COMMISSION STAFF WORKING DOCUMENT EVALUATION Ex-ante Evaluation Accompanying the document Proposal for a Regulation of the Council establishing the research and training programme of the European Atomic Energy Community for the period 2028-2032, complementing Horizon Europe, the Framework Programme for Research and Innovation, and providing for the Community’s contribution to the ITER project, and repealing Regulation (Euratom) 2025/1304
Date: 2025-09-03
Institutions: Directorate-General for Research and Innovation, European Commission
Subjects: EAEC, EU programme, EU research policy, Framework Programme for Research and Development, innovation, nuclear research, nuclear safety, nuclear technology, research and development, vocational training

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 3.9.2025  SWD(2025) 594 final  COMMISSION STAFF WORKING DOCUMENT  EVALUATION  Ex-ante Evaluation Accompanying the document Proposal for a Regulation of the Council establishing the research and training programme of the European Atomic Energy Community for the period 2028-2032, complementing Horizon Europe, the Framework Programme for Research and Innovation,  and providing for the Community’s contribution to the ITER project, and repealing Regulation (Euratom) 2025/1304 {COM(2025) 594 final} - {SWD(2025) 595 final}  
 
 
1.  CONTEXT .................................................................................................................. 3 

2.  PROBLEM ANALYSIS AND NEEDS ASSESSMENT ........................................... 4 

2.1.  Underinvestment in nuclear research in the EU ................................................ 5 
2.2.  Developing fusion as a viable energy source .................................................... 6 
2.3.  Ensuring funding for ITER................................................................................ 9 
2.4.  Challenges for research and training in nuclear fission .................................. 10 
2.5.  Past experience, lessons learnt and going forward .......................................... 17 
2.5.1.  EU added value ................................................................................. 17 
2.5.1.  Findings from interim evaluation of 2021-2025 Euratom actions .... 20 

3.  OBJECTIVES FOR EURATOM PROGRAMME 2028-2032 ................................. 23 

3.1.  General and specific objectives ....................................................................... 23 
3.2.  Expected results of the programme ................................................................. 23 

4.  ALTERNATIVE DELIVERY MECHANISMS AND RISK ASSESSMENT ........ 25 

4.1.  Option  1  –  Business  as  usual  for  Euratom  research  and  training  (baseline 

scenario) .......................................................................................................... 25 

4.2.  Option 2 – ‘Enhanced Euratom programme supporting the development of 
safe and safeguarded innovative nuclear technologies for a prosperous and 
sustainable EU’................................................................................................ 28 
4.2.1.  Fusion research .................................................................................. 28 
4.2.2.  Euratom contribution to ITER ........................................................... 29 
4.2.3.  Fission research ................................................................................. 30 

5.  PLANNING OF FUTURE MONITORING AND EVALUATION ........................ 33 

2 

 
 
 
 
 
 
 
 
 
1.  CONTEXT 

This  ex-ante  evaluation  accompanies  the  Commission  proposal  for  a  Council  regulation 
establishing the programme for research, training and ITER 2028-2032 (The ‘Programme’) of 
the  European  Atomic  Energy  Community  (‘Euratom)  that  provides  funding  for  actions  in 
nuclear fission and fusion as well as for the Euratom contribution to the ITER project. 

The proposal for the Euratom programme is part of the package of Commission proposals for 
the  next  multi-annual  financial  framework  covering  2028-2032.  The  MFF  package  aims  at 
enhancing  the  competitiveness  of  the  European  Union  as  a  critical  priority.  The  EU  must 
strengthen  its  research  base  to  focus  more  on  strategic  priorities,  on  groundbreaking 
fundamental  research,  scientific  excellence  and  disruptive  innovation,  while  improving  its 
productivity, connection with the market and stimulating growth1. 

The  EU  faces  today  several  challenges,  including  energy  dependence,  the  urgent  need  for 
decarbonisation and the imperative to maintain technological leadership and independence in a 
rapidly evolving global energy market and continuous geopolitical instability. Nuclear energy 
generates  electricity  in  12  of  the  27  EU  Member  States  and  provided  22.8%  of  Europe’s 
electricity  and  half  of  EU  low  carbon  electricity  in  20232.  The  current  role  and  potential  of 
nuclear energy to meet the EU’s climate goals, with co-benefits for air quality, and increasing 
electricity  demand,  as  well  as  the  promise  of  fusion  energy  and  new  nuclear  technologies, 
including Small Modular Reactors (SMR) and Advanced Modular Reactors (AMR), place these 
technologies high on the EU’s policy agenda. This is reflected in the Commission’s strategic 
document  and  actions,  such  as  the  communication  on  Europe’s  2040  climate  target3,  which 
underlines the importance of all zero and low carbon energy solutions, including nuclear, to 
decarbonize the energy system. The 2024 report on “The future of European competitiveness”4 
(‘Draghi  report’)  further  recognises  that  nuclear  technology  plays  an  enduring  role  in  a 
competitive  energy  mix  across  the  EU.  It  also  considers  nuclear  fusion  as  ‘a  disruptive 
technology that holds the potential to revolutionise the energy landscape in the second half of 
this century’.  

Nuclear energy is also included in recently adopted EU legislation, such as the EU’s taxonomy 
on sustainable investments, intended to guide investments towards environmentally sustainable 
economic activities and the Net Zero Industrial Act, aimed at strengthening EU’s manufacturing 
capacity for clean technologies.  

With its legal basis in the Euratom Treaty, the Euratom research and training programme is the 
main  EU  programme  funding  nuclear  research  and  training  activities,  including  the  ITER 
project, and supplementing Member States own research since 1958. In line with Article 1 of 
the  Euratom  Treaty,  its  task  is  to  contribute  to  the  raising  of  the  standard  of  living  in  the 
Member States,  one  of  the  pillars  of  EU  competitiveness  as  defined  in  the  proposal  for  the 
European Competitiveness Fund. Therefore, the Euratom programme helps to further develop 
research in nuclear fission and fusion technologies, promoting innovation and capacity building 
while playing a key role in maintaining the highest standards of safety, security, safeguards and 
radiation protection in all applications of ionising radiation.  

1   SWD(2025)555 
2   COM(2025)315 
3   COM(2024)63 
4   Report on “The future of European competitiveness”, September 2024 

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Euratom  is  member  of  the  ITER  Organisation  (IO),  an  international  collaboration  project 
between Euratom, United States, Japan, China, South Korea, India and Russia, implemented on 
the  basis  of  the  legally-binding  international  Agreement  on  the  Establishment  of  the  ITER 
International  Fusion  Energy  Organization  for  the  Joint  Implementation  of  the  ITER  Project 
(ITER Agreement)5. The ITER project aims at demonstrating the scientific and technological 
feasibility  of  fusion  energy  for  peaceful  purposes,  an  essential  feature  of  which  would  be 
achieving sustained fusion power generation. Between 2007 and 2013, Euratom contribution to 
ITER was funded through the 7th Euratom Framework Programme6. Since 2014, the EU budget 
earmarked the contribution to ITER directly in the MFF Regulation (both for period 2014-20207 
and  2021-20278),  which  was  then  reflected  in  the  Council  Decision  establishing  Fusion  for 
Energy9. 
In line with Better Regulation guidelines10, this ex ante evaluation provides an analysis of key 
issues in nuclear field and for Euratom contribution to the ITER project, added value of EU 
actions  in  this  field,  policy  objectives  and  associated  risks.  It  was  carried  out  by  the 
Commission’s  services  in  Spring  2025,  on  the  basis  of  interim  evaluation  of  the  Euratom 
research and training programme 2021-202511, interim evaluation study on implementation of 
Euratom contribution to ITER12. This analysis took also account of call for evidence for for 
above evaluations13. 

2.  PROBLEM ANALYSIS AND NEEDS ASSESSMENT 

Nuclear energy and ionising radiation technologies play an important role in the  lives of all 
Europeans  supporting  security  of  energy  supply  and  climate  policies  and  provide  essential 
solutions for healthcare (cancer treatment, medical imaging, etc.) and various industry sectors, 
in general improving competitiveness and innovation. These contributions are based to a large 
extent  on  the  outcome  of  public  and  private  research  activities.  Thus,  nuclear  science 
contributes to Europe’s long term sustainable14 prosperity and competitiveness.  

The challenges the EU is facing – ensuring strategic autonomy, security of supply of affordable 
and low carbon energy, maintaining technological leadership and the risks linked to geopolitical 
instability – bring higher demands for nuclear research, as shown by recent developments in 
the nuclear research landscape and increased interest of many Member States in fission and 

ITER Agreement, OJ L 358, 16.12.2006, p. 62. 

5  
6   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=legissum:i23032  
7   Art 16/2, COUNCIL REGULATION (EU, EURATOM) No 1311/2013 of 2 December 2013 laying down the 

multiannual financial framework for the years 2014-2020 

8   Art  18/2,  COUNCIL  REGULATION  (EU,  Euratom)  2020/2093  of  17  December  2020  laying  down  the 

multiannual financial framework for the years 2021 to 2027 

9   2007/198/Euratom: Council Decision of 27 March 2007 establishing the European Joint Undertaking for ITER 
and the Development of Fusion Energy and conferring advantages upon it; OJ L 90, 30.3.2007, p. 58–72 

10   https://commission.europa.eu/law/law-making-process/better-regulation_en  
11   COM(2025)61 and SWD(2025)54 
12   External study: European Commission: Directorate-General for Energy, Pancotti, C., Catalano, G., Colnot, 
L., Banfi, S. et al., Interim evaluation study of the implementation of the Council decision (Euratom) 2021/281 
amending  decision  2007/198/Euratom  establishing  the  European  joint  undertaking  for  ITER  and  the 
development of fusion energy and conferring advantages upon it – Final report, Publications Office of the 
European Union, 2025, https://data.europa.eu/doi/10.2833/1515037 

13   For more details see https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14112-Euratom-

Research-and-Training-Programme-2021-2025-evaluation_en  

14   Including the relevant UN Sustainable Development Goals such as SDG(7) Affordable and Clean Energy, and 

SDG(3) Good Health and Well-being. 

4 

 
 
 
 
fusion science and technology, for example with e.g. recent decisions Italy joining the European 
Nuclear Alliance in 202515; Belgium repealing a 2003 law for the phase-out of nuclear power 
which banned the construction of new nuclear generating capacity16; and the Danish parliament 
approving an analysis of the potential use of nuclear, which has been banned for the past 40 
years17.  

Systemic challenges to EU competitiveness, explained in the impact assessment accompanying 
the  Commission  proposal  for  the  European  Competitiveness  fund  and  Horizon  Europe 
Framework Programme also impact the nuclear field18. 

