No C 116/26 Official  Journal  of the European  Communities 30. 9. 74 
all the  draft  Directives  concerning  authorization  to 
market  and  manufacture  medicinal  products.  It 
draws  attention  to its Opinions  on the  draft  Direc-
tives  in question,  and  requests  that  these  draft Directives  be swiftly  adopted  in order  to enable  a 
start  to be made  on achieving  a genuine  common 
market  for medicinal  products. 
Done  at Brussels,  27 June  1974. 
The Chairman 
of the Economic  and  Social  Committee 
Alfons  LAPPAS 
Opinion  on the  'Communication  from  the  Commission  to the  Council  on  the 
implementation  of the  "Guidelines  and  priority  measures  for  a Community  energy 
policy"  — Promotion  of the use of nuclear  energy' 
The text  referred  to the  Committee  has  been  published  in Official  Journal  of the 
European  Communities  No  C 44 of 19 April  1974,  pages  12 and  13. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 25 February  1974,  the  Council  referred  the  abovementioned  proposal  to the 
Economic  and  Social  Committee  in accordance  with  Article  170  of the  Treaty 
establishing  the European  Atomic  Energy  Community. 
B. OPINION  OF  THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  prepared  its Opinion  on the above  matter  at its 
121st  plenary  session,  held  in Brussels  on 26 and  27 June  1974. 
The full  text  of the Opinion  is as follows: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE: 
Having  regard  to the letter  dated  25 February  1974, 
in which  the Council  of the European  Communities 
requested  the Committee  to deliver  an opinion  on the 
'Communication  from  the  Commission  to  the 
Council  on the  implementation  of the  "Guidelines 
and priority  measures  for  a Community  energy 
policy"  — Promotion  of the use of nuclear  energy'; 
Having  regard  to  the  Treaty  establishing  the 
European  Atomic  Energy  Community,  and  in 
particular  the second  sentence  of the first  paragraph 
of Article  170  thereof; Having  regard  to the Decision  taken  by its Bureau  on 
26 March  1974  instructing  the Section  for Energy  and 
Nuclear  Questions  to prepare  a report  and  an 
opinion  on the matter; 
Having  regard  to its Opinion  of 24 May  1973  on the 
'Proposal  for  a Directive  (Euratom)  amending  the 
Directives  laying  down  the basic  safety  standards  for 
the protection  of the  health  of workers  and  the 
general  public  against  the  dangers  of ionizing 
radiation'; 
Having  regard  to its Opinion  of 27 June  1973  on the 
'Second  Illustrative  Nuclear  Programme'; 
30. 9.74 Official  Journal  of the European  Communities No C 116/27 
Having  regard  to the Opinion  adopted  by the Section 
for Energy  and  Nuclear  Questions  at its meeting  on 7 
June  1974; 
Having  regard  to the report  submitted  by Mr Schlitt, 
the rapporteur,  during  the  Section's  meeting  on 7 
June  1974; 
Having  regard  to the discussions  at its 121st  plenary 
session  on 26 and  27 June  1974,  sitting  of 26 June 
1974; 
Whereas  the primary  objective  of Community  energy 
policy  must  be  to  reduce  the  Community's 
dependence  on external  sources; 
Whereas  the  accelerated  development  of nuclear 
energy  is an important  instrument  for achieving  this 
objective; 
Whereas  the Commission  can  play  an important  role 
in ensuring  appropriate  development  of nuclear 
energy, 
HAS  ADOPTED  THE  FOLLOWING  OPINION 
unanimously: 
1. GENERAL  COMMENTS 
1.1. The  Committee  welcomes  the  Commission's 
proposals  to the Council  for a plan  of action  to speed 
up the  application  of nuclear  energy  within  the 
framework  of the  Community  energy  policy.  The 
Committee  agrees  with  the  Commission  that  the 
Council  should  approve  the  plan  of action  in its 
entirety,  although  some  of the measures  have  already 
been  submitted  to the Council  as proposals  or have 
already  received  its approval. 
1.2. The  Committee  considers  it necessary,  in view 
of the new  situation  in the energy  sector,  to combine 
all Community  measures  in the  field  of nuclear 
energy  in one  plan  of action  so as to obtain  an 
overall  picture  of the steps  which  have  already  been 
taken  and  those  which  have  still  to be taken. 
