cooperate fully with the implementation of the programme;
— to allow European Union monitoring and/or periodical external
evaluations and audit to that effect.
Article 6
This Joint Action shall enter into force on the date of its adoption.
It shall expire on the date of expiry of the European Union Common
Strategy on Russia unless the Council decides otherwise in accordancewithArticle 5(1) of th is Joint Action.
Article 7
This Joint Action shall be published in the Official Journal.1999E0878 — EN — 21.05.2002 — 001.001 — 4
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ANNEX I
EU-Russia chemical weapons destruction project in Gorny
1.Background
In the framework of the implementation of the Chemical Weapons Conven-
tion (CWC), the Russian Federation is committed to construct an industrial
pilot chemical weapons destruction facility at Gorny.
The facility at Gorny (Saratov region) is one out of seven sites in the Russian
Federation earmarked for the destruction of chemical weapons. It is foreseen
that the Gorny facility will process (destroy or recycle) 225 tonnes of lewi-
site, 690 tonnes of yperite and 210 tonnes of a lewisite-yperite mixture. This
represents about 2,9 % of total stocks earmarked by Russia for destruction
under the Chemical Weapons Convention.
The Chemical Weapons Convention stipulates the total elimination of
chemical weapons by 2007. However, against the background of financial
and economic problems the Russian Federation faces, this task is very
complex and surely requires expanded international support in view of
meeting the commitments taken under the convention.
The site comprises a destruction and detoxification processing line for the
detoxification and recycling of specific mixtures. The technology for the
destruction of lewisite on the basis of hydrolyse and electrolyse is estab-
lished, leaving arsine as end-product to be further utilised for industrial
purposes. Some technical problems concerning the destruction of yperite
and yperite/lewisite mixture require some further research.
Russian legislation stipulates that the construction of related social infrastruc-
ture must precede the construction of the destruction facility itself. This law
has been followed by the Gorny project. Much attention has been attached to
confidence building measures, including the establishment of an environ-
mental monitoring mechanism, and related projects to establish social
acceptability of the destruction facility in the community. Measures
comprise, among others, the purification of water for the facility and the
village, air purification, housing for military officers, soldiers and workers,
medical doctors and teachers. Delegations from Kambarka have visited the
Gorny site. In particular, social acceptability measures are considered as stan-
dard setting and have contributed to change public opinion in Kambarka for
the better.
The international community is assisting Russia in its efforts to implement
the CWC. In particular at Gorny a Russia-Germany joint chemical weapons
destruction project supports the establishment of the destruction facility since1993. Gorny production principles will be replicated at the Kambarka
facility, where the same types of weapons are stored and the same storage
method applied. The Gorny facility plays thus an important role in catalysing
chemical weapons destruction in selected other sites. 6400 tonnes of
chemical weapons will be destroyed in Kambarka. So far, 48,5 million DM
was spent on the German side for engineering, materials and special equip-
ment. Support is provided on the basis of annual appropriations firom the
German Federal budget.
The Russian Federation takes over the funding of infrastructure, construction
and deliveries. For the first time, in 1999, the Russian contribution to the
project outweighed the German contribution considerably. All 1999
budgetary means earmarked for chemical weapons destruction were allocated
to the Gorny project.
2.Status of construction and agenda for the finalisation of the Gorny
facility
Progress has been evaluated and documented by the German side in August
1999. The report is very positive. Construction advances rapidly. The ‘point
of no return’ was apparently passed. The finalisation of the lewisite destruc-
tion facility is foreseen for the end of 2000, and the finalisation of the yperite
and lewisite/yperite mixtures destruction facility is foreseen for the end of
2001.
Currently, 50 — 60 % of equipment is already delivered and stored at the
Gorny facility. Installation depends on the finalisation of relevant buildings.
Construction has been completed up to about 90 %.
According to German assessments, additional funding in the order of EUR 15
million is required for purchase of equipment in the next two years to come.
The Russian delegation clarified that the Russian Federation is fully1999E0878 — EN — 21.05.2002 — 001.001 — 5
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committed to chemical weapons destruction. Swift foreign assistance can
speed up the process and free funds for the remaining six sites on which
parallel activities are being prepared.
As regards Gorny, the launch of chemical weapons destruction in April 2001
seems realistic (instead of 1999 as foreseen by the original master plan).
According to Russian indications, this is due to the delayed ratification of
the Chemical Weapons Convention and lack of budgetary resources.
A European project would be highly welcome by the Russian authorities in
view of addressing specific bottlenecks in finalising the facility and making it
operational.