2.1.  Underinvestment in nuclear research in the EU 

Nuclear  technologies  are  now  seen  as  playing  a  more  important  role  in  the  green  transition 
while  the  opportunities  it  offers  in  other  areas  such  as  medicine  are  increasingly  being 
appreciated. Comprehensive nuclear research is crucial for the EU to stay at the forefront of 
scientific  and  technological  advancements.  This  includes  improving  and  optimising  current 
practices and launching new initiatives on nuclear systems, fuel cycles, safety, waste treatment 
and  management,  radiological  understanding  and  medical  and  industrial  applications  of 
ionising  radiation19.  The EU needs to  step up investment  to  remain abreast  of technological 
developments and to protect the people and environment. The Euratom Scientific and Technical 
Committee20 noted in its opinion that ‘[It] is regrettable that the Euratom programme’s funding 
for  fission  energy  research  has  significantly  decreased  over  the  last  decades,  undermining 
expertise. [C]urrent resources do not align with the goal of fostering a new dynamic and fail 
to support the necessary research and education required to address the EU’s energy transition 
and strategic autonomy challenges.’  

Against the background of wider geopolitical dynamics, an apparent shift towards economic 
protectionism  seems  to  be  occurring  worldwide  with  consideration  for  strengthening 
competitiveness.  International  actors like the USA, the UK or South  Korea have committed 
funding to bolster their nuclear sector, including through innovation with concrete ambitions 
for the development of future nuclear systems. Both Russia and China show strong interest for 
investing  in  emerging  nuclear  markets,  particularly  in  Africa.  On  the  other  hand,  Europe’s 

15   Official Press release from MASE: L’Italia aderisce all’Alleanza UE sul nucleare - Ministero dell'Ambiente 

e della Sicurezza energetica 

16   Bihet Law - https://www.dekamer.be/FLWB/PDF/56/0318/56K0318001.pdf 
17   Denmark rethinking 40-year nuclear power ban amid Europe-wide shift | Denmark | The Guardian 
18   Including: (1) suboptimal support along the investment journey, from fundamental research, applied research 
through scale-up, industrial deployment, to manufacturing; (2) an innovation gap with other world regions; 
(3) a challenging geopolitical situation, with excessive strategic dependencies, and security and resilience 
issues; (4) high investment needs to deliver on EU priorities; and (5) a complex and uncoordinated EU funding 
landscape. For more details see SWD(2025)555 and 556. 

19   STC opinion 2024-36 
20   The  Euratom  Scientific  and  Technical  Committee  (STC)  is  an  advisory  body  established  by  the  Euratom 
Treaty (Article 134). The members of the STC are appointed in a personal capacity by the Council of the 
European Union. The role of the STC is laid out in the provisions of the Euratom Treaty and includes the 
delivery of opinions on relevant scientific and technical issues, in particular in relation to the Euratom research 
and training programme. 

5 

 
 
 
 
investment in nuclear research and its subsequent role as a leader in research and innovation 
has been declining over the past decades21. This underinvestment in R&I lowers the capacity to 
prepare new markets for upcoming technologies with a supportive regulatory framework and 
R&D22. The global landscape is also marked by geopolitical tensions with heightened risks of 
nuclear  proliferation  and  radiological  emergency.  The  EU  must  increase  its  efforts  towards 
nuclear  R&I  to  preserve  essential  expertise  and  ensure  the  safe  and  secure  use  of  nuclear 
technology  for  the  benefit  of  EU’s  long-term  security,  strategic  autonomy,  resilience  and 
competitiveness. 

2.2.  Developing fusion as a viable energy source  

Nuclear fusion has the potential to bring significant long-term benefits to EU society especially 
in terms of energy self-sufficiency and varied energy mix. However, its very high development 
costs cannot be recuperated in full within the timelines typically expected in the private sector. 
There is a strong argument for using public and private funding to meet the costs of this research 
and doing so internationally, to the largest extent possible23. 

To  ensure  long-term  EU  competitiveness  and  global  fusion  leadership,  Europe  needs  to 
continue pursuing fusion energy, which requires addressing important challenges such as global 
competition, key enabling technologies, workforce shortages, and fragmented approach to the 
regulation  of fusion facilities in  Europe24.  These challenges must be overcome for fusion to 
contribute meaningfully to the sustained decarbonisation of the planet in the second part of the 
century, while ensuring Europe’s security of supply. 

The effective development and use of fusion energy in Europe relies on several main strands of 
action: (a) the successful completion and exploitation of the ITER project; (b) a steady support 
to research and innovation, in particular through the development on research and technology 
infrastructures;  (c)  a  supportive  framework  for  the  development  and  competitiveness  of 
European companies; and (d) coordinated governance in the EU25. 

Significant progress has been made in all these areas under the previous multiannual financial 
frameworks – but the challenges that remain, together with an acceleration of the context, call 
for stronger action. 

The Draghi report underlines  that  nuclear fusion ‘could  play a pivotal  role as a low-carbon, 
climate-friendly,  affordable  and  safe  energy  solution  based  on  an  abundant  and  accessible 

21   Tanarro  Colodron,  et  al.,  Long-Term  Horizon  Scanning  for  Nuclear  Technologies  Yearly  Report  -  2023, 
Goulart, M., Casteleyn, K. and May, F. editor(s), Publications Office of the European Union, Luxembourg, 
2024 

22   Report of the European Parliament on small modular reactors, ITRE Committee, 2023/2109(INI) 
23   IEA State of energy innovation report 2025 
24   European  Commission:  Directorate-General  for  Energy,  GRS  and  KIT, Study  on  the  applicability  of  the 
regulatory framework for nuclear facilities to fusion facilities – Towards a specific regulatory framework for 
fusion 
European  Union, 
– 
2021, https://data.europa.eu/doi/10.2833/787609 

Publications  Office 

facilities 

report, 

Final 

the 

of 

25   European  Commission:  Directorate-General  for  Research  and  Innovation, Fusion  Expert  Group  opinion 
the  European  Union, 

strategy,  Publications  Office  of 

paper  –  Towards 
2025, https://data.europa.eu/doi/10.2777/3510421 

the  EU 

fusion 

6 

 
 
 
supply of fuel material. The ITER project […] has propelled the EU to the forefront of global 
fusion research, investing billions of euros in the industry’s supply chain and research. Despite 
notable progress  in  global  fusion research, its practical  deployment  remains  several  decades 
away, necessitating further concerted effort and investment to bring this revolutionary energy 
source to market’. Therefore, for the EU, the investment in the ITER project - and in fusion in 
general - continues to be fully aligned with its priorities26, which are to build a prosperous and 
competitive  Europe  capable  to  bolster  its  competitiveness  and  ensure  its  transition  to  a 
decarbonized economy.  

Fusion energy research in Europe already benefits from a dedicated support under the Euratom 
programme, mainly  materializing  in  the EUROfusion27  initiative. EUROfusion has, since its 
creation in 2014, allowed leading academic organisations to fruitfully cooperate and advance 
the  fusion  research  agenda,  confirming  the  leading  role  of  Europe  in  the  field.  Specifically, 
EUROfusion  has  made  tangible  progress  since  2021  in  its  experimental  campaigns  and 
research,  addressing  the  core  missions  of  its  roadmap28  to  develop  fusion  energy.  Measured 
progress shows that EUROfusion delivers on its research milestones set in 2021, e.g. supporting 
mobility  and  access  to  research  facilities  and  training  a  new  generation  of  researchers  and 
engineers. Key scientific achievements include,  for instance, the engineering  design  and the 
safety  report  of  IFMIF-DONES29,  and  several  plasma  records  as  part  of  experimental 
campaigns30. Nevertheless, in the light of a fast-moving fusion landscape, with an increasing 
level of competition and private investments, there is a risk that EUROfusion (with its focus on 
academia) would alone not  be sufficient  to  effectively  support the European fusion industry 
base and, more generally, fusion-related innovation in the private sector. Another limitation of 
EUROfusion is its focus on magnetic confinement fusion – while this approach is considered 
as the most mature, alternative concepts (such as inertial confinement fusion) should also be 
further investigated. 

More broadly, the current set-up for supporting the development of fusion energy in Europe 
remains  significantly  focused  on  research  and  science  –  insufficiently  addressing  the 
contribution of research to the development and competitiveness of European companies in the 
sector.  The  period  that  opens  now  is  critical  from  this  point  of  view:  the  level  of  private 
investments in innovative companies of the fusion sector has risen to unprecedented level, and 

26   https://european-union.europa.eu/priorities-and-actions/eu-priorities/european-union-priorities-2024-

2029_en 

27   Euratom  grant  of  EUR  549  million  (55%  of  total  costs).  For  more  details  see  https://euro-fusion.org/  and 

https://cordis.europa.eu/project/id/101052200 

28   EUROfusion roadmap, see https://euro-fusion.org/eurofusion/roadmap/ 
29  

International Fusion Materials Irradiation Facility and DEMO Oriented Neutron Source. Research  
infrastructure for testing, validation and qualification of the materials to be used in future fusion power plants, 
see https://ifmif-dones.es/  

30   E.g., in 2023, EUROfusion’s experimental campaign in JET produced 69 megajoules of fusion energy using 
deuterium-tritium fuel while sustaining fusion during a six second pulse, improving upon its record from 2021. 

7 

 
 
 
EU is (specifically, compared e.g. to the US31) lagging behind in this regard. The Union needs 
initiatives tailored to foster transfer of knowledge and technology from the labs to the private 
sector, leveraging academic achievements and effectively supporting the growth of start-ups 
and the consolidation of a European fusion energy supply chain. In addition, the Union needs 
to  take  the  necessary  steps  to  create  the  right  conditions  for,  ultimately,  the  commercial 
development of fusion – including a sound regulatory framework. 

Another challenge is the governance of the EU landscape of fusion initiatives, which remains 
fragmented and lacks strategic coordination. There is a growing consensus32 according to which 
EU action should rely on the implementation of an overarching strategy to effectively address 
the remaining challenges towards commercial deployment of fusion energy, and specifically to 
ensure public-private synergies are fully exploited. The first EU Fusion strategy covering the 
period  2026-2034  is  planned  to  be  published  by  the  Commission  this  year.  The  Euratom 
programme will be one of the main instruments to support its implementation, in particular by 
funding  a  public-private  partnership  to  promote  its  commercialisation33.  The  need  for  EU 
strategy  and  for  more  substantial  involvement  of  industrial  and  private  sectors  was  also 
underlined by stakeholders participating in the public consultation on interim evaluation of the 
Euratom programme 2021-2025 (see box below)34.  

Box  -  Results  of  public  consultation  –  respondents  views  on  how  to  accelerate  development  of 
fusion energy in Europe: 

1.  The  European  Commission  should  develop  an  EU  Fusion  Strategy  with  a  concrete  short-term 
action plan and a comprehensive, long-term roadmap to advance fusion energy development and to 
establish the necessary ecosystem for the future commercialisation of fusion energy - 21% (42) of 
respondents agreed, 34% (67) strongly agreed, while 23% (45) did not know, 14% (27) were neutral, 
and 7% (14) disagreed or strongly disagreed. 

