Proposal for a Council Decision adopting a specific programme of research and training in the field of controlled thermonuclear fusion (1994 to 1998) (94/C 113/06) (Text with EEA relevance) COM(94) 70 final - 94/0073(CNS)

(Submitted by the Commission on 30 March 1994)

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty establishing the European Atomic Energy Community, and in particular Article 7 thereof,

Having regard to the proposal from the Commission, which has consulted the Scientific and Technical Committee,

Having regard to the opinion of the European Parliament,

Having regard to the opinion of the Economic and Social Committee,

Whereas, by Decision . ./. . ./Euratom, the Council adopted a framework programme of Community activities in the field of research and training for the period 1994 to 1998 specifying inter alia the activities to be carried out in the field of controlled thermonuclear fusion; whereas this Decision takes account of the grounds set out in the preamble to that Decision;

Whereas Article 2 of Decision . ./. . ./Euratom specifies that the framework programme is to be implemented through specific programmes adopted in accordance with Article 7 of the Treaty; whereas each specific programme is to specify its precise objectives in accordance with the scientific and technical objectives referred to in Annex III to the Decision, define the detailed rules for implementation, fix its duration and provide for the resources deemed necessary;

Whereas this programme will be carried out mainly through shared-cost activities, concerted actions and preparatory, accompanying and support measures;

Whereas Decision . ./. . ./Euratom (framework programme 1994 to 1998) lays down that the overall maximum amount of the framework programme (1994 to 1998) will be reexamined by 30 June 1996 at the latest with a view to its being increased; whereas, as a consequence of this reexamination, the amount deemed necessary to carry out this programme could increase;

Whereas the content of the framework programme of Community activities in the field of research and training was established in accordance with the principle of subsidiarity; whereas this specific programme specifies the content of the activities to be carried out in accordance with this principle in the field of controlled thermonuclear fusion;

Whereas, as is laid down in Annex III to Decision . ./. . ./Euratom, the Community needs a 'Community Fusion` programme whose long-term objective would be the joint creation of prototype reactors which are safe and which respect the environment; whereas the programme incorporates all the activities undertaken in the Member States in the field of controlled thermonuclear fusion by magnetic confinement;

Whereas Decision . ./. . ./Euratom (framework programme 1994 to 1998) lays down that Community action is justified if, inter alia, the research helps to reinforce the economic and social cohesion of the Community and to encourage its harmonious development while at the same time meeting the objective of scientific and technical quality; whereas this programme is intended to help meet these objectives;

Whereas this programme will help to strengthen synergy between the research and training activities carried out in the field of controlled thermonuclear fusion by research centres, universities and undertakings established in the Member States and between these and the corresponding Community research and training activities;

Whereas the implementation of the JET (Joint European Torus) project was entrusted to the JET Joint Undertaking, set up by Decision 78/471/Euratom and last amended by Decision 91/677/Euratom;

Whereas the network of Associations is a major player in the implementation of the Community's controlled thermonuclear fusion activities;

Whereas, by virtue of Article 101 of the Treaty, the Community has concluded cooperation agreements in the field of controlled thermonuclear fusion and plasma physics with the Kingdom of Sweden and the Swiss Confederation; whereas the Community has concluded an agreement on cooperation in the engineering design activities for the international thermonuclear experimental reactor (ITER-EDA) with Japan, the Russian Federation and the United States of America;

Whereas this programme also comprises activities for the dissemination and utilization of research results, in particular vis-à-vis small and medium-sized enterprises, as well as activities promoting the mobility and training of researchers within this programme to the extent necessary for the proper implementation of the programme;

Whereas basic research in the field of controlled thermonuclear fusion must be encouraged so as to enable innovative concepts to be developed;

Whereas an assessment should be made of the economic and social impact and any technological risks associated with the activities carried out under this programme;

Whereas progress with this programme should be continuously and systematically monitored with a view to adapting it, where appropriate, to scientific and technological developments in this area; whereas in due course there should be an independent evaluation of progress with the programme so as to provide all the background information needed in order to determine the objectives of the next framework programme of research and training for the European Atomic Energy Community; whereas at the end of this programme there should be a final evaluation of the results obtained compared with the objectives set out in this Decision;

Whereas the JRC may participate in the indirect activities covered by this programme;

Whereas the JRC will also contribute, through its own programme of direct activities, to the attainment of the Community research and training objectives in the areas covered by this programme,

HAS ADOPTED THIS DECISION:

Article 1

A specific programme of research and training for the European Atomic Energy Community in the field of controlled thermonuclear fusion, as set out in Annex I, is hereby adopted for the period from (date of adoption of this programme) to 31 December 1998.

