COMMISSION OF THE EUROPEAN COMVIUNITIES 
C0M(94) 66 final 
Brussels, 02.03.1994 
COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL, THE EUROPEAN PARLIAMENT AND THE ECONOMIC AND SOCIAL COMMITTEE 
A COMMUNITY STRATEGY FOR RADIOACTIVE WASTE MANAGEMENT 
A COMMUNITY STRATEGY FOR RADIOACTIVE WASTE MANAGEMENT 
A. INTRODUCTION 
T. The present situation of radioactive waste management in the Community 
II. A radioactive waste management strategy for the Community 
B. ELEMENTS OF A STRATEGY 
III. Harmonization of radioactive waste definitions and classifications 
m.l. Definition of radioactive waste 
ID.2 Classification of types of radioactive waste 
ITT.3 Radioactive waste containing toxic elements of non nuclear origin 
IV. Minimization of radioactive waste 
IV. 1 Prevention of arisings and volume minimization 
TV.2 Recycling and reuse 
V. Transport: authorization and control 
VI. Optimization of the safety of radioactive waste management at Community level 
Vl.l. Requirements for the safe disposal of long-lived and high-level waste 
VI.2 Applicability of tbe proximity principle to radioactive waste management 
VI.3 Tbe radioactive waste equivalence concept 
VI.4 Self-sufficiency in radioactive waste disposal and Community solidarity 
VII. Public information 
VIII. Radioactive waste management financing and structures 
C. CONCLUSION 
A. INTRODUCTION 
I. The present situation of radioactive waste management in the Community 
Radioactive wastes result from a variety of human activities, including nuclear 
electricity generation, agriculture, medicine, industry and research. Their 
management and disposal have been under continuous development in the Member 
States of the European Community for some decades. The state of radioactive waste 
management in the Community and the quantities involved are well known; since 
1984 they have been the subject of periodical reports(1) by the Commission to the 
Council of Ministers and the European Parliament within the framework of the 
Community Plans of Action in the field of radioactive wastea). Presently, about 
160,000 tonnes of radioactive waste are produced annually within the Community 
overall, where the estimated production of industrial toxic waste amounts to about 
20 million tonnes. Over 90 % of the radioactive wastes are short lived, low or 
medium level, for which a number of treatment and disposal options and industrial 
facilities are available. However, the disposal of high-level and long-lived waste has 
not taken place yet, even if there is a worldwide consensus, based on the extensive 
research and development programmes being carried out in several countries, that 
their disposal deep underground in conditioned form is feasible and safe. 
All activities involving radioactivity have been subject for several decades, and 
increasingly, to extensive and specific systems of authorization and control at 
international, Community, and national levels. This applies to radioactive wastes 
which have to be managed and disposed of in ways that ensure the protection of 
people and the environment, now and in the future, against the dangers arising from 
the ionizing radiations which they emit. Chapter III of title two of the Euratom 
Treaty and the basic safety standards Directive(3) lay down principles of radiation 
protection whose implementation at national level ensures that radioactive waste 
management practices in the Member States share a number of common features. 
However, differences exist in national policies and strategies for carrying out the 
practical management of the waste and ensuring technological safety. 
II. A radioactive waste management strategy for the Community 
The purpose of this communication is to set out the elements of a radioactive waste 
management strategy for the Community; it responds, in particular, to the wish 
expressed by the European Parliament in its resolution of July 1991(4). 
(i) Communications from the Commission to the Council: COM(83)262 of 16.5.83, 
COM(87)312 of 29.7.87 and COM(93)88 of 1.4.93 
(2) Council Resolutions of 18 February 1980 (O.J. C51 of 29.2.80) and of 15 June 1992 
(O.J. C158 of 25.6.92) 
(3) Basic safety standards for the health protection of the general public and workers against the 
dangers of ionizing radiation: Directive 80/836/Euratom (OJ. L246 of 17.9.80) and proposal 
COM(93)349 of 20.7.93 (O.J. C245 of 9.9.93) 
(4) Resolution B3-1136/91, adopted 11 July 1991 
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The preparation of a strategy was announced in the Fifth Action Programme on the 
Environment, approved by the Council of Ministers on 1 February 1993. It is also 
in accordance with the objectives of the 2nd Community Plan of Action in the field 
of radioactive waste and takes into account the conclusions on radioactive waste 
disposal adopted by the Council in December 1990®. 