2.  The industrial sectors and potential private investors’ involvement is necessary to accelerate 
the transition to commercial fusion energy  - 28% (54) of respondents agreed, 34% (67) strongly 
agreed, while 21% (40) did not know, 10% (20) were neutral, and 7% (14) disagreed or strongly 
disagreed. 

3.  Resolving critical technological bottlenecks and demonstrating fusion technology to accelerate the 
development of enabling technologies will require a strong partnership between the public and 
private sectors - 27% (52) of respondents agreed, 32% (63) strongly agreed, while 22% (42) did 
not know, 14% (27) were neutral, and 6% (11) disagreed or strongly disagreed. 

5% 

31   The EU's private ecosystem has eight companies and 70 investors and has raised €567 million up to 2025, 
(Source: 
representing 
https://www.euractiv.com/section/eet/interview/fusion-in-the-energy-grid-europe-needs-to-act-now/). 
An 
overview of private fusion industry is also provided in The Global Fusion Industry in 2025, Fusion Companies 
Survey by the Fusion Industry Association, 2025. Source: https://www.fusionindustryassociation.org/over-2-
5-billion-invested-in-fusion-industry-in-past-year/ 

funding  while  US 

accounts 

global 

60%. 

the 

for 

of 

32   Notably based on the feedback from relevant events, e.g. High-Level Roundtable on Fostering Innovation for 
Fusion Energy in Europe (March 2024) and ‘EU blueprint for fusion energy’ expert meeting (April 2024), 
and from a public consultation in 2024. 

33   https://commission.europa.eu/topics/eu-competitiveness/draghi-report_en  
34   For details see SWD(2025)54 

8 

 
 
 
 
2.3.  Ensuring funding for ITER  

ITER remains an essential milestone of the path to demonstrating fusion energy in Europe. Its 
first results, engineering know-how and construction experience feedback will be fundamental 
in the design of a prototype fusion reactor that is expected to produce electricity. ITER is the 
only  facility  sized  to  provide  the  scientific  and  technical  demonstration  of  fusion  in  a  large 
volume of plasma with high fusion yield, while the future exploitation of ITER is also crucial 
for  advancing  the  understanding  of  plasma  physics  and  supporting  the  design  of  key 
components  of  future  fusion  power  plants  (e.g.,  tritium  breeding  module).  Thus,  ITER 
continues to play an important role in achieving industrialised fusion. While ITER construction 
has made considerable progress, the project had faced significant challenges, including delays 
and cost overruns, partly due to the first-of-a-kind character and complexity of the international 
collaboration involved.  

To respond to the challenges, the new 2024 Baseline35 (defining the scope, project cost, and 
schedule) introduced significant changes in the sequencing of the assembly of the ITER facility. 
The 2024 baseline is underpinned by a staged-approach for licensing, aiming at reducing risks. 
As a result, the revised timeline now foresees the “Start of Research Operation”, with the first 
nuclear  deuterium-deuterium  (DD)  operation  in  2036.  There  is  no  delay  compared  to  the 
previous  2016  schedule.  The  full  fusion  power  in  the  deuterium-tritium  (DT)  phase  is  now 
expected in 2039 (with 4 years delay with respect to the previous schedule).  

In the last two years the IO has achieved unprecedented performance in the rate of execution of 
the project. The IO reported in June 2025 that the current project activities were progressing in 
accordance  with  the  schedule  of  the  new  baseline  and  that  IO  implemented  most  recent 
activities slightly below cost. Over the next MFF period, ITER requires steady support from 
the EU, and optimal coordination, to ensure construction is completed and exploitation can start 
according to the newly agreed baseline. 

Funding for ITER is not only crucial for the completion of its construction in 2034, which will 
permit Europe to benefit of its investments, but also necessary for fulfilling the obligation of 
Euratom under the ITER Agreement. The contribution of each ITER Member is provided both 
in cash, through contributions to the budget of the IO for its functioning, and (mostly) in kind 
through the delivery of components of the ITER facility 36. The ITER Agreement foresees that 
each ITER Member shall provide its contribution to the IO through a Domestic Agency , except 
where otherwise agreed by the ITER Council (the principal organ of the ITER Organization). 

35   ITER  Organization.  (2024,  June  20)  34th  ITER  Council  Meeting:  Updated  baseline  proposal  presented  to 
Council  for  further  evaluation  [Press  release].  https://www.iter.org/sites/default/files/media/2024_06_ic-
34.pdf 

36   According to Art 8/2 of the ITER Agreement: ‘The respective Members’ contributions over the duration of 
this Agreement shall be as referred to in the documents “Value Estimates for ITER Phases of Construction, 
Operation, Deactivation and Decommissioning and Form of Party Contributions” and “Cost Sharing for all 
Phases of the ITER Project”.’ EU as the Host Party bears 45.46% of the estimated costs for the Construction 
Phase, while each other ITER Member bears 9.09%. For the Operation Phase, EU bears 34% of the costs. 

9 

 
 
 
The approval of the ITER Council shall not be required for ITER Members to provide cash 
contributions directly to the IO.  

The  Euratom’s  Domestic  Agency  is  the  “European  Joint  Undertaking  for  ITER  and  the 
Development  of  Fusion  Energy”  (Fusion  for  Energy  –  F4E),  which  was  established  by  the 
Council Decision 2007/198/Euratom in March 2007. F4E’s budget originates 80% from the EU 
budget, while France as the ITER host country funds approximately 20%. 

The unwavering commitment of the EU to ITER is an important signal to global partners in the 
evolving geopolitical context, to the EU industries delivering services and components to ITER, 
to the young generation considering a career in fusion, as well as to the EU citizens seeing that 
EU invests in potentially groundbreaking technologies of the future. 

2.4.  Challenges for research and training in nuclear fission 

Homegrown, affordable and clean energy supports EU decarbonisation, competitiveness and 
resilience objectives, with co-benefits for air quality. Nuclear power plants supply clean power, 
suitable for low-carbon baseload electricity, also enhancing system integration and providing 
flexibility facilitating further roll-out of other clean technologies. These benefits accrue to the 
whole EU energy system. As noted in the last edition of the Commission's Nuclear Illustrative 
Programme (PINC)37,  some  Member  States  are  setting  nuclear  programmes  extending 
operating life of existing reactors and announcing new builds. Finally, some are considering 
including nuclear in their energy mix for the first time.  

Successful implementation of these plans requires mastering of the entire fuel cycle, fostering 
innovative start-ups ecosystems and conducting leading-hedge research, all while ensuring the 
highest  standards  of  nuclear  safety,  security  and  safeguards,  of  safe  and  responsible 
management of radioactive waste and spent fuel, high-class education and training, as well as 
promoting transparency and public engagement38. 

The STC noted39 that EU has lost its leadership position in nuclear fission,  with a trend that 
correlates to the decrease in the current Euratom programme budget, which could negatively 
impact  the  ongoing  operation  and  maintenance  of  existing  nuclear  facilities  as  well  as  the 
development  of  new  facilities.  Most  new  nuclear  power  plants  worldwide  are  not  based  on 
European technology and in the developing field of SMR and AMR the most active players are 
outside Europe. The STC also notes that reestablishing this leadership is crucial for Europe’s 
global influence and role in nuclear safety and in setting radiation protection standards, and that 
it requires investment and international cooperation. Reestablishing this leadership is crucial 
for Europe and the current resources do not align with the goal of fostering a new dynamic and 
fail  to  support  the  necessary  research  and  education  required  to  address  the  EU’s  energy 
transition and strategic autonomy challenges.  

Innovation gap for safe nuclear fission technologies 

37   COM(2025)215. See also https://energy.ec.europa.eu/topics/nuclear-energy/nuclear-investment-needs_en  
38   See footnote 27 
39   STC opinion 2024-36 

10 

 
 
 
Foreseen plans to extend the lifetime operation of existing nuclear power plants, coupled with 
an increasing  number of new build projects  in  EU Member States, make nuclear safety  and 
safeguards research essential to ensuring the continuous responsible use of nuclear technologies 
for current and advanced systems. It is also important to constantly improve safety standards 
by  addressing  issues  common  to  different  designs  and  technologies,  such  as  ageing 
management,  evaluation  of safety  margins,  structural  integrity assessment  and evaluation  of 
defect tolerance.  

Renewed  interest  for  nuclear  energy  production  as  a  low-carbon  alternative  by  some  EU 
Member States has put the spotlight on SMR and AMR, envisioned to complement existing 
assets, support decarbonisation and contribute to EU’s strategic autonomy. Third countries are 
competing  to  target  EU  Member  States  interest  for  deploying  SMR  technologies  in  their 
territories. This calls for a harmonized EU approach to safety, security and safeguards by design 
concepts  that  should  be  verified  and  validated  independently.  Further  R&I  is  needed  to 
demonstrate their safety features, including through advanced control systems and improved 
materials and fuel resilience40. 

Recent geopolitical shifts have also highlighted ongoing dependencies pointing out to a need 
for improving fuel cycle management and strengthening the security of supply to reinforce EU 
energy autonomy.  

EU  should  also  advance  non-electric  applications  of  nuclear  technologies,  including  space 
exploration, marine propulsion, hydrogen production, district heating, and industrial uses. A 
substantial number of proposals submitted to Euratom calls in 201-2025 show potential for such 
innovative applications, which should be further developed during the next programme41. 

Sustainable nuclear skills and competences in the EU 

In  the  face  of  many  stakeholders  concerned  with  potential  shortages  in  qualified  nuclear 
workforce, among others the members of the European Observatory on Human Resources for 
the Nuclear sector (EHRO-N) 42, 43 (which include industrial developers, research and technical 
safety organizations) maintaining adequate levels of nuclear skills and expertise in the EU is 
instrumental to ensuring continued independent activity in key areas of nuclear safety, security, 
safeguards, radiation protection, waste and spent fuel management, decommissioning, and non-
power applications44. This is of strategic importance to safely manage existing technology, to 
guarantee  the  safety  and  safeguards  assessment  and  deployment  of  advanced  systems  or  to 
pursue  innovation  in  non-power  applications.  New  build  nuclear  projects  in  Europe  also 
highlight the critical need for specific skills and point to the gaps in the current workforce at 

40   Draghi, M. (2024). The Future of European Competitiveness, Part B: In-depth analysis and recommendations 
41   See COM(2025)61 
42   https://joint-research-centre.ec.europa.eu/ehro-n_en 
43   For EHRON reports, see https://joint-research-centre.ec.europa.eu/ehro-n/documents_en  
44   Report on Human Resources needs in Research, Safety and Waste Management, ENEN2plus project, 2023 

https://www.enen2plus.eu/fileadmin/user_upload/ENEN2plus_D1_2_20230531.pdf 

11 

 
 
 
national level, including amongst regulatory authorities and technical support organisations45. 
Political attention has grown stronger in a number of Member States for assessing the sectoral 
needs  and  qualification  requirements  of  the  nuclear  workforce  against  the  backdrop  of  a 
fragmented educational offer. Another challenge is the difficulty to attract, develop and retain 
new young talents to the nuclear sector. 