1.3. In  its discussion  of the Communication  from 
the Commission,  the  Committee  noted  with 
satisfaction  that  the  majority  of the  measures 
proposed  are  in conformity  with  its Opinion  of 27 
June  1973  on the Second  Illustrative  Programme.  The 
Committee  would,  however,  have  preferred  the 
Commission  to have  indicated  the  main  points  of 
effort  in the action  to be initiated  or continued,  so as 
to give  greater  prominence  to the particularly  urgent measures.  The  Committee  also  considers  that, 
particularly  because  of the world-wide  developments 
in the energy  sector,  the majority  of Member  States 
have  recognized  the  need  to promote  the  use  of 
nuclear  energy  on a comprehensive  scale  and  to 
speed  up action  to this  end.  They  have  therefore 
greater  willingness  to cooperate  more  closely  in 
future  within  the Community  to attain  the objectives 
set. The  Committee  regrets,  however,  that  despite 
these  preconditions  there  has still  been  no significant 
improvement  here  in  cooperation  between  the 
Member  States,  although  it is appreciated  that  certain 
progress  has  been  achieved  in cooperation  between 
individual  Community  undertakings  active  in the 
nuclear  energy  sector. 
1.4. The  Committee  would  also  have  expected  the 
Commission  to  have  ascertained  whether  the 
industries  in the Member  States  have  at all sufficient 
capacity  to guarantee  greater  development  of nuclear 
energy  in the Community  and  to have  indicated  what 
measures  the Community  should  take,  if necessary.  In 
this connection  the  Committee  believes  that  in the 
framework  of the  planned  action,  the  Commission 
should  take  steps  to improve  the 'transparency'  of the 
medium  and  long-term  investment  plans  of the 
electricity  generating  undertakings.  The  Committee 
feels  that  this  is necessary  because  wider  use  of 
nuclear  energy  is contingent  on timely  action  and 
investments  by the reactor  construction  firms  and  the 
suppliers.  The  Committee  regrets  that  the  measures 
proposed  by the Commission  contain  no reference  to 
the use of nuclear  energy  for the purposes  other  than 
electricity  generation.  The  Committee  considers  that 
initiatives  and  promotive  measures  are  necessary  in 
this respect  also  even  if the commercial  use of nuclear 
energy  in other  sectors  is not yet possible  in the short 
term.  At all events  the Committee  greatly  welcomes 
the fact  that  after  many  years  of frustration  the 
Commission  is endeavouring,  through  new  initiatives 
and promotive  measures  to more  effectively  carry  out 
the duties  and  exercise  the  powers  assigned  to it 
under  the Euratom  Treaty. 
1.5. The  Committee  considers  that  prime 
importance  must  be given  to protection  of the public 
in any  steps  to speed  up  and  expand  existing 
programmes  for nuclear  installations.  Experience  to 
date indicates  that  the  regulations  and  measures 
adopted  in this  field  in the  past  within  the 
Community,  particularly  the  Euratom  basic  safety 
standards,  have  been  effective.  The  increasing  use of 
nuclear  energy  should  be accompanied  by a gradual 
further  development  of safety  precautions  and  greater 
attention-  should  be paid  to the  expediency  and 
practicability  of measures  in this  area. 
1.6. In  this  connection,  the  Committee,  however, 
emphasizes  that  the more  vigorous  promotion  of the 
No C 116/28 Official  Journal  of the European  Communities 30.9.  74 
use of nuclear  energy  should  be accompanied  by 
more  intensive  action  to provide  the general  public 
with  objective  and  comprehensible  information  on 
the problems  associated  with  nuclear  energy  and  the 
measures  taken  to solve  them.  The  Committee 
believes  that  opposition  to nuclear  energy  and  hence 
delays  in the execution  of programmes  for building 
nuclear  power  stations  could  be reduced  by actively 
providing  the  public  with  objective  information  on 
the operational  safety  of reactors  and  on the amount 
of radiation  released  during  production,  in the 
transport  of  radioactive  material  and  in  the 
treatment  and  storage  of radioactive  waste.  The 
public  should  also  be informed  of the  compulsory 
safety  rules  and  the  possible  advantages  of nuclear 
power  stations  compared  with  conventional  thermal 
power  stations. 
1.7. The  Committee  is of the opinion  that  it is in 
the first  instance  up to the Member  States  themselves 
to ensure  that  objective  information  is provided  by 
independent  experts  in the  health  and  environment 
field,  so that  there  is less  opposition  to the 
establishment  of nuclear  power  stations  and  the 
maximum  possible  degree  of  public  assent  is 
obtained. 