Article 2

1. The amount deemed necessary for carrying out the programme is ECU 794 million, including around 17 % for staff and administrative expenditure.

2. An indicative breakdown of this amount is given in Annex II.

3. The amount deemed necessary for carrying out the programme, as indicated above, could increase as a result of and in accordance with the Decision referred to in Article 1 (3) of Decision . ./. . ./Euratom (framework programme 1994 to 1998).

4. The budgetary authority shall determine the appropriations available for each financial year in accordance with the scientific and technological priorities set in the framework programme of Community activities in the field of research and training for the European Atomic Energy Community (1994 to 1998).

Article 3

Detailed rules for implementing this programme, in addition to those referred to in Article 5, are set out in Annex III.

Article 4

1. The Commission shall continuously and systematically monitor progress with this programme in relation to the objectives set out in Annex I. It shall in particular assess whether the objectives, priorities and financial resources are still appropriate. Where necessary, it shall submit proposals to adapt or supplement this programme depending on the results of this monitoring process.

2. At the end of this programme, the Commission shall instruct independent experts to conduct a final evaluation of the results achieved compared with the objectives set out in Annex III to the framework programme of research and training (1994 to 1998) and Annex I to this Decision. The final evaluation report shall be forwarded to the Council, the European Parliament and the Economic and Social Committee.

Article 5

1. The Commission shall be responsible for the implementation of the programme.

2. The Commission shall be assisted in the implementation of the programme by the consultative committee for the fusion programme set up by the Council Decision of 16 December 1980.

Article 6

This Decision is addressed to the Member States.

ANNEX I

SCIENTIFIC AND TECHNICAL OBJECTIVES AND CONTENT

INTRODUCTION

This programme fully reflects the approach embodied in the framework programme of Community activities in the field of research and training for the European Atomic Energy Community (1994 to 1998). Its content takes account of the conclusions of the seminar on European strategy for energy research and technological development (Venice, November 1993).

The long-term objective of the Community fusion programme, embracing all activities undertaken in the Member States (plus Sweden and Switzerland) in the field of controlled thermonuclear fusion by megnetic confinement, is the joint creation of safe, environmentally sound prototype reactors, which should result in the construction of economically viable power stations which will meet the needs of potential users; in this context particular attention will be paid to the constraints imposed by the requirements of power utilities (Decision . ./. . ./Euratom concerning the framework programme 1994 to 1998).

Progress towards this objective, which is shared by the world's four major fusion programmes (Euratom, Japan, Russia and the United States of America), which are of similar size, has a time-horizon measured in decades. Within Europe, integration of all magnetic fusion research into one Community programme has been essential for optimum use of the available human and financial resources; this integration is fully in line with the coordination of research activities recommended by the Commission in its White Paper (COM(93) 700), which was adopted by the European Council on 10 to 11 December 1993. Individually, none of the Member States could have undertaken a project the size of JET or been recognized as an equal partner in the world-wide collaboration on the ITER experimental reactor. Indeed, the quality of the research and the experience gained through intra-Community collaboration have placed the Community in a strong position in the ITER cooperation.

The long timespan and the large human and financial effort needed to attain this objective call for a concentration of Community action on the objective in hand, the complete cohesion of the network of organizations associated in the Community action and the full exploitation of cooperation with the major fusion programmes outside the Community. Safety and environmental issues will be central to the construction of the following large devices, which, after JET, are included in the strategy leading towards the prototype commercial reactor:

- an experimental reactor (Next Step), the overall objective of which is to demonstrate the scientific and technological feasibility of fusion energy for peaceful purposes,

- a demonstration reactor (DEMO) capable of producing significant quantities of electricity.