Innovation  gap  for  improving  citizens’  quality  of  life  with  medical  applications  and 
radiation protection.  

Increasing attention is put on applications of nuclear science and the potential for innovative 
uses  of  ionising  radiations  in  a  variety  of  areas  such  as  health,  space,  agriculture  or  the 
environment.  In  the  medical  field  in  particular,  novel  applications  of  ionising  radiation  and 
medical radionuclides, like the JRC-pioneered use of targeted alpha therapy using Ac-22546, 
could benefit thousands of European patients facing cancer and other life-threatening diseases. 
All  EU  Member  States  have  an  interest  in  supporting  medical  applications  of  nuclear 
technology  and  furthering  innovation  research  in  the  area.  This  is  reflected  in  the  Strategic 
Agenda for Medical Ionising Radiation Applications (SAMIRA)47 adopted by the Commission 
in 2021. The Euratom programme and other research initiatives of the EU in the medical field 
coordinate  with  the  implementation  of  SAMIRA  in  what  regards  innovation  and  the 
technological development of medical ionising radiation applications. 

The field however faces several challenges. One relates to the supply of radioisotopes, with 
European  production  capacities  mainly  reliant  on  ageing  research  reactors,  and  the  awaited 
completion of Pallas and the JHR early in the next decade48. Another important issue is ensuring 
radiation protection and the safe management of radioactive waste. 

Concerning  radiation  protection,  the  focus  remains  in  low-dose  risk,  efficient  production  of 
radioisotopes  for  medical  purposes  and  radiobiological  research.  Understanding  the  health 
effects of radiation and improving protection measures are critical for public health and safety. 
This  research  is  often  underfunded  by  the  private  sector  due  to  its  non-commercial  nature, 
requiring  public  investment  to  ensure  that  safety  standards  are  based  on  the  best  available 
science. Evaluations indicate that a multidisciplinary approach in radiation protection research 
could be further encouraged to increase coverage of a broader spectrum of scientific questions, 
including  questions  related  to  planned,  existing  and  emergency  exposure  situations.  The 
research roadmaps prepared by Euratom initiatives CONCERT, PIANOFORE and EURAMED 
provide a sound basis for future state-of-the-art calls and should be systematically developed. 

Radioactive waste and spent fuel management and geological disposal for the existing and 
future reactor fleet, as well as handling the decommissioning of nuclear facilities. 

Continuous  research  and  development,  as  well  as  demonstration  activities  are  necessary  to 
implement  sustainable solutions  for the safe and safeguarded management  of spent  fuel  and 

45 

OECD-NEA: 

https://www.oecd-nea.org/jcms/pl_21786/nuclear-education-skills-and-technology-nest-

framework 

46   Sathekge, Mike M et al., Actinium-225-PSMA radioligand therapy of metastatic castration-resistant prostate 
cancer (WARMTH Act): a multicentre, retrospective study, The Lancet Oncology, Volume 25, Issue 2, 175 - 
183 

47   SAMIRA Action Plan - European Commission 
48   Tanarro Colodron, J. and Simola, K., Radioactive Isotopes, European Commission  - Joint Research Centre, 

Petten, 2021 

12 

 
 
 
radioactive  waste,  ultimately  contributing  to  increase  confidence  in  the  safety  of  disposal 
solutions and improve public acceptance of nuclear power.  

The EU funded R&D work carried out during the 2000s and 2010s has confirmed that deep 
geological disposal is the most appropriate solution for long-term management of spent fuel, 
high-level  waste  and  other  long-lived  radioactive  waste.  Given  the  progress  achieved  in 
radioactive waste management (particularly in the preparations of deep geological repositories 
in Finland as well as France and Sweden), research should now progressively depart from the 
acquisition of pure scientific knowledge to focus on the operation, safeguarding and oversight 
of  deep  geological  facilities.  European  funded  actions  in  this  field  should  integrate  this 
evolution  by  reinforcing  the  role  of  waste  management  organisations  and  technical  safety 
organisations. The ethical basis for the strategic choices made in radioactive waste management 
and disposal should also deserve more attention. The research should address both extended 
interim storage and retrievability aspects, and the long-term corrosion behaviour after disposal 
in  a  geological  repository.  Research  on  remediation  of  non-conventional/accident  sites 
involving  degraded  and  molten  fuel  should  address  the  optimization  of  damaged  fuel 
management.  In  addition,  the  Euratom  programme  policy  support  should  continue  being 
provided  to  Member  States  and  the  European  Commission  to  advice  the  development  of 
national strategies for long-term storage and disposal of spent fuel and radioactive waste, and 
monitor compliance with Council Directive 2011/70/Euratom and the safeguards provisions in 
the new Commission Regulation 2025/974 Euratom. 

Key role of nuclear research infrastructures 

Nuclear research infrastructures are essential to the field of nuclear science and technology and 
constitute a founding principle of the European Research Area. They also play a key role in 
delivering  and  stimulating  high-quality  research  and  innovation.  Data  produced  by 
experimental  facilities  is  instrumental  to  understanding  the  behaviour  of  materials  and 
components,  develop  new  safeguards  measurements  and  technologies  and  to  assess  safety 
systems, forming the building blocks of nuclear science and technology applications. However, 
managing  and  operating  such  nuclear  infrastructure,  requires  continuous  maintenance  and 
upgrading  to  remain  compliant  with  the  obligatory  provisions  of  safety  and  security  under 
nuclear licenses and necessitates considerable allocation of resources, both specialised staff and 
of financial nature. 

The  sustainability  of  nuclear  expertise  strongly  hinges  on  maintaining  such  facilities 
operational. European Commission's owned infrastructures play an integral role in advancing 
nuclear research and supporting the dissemination of knowledge through an offer of specialised 
training. Ensuring their availability and accessibility represent a pivotal asset for EU Member 
States,  providing research and testing  facilities to Community researchers. Schemes like the 
JRC’s open access programme, contribute to fostering an environment where unique scientific 
equipment  is  shared,  knowledge  is  transferred  to  young  talents,  thus  preserving  skills, 

13 

 
 
innovation  is  stimulated,  the  research-industry  gap  is  bridged  and  collaborative  efforts 
throughout Europe are encouraged49.  

Strengthening  safeguards  implementation  and  non-proliferation  efforts  in  the  evolving 
technological and geopolitical landscape.  

A  comprehensive,  efficient  and  effective  nuclear  safeguards  system,  both  at  European  and 
international level serves as a crucial element in the global effort to prevent nuclear proliferation 
and to ensure that nuclear materials are used exclusively for their intended peaceful purposes. 
The nuclear landscape evolves with emerging technologies, (new fuels, reactor types and fuel 
cycle facilities requiring new analytical methods, reference materials and standards) against the 
backdrop of  shifting geopolitical  dynamics  resulting  in increased nuclear  proliferation risks. 
Therefore, the Euratom safeguards must adapt accordingly and R&D activities, carried out by 
the  JRC,  play  an  essential  role  in  addressing  these  challenges,  from  supporting  the 
implementation  of  the  Euratom  safeguards  to  conducting  R&D  in  the  use  of  advanced 
technologies and digital applications and ensuring international scientific cooperation through 
the  European  Commission  Support  Programme  to  the  IAEA  on  safeguards50.  In  the  face  of 
heightened  nuclear  proliferation  risks,  strong  emphasis  is  also  put  on  capacity  building  to 
provide specific training to Euratom and IAEA safeguards inspectors. As nuclear technology 
evolves,  so  do  potentially  the  methods  of  misuse  and  deviation  of  nuclear  materials  from 
peaceful uses. Research is needed to adapt safeguards to these new challenges and ensure they 
remain  effective.  Also,  any  expansion  on  the  number  of  facilities  covered  by  Euratom 
safeguards can bring the research capacity, if maintained at the current level, below the critical 
threshold. 

To  curb  nuclear  proliferations  risks,  strategic  items  are  subject  to  the  EU  export  control 
framework under the dual-use regulation, as well as to sanction measures. The new EU dual-
use Regulation 2021/82151 faces challenges on its harmonized implementation, which Euratom 
direct actions notably aim to address. 

Strengthening  emergency  preparedness  and  enhancing  nuclear  security  through 
combating illicit trafficking, including developing nuclear forensics. 

In the current security context, the necessity to mitigate unconventional threats and to reinforce 
capacities  of  national  authorities  in  and  outside  of  the  EU  is  more  essential  than  ever. 
Minimising the risk of terrorist use of radioactive materials and mitigating insufficient security 
in  a  variety  of  facilities/locations  (often  originating  outside  Europe)  requires  full  attention. 
Combating  illicit  trafficking  relies  on  advanced  detection  technologies  and  the  combined 
training  of  border  guards/customs/inspectors  and  front-line  officers,  in  field  response  and 

49   Seibert, A., et al. The nuclear research infrastructures open access scheme of the Joint Research Centre (JRC) 
at  the  European  Commission  –  Contributions  to  education,  training,  mobility  and  scientific  excellence, 
NUCLEAR ENGINEERING AND DESIGN, 2024 

50   Aregbe,  Y.,et  al.,  The  Joint  Research  Centre  Supporting  Nuclear  Safeguards,  Publications  Office  of  the 

European Union, Luxembourg, 2023 

51   Regulation (EU) 2021/821 of the European Parliament and of the Council of 20 May 2021 setting up a Union 
regime for the control of exports, brokering, technical assistance, transit and transfer of dual-use items 

14 

 
 
 
analytical skills. It also requires underpinning research enabling method and nuclear forensic 
signature development to understand the correlations between measurable material properties 
and the history of the nuclear material52. 

Research  and  capacity  building  on  unconventional  threats  in  the  context  of  the  CBRN 
(chemical,  biological,  radiological  and  nuclear)  security  framework  of  the  Union  remains 
pivotal to supporting the European internal security strategy and the external action goals. 

The  Russian  war  of  aggression  against  Ukraine  has  also  raised  the  threat  of  nuclear  and 
radiological  risks  calling  for  reinforcing  emergency  preparedness  and  response.  Existing 
capacities on environmental radioactivity monitoring and the management of the radiological 
environmental monitoring data system  (EURDEP) are more essential than ever to  provide  a 
comprehensive in-time picture of radiological conditions across Europe.  

Supporting  nuclear  innovation  and  radiation  protection  with  adequate  nuclear  data, 
quality of nuclear measurements and reference materials 

The  nuclear  sector  relies  on  a  wide  array  of  modelling  techniques,  enabling  the  analysis  of 
individual components and materials, and up to entire systems. 