1.8. The  Committee  recognizes  the difficulties  of 
explaining  to  the  public  highly  complex 
physico-technical  processes  and  equipment.  In this 
connection  the  Committee  is convinced  that  the 
Commission  can  make  a considerable  contribution  to 
eliminating  opposition,  either  by  supporting  the 
Member  States  or  by  suitable  cooperation  in 
international  organizations.  The  Committee  considers 
that as a neutral  and  impartial  organization  the 
Commission  could  take  particularly  effective  action 
in this  area.  The  Committee  does  not  conceal  its 
anxiety  that  inadequate  information  could  lead  to 
increased  opposition  to nuclear  energy  and  thus  to 
delays  in the nuclear  construction  programme, 
2. SPECIFIC  COMMENTS 
2.1. General 
2.1.1.  The  Commission  envisages  extensive 
measures,  particularly  with  regard  to the  protection 
of public  health  and  the environment,  the industrial, 
scientific  and technological  base  and  fuel  supply.  The 
Committee  believes  that  a fourth  priority  should  be 
added  to the list,  or given  special  prominence,  namely 
the financing  of investments. 
2.1.2.  All  nuclear  energy  projects  are  extremely 
capital-intensive  and  this  applies  to both  nuclear 
power-stations  and  fuel-cycle  installations  (pro-duction  of natural  uranium,  uranium  enrichment, 
reprocessing  and  treatment  and  final  storage  of 
nuclear  waste).  The  large  additional  capital 
requirements  of current  nuclear  energy  programmes 
are, at least  under  present  conditions,  beyond  the 
capabilities  of the  Community's  capital  markets, 
which  are  already  strained  as it is. In the  present 
capital  market  situation,  in which  the credit  available 
is mainly  short  or medium-term,  the long  lead-time 
before  a nuclear  installation  is commissioned  also 
causes  considerable  financing  problems.  The 
Committee  feels  that  a Commission  initiative  is 
necessary,  over  and  above  existing  credit  facilities,  to 
mobilize  other  sources,  particularly  long-term  funds. 
2.2. A. Protection  of public  health  and  of the 
environment 
(Aa) 
2.2.1.  The  Committee  welcomes  the fact  that  it is 
intended  to investigate  the  potential  radiological 
implications  of the nuclear  programmes  over  a long 
period.  Up  till  now  there  has  been  far  too  little 
reliable  information  available  in this  field  which 
would  show  the effects  of the planned  use of nuclear 
energy  on a wide  scale.  Such  information  is also 
required  in time  to provide  those  responsible  for 
long-term  construction  plans  with  a precise 
knowledge  of future  maximum  permissible  levels  of 
radiation.  In this  context  the timely  determination  of 
suitable  sites  for nuclear  installations  is particularly 
important.  This  would,  however,  require  close 
cooperation  with  the individual  Member  States. 
(Ab) 
2.2.2.  The  planned  research  by the  Commission 
into the effects  of thermal  pollution  in rivers,  the sea 
and the  atmosphere  — a problem  that  applies  not 
only to nuclear  power-stations  — could  draw  on the 
measures  and  investigations  already  carried  out  in 
individual  Member  States.  The  Commission  should, 
however,  already  be promoting  developments  which 
are less  harmful  to the environment.  The  Committee 
does  not  believe  that  the  problem  of thermal 
pollution  associated  with  the  rapid  growth  of 
electricity-generating  capacity  can  be solved  simply 
by the introduction  of wet  cooling  towers  instead  of 
discharging  waste  heat  into  rivers  and  the  sea.  In 
addition  to intensifying  the  development  of dry 
cooling  towers,  ideas  should  be worked  out to permit 
the appropriate  utilization  of waste  heat.  The  closer 
nuclear  power  stations  in particular  can  be located  to 
large  conurbations,  the easier  it will  be to use  waste 
heat appropriately.  The  Committee  feels  that  the 
Commission  could  contribute  to clarifying  this matter 
also. 
30. 9. 74 Official  Journal  of the European  Communities No C 116/29 
(Ac) 
2.2.3.  As  regards  the new  draft  Directives  laying 
down  basic  standards  for the protection  of the health 
of workers  and the general  public  against  the dangers 
arising  from  ionizing  radiations,  the  Committee 
would  refer  to its Opinion  of 24 May  1973. 