3.Components of the EU-Russia chemical weapons destruction project in
Gorny
The Commission hosted an ad hoc experts meeting on 19 November 1999 in
Brussels. Russian and German experts and project managers agreed on three
project components to be addressed and funded as a matter of priority, thus
allowing smooth continuation of the project according to schedule. Project
components were identified, in order of priority, as follows:
1999 EU-Russian Chemical Weapons Destruction Project Gorny
Component Project TitleCost estimate
(in millions of euro)
Component 1 Final fitting and technical installation of
equipment, establishment of connections
(incl. pipes, electrical systems, canalisa-
tion…) and related engineeringUp to 1,65
Component 2 Purchase of filter boxes for air purification
related to the chemical destruction processUp to 2,9
Component 3 Special equipment for draining technological
transportation containers from storage to
destruction lineUp to 1,25
Further details:
Component 1: Main equipment parts are available. Construction of buildings
(‘building 1/1’) is well advanced. Special expertise is required for the final
installation and fitting of equipment and related connections. Supervision of
works is to be contracted out to a European integrator. Sub-contracts are to
be concluded by the European integrator with Russian companies for imple-
mentation purposes.
Component 2: Filter boxes are to be installed in view of limiting air pollution
through by-products set free in the destruction and recycle process. Boxes
include coal fillings and special equipment for filling/emptying the filters
withcoal.
Component 3: Given the high risks related to the transportation of chemical
weapons of mass destruction, specific equipment is required for the transpor-
tation from interim storage at the facility to the destruction line.
Procurement: Components 2 and 3 are to be tendered according to EU
procurement legislation. Given the technological and technical specifics of
the equipment already delivered for the destruction line, Component 1 is to
be contracted out on the basis of a direct agreement to the company that has
produced and delivered the equipment to be installed. Final decision on the
funding of the three components will be taken against the availability of
sufficient financial resources under the Joint Action.
Project management: In order to ensure compatibility and complementarity of
the EU-Russia Gorny chemical weapons destruction project with main
Russia-Germany project, the management of the EU-Russia project is to be
entrusted to the German project manager (‘Auswärtiges Amt’ (Foreign
Office) in cooperation with ‘Bundesamt für Wehrtechnik and Beschaffung’
(Federal Office for Arms Technology and Procurement)) in close cooperation
with the Ministry of Defence of the Russian Federation as a state customer
for this facility. Close consultation with and regular reporting to the Head
of the Policy and Project coordination section appointed under the Joint1999E0878 — EN — 21.05.2002 — 001.001 — 6
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Action (Annex III) is to be ensured. The latter is to be associated to all bilat-
eral meetings and consultations related to the EU-Russia project.1999E0878 — EN — 21.05.2002 — 001.001 — 7
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ANNEX II
EU-Russia Nuclear weapons related action
1.Background
The proper management of the weapons plutonium released by the disar-
mament is of critical importance in the framework of the non-proliferation
objective.
The European Commission has, since 1993 and reinforced by the conclu-
sions on plutonium management of the G8 NPEG meeting of Paris in
October 1996, started discussions with the Russian Minatom (owner of the
plutonium once released by the Ministry of Defence) with the objective of
analysing the different ways of using the plutonium as fuel for reactors.
Different study projects were financed, mainly through the International
Science and Technology Centre. A coordination mechanism was estab-
lished through a Contact Expert Group, assembling the concerned Russian
organisations, western partners and representatives of other main interna-
tional programs working with the Russians on the subject (France-
Germany-Russian Federation (RF), United States-Russian Federation, Japan
(J)-Russian Federation programmes).
As a result of this coordination activity, the Community is able to propose
a specific set of studies and experimental studies which would clearly
support the Russian side in proceeding on a timely basis with the disposi-
tion of their weapons grade plutonium.
2.Set of studies and experimental studies
2.1.Drafting of a detailed Short Term Action Plan for the Pu disposition
The political agenda (on going United States-Russian Federation negotia-
tions and the discussions at the G8 NPEG level) considers the year 2008
to start the commercial operation of plants with fuel containing ex-weapons
plutonium.
A workshop organised jointly by the Commission and Minatom end
October 1999 has shown that different partial action plans were developed
by different organizations within different programs, but that there is a
clear need to assemble all the pieces, to establish consistency between the
projects and to fill the gaps, in order to get a fully integrated, exhaustive
and agreed (by all concerned) plan for action. Sucha plan must include
the licensing aspects and therefore must involve, as main players, the plant
operators (who will have the responsibility of using plutonium in their reac-
tors) and the safety authority (who will have the responsibility of
authorising the plant operation with plutonium fuel).
The study supports the designated Russian organisations (in line with the
share of responsibilities for licensing) in drafting such an integrated action
plan. EU specialists having the expertise of designing, licensing and oper-
ating reactor fuel withplutonium would be contracted to work withth e
Russian counterparts.
The result could be the integrated, detailed and agreed action plan. Such a
plan would then be recognised at international level, including at G8 level
and foster the timely implementation of the political agenda.
Duration: 9 months, Budget: up to EUR 500000.
2.2.Support for defined Russian organisations to build their tools and expertise
required for the licensing of short term plutonium disposition in Russia.