Although nuclear data is broadly available for a large number of radioisotopes, there are still 
gaps, and uncertainties, which can become more critical as innovative applications of nuclear 
science  and  technology  are  being  developed.  To  overcome  this  obstacle  and  guarantee  the 
accessibility of highly reliable nuclear data, it is crucial to coordinate national and European 
research, expertise, and infrastructure in the EU.  

Similarly, accurate measurements of radioactivity are becoming increasingly important today, 
including for monitoring natural radioactivity, potential accidental releases or human exposures 
linked  to  nuclear  medicine.  This  calls  for  harmonised  measurement  procedures  and  well-
established  calibrations  in  radioactivity  monitoring  laboratories.  The  provision  of  certified 
nuclear  reference  materials  is  also  fundamental  for  the  verification,  validation  and 
comparability  of  measurement  results  and  hinges  on  the  availability  of  specialised 
infrastructure. 

This work overall supports the development of standards that determine the way nuclear science 
and technology applications should be managed.  

Organisation of Euratom research and links with Horizon Europe 

The interim evaluation53 indicated that there were limited effective synergies between Euratom 
programme and Horizon Europe due to the lack of specific provisions, systematic screening via 
a  permanent  governance  structure  and  different  budget  levels.  Those  synergies  have  mostly 
been restricted to the use of MSCA fellowships for nuclear researchers and cross-references 
between  the  work  programmes.  In  the  future,  there  should  be  greater  focus  on  operational 

52   Tsiogka,  V.,  Wallenius,  M.  and  Mayer,  K.,  Nuclear  Forensics  Casework  at  the  Joint  Research  Centre, 

Publications Office of the European Union, Luxembourg, 2023 

53 SWD (2025) 54 

15 

 
 
 
provisions to foster specific synergies in a limited number of relevant and complementary fields 
between  the  Euratom  Programme  and  Framework  Programme.  Commission  services  should 
collaborate closely and devote significant resources to understanding fully the two programmes 
and finding the best complementarities. Accordingly, the programming of Euratom and Horizon 
Europe  actions  should  be  closely  coordinated,  including  a  systematic  screening  for 
opportunities  in  synergies  during  preparation  of  Horizon  Europe  and  Euratom  Work 
Programmes.  The  Euratom  Programme  should  also  be  fully  integrated  into  mechanisms 
providing  for  synergies  between  EU  spending  programmes  including  with  the  Framework 
Programme, as well as supporting relevant aspects of SMR Alliance, the new Net-Zero Industry 
Act and providing science base for the implementation of Euratom legislation.  

Concerning the Euratom Programme’s governance, there is a need for a strategic discussion 
between  the  Commission,  EUROfusion  partnership,  Joint  Undertaking  ‘Fusion  for  Energy’, 
and  the  Member  States  to  cover  all  strategic  issues  related  to  the  fusion  development  and 
delivery of electricity by a first fusion power plant, as the comitology structures (programme 
committees providing advice on the work programmes) do not fulfil such a role. In 2024, the 
Commission launched the Fusion Expert Group (FEG)54, an ad-hoc Commission Expert Group, 
bringing together Member States and stakeholders to provide advice on strategic fusion issues. 
Based  on  the  FEG  experience,  more  permanent  structures  could  be  foreseen  for  the  future 
Euratom programme. 

Stakeholders  participating  in  the  public  consultation  for  interim  evaluation  of  Euratom 
programme  2021-2025  identified  some  challenges  for  the  implementation  of  the  Euratom 
programme55.  The  complex  application  process  was  a  major  concern,  with  40.51%  of 
respondents  finding  it  burdensome.  Additionally,  limited  financial  resources  and  inadequate 
awareness of the programme were cited as significant barriers by 35.9% of participants. These 
challenges highlight the need for administrative streamlining and increased outreach to ensure 
that the programme remains accessible to a broader range of stakeholders. 

54   https://ec.europa.eu/transparency/expert-groups-register/screen/expert-

groups/consult?lang=en&groupId=3929  

55   See Annex V to SWD(2025)54 

16 

 
 
 
 
 
 
 
2.5.  Past experience, lessons learnt and going forward 

The latest assessment of Euratom actions is provided in the interim evaluation of the 2021-2025 
Programme56 which concluded that the actions funded by the Programme over four years help 
Member States to work together to develop nuclear technologies, regardless of their national 
choice as to whether to  generate or consume nuclear power. This enables Member States to 
harness the opportunities offered by the technologies in the interest of all, while reducing the 
risks associated with ionising radiation. The recent Euratom actions deliver results and provide 
a supportive framework for developing, sharing and maintaining expertise and skills in nuclear 
safety,  safeguards  and  security,  strategic  trade  control,  the  safe  management  of  radioactive 
waste  and  radiation  protection.  They  also  bring  the  EU  closer  to  achieving  practical  use  of 
fusion energy. This knowledge will be essential for those Member States that want to pursue 
nuclear energy as part of their energy mix (whether the technology is domestic or imported), 
and for those that need reassurance that nuclear power plants in neighbouring countries meet 
the highest safety and safeguards standards. The public also stands to benefit from Euratom 
funded research on other applications of ionising radiation, in particular in medicine.  

2.5.1.  EU added value 

Interim evaluation provided clear evidence of EU added value of the Euratom programme: 

With  the  civil  use  of  nuclear  technology  being  of  interest  to  all  Member  States,  there  is  a 
rationale for complementing, at EU level, public and private nuclear research actions in 
Members States, for sharing knowledge and for taking advantage of economies of scale, 
while  ensuring  that  national  preferences  are  considered.  Significant  benefits  can  be 
unlocked by the EU action in the various areas of nuclear science and technology where national 
research would otherwise not happen. Examples include cost-intensive research, which often 
requires  a  sufficiently  high  level  of  investment  and  costs  sharing  to  be  successful:  research 
infrastructure  (such  as  the  ITER,  IFMIF-DONES,  JET,  research  reactors  and  facilities  for 
characterization  of  highly  radioactive  fuel  and  material  compounds)  and  the  European 
institutions  and  Euratom  partnerships57  providing  for  coordinated  access  to  them  (JRC, 
EUROfusion, CONNECT-NM, EURAD 2).  

The  Programme  significantly  increased  the  EU’s  ability  to  mobilise  a  wider  pool  of 
excellence,  expertise  and  multidisciplinary  in  nuclear  research,  achieving  impacts  that 
extend  far  beyond  what  would  have  been  achieved  at  national  or  regional  level.  This  is  of 
particular benefit to smaller Member States, which were able to take advantage of economies 
of scale afforded by the Europe-wide pooling effect and open access to JRC nuclear research 
facilities. 

•  More than 7200 researchers participated in joint exploitation of nuclear research 

facilities in the EU58 

56   COM(2025) 61 
57   See footnote 55 
58   Researchers who participated in experimental campaigns managed by EUROfusion,  and accessing nuclear 

research facilities through OFFERR and the JRC Open Access programme. 

17 

 
 
 
•  Programme  enabled  access  to  about  244  research  facilities59  across  EU  and  in  3rd 

countries. 

The  Euratom-funded  projects  and  JRC  direct  actions  provide  a  supportive  framework  for 
developing new generation of researchers, sharing and maintaining  expertise and skills in 
nuclear  safety  and  security,  the  safe  management  of  radioactive  waste  and  spent  fuel,  and 
radiation protection.  

•  986 PhD students in nuclear research benefitted from Euratom financial support and 

access to critical mass of researchers and scientific equipment60. 

•  962 students benefitted from Euratom mobility support61  
•  3324 persons provided with specialised nuclear training by JRC 

Results  of  the  public  consultation  for  interim  evaluation  show  that  stakeholders  consider 
changes introduced by 2021-2025 Programme as increasing  relevance and strengthening the 
impact of the Programme (see Box below)62. 

Box –What messages emerged from public consultation on Programme’s relevance? 

1.  Introduction  of  co-funded  European  Partnerships  contributed  to  an  increased  relevance  and 
strengthening of the impact of the Euratom Programme: 29% (57)  -  to great extent; 34% (67) – 
somewhat; 5% (10) not at all; 5% (10) – a little; 2.5% (5) doesn’t make a difference; 24% (46) don’t 
know.  

2.  Launch  of  the  European  platform  promoting  transnational  access  to  nuclear  research 
facilities (OFFERR project) contributed to an increased relevance and strengthening of the impact 
of the Euratom Programme: 37% (73) - to great extent; 25% (48) – somewhat; 3% (6) not at all; 
3.5% (7) – a little; 7% (13) doesn’t make a difference; 25% (48) don’t know.  

3.  Support for mobility, education and training through a platform established by the European 
Nuclear  Education  Network  (ENEN2Plus  project):  46%  (89)  -  to  great  extent;  28%  (54)  – 
somewhat; 0.5% (1) not at all; 4% (8) – a little; 4.5% (9) doesn’t make a difference; 17% (34) don’t 
know.  

Structuring  effect  of  the  Euratom  co-funded  European  partnerships  -  European 
Partnerships  in  fission63  and  fusion  research64  deliver  European  added  value  through  the 
development of long-lasting knowledge networks. All Partnerships have a strategic research 
agenda or work programme which brings together the EU and other partners such as Member 
States,  industries  and  foundations,  in  agreeing  on  joint  priorities  for  funding.  This  is  a  key 
feature that distinguishes partnerships from other collaborative projects65. Euratom Partnerships 
provide national laboratories opportunities to specialise in some key areas, make meaningful 
contribution, and maintain visibility within the European consortium. Partnerships also excel 
in providing opportunities for sharing of knowledge and best practices. For example, EURAD-

59   Facilities made accessible through OFFER, JRC Open Access and EUROfusion.  
60   Supported by EUROfusion, PIANOFORTE Partnership and Euratom collaborative projects. 
61   Supported by ENEN2Plus and Pianoforte Partnership 
62   SWD(2025)54 
63   https://pianoforte-partnership.eu/ , https://www.ejp-eurad.eu/ , https://www.connect-nm.eu/  
64   https://euro-fusion.org/  
65   Biennial 

Partnerships, 

Monitoring 

European 

Report 

2024, 

on 

p. 

19, 

https://data.europa.eu/doi/10.2777/991766.  

18 

 
 
 
 
2, partnership for radioactive waste management, provides knowledge for Member States with 
small inventories of radioactive waste (e.g. from hospitals and industry). These Member States 
face  particular  challenges  concerning  access  to  sufficient  expertise  in  developing  disposal 
options. 

Data also show that the 2021-2025 Euratom programme’s grants (EUR 812 million) lead to a 
significant mobilisation of public and private funding from beneficiaries – about EUR 547 
million. This is equivalent to a leverage factor of 0.401: in other words, each euro the EU is 
investing in Euratom R&I projects directly attracts additional R&I investments for about 40 
cents.  In  principle,  due  to  their  design  and  size  (76%  of  all  Euratom  grants),  co-funded 
partnerships leveraged the most (45 cents for each Euro invested)) compared to collaborative 
projects  (Research  and  Innovation  Actions,  Innovation  Actions,  Coordination  and  Support 
Actions) which leveraged about 21 cents for each Euro invested by Euratom.  