A Community strategy for the management of non-radioactive waste was agreed upon 
by the Council of Ministers in 1990^. A separate strategy for radioactive waste 
management is desirable because, on one hand, radioactive wastes are subject to a 
separate system of legal measures based on the Euratom Treaty, and on the other 
hand, raise some specific aspects which require a rather different approach. 
The proposed Community strategy is basicaUy oriented towards safety and 
environmental protection concerns, envisaging an approach towards harmonization at 
Community level, where practicable, of the radioactive waste management principles 
to ensure an equivalent level of safety throughout the Community. It takes also into 
account the complexity of the radioactive waste issues and their relations with other 
policies and activities, notably of an industrial and economic character. 
The proposed strategy represents a comprehensive medium and long-term programme, 
calling for a step by step approach for its future implementation. It takes into account 
all sectors involved: not only the energy sector, which concerns several Member 
States, but also industrial activities generating waste containing enhanced quantities of 
natural radionuclides, and the uses of radioisotopes in agriculture, medicine, research 
and industry, which concern all Member States. It takes into account the results of 
nearly two decades of specific Community and national R&D programmes; it is based 
on an analysis of the present situation and perspectives, in particular the completion 
of the Single Market. 
In this context, the proposed strategy concentrates on the main elements which could 
benefit from a common approach at Community level, that is: 
- The definitions and classifications of radioactive waste 
- The ininimization of radioactive waste 
- The transport of radioactive waste 
- The treatment and disposal of radioactive waste 
- Public information 
- The financing of radioactive waste management. 
(5) 1464th Council meeting - Communiqué 10871/90 (press 232) 
(Q Council Resolution of 7 May 1990 (OJ. C122 of 18.5.90) 
B. ELEMENTS OF A STRATEGY 
III. Harmonization of radioactive waste definitions and classifications 
III.l. Definition of radioactive waste 
The first step towards a common strategy must be a common definition of the issue. 
Since radioactivity is omnipresent in nature, the basic problem is to define which 
wastes may be of concern from a radiological point of view. On three recent 
occasions™, the Community utilized a definition of radioactive waste, consistent 
with that developed within the IAEA, on the following lines: 
"Any material that contains or is contaminated with radionuclides at concentrations 
or radioactivity levels greater than the prescribed limits and for which no use is 
foreseen. " 
The limits prescribed were the reporting levels laid down in Article 3 of the basic 
safety standards Directive, which define possible exemptions from the reporting and 
authorization requirements of the Directive. The Commission has proposed new 
values in the current revision of the Directive^) on the basis of appropriate scenarios 
for several categories of activities. The values are nuclide-specific and generally 
lower than the existing ones. These values apply to the small-scale use and 
subsequent disposal of radioactive substances. Exemption from reporting could also 
apply to the receipt of waste at concentrations of activity per unit mass below the 
exemption values, provided that the total amount of waste is relatively low. 
The release of waste arising from a practice that is subject to the requirement of 
reporting, either for disposal or recycling, is in fact always subject to prior 
authorization. For very low-level waste the authorization can be granted on the basis 
of so-called clearance levels. A working party of the Article 31 group of experts is 
defining such levels for the recycling of scrap metals (see Section IV.2) 
Action 
To explore the possibility of establishing harmonised clearance levels for radioactive 
waste. These levels should be coherent with the reporting levels proposed in the 
revised basic safety standards. 
(7) In the Lomé IV Convention, in Directive 92/3/Euratom Treading Article 2 with Article 1.1), 
and in Council Decision of 25 July 1991 on the association of overseas countries and 
territories with the EC, O.J. L263 of 19.9.91 (annex VI) 
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III.2 Classification of types of radioactive waste 
Radioactive waste comprises a great variety of materials, with different physical, 
chemical and radioactive characteristics. The diversity results in widely differing 
potential hazards. 
International bodies, national authorities and waste operators have therefore 
established radioactive waste classifications in their sector of competence or 
responsibility (waste treatment, transport, waste disposal, communication within the 
international scientific community and with the public, etc.), grouping in the same 
class wastes with similar characteristics and hazards, with a view to improving 
management and safety. 