(Ad) 
2.2.4.  The  Commission  has rightly  included  in its 
plan of action  harmonization  of the legal  provisions 
governing  the  transport  of radioactive  materials. 
With  the  expansion  of nuclear  power  station 
capacity,  there  will  be a corresponding  increase  in the 
transport  of irradiated  and  reprocessed  nuclear  fuels, 
especially  plutonium.  Accordingly  there  will  be a 
particularly  high  volume  of  these  transport 
operations  between  the individual  Member  States,  so 
that an initiative  by the Commission  in this  sector, 
based  on the recommendations  of the International 
Atomic  Energy  Agency,  is useful  and necessary. 
(Ae) 
2.2.5.  The  Committee  believes  that  action  on 
treatment  and  storage  of radioactive  waste  should  be 
a main  point  of effort  in the whole  plan  of action. 
The Committee  not  only  welcomes  the  measures 
proposed  but  believes  that  an initiative  from  the 
Commission  on this  subject  would  be particularly 
opportune.  This  initiative  should  include  the 
development  of a common  approach  to the creation 
of facilities  for the final  storage  of radioactive  waste. 
(Af) 
2.2.6.  The  Committee  firmly  believes  that  the 
question  of the  closure  and  removal  of nuclear 
installations  should  be examined  at an early  date.  It 
does not,  however,  consider  that  this subject  is one of 
the absolute  priorities  of the plan  of action. 
(Ag) 
2.2.7.  With  regard  to the harmonization  of safety 
regulations,  the Committee  would  like  to see greater 
emphasis  on gradual  approximation,  following,  the 
listing  of methods,  criteria  and  standards  in the 
Commission's  proposals  scheduled  for presentation  in 
June. 
(Ah) 
2.2.8.  The  Committee  reiterates  the  view  put 
forward  in its Opinion  on the  Second  Illustrative Programme,  namely  that  it considers  a comparative 
synopsis  of the  laws  and  administrative  provisions 
governing  the  approval,  siting,  construction  and 
operation  of nuclear  installations  to be both  useful 
and necessary.  In addition  to this  comparison  of the 
laws and  administrative  provisions,  which  is to be 
welcomed,  there  is, however,  a need  for action  for 
facilitating  approval,  directed  towards  rationalization 
of the  approval  procedures  and  standardization  of 
the approval  requirements  within  the Community. 
2.3. B. The  industrial,  scientific  and  technological 
base 
(Ba) 
2.3.1.  The  Committee  is aware  that  nuclear  power 
stations  have  achieved  a high  level  of availability  (*) 
which  is comparable  to that  of conventional  power 
stations.  It  nevertheless  considers  that  an 
improvement  in the  availability  of nuclear  power 
stations  and  their  components  would  represent  an 
important  contribution  to the future  energy  supplies 
of the  Community.  The  exchange  of experience 
between  operators  of nuclear  power  stations,  which 
was initiated  some  time  ago by the Commission,  was 
undoubtedly  useful  to all concerned.  The  Committee 
thinks,  however,  that  this  exchange  of experience  can 
be considerably  intensified,  in view  of the common 
interest  in safeguarding  energy  supplies. 
(Bb) 
2.3.2.  The  Committee  recognizes  that  continuity  of 
industrial  development  is of great  importance  for the 
involvement  of manufacturers  in the nuclear  industry. 
The Committee  believes,  however,  that  there  are 
favourable  prospects  for all enterprises  active  in this 
sector,  as a result  of the exceptional  expansion  of 
nuclear  programmes  in the Community  and  the very 
clear  objectives  set. What  aims  will  be pursued  in the 
planned  proposals  from  the  Commission  is not 
however,  evident  from  the Commission  document. 
The Committee  considers  it desirable  for  these 
proposals  to be submitted  soon. 
(Be) 
2.3.3.  The  Committee  has  repeatedly  drawn 
attention  to the need  to create  a common  market  in 
H 'Availability'  is a measure  of the capability  of a power 
station  to fulfil  its operational  functions.  Specifically 
it is the ratio  of operational  and  standby  time  to 
nominal  (calendar)  time. 