One of the key aspects of added value of Euratom Programme relates to its ability to promote 
cooperation on a large scale across countries. Most national (or regional) programmes may 
fund  bilateral  or,  more  rarely,  trilateral  collaborations,  but  usually  they  do  not  fund  wider 
collaboration networks66. Of the EUR 812 million signed Euratom grants by December 2024, 
24% are for collaborative grants and 76% for Partnerships. Collaborative grants involve an 
average  of  16  participants.  On  the  other  hand,  three  co-funded  European  Partnerships  in 
fission research, involve on average about 81 participants each. 

The added value of collaboration is reflected in feedback from public consultation on interim 
evaluation of the Euratom programme 2021-2025 (see box below)67. 

Box – Results of public consultation - what are the main benefits of participating in the Euratom 
Programme 2021-2025 compared to national or regional R&I programmes?  [respondents could 
indicate more than one answer] 

1.  79% of respondents - improved cooperation with partners from other countries (within the EU 

and beyond) 

2.  36% of respondents - improved international visibility 
3.  35% of respondents - possibility to finance projects which otherwise wouldn’t have been supported 

at the national or regional level 

4.  27% - respondents - improved excellence in nuclear R&I (e.g. more high impact publications and 

patents)  

The EU added value of the JRC’s nuclear activities lays in the provision of robust scientific 
and  technical  expertise  to  the  Commission’s  services  and  EU  Member  States,  strongly 
contributing to the safe and safeguarded use of nuclear technology. The specificity of the JRC’s 
scientific advice and support to EU policy is tied with its scientific excellence, neutrality and 
independence from national, private and other external interests. Moreover, the high quality of 
the  scientific  contributions  is  based  on  multi-disciplinary  in-house  competences  in  nuclear 

66   European Commission (2024). Align, act, accelerate, p. 20, https://op.europa.eu/s/z14n  
67   SWD(2025)54 

19 

 
 
 
 
safety, safeguards and non-proliferation, strategic trade control, nuclear data and non-energy 
applications of nuclear technologies and on its often unique research infrastructure at EU level. 

The Council’s decision in 2021 to reduce the budget for the programme by 20%, driven by the 
mobilisation of resources for addressing COVID pandemic and a priority shift to post-pandemic 
recovery  and  resilience,  limited  possibilities  to  fund  excellent  research  proposals.  It  also 
hampered the JRC’s efforts to address the emerging challenges with the necessary flexibility 
and capacity at a time of renewed interest in nuclear technologies. 

2.5.1.  Findings from interim evaluation of 2021-2025 Euratom actions 

Interim evaluation provided the important findings on indirect actions: 

− 

the 2021-2025 scope and level of funding of the Programme is not sufficient if Europe wants 
to catch up with international competitors in fission and fusion; address key issues for the 
development of SMRs, advanced fuels and fuel cycles; and substantially increase nuclear 
skills in the EU. 

−  Euratom co-funded partnerships in fission (radiation protection, radioactive waste, nuclear 
materials) are the result of long-term efforts by the research community, stakeholders and 
Member States to advance on a common research agenda and to address key challenges in 
all the fields concerned. While scientific progress has already been made, the Commission 
need  to  push  to  further  improve  the  organisation  and  operation  of  the  partnerships68  to 
ensure  that  the  research  funded  by  the  Euratom  programme  remains  relevant  and  that  it 
tackles the most pressing challenges. 

−  The EU has made strong progress in fusion research through Euratom programme’s funding 
for EUROfusion partnership, but current efforts are not enough to bring fusion energy to 
the market in time to meet the EU’s climate goals or to boost competitiveness. To make 
fusion power a commercial reality, future actions must be based on realistic assumptions 
about the technical challenges involved and supported by adequate investment in industrial 
supply  chains.  The  programme  needs  to  evolve  by  addressing  key  technological 
bottlenecks,  increasing  private  sector  involvement  and  financing,  and  strengthening 
international  cooperation  where  there  is  clear  added  value  for  the  EU.  The  European 
Commission prepares a new co-programmed European Partnership that will bring together 
public and private stakeholders in the fusion field. Actions planned for 2026 and 2027 will 
lay the groundwork for this partnership and support further innovation. This new approach 
also requires rethinking the role of EUROfusion, which will continue to play a key part in 
advancing  the  science  behind  fusion,  but  with  a  clearer  focus  on  supporting  industrial 
development.  

−  The 2021-2025 programme addressed new challenges such as research on alternative fuel 
for  Russian  designed  fission  reactors  used  in  some  Member  States,  increased  strategic 
autonomy in nuclear materials and data, and provided support for researchers in Ukraine. 
The results of the call for innovative applications of ionising radiation show a high interest 

68   Evaluation indicates the need for a simplification of partnerships’ structures and application procedures to 
broaden  participation,  to  enhance  synergies  with  other  sectors  and  to  introduce  more  flexible  funding 
mechanism to support emerging priorities. 

20 

 
 
 
within  medicine, 
monitoring70, which could be developed further in synergy with Horizon Europe.  

the  circular  economy69,  space  exploration  and  environmental 

On direct actions, the evaluation concluded that:  

− 

thanks  to  its  expertise  and  nuclear  research  facilities,  the  JRC  benefits  the  Euratom 
Community and a number of external stakeholders by carrying out relevant direct research, 
providing  high  quality  analyses,  reference  materials  and  methods,  data  and  studies  for 
policy support, and delivering specialised trainings on the whole spectrum of activities from 
nuclear safety to security and safeguards.  

−  The  evaluation  also  concluded  that  the  provision  of  nuclear  data,  measurements  and 
reference materials by the JRC make an important contribution to the safety and safeguards 
assessment of current systems and future technologies such as SMRs. Analyses on ways to 
treat,  minimise  and  recycle  radioactive  waste  and  spent  fuel  or  to  evaluate  their 
characteristics and behaviour were deemed particularly relevant to advance research in this 
area. In the area of safeguards and non-proliferation, the JRC’s expertise and research on 
safeguards and nuclear security also  make  a valuable contribution  both  at  European  and 
international  level  to  reinforce  non-proliferation  efforts.  The  results  of  direct  actions 
research in non-power applications, particularly in relation to the medical field are equally 
relevant, serving to advance research into safe and innovative uses of ionising radiation, as 
well  as  meeting  EU  policy  goals.  The  JRC’s  education  and  training  activities  have 
significant added value to EU Member States, proposing a relevant complement to national-
level capacities. The availability of state-of-the-art nuclear research  facilities continue to 
represent  a  high  added  value  at  EU  level,  contributing  to  independent  quality  research 
benefiting  the  Euratom  Community  and  complementing  Member  States  capacities.  The 
direct actions also provide technical support to the implementation and monitoring of EU 
policies  in  nuclear  safety,  radioactive  waste  and  spent  fuel  management,  radiation 
protection, nuclear safeguards as well as non-proliferation initiatives.  

−  The stringent budget cuts to the Euratom Programme 2021-2027, led the JRC to introduce 
a new strategy for its nuclear activities, with actions to prioritise, consolidate and rationalise 
activities, while optimising the use of its nuclear infrastructures and sustainable operation. 
Using a new portfolio approach in its work programme, the JRC aims to improve synergies 
across research domains, improve foresight capability for analysing upcoming trends and 
enhance communication efforts to showcase research results.  

On the EU contribution to ITER:  

Data show that EU participation in ITER through F4E has had an important economic, social 
and  technological  impact.  Expenditure  related  to  ITER  has  benefited  to  a  wide  range  of 
European companies, which have been able to demonstrate their excellence, develop new skills, 

69   For  example  to  retrieve,  from  irradiated  nuclear  fuel,  valuable  rare  earths  and  platinoids  needed  for  key 
advanced technologies (e.g. renewable energies) which are in short or geopolitically not reliable supply. 
70   For example, the measurement of gamma-ray emitting radionuclides in marine reference materials, such as 

shrimp 

21 

 
 
 
and sometimes export their know-how. According to the evaluation, carried out in in 201971 on 
the impact of the ITER activities in the EU, 34 000 jobs year were created between 2008 and 
2017.  
A follow-up study commissioned in 202172 concluded that the return on investment of ITER is 
around 1:1, and projections indicate that by 2030, ITER could generate an additional EUR 15.9 
billion in Gross Value Added (GVA) and create 72 400 job-years. 

While these figures show a positive economic impact, the ITER project has experienced major 
delays since its beginning, resulting in the postponement of the experimental phase. The delays 
in project execution were mainly due to design immaturity, lack of quality of some components 
supplied by some DAs requesting repairs, regulatory challenges COVID-19 crisis and the war 
in Ukraine, which disorganised the supply chain and contributed to the delays in the delivery 
of key components. 

In  order  to  bring  the  project  back  on  track,  several  measures  were  implemented,  under  the 
supervision  of  Euratom.  In  2022,  the  new  Director-General  of  the  ITER  Organization  (IO) 
launched a series of reforms aiming in particular at (i) improving the IO’s organisation, putting 
a project matrix structure in place to streamline the decision-making process, (ii) improving and 
enforcing  enhanced  quality  control  procedures,  as  well  as  repairing  key  components,  (iii) 
redefining its interactions with the French Nuclear Safety Regulatory Authority (ASNR). 

In  2024,  the  IO  presented  a  revision  of  the  project  Baseline  (scope,  schedule  and  cost),  to 
mitigate key assembly and commissioning risks, define contingencies for schedule and cost, 
while incorporating lessons learned from previous first-of-their-kind activities. This Baseline 
is underpinned by a phased-licensing approach aiming at reducing risks. 

Euratom also identified the need to better integrate Fusion for Energy activities with those of 
the IO to improve project efficiency. As a result, IO and Fusion for Energy explored ways to 
better  integrate  their  activities  and  exploit  the  potential  synergies  and  complementarities 
between the two organisations. Since September 2023, a major effort has been undertaken by 
Fusion  for  Energy  and  IO  to  identify  the  most  relevant  activities,  tools  and  functions.  The 
expected outcomes of the integration are efficiency gains and potential savings, as the IO and 
Fusion for Energy could jointly identify optimisations in  the way components  are designed, 
procured and delivered. 

In 2024, the project  achieved an unprecedented execution rate which surpassed all previous 
years. This excellent performance was confirmed in the first semester of 2025, with indicators 
showing  that  the  current  project  activities  are  on  schedule,  and  executed  slightly  under  cost 
estimates. 