Most national needs of the Member States are adequately covered by the national 
classifications they have developed. Community action should be therefore oriented 
to questions which may lead to disparities in safety levels between the various 
countries. 
In particular agreement should be reached at Community level about the categories 
of radioactive waste which are not acceptable from a long-term safety point of view 
for surface/near surface disposal; accordingly criteria for long-lived radionuclide 
content in the waste packages intended for surface disposal should be agreed upon at 
Community level. 
Differences in radioactive waste classifications may also make difficult industrial 
cooperation between Member States within the framework of the Single Market; 
however, the general use by all countries of the international IAEA classification of 
radioactive packages for transport purposes provides an answer in the field of 
transportation. 
Action 
Development jof criteria for establishing categories of waste, based on their disposal 
routes. 
III.3 Radioactive waste containing toxic elements of non nuclear origin 
In special cases radioactive products are not the unique source of the hazards arising 
from a particular waste, non-radioactive toxic products may also be present; examples 
may be found in the radiochemical industry. 
Action 
Review EC legislation applicable to radioactive and other wastes(8) in order 
to ensure that any added hazard arising from the presence of non-radioactive toxic 
waste is appreciated and allowed for in radioactive waste management. 
IV. Minimization of radioactive waste 
IV.l Prevention of arisings and volume minimization 
The radiation protection principle of justification already ensures that there is no 
unnecessary use of radioactive substances. 
Scientific perspectives to reduce the radioactivity generated during the fission process 
in reactors or by activation of materials exposed to radiation are few and relevant to 
long-term research, notably Community research on the transmutation of long-lived 
radionuclides. In view of these facts the policy of minimization has to be focussed 
on the volume of waste generated. 
The concept of volume minimization should form part of the safety culture and 
environmental concern in the field and should be therefore implemented with full 
respect for the optimization of radiation protection. Minimization covers a wide 
range of activities concerning the design, construction, operation and 
decommissioning of nuclear facilities, which should be encouraged: 
- choice of materials for components, improvement in operating practices (limitation 
of secondary waste arisings, adequate sorting of the waste, etc.) 
- improvement in decontamination processes, notably opening the route to the 
possible recycling of the decontaminated material 
- improvement in treatment processes for direct volume reduction (supercompaction, 
incineration of combustible waste, etc.) 
Economic incentives for minimization are mainly the cost of disposal, which should 
be borne fully by the waste producers; economic instruments towards minimization 
should therefore be looked at, notably in the fields of R&D and of new investments 
in advanced facilities. 
In addition, the encouragement of voluntary cooperation between Member States on 
the practicalities of waste minimization should be pursued within the framework of 
the 2nd Community Plan of Action in the Field of Radioactive Waste (1993-2000). 
(8) Notably Council Directive 91/689/EEC of 12.12.91 on hazardous waste 
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Finally, a waste minimization awareness culture should be developed in all nuclear 
plants and in all installations using radioisotopes, such as research or medical analysis 
laboratories, hospitals and factories. 
Action 
Conduct studies and research programmes at national and Community levels, in 
particular on partitioning and transmutation of long-lived radionuclides 
Encourage minimization by means of arrangements between waste producers and 
waste operators and by means of economic instruments 
Initiate a campaign to encourage cooperation between Member States in order 
to develop the setting up of a waste minimization culture and practice 
Make proposals for publishing periodically the record of waste production of the 
various categories of nuclear installations in the Member States and of the use of 
radioisotopes outside the nuclear industry. 
IV.2 Recycling and reuse 
Recycling and reuse of materials and equipment with a low level of radioactive 
contamination is a responsible management option, whenever radiological protection 
considerations make it possible. 
This option is of particular importance in the decommissioning of nuclear 
installations: for a power reactor of the light-water type about 10,000 tonnes of steel 
and 100,000 tonnes of concrete waste will arise during dismantling and the major part 
of these quantities will be free, or nearly free, of artificially produced radionuclides. 
The recycling and reuse option clearly requires that the potentially resulting radiation 
exposure of the workers and the public shall be kept within the dose limits and as low 
as reasonably achievable. The situations to consider are: 
- Release of material after examination by the regulatory authorities, without further 
controls: exposure scenarios should consider recycling or reuse as possible exposure 
pathways in addition to disposal. 