For the period 1994 to 1998, the priority objective is to establish the engineering design of the Next Step within the framework of the quadripartite cooperation between Euratom, Japan, Russia and the United States of America on the engineering design activities for the international thermonuclear experimental reactor (ITER-EDA).

Specialized studies will also be needed to look at possible improvements to concepts in plasma physics and plasma engineering, as well as to carry out the long term technology developments required for progressing towards the exploitation of fusion as an energy source. The results of such studies will be of benefit both in the operation of ITER and, in the longer term, in the conceptual definition of DEMO.

In the period 1994 to 1998, therefore, the proposed strategy calls for the simultaneous development of three areas of activity, as represented below, on which efforts will be concentrated mainly by means of shared-cost actions.

- Next Step activities: on the one hand the design proper, and on the other hand the R& D supporting the design, construction and operation of the Next Step,

- Concept improvements: DEMO-oriented R& D on plasma physics and engineering,

- Long term technology: DEMO- and reactor-oriented R& D on technology.

Research will continue to focus on controlled thermonuclear fusion by magnetic confinement in toroidal geometry. The present keep-in-touch activity with other approaches to controlled thermonuclear fusion, and in particular inertial confinement, will be continued and if possible expanded to an international framework, as recommended at the Venice seminar.

Environmental and safety criteria will play an essential role in the progress of the whole fusion programme.

During this process care will be taken to:

- strengthen further the cooperation between Associations, as well as the mobility of research workers,

- encourage the involvement of industry,

- extend the scope of international collaboration,

- step up the synergy between research and advanced training.

Areas of scientific and technical activity

Next Step activities

The ITER-EDA include the design proper by the Joint Central Team and by the Home Teams of the four Parties, plus the supporting R& D in physics and technology by the Home Teams. For the Euratom Party, activities other than the participation in the Joint Central Team will be coordinated by the NET Team and carried out mainly by the Associations, industry (with increasing involvement), JET and the Joint Research Centre (JRC).

Plasma physics and plasma engineering R& D in support of the ITER-EDA will be pursued on the JET and on specialized devices in the Associations, with the focus on particle and energy exhaust, the heating, confinement and disruption of plasma, and long plasma pulses. JET's main task is to establish reliable methods of plasma purity control under conditions relevant for the Next Step and to conduct high-performance operations in deuterium-tritium plasmas.

The ITER-EDA technology and design tasks allocated to the Community will be performed primarily in the Associations, in the JRC, and in industry. In order for both to make the Community more competitive for the construction of ITER and to maintain the option of proceeding towards a European Next Step should cooperation on ITER prove too difficult to continue, the necessary competence will be developed in all key technologies for the Next Step, in particular in the fields of superconducting magnets, plasma facing components, operational and environmental safety, the fuel cycle and highly reliable remote handling for maintenance and decommissioning of the device in its particular environment. The present generation of technology test facilities will be intensively exploited. Specialized laboratories in the JRC, JET, and the Associations will help demonstrate the safe handling of tritium.

A European candidate site for the construction of the Next Step will be identified and qualified.

Protocol 1 to the ITER-EDA Agreement covers the period up to March 1994. A proposal to conclude Protocol 2 will be submitted to the Council in time to allow the ITER-EDA to continue without interruption. The completion of the ITER-EDA is scheduled for July 1998. A decision about where, when and within what framework to build the Next Step should therefore be taken during the period under consideration; before a firm decision is taken to commit the funds needed for the construction of a Next Step device, and in principle not later than 1996, a rigorous, independent assessment of the prospects for fusion should be undertaken, and its conclusions based on evidence of real progress towards the programme's ultimate goal.

Concept improvements

Research on concept improvements for the Tokamak and configurations akin to it are essential, in the longer term, for the definition of DEMO; this research should also help finalize the design of the Next Step and prepare its operation.