71 https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52019DC0147 
72  https://op.europa.eu/publication-detail/-/publication/3db11048-6a89-11eb-aeb5-01aa75ed71a1,  ISBN  978-92-

76-29352-1 doi:10.2833/51838 

22 

 
 
 
 
3.  OBJECTIVES FOR EURATOM PROGRAMME 2028-2032 

3.1.  General and specific objectives 

The general objective of Euratom programme is to strengthen the Union’s competitiveness and 
decarbonisation, inline with the general and specific objectives of the ECF and Horizon Europe, 
while protecting people  and the environment, by advancing  research and training in  nuclear 
science and technology in synergy with Union programmes.  

The programme’s specific objectives are: 

(a) 

(b) 

(c) 

support the construction and operation of ITER, ensuring performance-based funding for 
the delivery of European components by Fusion for Energy, the integration work by the 
ITER Organization and that technical and scientific lessons learnt from ITER benefit the 
Union; 

advance  fusion  research,  supporting  the  transition  from  basic  science  to  technology, 
engineering  and  innovation,  foster  the  development  of  the  Union’s  fusion  industry, 
support  the  emergence  of  start-ups  and  innovative  concepts  for  enabling  future  fusion 
power plants, and strengthen international cooperation; 

advance research on nuclear safety, security and safeguards, non-proliferation, radiation 
protection,  nuclear  data,  the  management  of  radioactive  waste  and  spent  fuel  and  the 
innovative use of ionising radiation including in the medical sector; 

(d)  develop,  retain  and  utilise  expertise  and  competencies  in  the  nuclear  field  through 
education  and  training  and  support  access  to  state-of-the-art  research  infrastructures, 
ensuring their long-term sustainability and operational excellence; and 

(e) 

provide independent and science-based policy support to Union policies and develop the 
knowledge base for standardisation and modelling. 

3.2.  Expected results of the programme 

In fusion energy development, the Euratom Programme will accelerate the development of 
key  enabling  technologies,  transitioning  from  pure  research  to  innovation,  towards 
commercialisation,  also  supporting  the  emergence  and  consolidation  of  innovative  and 
competitive fusion players in Europe. It will enhance competitiveness of EU industry and start-
ups in fusion field: targeting high-priority technology areas with significant business potential, 
for  fusion  applications  and  beyond.  While  keeping  the  research  and  development  focus  on 
magnetic  confinement  as  the  most  mature  concept  for  future  fusion  power  plants,  the 
programme  will  be  helping  academia  and  start-ups  to  demonstrate  alternative  concepts  and 
encouraging the industry to deliver innovation for cross-cutting technologies (e.g., fusion-grade 
materials, tritium breeding). 

ITER will remain a cornerstone for the development of fusion energy in Europe, and the 
programme will aim to complete construction for the first phase of experiments on time and 
within budget. This will be achieved by delivery of European components for ITER in line 
with the project baseline, supervising Joint Undertaking ‘Fusion for Energy’ in performance of 

23 

 
 
 
 
 
its  tasks,  while  ensuring  that  technical  and  scientific  lessons  learned  from  ITER  benefit  the 
Union. 

In  fission  research:  the  Programme  will  advance  research  to  ensure  the  safe,  secure  and 
safeguarded use of reliable nuclear technologies, and support the management of present and 
future nuclear infrastructure for Europe, while reducing radiation risks and improving the safe 
management of radioactive waste. The Euratom community will benefit from reinforced action 
into the following priority areas: 

−  Safe nuclear power and nuclear innovation for a safe, secure and prosperous future. 
With due consideration for the energy mix options of Member States, Euratom fission will 
conduct R&D on the safety and security of SMRs and analyse the needs for the European 
supply  chain,  including  in  terms  of  competences.  The  programme  will  also  promote 
research on AMRs, innovative fuel cycles and materials, and a broad range of other nuclear 
technologies,  including  applications  beyond  energy  production,  such  as  for  the  health 
sector,  cogeneration  or  space  exploration.  Euratom  actions  will  also  support  the 
development of tools and knowledge contributing to the safety of existing reactor systems, 
including  those  going  through  long  time  operation  or  projects  of  new  build  of  large 
conventional  reactors.  JRC’s  in-house  modelling  capacities  will  contribute  to  better 
understand the behaviour of energy components and systems by integrating research and 
experimental data. 

−  Improving citizen’s life with nuclear medicine  by supporting the development  of new 
technologies  and  investigating  innovative  applications  of  ionising  radiation  and  medial 
radionuclides used in the fight against cancer and other diseases.  

−  Reduction of radiation risks by the development of knowledge and tools for improving 
radiation protection and emergency preparedness & response in the event of a radiological 
accident.  

−  Strengthening EU and global nuclear non-proliferation efforts through development of 
innovative tools and methods for nuclear safeguards verification, trainings of safeguards 
inspectors and other direct support to the implementation of Euratom and IAEA safeguards, 
in  synergy  with  R&D  in  nuclear  security  and  nuclear  forensics  to  respond  to  illicit 
trafficking and criminal use of radioactive materials. 

−  Reinforcing  decommissioning  and  managing  radioactive  waste  and  spent  fuel  by 
actively pursuing decommissioning of nuclear facilities and in parallel R&D to improve the 
management of nuclear waste and spent fuel: developing waste management solutions for 
new  technologies,  fine-tuning  characterisation  techniques  and  providing  support  for 
Member States in the defining of their national strategies for long-term storage and disposal 
with a specific attention for early-stage programmes and smaller waste inventory (e.g. in 
the medical sector) or for waste streams without mature or efficient processing methods. 
−  Contributing to a boost for nuclear skills, competences and access to nuclear research 
infrastructures in the EU. The goal is to contribute to the maintenance and development 
of  nuclear  skills,  through  research  collaborations,  trainings,  enhanced  dissemination  of 
scientific  knowledge,  foresight  activities  and  open  access  to  European  Commission's 

24 

 
 
research  facilities.  The  action  will  ultimately  aim  to  maintain  strategic  competences, 
supporting a qualified workforce in the EU, and helping build nuclear capacities across EU 
Member States. 

4.  ALTERNATIVE DELIVERY MECHANISMS AND RISK ASSESSMENT 

4.1.  Option 1  –  Business  as usual for Euratom research and training (baseline 

scenario) 

Baseline scenario for 2028-2032 entails no major changes to the directions of research and the 
way the Euratom contribution to the ITER project is implemented. Option 1 would also mean 
continuation  of  limited  synergies  between  Euratom  programme  with  Horizon  Europe 
Framework  Programme  and  the  European  Competitiveness  Fund.  In  terms  of  resources,  the 
budget would be maintained at the 2021-2027 level. 

Analysis of directions of Euratom-funded actions under Option 1: 

Euratom  actions  on  fusion  research  would  remain  almost  entirely  focused  on  supporting 
collaborative scientific activities undertaken in the EUROfusion Partnership, with a centre of 
gravity largely – if not entirely – directed to academia and public laboratories. While excellent 
science should remain core to the programme, such an exclusive focus could be detrimental to 
effective technology transfer and hinder the maturation (ultimately, commercialisation) of key 
fusion technologies.  

The role of the fusion industry and start-ups under the programme, while acknowledged, would 
remain limited in terms of scale and impact – especially in setting strategic orientations. This 
would be detrimental to the interest of the private sector in contributing to the programme and 
would  result  in  a  lack  of  coordination  between  public  and  private  research,  missing  an 
opportunity to build synergies and consolidate a competitive industrial base in Europe. Only 
limited  EU  funding  opportunities  would  be  available  to  European  start-ups  that  develop 
innovative concepts and technologies for future fusion power plants, hindering their capacity 
to attract private investments and their growth. Research supported by Euratom would remain 
entirely  centred  on  mainstream,  more  mature  concepts,  missing  the  opportunity  to  support 
promising alternative pathways to the realisation of fusion power plants. 

For  the  Euratom  contribution  to  the  ITER  project  it  is  important  to  underline  that  the 
purpose of the overall EU contribution to the ITER project is to finance the completion of the 
construction phase of ITER in an improved and efficient manner, preparing the grounds for its 
future commissioning and operation in 2034. Therefore, keeping the same approach as in the 
past will not allow for the management of the EU budget for the ITER project in a more efficient 
and streamlined manner. 

Limited synergies between Euratom programme, Horizon Europe and ITER project  

Continuation of the Euratom programme as implemented in 2021-2027 would mean, limited 
effective synergies with Horizon Europe and ITER-related actions due to the lack of specific 
provisions. Cross-cutting nature of EUROfusion and F4E activities underlines the need for a 

25 

 
 
 
strategic discussion between Commission, EUROfusion, F4E and the Member States to cover 
all strategic issues related to the fusion development is required and currently underway under 
various  workstreams,  namely  through  the  ad-hoc  Fusion  Expert  Group  report73,  the  call  for 
evidence74  and  development  of  the  EU  fusion  strategy  (foreseen  for  adoption  at  the  end  of 
2025).  

Consequences of maintaining resources for Euratom research at 2021-2027 level 

The Euratom programme’s budget has been impacted by 20% decrease between the previous 
financial period (2014-2020) and the current one (2021-2027) due to various factors, including 
COVID-19 pandemic. These funding limitations have affected the programme’s ability to fund 
research  across  the  wide  arrays  of  nuclear  fields,  as  well  as  to  properly  address  emerging 
challenges and priorities.  

The baseline scenario, maintaining Euratom resources at 2021-2027 level would limit the scope 
of research, both under direct and indirect actions, to a restricted core of nuclear activities in 
fusion, nuclear safety of existing systems, radiation protection, nuclear safeguards and security 
and management of radioactive waste and spent fuel. The Commission would face the dilemma 
of  whether  to  prioritise  funding  to  the  co-funded  Partnerships  and  for  ongoing  actions 
supporting  access  to  infrastructures  and  nuclear  expertise  or  prioritise  competitive  calls  for 
proposals for innovative solutions.  

Amongst  the  topics  of  relevance  for  Member  States  and  stakeholders  feature  the  safety  and 
safeguards assessment of existing and future nuclear systems, including in relation to structural 
materials, supply chain and fuel cycles. Covering these existing and emerging research fields 
is particularly challenging in view of the Programme’s reduced budget. Addressing innovative 
areas of research would be difficult while ensuring an adequate management of resources, and 
the optimal use of the Commission’s nuclear research infrastructure and competences would 
become exceedingly challenging.  

Under the baseline scenario, the JRC would continue to provide core technical and scientific 
support  to  the  European  Commission  to  guarantee  the  effective  implementation  of  nuclear 
safeguards,  however,  with  necessary  limitations  to  the  depth  and  scope  of  involvement. 
Activities include a rigorous analytical and quality system, supported by metrological quality 
control tools, to ensure the accuracy of nuclear materials measurements. The in-house capacity 
to support safeguards assessment would be limited to core activities, analytical services, and 
technical support requests, thus neglecting further R&D into innovative concepts and systems 
in safeguards. This together with a decrease in the provision of safeguards reference materials 
would  threaten  to  weaken  Commission’s  safeguards  analysis  capabilities  and  ultimately  the 
Euratom safeguards  regime, as  well as  reducing  the support programme  to the  International 
Atomic Energy Agency.  