- Controlled release outside the nuclear field: the regulatory control is extended 
to cover part or all of the release practice. This control should ascertain that the 
released material (steel, concrete, for instance) is effectively transported to an 
authorized destination (like a smelter) or processed in a specialized licensed plant. 
In the latter case, conditions on the final destination of the recycled material may 
be imposed. 
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- Controlled recycling within the nuclear field; the reuse of cleaned equipment and 
tools in nuclear installations is routinely practised; an important route for such a 
practice may be recycling of steel to produce containers for radioactive waste. 
There is now, at international level, and within the framework of the group of experts 
appointed under Article 31 of the Euratom Treaty, a wide consensus on acceptable 
risk and exposure values from such practices. The development of derived values 
(concentrations and quantities) translating these values into practically applicable 
clearance levels is progressing satisfactorily, particularly for the recycling of steel and 
other metals, where a sustained Community effort is under way. 
Research is continuing to determine parameters needed to calculate the radiological 
consequences of the processing of metals and concrete in possible scenarios for 
recycling, reuse or disposal of very low-level radioactive material. 
Action 
Examine the scope for waste minimization through recycling and reuse, with 
particular attention to reuse in the nuclear industry 
Continue experimental work and assessments of recycling and reuse practices 
Continue development of recommendations on recycling and reuse at international 
and Community level 
Examine the possibility of implementation of rules for recycling and reuse in 
Community legislation. 
V. Transport: authorization and control 
Radioactive substances are classified as a type of dangerous material in the United 
Nations' recommendations on the transport of dangerous goods. Model regulations 
on the transport of radioactive substances were first laid down by the IAEA in 1961 
and have been subsequently subject to regular updating. The last revision dates from 
1985 and has been in force since 1993. They require engineered safeguards to be 
"built-in" to the design of the package on the premise that there could be a severe 
accident in transport, and specify design performance standards which are independent 
of the means of transport by which the package is carried. The IAEA's regulatory 
system has been implemented in the national legal order of all Member States and has 
demonstrated its practical value in ensuring a high level of safety over many years. 
At Community level a system for the administrative supervision and control of 
international shipments of radioactive waste is laid down in a Council Directive(9). 
The situation is subject to regular reports from the Commission to the Council and 
the European Parliament based upon reports drafted by a standing working group in 
which all Member States are represented by their competent authorities. The next 
communication is to be transmitted before the end of 1993. 
Action 
Cooperate to ensure the continuance of an effective international regulatory system 
for radioactive substances 
Continue to monitor this situation of transport of radioactive substances. 
VI. Optimization of the safety of radioactive waste management at Community level 
A full system of radioactive waste management should comprise the activities of 
collection, sorting, treatment, conditioning, transport, storage, and, finally, disposal. 
These activities are closely linked together through numerous interactions. The 
optimization of the system therefore requires: 
- the mature development of all the activities; this criterion is already met except in 
the case of the disposal of long-lived, high-level waste and spent fuel; 
- careful consideration of the safety of each activity versus the global safety of the 
management system; as an example, the wish to minimize the transport of wastes 
away from their place of production must be balanced against the need to dispose 
of these wastes at sites ensuring a satisfactory level of confinement in the long 
term; 
- correlation with the scope available for achieving it. Optimization at Community 
level offers wider approaches to safety than optimization at national level, due to 
the greater diversity of the available options, notably as far as underground disposal 
is concerned. 
VI. 1. Requirements for the safe disposal of long-lived and high-level waste 
The final disposal of long-lived and high-level waste and of spent fuel when declared 
as a waste, has yet to be implemented. The Community has a role to play in paving 
the way for bringing disposal sites into safe operation, in addition to the 
implementation of its research programme. 
(9) Directive 92/3/Euratom of 3 February 1992 (O.J. L35 of 12.2.92) 
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Action 
Establish a coordinated programme with well-identified phases and objectives 
to demonstrate and implement underground disposal 
Promote a consensus on basic safety criteria (i.e. retrievability of the waste 
packages, regulatory treatment of intrusion, time horizon for safety evaluation, 
allocation of risk limits in relation to the source, etc.) 
VL2 Applicability of the proximity principle to radioactive waste management 
The proximity principle is an important feature of the EC strategy on non-radioactive 
waste management (cf. Article 5 of Directive 75/442/EEC as amended by Directive 
91/1567EEC). Non-radioactive waste must be disposed of in one of the installations 
nearest to the source of production, in order to ensure a high level of protection for 
the environment and public health; this principle is mainly aimed at mimmizing the 
transport of the waste through the Community. 