Improvements will have to be made to the current techniques for tackling certain plasma physics and plasma engineering problems, most of them common to all toroidal magnetic confinement devices. These improvements could require not only the extension of running programmes, but also the upgrading of existing devices and the construction of new ones. More specifically, studies on improved confinement regimes, magnetohydrodynamic stability, plasma-wall interaction, fuelling and exhaust, heating and current drive, will be carried out on existing devices: TORE-SUPRA, ASDEX-U, TEXTOR, FTU, COMPASS, START, TCV, RTP, ISTTOK, TJ-I-U, TJ-II, WVII-AS, RFX and EXTRAP T-2. New plasma diagnostic methods will be developed in the Associations to support these studies. In synergy with experimental activities, activities in theoretical physics will be focused principally on interpretation of experimental results, modelling of thermonuclear plasmas and the development of innovative concepts. The possibility will also be studied of using advanced fuels such as the deuterium-helium3 mixture in future commercial reactors.

Preparatory activities are under way to upgrade existing devices and construct new ones. The most advanced relate, in particular, to:

- the engineering design and prototype development for a possible large stellarator (WVII-X) to demonstrate the advanced performance of that configuration; conceptual studies on the reactor potential of stellarators will be developed,

- a possible compact Tokamak, aiming at ignition. A revised proposal may be submitted to the consultative committee for the fusion programme (CCFP) for in-depth examination,

- the possible upgrading of some Tokamaks, notably TORE-SUPRA.

Long-term technology

The long-term technology effort will be expanded with a view to providing technically and environmentally acceptable solutions to the technical problems of using fusion power as an energy source. Environmental acceptability, safety and economic viability will ultimately be the keys to the widespread introduction of fusion power. This long-term technology effort will be undertaken in the Associations, in the JRC and in industry, and will include in particular:

- development of tritium breeding blankets, with a view to building DEMO-relevant blanket modules to be tested in ITER,

- development of radiation resistant and low activation materials; testing these materials will require the availability of a high energy neutron source. The engineering design of such a facility should be started during the period 1994 to 1998, preferably within an international framework,

- further analysis of the safety and social acceptability of fusion power. In particular, analysis and assessment of possible risks associated with fusion power and its future large facilities, and the integration of all possible measures to prevent or minimize these risks will be an important part of the activities.

Implementation

According to Council Decision 91/677/Euratom (1), the period 1994 to 1998 should see the ending of the JET Joint Undertaking, presently the major focus of fusion research in Europe. The CCFP is currently assessing the expediency of a possible proposal to extend JET to perform specific tasks in support of ITER (in particular, testing a divertor similar to that designed for ITER). This assessment forms part of a more general examination of the possibility of upgrading existing devices or constructing new ones, as mentioned in the section 'concept improvements`. After the end of the Joint Undertaking, the acquired scientific data will be fully exploited. The JET expertise will be transferred to other parts of the fusion programme, in particular to ITER activities. Where appropriate, JET's facilities will continue to be operated, within organizational frameworks to be defined; in particular, research on JET decommissioning could be made part of the programme's activities.

Even before the ending of the JET Joint Undertaking, cooperation between the Associations will be extended further. New forms of cooperation between the Associations will be established to take into account the European nature and the limited duration of research projects. Joint projects carried out by formal groupings of Associations as consortia for integrated actions will be encouraged by the Commission through an adaptation of the existing arrangements. The Associations and JRC (2) will have to provide a substantial contribution to the physics and technology programmes of the ITER during its design, construction and operation.

Industry will be encouraged to participate more fully, with the twin aim of introducing industrial expertise into the realization of the Next Step and ensuring that European industry will master all the key technologies needed to build future fusion reactors. The measures introduced under the 1990 to 1994 programme to involve European industry in the Community's contribution to the ITER-EDA, in the design proper as well as in the accompanying R& D, will be reviewed and adapted as necessary. In particular, joint 'fusion-industry` seminars will be organized to help develop the dissemination and exploitation of the scientific and technical results of the fusion programme.

The possibility will be explored of extending international cooperation beyond ITER, notably through joint planning with the world's major fusion programmes. Possible areas of cooperation are a material test facility with a powerful high energy neutron source, and specialized devices for concept improvements.

Considering the long-term effort required for the exploitation of fusion power, great importance will be attached to maintaining the excellence and cohesion of the research teams within the Community, developing the mobility of scientists and engineers and fostering the synergy between research and advanced training, by strengthening the links with the wider European scientific community. In particular, Associations will be encouraged to collaborate with universities which are active in hot-plasma physics.