There is no reason to wait for the action plan to be finalised to launch some
specific studies and experimental studies which already today are recog-
nised by specialists as being on the critical path for the timely
achievement of the political agenda. Among them two might be retained:
— Support to the Russian side (MINATOM, IPPE, Kurchatov Institute) to
design a required experimental critical facility (not existing today) to
validate the use of plutonium as fuel for VVER reactors, and certify
the calculation codes.
Duration: 1,5 years, Budget: up to EUR 1 million.
— Support to the Russian side (MINATOM, RIAR) for irradiation experi-
ments in existing researchreactors. Th is would be particularly
important to support the timely usage of lead test assemblies at the
Balakovo reactors.1999E0878 — EN — 21.05.2002 — 001.001 — 8
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Duration: 1 year, Budget: up to EUR 300 000.
2.3.Study of the ways and means for transport and intermediate storage of the
weapons grade Plutonium.
The study would mainly analyse the technical feasibility for transport and
storage in existing installations and/or in new purpose-built installations.
The economic aspects (costs) and non-proliferation aspects (risks of diver-
sion and safeguards requirements) would be analysed in depth. As a result
recommendations would be made for the most effective and safest ways to
transport and store the plutonium on an interim basis.
Duration: 1 year, Budget: up to EUR 200000.
2.4.Medium term perspective for plutonium disposition.
The Gas Turbine Modular Helium Temperature Reactor (GT MHR) is an
advanced development based on proven technology. Its ability to work
without uranium (only plutonium) makes it highly efficient as plutonium
burner. Moreover, it presents inherent safety characteristics and a high effi-
ciency (50 %) for electricity and heat production.
Sucha reactor is envisaged to be built at Tomsk to replace th e Military
Reactors still producing Weapons Plutonium and which can not be stopped
as they also produce heat for the local community. An international
Consortium grouping European Union, Russian, United States and Japanese
industries has been created to support the development and the demonstra-
tion of key technologies, including on the fuel design side.
A specific analysis should be performed to determine the fuel and reactor
design specifics required to maximise the effectiveness of plutonium
burning. As a result, an action plan should be drafted allowing the defini-
tion of future priorities for further projects and supporting the decision on
larger investments for the future development.
Duration: 1 year, Budget: up to EUR 300000.1999E0878 — EN — 21.05.2002 — 001.001 — 9
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ANNEX III
Terms of Reference for a unit of experts under the EU cooperation
programme for non-proliferation and disarmament in the Russian Federa-
tion
Joint Action 1999/878/CFSP entrusted the Commission to set up a unit of
experts under, and for the duration of, the EU cooperation programme for non-
proliferation and disarmament in the Russian Federation, which comprises a
Policy and Project Coordination Section at the Commission in Brussels and aproject assistance team based in Moscow, reporting to the Policy and Project
Coordination Section in Brussels.
Three experts for the Unit have been identified and appointed by the Commis-
sion. The decision was taken in close cooperation with Member States and the
Secretary General/HighRepresentative (SG/HR), on th e basis of job descriptions
and selection criteria drafted by the Commission. One expert is still to be
recruited.
Required experts' qualifications comprise the following elements:
The Policy and Project Coordination Section in Brussels will comprise three EU
experts and a Head of Section, who is seconded by the Commission. The
Section is administratively supported by one secretary and one administrative
assistant. The Moscow based project assistance team comprises one EU expert
and one local secretary, who is still to be recruited.
The Head of Section assumes overall responsibility for the implementation of
the Joint Action. He maintains close relations with the Presidency of the Council
of the European Union, and the Member States and the SG/HR, according to
detailed rules to be agreed upon.
Tasks related to policy and project coordination and development shall comprise
inter alia the following:
— support coordination of assistance projects and related policies at Commu-
nity and Member State levels,
— function as point of contact for international initiatives, supported by the
Commission Joint ResearchCentre,
— establisha database of projects funded by th e EU and Member States,— establishand maintain a database on EU experts, broken down by policy
areas,
— establisha network of Member States' points of contact, supplementing th e
competent Council working groups as regards the implementation of the
Joint Action and related activities,
— prepare and submit quarterly progress reports,— co-organise the Non-Proliferation and Disarmament Cooperative Initiative
(NDCI) Conference.
Sectoral tasks cover inter alia the following:
— drawing up a comprehensive sector report,
— providing an in-depthanalysis on sectoral core problems,— identifying projects to address core problems,— preparing projects to be submitted to the Council with a view to possible
future funding under follow-up measures to the Joint Action,
— finalising and implementing projects identified for funding, as appropriate,
in close cooperation withth e Moscow based project assistance team.
Specific tasks of the Moscow based project assistance team comprise:
— close cooperation withpersonnel working under EU-funded projects,
— as appropriate, support for the elaboration of feasibility studies,— liaising with the local authorities and with the representatives of other
contributing countries,
— negotiating with the local authorities the administrative arrangements neces-
sary for the implementation of the programme,
— assisting Member States in identifying and implementing bilateral projects,— facilitating specialised technical assistance.1999E0878 — EN — 21.05.2002 — 001.001 — 10