The applicability of such a principle to radioactive waste has to be evaluated in the 
light of the specific aspects of radioactive waste management. In all cases, radioactive 
waste arisings remain much smaller than non-radioactive, toxic waste arisings (see I); 
treatment and storage facilities and final repositories for radioactive waste will have 
to be centralized in many cases for economic, safety and environmental protection 
reasons and their number will remain very limited. Finally, what is called for is an 
optimization of the use of radioactive waste facilities. Such an optimization may be 
performed at national and Community level (see VI.4) and by means of a set of 
various approaches, like the equivalence of waste (see VI.3). 
Action 
Develop guidelines on the applicability of the proximity principle in the optimization 
of radioactive waste management systems on the basis of an analysis of its 
development or implementation in the Member States. 
VL3 The radioactive waste equivalence concept 
Some countries, which have specialized nuclear facilities not commonly available, are 
processing or conditioning upon request some waste from other Member States or 
third countries as a result of commercial arrangements or as a consequence of spent 
fuel reprocessing commitments. 
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A strict implementation of a policy which implies the return of the precise foreign 
waste in its totality to the country of origin, after adequate treatment and 
conditioning, may be technically impossible or counter-productive in some cases. In 
such a situation, one may consider, or indeed may be compelled, to return an 
"equivalent waste". Such a course of action may under appropriate circumstances 
increase overall safety and therefore be considered as desirable. However, any 
exchange should be subject to agreement by the relevant authorities of the parties 
involved, and should be justified, with particular attention to safety matters. 
Presently, radioactive waste equivalence is not addressed in the regulations of the EC 
countries, neither at Community or international level. 
Guidance principles for waste equivalence matters, or/and a code of good practice 
should be therefore developed within the Community (see also Council conclusions -
ref. 5). 
Action 
Guiding principles for radioactive waste equivalence should be set up and a code 
of good practice developed within the Community, with particular attention to 
safety and environmental protection matters. 
VI.4 Self-sufficiency in radioactive waste disposal and Community solidarity 
The principle of self-sufficiency in disposal is also part of the EC strategy for non­
radioactive waste (Directive 75/442/EEC as amended by Directive 91/156/EEC(10) 
and the Council resolution of 7 May 1990 (ref. O.J. C122 of 18.5.90). The aim of 
self-sufficiency at Community level holds good for radioactive waste: it would be 
irresponsible for an advanced economic unit of the size of the Community not to 
dispose of its own waste. The Community is already party to agreements which 
prohibit the export of radioactive waste to the ACP states (IVth Lomé Convention) 
and the Overseas Community Territories01}. Equally the Community would be 
justified in refusing to accept radioactive waste from other countries as far as it would 
result for ever in a net import of an additional load of radioactive material. 
(10) Article 5(1) provides that "Member States shall take appropriate measures, in cooperation 
with other Member States where this is necessary or advisable, to establish an integrated and 
adequate network of disposal installations, taking into account of the best available technology 
not involving excessive costs. The network must enable the Community as a whole 
to become self-sufficient in waste disposal and the Member States to move towards that aim 
individually, taking into account geographical circumstances or the need for specialized 
installations for certain types of waste". 
(l!) Council Decision of 25.7.1991 on the association of overseas countries and territories with 
the EC, O.J. L263 of 19.9.91 
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Self-sufficiency at national level is established policy in some Member States. Whilst 
Member States should certainly aim individually at being able to dispose of their own 
radioactive waste, it seems however regrettable, and at least premature, to deny the 
possibility of assistance to another country of the Community in specific cases, notably 
those putting at stake nuclear safety. This suggests a more open approach to the 
disposal question. Such an approach has been recommended by the Commission 
several years ago(12); it was noted that a regional approach, involving several 
countries, could offer advantages especially to countries that have no or limited 
nuclear programmes insofar as it would prevent disposal projects, unjustified on 
economic grounds, being undertaken on an individual basis. 
It appears therefore that the exercise of Community solidarity in these disposal matters 
should be kept open. 
Action 
Develop a solidarity approach to disposal (especially for high-level waste). 