The indicative amount of funding provided for in this Decision will not be sufficient to maintain, as was recommended by the Fusion Programme Evaluation Board (3), the same volume of activities during 1994 to 1998 as in the previous programmes. Even if the Council, by no later than 30 June 1996, increases the amount of funding allocated to the present programme within the limits laid down in the Decision on the framework programme, measures aiming at a greater selectivity of the activities to be performed and a stepwise implementation of new actions will be necessary.

The decentralized management structure of the fusion programme, inherent to its network structure, has proved to be efficient and will be maintained.

(1) Council Decision 91/677 Euratom of December 1991 stipulates: 'The Joint Undertaking shall be established for a period until 31 December 1996.`

(2) A more detailed description of the JRC's research activities, which are defined in a proposal for a separate Council decision, is given in Annex IV for information in order to ensure the transparency in relation to their complementarity with corresponding indirect actions.

(3) EUR 1304/1990.

ANNEX II

INDICATIVE BREAKDOWN OF FUNDS

(%)

Area 1: Next Step activities 40-50 (1)

Area 2: JET Joint Undertaking 22-32 (2)

Area 3: Concept improvements 22-32

Area 4: Long-term technology 5-9

100 (ECU 794 million) (3) (4) (5)

The breakdown between different areas does not exclude the possibility that projects could cover several areas. In particular, safety and environmental issues, which will determine the evolution of the fusion programme, will be addressed in all areas; in JET, these issues are an integral part of the exploitation of the device; in Areas 1, 3 and 4 approximately 10 % of the total will be allocated to these issues.

(1) Including design proper and the necessary R& D support in physics and technology provided in the Associations and by industry.

(2) The activities of the JET Joint Undertaking, which has its own legal personality, are geared mainly towards support for the Next Step.

(3) For areas 1, 3 and 4, this includes staff costs (about 10 %, including all community staff in the ITER Joint Central Team) and administrative costs (less than 2 %). For area 2, the budget of the JET Joint Undertaking includes provisions for a maximum of 181 temporary agents assigned to the JET Joint Undertaking within the meaning of Article 2 (a) of the conditions of employment of other servants of the European Community; the Community participation in the JET budget is about 75 %.

(4) An amount of ECU 46 million, representing the difference between the amount deemed necessary for the present programme and the amount provided for in the framework programme for research and training activities in the nuclear field (1994 to 1998) for 'controlled thermonuclear fusion`, is allocated to the 'specific research and technological development programme to be carried out by the Joint Research Centre, for the European Atomic Energy Community`.

(5) Including about 10 % for basic research.

ANNEX III

DETAILED RULES FOR IMPLEMENTING THE PROGRAMME

1. The detailed rules for the Community's financial participation are those laid down in Annex IV to the Decision on the framework programme of Community activities in the field of research and training for the European Atomic Energy Community (1994 to 1998).

The detailed rules for implementing this programme, referred to in Article 3, encompass research and technological development projects, the JET Joint Undertaking, accompanying measures and concerted actions. These must be selected with regard to the criteria listed in Annex II to Decision . ./. . ./Euratom and the objectives set out in Annex I to this programme.

Participation in the programme, within the meaning of Article 2 (2) of the Council Decision on the rules for participation in the specific programmes of the European Atomic Energy Community, is limited to international organizations located in Europe and to the entities referred to in Article 2 (2) (c) of the abovementioned Council Decision.

2. This programme will be carried out through:

2.1. Financial participation by the Community in research and training activities carried out by third parties or by the institutes of the JRC with third parties (Europe-based international research organizations can be financed exceptionally on the same basis as Community organizations).

(a) Shared-cost activities:

Projects will be covered by shared-cost research and technological development contracts within the framework of the contracts of Association with Member States (plus Sweden and Switzerland) or organizations in the Member States, or within the framework of the Jet Joint Undertaking, the Net agreement, which takes account of the Community's participation in ITER-EDA, or other contracts of limited duration, in particular with organizations in the Member States which do not possess Associations.

The Community's financial contribution to the current expenditure of the Associations and to contracts of limited duration will, as a rule, be fixed at the uniform rate of around 25 %. Once it has consulted the CCFP the Commission can finance:

- investment costs of specifically defined projects, at a uniform rate of around 45 %,

- certain tasks which can only be carried out by industry, up to a ceiling rate of 100 %.