No C 116/30 Official  Journal  of the European  Communities 30. 9.74 
all nuclear  plant  and  components,  its most  recent 
statements  on  the  subject  being  contained  in its 
Opinion  on the Second  Illustrative  Programme.  In the 
Committee's  view,  this  common  market  has  still  not 
been  achieved.  The  Committee  believes,  however, 
that in view  of the rapid  growth  of investment  in the 
nuclear  sector,  it is quite  likely  that  nuclear  power 
stations  and  components  will  be increasingly  ordered 
across  the  national  frontiers  of the  Member  States 
rather  than  from  national  suppliers.  This  is 
particularly  likely  if a more  rational  division  of 
labour  is achieved  in the  Community  industry  or if 
the supply  capacities  of a country  are  insufficient  to 
keep  pace  with  its  national  nuclear  construction 
programme.  The  Committee  believes  that  such  a 
development  will  encourage  rapid  integration  of the 
nuclear  plant  market.  Therefore  the Committee  is of 
the opinion  that  the  planned  Commission  Directive 
based  on Article  90 of the  EEC  Treaty  should  be 
issued  as soon  as possible  and  at all events  by the end 
of 1974,  the time  limit  set. 
(Bd) 
2.3.4.  As  regards  harmonization  of the  export 
guarantee  and  credit  procedures,  the Committee  calls 
for an  early  decision  from  the  Council  on  the 
relevant  proposals  from  the Commission. 
(Be) 
2.3.5.  With  regard  to the  development  of the 
nuclear  industry  in the  countries  signatory  to the 
Paris  Agreement  and  the  Brussels  supplementary 
Agreement,  the Committee  considers  that  it would  be 
advantageous  in this  area,  to establish  uniform 
nuclear  liability  provisions  in the  Community.  This 
would  also  offer  all the  signatory  States  a basis  for 
adequate  cover  of  risks.  The  Commission's 
recommendation  that  the  Paris  and  Brussels 
Agreements  be ratified  is welcomed  for  the  above 
reasons. 2.4. C. Supplies  of nuclear  fuels 
2.4.1.  The  Committee  regards  the  Commission's 
planned  half-yearly  summary  report  on supplies  of 
nuclear  fuels  as useful,  but not,  however,  sufficient  in 
itself  to solve  the  growing  problems  concerning 
supplies  of nuclear  fuels.  The  Committee  considers  it 
possible  that  the  present  bottlenecks  in supplies  of 
natural  uranium  are not just  of a transitory  nature.  It 
is true  that  natural  uranium  deposits  are  widely 
spread  over  a number  of countries  in the West.  There 
are, however,  already  indications  that  these  countries 
will restrict  natural  uranium  exports  or impose  quite 
definite  conditions  on such  exports.  Therefore  it is 
necessary  to frame  a Community  policy  without  delay 
to meet  the,  in part,  quite  legitimate  wishes  of the 
natural  uranium  producers.  The  Committee  has 
noted  that  the  Commission  is discussing  various 
possible  solutions  with  the  Community  undertakings 
concerned.  The  Committee  is,  however,  of the 
opinion  that  an early  decision  must  be taken  on the 
matters  involved.  With  regard  to supplies  of enriched 
uranium,  the  Committee  regrets  that  the 
Commission's  proposal  to  the  Council  on  the 
creation  of European  uranium  enrichment  facilities 
has not  been  submitted  to it for  its opinion.  The 
Committee  is therefore  unable  to judge  whether  the 
proposals  made  by the Commission  are  suitable  and 
adequate.  It notes  with  satisfaction,  however,  that  the 
uranium  enrichment  facilities  under  construction  in 
the Community  will  be able  to make  a significant 
contribution  to  fuel  supplies  to nuclear  power 
stations  and  that  the anxieties  expressed  on occasion 
about  the  possibility  of excess  capacity  have  no 
longer  any  justification  owing  to the  considerable 
expansion  which  has  rrieanwhile  taken  place  in 
nuclear  programmes. 
2.4.2.  In  addition  to the supply  of nuclear  fuels  to 
nuclear  power  stations,  increasing  importance  is 
being  attached  to adequate  facilities  for the removal 
of irradiated  fuel  at the  appropriate  time  from  the 
nuclear  power  stations,  its  reprocessing  and  the 
treatment  of the  resulting  radioactive  waste.  In this 
context  the Committee  refers  to its remarks  above  on 
the treatment  and  final  storage  of radioactive  waste. 
Done  at Brussels,  26 Tune  1974. 
The Chairman 
of the Economic  and  Social  Committee 
Alfons  LAPPAS