VIL Public information 
The general public are increasingly reluctant to accept all activities which concern 
waste of any kind. A waste repository is seldom recognized by the general public as 
a necessary contribution to the setting up of a safe and ecological infrastructure in 
waste management. 
In this situation, it is important that objective information should be available to the 
public. The Community has a role to play here in support of the efforts of Member 
States. This point is well recognized in the Community's Plan of Action for 
radioactive waste© and the Commission's research programme m radioactive waste(B). 
Information material has been produced for the general public(i4>. As far as individual 
industrial projects having a potential impact on the environment are concerned, 
including waste disposal facilities, a revision of the relevant Dkective(15!) has been 
recently proposed by the Corrmoissiori, asking inter aha the Member States to ensure 
that an opportunity will be given to the public to express a opinion before a project 
is authorized 
The CoTnrnunity should continue its efforts to improve information about radioactive 
wastes, their inventory, their management, their localisation, and their control. 
(12) Illustrative Nuclear Programme under Article 40 of the Euratom Treaty - COM(85)401 final 
of 23.7.85 
(13) Council Decision of 15 December 1989 (0.1 L395 of 30.12.89) 
(14) For example, on radiation generally, "Radiation and You", on waste in particular, "Managing 
Radioactive Waste in the EC". 
(15) Council Directive 85/337/EEC of 27 June 1985 on the assessment of the effects of certain 
public and private projects on the environment (O.J. LI 75 of 5.7.85) 
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Action 
Continuation of activities on information as a priority; special attention should be 
paid to the radioactive waste issue, particularly in preparing information material 
Examination of the possible role of the Joint Research Centre and of the European 
Agency for the environment in centralizing data relevant to radioactive waste. 
VITI. Radioactive waste management financing and structures 
The principle that the polluter should pay for the cost of dealing with the pollution to 
which his activity gives rise is to be found in the strategy on non-radioactive waste 
and in Article 130r of the EEC Treaty as modified by the Single Act of 1986. 
Likewise the principle has formed the basis for financing radioactive waste 
management and disposal by the EC Member States for many years. It has been 
incorporated into the laws of several countries (Belgium, France, Federal Republic 
of Germany, Italy, Spain) and the executive bodies or national agencies responsible 
for managing the radioactive waste are financed, at least in part, through 
payments by the waste producers. 
Its proper application ensures that the costs of the safe management and disposal of 
the radioactive waste are considered at the same time and in conjunction with the 
benefits of the related practice. 
In the context created by the Single Market, consideration should be given at 
Community level to the economic instruments adopted by Member States to implement 
the "polluter pays" principle, and harmonization sought where appropriate. 
The irresponsible handling of discarded sources is a special issue which poses 
particular dangers to the public; measures should be investigated to tackle this safety 
problem at Community level, notably as far as the financing of the source disposal is 
concerned. 
Radioactive waste management structures have been established for many years in the 
Member States with nuclear power programmes; the management of the waste 
(including disposal) is entrusted to an executive body or national agency; the waste 
operators have been also in existence for several years; they are separate from the 
safety authorities and are either themselves directly responsible for waste disposal or 
act through subsidiary or shareholder companies, by means of a public or private 
statute. The successive Community Research programmes on radioactive waste and 
the two Community Plans of Action in the field of radioactive waste© hawe been 
powerful kistniments to establish the high degree of cooperation and convergence 
existing between these various bodies. The 2nd Action Plan 1993-1999, and the 
Advisory Cbrnmittee connected with it, should increasingly constitute the Qmrrnunity 
structure where radioactive waste management issues will be discussed, and when 
desirable, proposed for hannonization. 
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Action 
Review the application of the "polluter pays" principle to radioactive waste 
management in the Member States 
Investigate Community measures to ensure the safe handling and disposal of 
radioactive sources 
Pursue the implementation of the Community Plan of Action on radioactive waste 
as an appropriate structure for radioactive waste management guidance and 
harmonization at Community level. 
C. CONCLUSION 
Much has already been achieved in the field of radioactive waste and the proposed strategy 
has identified key areas for future action. The measures proposed will be undertaken in 
conjunction with those proposed in the Fifth Action Programme on the Environment and the 
Second Plan of Action in the Field of Radioactive Waste. The need for further action will 
be assessed in the light of the results of these measures. 
l\ 
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