The detailed rules for Community contributions to the JET Joint Undertaking are defined in the Joint Undertaking's Statutes, adopted by the Council in Decision 78/471/Euratom (1) and last amended by Decision 91/677/Euratom (2).

Community participation in the ITER design activities (ITER-EDA) is defined in the EDA Agreement (3) its Protocols (and the accompanying documents) and a bilateral Agreement (being drawn up) on the participation of Canada in the Community's contribution to ITER-EDA. As indicated in Article 3 of the Agreement, the EDA is to be implemented by successive Protocols; Protocol 1, concluded at the same time as the Agreement on 21 July 1992, will expire at the moment Protocol 2 enters into force, and by 20 March 1994 at the latest. Protocol 2 is intended to cover the remaining period of the EDA (until July 1998). The detailed arrangements for Community participation in ITER-EDA are peculiar to the specific framework (Association contracts, JET Joint Undertaking, NET Agreement, mobility agreement, agreement with Canada), within which these activities are conducted. The 25 % of the Joint Central Team which corresponds to the Community's participation is made up of Commission agents.

Projects will be selected on the basis of the ordinary procedures set out in the contracts of Association, the JET Statutes, the NET Agreement, the ITER-EDA Agreement and any other Community-wide agreements that may be concluded following the opinion of the consultative committee referred to in Article 5 (2). Where the consultative committee grants priority status to a project, all the Associations have the right to take part in the experiments carried out on the equipment thus constructed.

(b) Concerted actions, which consist in coordinating, notably in the form of concertation networks, the research and training projects already being financed by the public authorities or private bodies. A concerted action may also provide the coordination necessary for the operation of thematic networks which, through shared-cost actions, unite manufacturers, users, universities and research centres around a single technological or industrial objective.

2.2. Preparatory, accompanying and support measures as follows:

- studies to support this programme and to prepare for any future activities,

- conferences, seminars, workshops or other scientific or technical meetings, including meetings on intersectoral or multidisciplinary coordination,

- use of outside expertise, including access to scientific data bases,

- scientific publications, including the dissemination, promotion and exploitation of results (in coordination with the activities conducted under Action 3),

- studies evaluating the socio-economic consequences and any technological risks attaching to the programme projects as a whole,

- training activities linked to the research covered by the programme,

- independent evaluation (including studies) of the management and implementation of the programme's activities.

(1) OJ No L 151, 7. 6. 1978, p. 10.

(2) OJ No L 375, 31. 12. 1991, p. 9.

(3) OJ No L 244, 26. 8. 1992, p. 14.

ANNEX IV

DESCRIPTION OF THE JOINT RESEARCH CENTRE'S (JRC) RESEARCH ACTIVITIES CORRESPONDING TO THE AREAS COVERED BY THIS SPECIFIC PROGRAMME AND THE SUBJECT OF THE PROPOSAL FOR A COUNCIL DECISION FOR THE JRC PROGRAMME (COM(94) 70 FINAL - 94/0074(CNS))

This activity forms part of the Community fusion research programme. It is aimed at improving the pool of knowledge and the technology of the 'safety and environment` dimension of future machines intended for the European programme. The bulk of the work will be dedicated to support for the international thermonuclear experimental reactor (ITER) but may also involve any other fusion reactor.

For this purpose, the JRC has designed and constructed the European tritium handling laboratory (Ethel). The aim of this installation is the development of methods of handling tritium, but special attention will be paid to the verification and validation of methods of preventing and reducing tritium and activation product waste in the work area and the environment under both normal and accident conditions.

The laboratory is also able to offer research capability to any other European organization which is a member of the Community fusion programme or is associated with it.

Part of the activities will concern the development and characterization of materials to meet the following requirements: good compatibility with tritium, behaviour as effective barriers against infiltration of tritium with low induced radioactivity. The JRC, which has long experience in this field, will make a significant contribution within the framework of the ITER and for the longer term requirements of the fusion programme.

In addition to these activities, more general studies, including operational safety during maintenance, will be conducted by the JRC in line with specific demands relating to the ITER project or, more broadly, the fusion programme, in particular studies on low-activation materials and remote handling.