73 https://op.europa.eu/en/publication-detail/-/publication/51364c97-135b-11f0-b1a3-01aa75ed71a1/language-en 
74 https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14717-EU-fusion-strategy_en 

26 

 
 
 
In the area of non-power applications, research on medical radionuclides has reached particular 
momentum  at  EU  level,  supported  by  unique  expertise  and  infrastructure,  the  JRC  notably 
pioneering R&D on the development of innovative oncology treatments such as targeted alpha 
therapy  (TAT).  Demand  for  such  expertise  is  increasing  and  expected  to  rise  further  in  the 
medium  to  long-term,  however the baseline scenario would make expanding  R&D scope to 
other radionuclides, collaborations and capacity building programmes too challenging. 

A chief concern amongst EU Member States is advancing research on sustainable solutions for 
the management of spent fuel and radioactive waste, focusing on final repositories and long-
term storage of spent fuel. The baseline scenario would limit research to core areas, preventing 
exploration into important topics such as partitioning and transmutation where these activities 
are  expected  to  grow  in  importance  as  advanced  reactor  systems  and  closed  fuel  cycles 
technologies are developed. 

Restraining  the  Programme  to  its  current  scope  and  funding  size  undermines  its  ability  to 
adequately address rising challenges regarding nuclear competences and skills relevant to all 
fields of nuclear research. The baseline scenario would also impact the Programme’s ability to 
efficiently support nuclear research infrastructures, which are the cornerstone of research and 
training  in  the  nuclear  field,  essential  for  conducting  experimental  studies  and  analyses, 
producing  reliable  and  valuable  data,  building  capacity,  as  well  as  supplying  isotopes  for 
medical and industrial purposes. The Programme in its current shape is limited in its support to 
European  nuclear  research  infrastructure  and  unable  to  efficiently  ensure  their  operational 
sustainability  beyond  providing  financial  support  to  European  researchers  through  the 
European User Facility Network (OFFERR project) and Open Access programme of the JRC 
to  access  European  Commission’s  research  facilities.  The  management  of  these  latter 
infrastructures  by  the  JRC  induces  a  considerable  allocation  of  staff  and  operational  and 
maintenance costs to comply with the legal obligations of the nuclear licenses. These expenses 
would continue posing a significant challenge under the baseline scenario, while appropriate 
staffing of laboratories  is essential to  perform technical  and scientific analysis in  support to 
policies, and to provide quality trainings for the benefit of the Community. 

While  the  demand  for  JRC’s  nuclear  expertise  and  scientific  advice  has  been  increasing,  as 
indicated by the numerous contacts and requests from different organizations in EU Member 
States, for e.g. requests of regulators for expertise for environmental assessments or nuclear 
safety trainings, or startups looking for collaborations on the definition of criteria for safety and 
safeguards  by-design.  A  reduced  research  capacity,  which  would  continue  under  a  baseline 
scenario would bear a non-negligeable impact on the JRC’s ability to provide the entire range 
of policy support services to other EU services and Member States and hinder the capacity to 
respond to ad hoc requests for policy support. Available resources would necessarily focus on 
addressing  JRC’s  specific  policy  obligations  derived  from  the  Euratom  Treaty  and  the 
secondary Euratom legislation. 

Finally, under the baseline scenario, the JRC would be constrained to a reduced involvement in 
and contribution to consortia implementing indirect actions due to resources limitation and a 
necessity to prioritise core activities. In the long run, this situation risks damaging the expertise 
and technological leadership at EU level as addressing emerging technological challenges in 

27 

 
 
the  nuclear  field  requires  strong  partnerships  with  national  research  institutions,  leading  to 
better sharing of knowledge, resources, and best practices.  

4.2.  Option 2 – ‘Enhanced Euratom programme supporting the development of 
safe and safeguarded innovative nuclear technologies for a prosperous and 
sustainable EU’ 

To address the new competitiveness and energy security challenges facing the EU, and in view 
of  meeting  decarbonisation  targets,  the  Euratom  programme  must  be  reinforced  in  terms  of 
budget  and  measures  to  enhance  innovation  and  skills  in  the  field  of  nuclear  science  and 
technology.  For  the  latter,  the  programme  will  benefit  from  the  new  Horizon  Europe 
Framework Programme’s rules for participation and dissemination designed to simplify access 
further,  enhance  openness,  and  maximise  the  impact  of  funding.  There  are  areas,  such  as 
industrial  competitiveness  and  public  health  where  joint  actions  between  the  Euratom 
Programme  and  Union  programmes  can  be  of  greater  benefit  to  Union  citizens  than  having 
actions under the Programme alone. For this reason, the Programme should seek synergies with 
Horizon  Europe  and  other  Union  programmes.  Streamlined  governance  should  allow  the 
Commission to discuss all aspects of fission and fusion research, including the ITER project, 
with  Member  States  and  key  stakeholders  to  provide  strategic  overview  and  to  improve 
coordination  with  Euratom  actions,  while  recognising  that  for  Fusion  for  Energy,  the 
governance with the Member States is covered by the Fusion for Energy Governing Board. 

4.2.1.  Fusion research  

Euratom actions  for the  development  of fusion energy will  be  based on  the EU strategy  for 
fusion  energy75  and  a  public-private  partnership  to  promote  its  rapid,  economically  viable 
commercialisation76. The partnership should aim to create a stable and predictable ecosystem 
for  industrial  innovation,  leveraging  the  ITER  project,  while  ensuring  a  clear  technology 
development  roadmap.  These  actions  will  build  on  the  strengths  and  achievements  of  the 
established organisations for excellent science (notably EUROfusion partnership), international 
cooperation, and skills. The deployment of fusion energy will require use of different funding 
tools of the EU Budget to unlock private, institutional and national investment.  

Specific Euratom actions will include: 

-  Re-focussing  EUROfusion,  the  flagship  EU  fusion  research  partnership,  ensuring  it 
leads  the  scientific  agenda  while  focusing  on  the  joint  exploitation  and  operation  of 
existing and future research infrastructures—both within the EU and globally. 

-  Scaling  up  the  European  Public-Private  Partnership  for  Fusion  Energy,  which  pilot 
phase is taking place in 2026-27. The partnership will allow to develop, consolidate and 
structure  the  European  fusion  industry,  including  at  the  level  of  the  supply  chain  – 
building on European excellence in fusion research and allowing for a massive transfer 
of knowledge from the labs. 

75   Under 

preparation, 
Fusion-Strategy-_en  

https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14717-EU-

76   https://commission.europa.eu/topics/eu-competitiveness/draghi-report_en  

28 

 
 
  
 
 
-  Providing  bottom-up  support  for  the  emergence  and  growth  of  innovative  European 
fusion start-ups, grating easier access to proven instruments of the European Innovation 
Council Programme77, and allowing them to advance alternative fusion concepts and 
key  enabling  technologies  for  fusion  power  plants  as  well  as  to  attract  private 
investments more effectively. 

-  Broadening opportunities for EU research in inertial confinement fusion, in line with 
recent  landmark  scientific  achievements  and  the  technology  neutrality  principle, 
providing targeted support (e.g., in the advancement of plasma and neutron diagnostics, 
and of fundamental physics of laser-target interaction and hydrodynamic instabilities) 
to an established scientific community, and boosting synergies between public research 
and innovative companies. 

Additional new actions of the Euratom Programme with the supplementary budget planned in 
the MFF 2028-34 (compared to 2021-27) would be implemented in support to and in synergy 
with the possible Moonshot Fusion Energy78. These actions would include: 

- 

- 

the  development  and  construction  of  a  dedicated  technology  facility  (a  ‘Fusion  Pilot 
Plant’) that should work alongside ITER and DONES to demonstrate the integration of 
the  solutions  for  the  key  technology  gaps79  and  enable  non-negligible  production  of 
electricity (compared to the input power). 
the  development  and  construction  of  an  ignition-grade  implosion  facility  for  inertial 
confinement  fusion  that  will  bring  back  inertial  fusion  to  the  EU.  This  will  also 
contribute to  the Commission’s initiative Choose Europe,  attracting the best-talented 
scientists and providing a boost to the relevant industrial ecosystem.  

4.2.2.  Euratom contribution to ITER 

Despite the ITER delays and the emergence of public and private fusion initiatives that could 
potentially  challenge  the  relevance  of  the  EU  contribution  to  ITER,  stakeholders  (including 
companies and laboratories) still consider that the ITER project is a unique project capable of 
addressing the technological challenges of fusion in an integrated manner. Private initiatives, 
particularly led by startups, often present optimistic plans for early achievements but typically 
do not constitute substitutes to ITER. They could be effective in complementing ITER results 
in responding to the EU needs and policies (e.g., achievement of the objectives at a smaller 
cost, for instance through joint procurement activities). EU participation to ITER has therefore 

77   https://eic.ec.europa.eu/index_en 
78   Proposal  for  Horizon  Europe  Framework  Programme  (COM(2025)543)  provides  for  moonshots’  projects 
(including in fusion energy) with a strong scientific component, boosting EU-wide value creation and strategic 
autonomy. 

79   This  includes  addressing  gaps  in  areas  like  plasma-facing  components,  tritium  fuel  cycle,  exhaust  power 

handling, and integration of plasma physics and engineering systems. 

29 

 
 
 
 
 
retained its full relevance as demonstrated by the recent external study of the EC 80 and the 90 
responses to the Call for Evidence on the European Fusion Strategy81 

The  continued  financing  of  EU  participation  in  the  ITER  project  will  secure  resources 
commensurate  with  the  needs  of  ITER  for  integrated  commissioning,  and  start  of  research 
operations scheduled in 2034.  

The  programme  would  ensure  that  the  ITER  project  is  put  back  on  track  through  improved 
measures, such as: timely implementation of the revised baseline; adaptation of the IO and F4E 
performance indicators and milestones; appropriate integration of IO and F4E activities; due 
consideration  of  contingencies;  and  close  interaction  and  dialogue  with  the  regulatory 
authorities.  

4.2.3.  Fission research 

The new Euratom Programme should clearly define its objective of supporting the development 
of  safe,  secure  and  safeguarded  innovative  nuclear  technologies  for  a  prosperous  and 
sustainable EU. Strategic priorities for the next programme would include: 

−  Safe nuclear power for the EU: the development of innovative nuclear technologies, 
such as SMR, and their foreseen deployment in the EU, represent a potentially viable 
and  competitive  technological  solution  to  meet  the  Union’s  decarbonisation  goals 
especially in hard-to-abate energy intensive sectors, complementing existing assets and 
aiding  EU’s  strategic  autonomy.  There  is  therefore  a  need  for  harmonized  European 
approach  to  SMR  safety  and  safeguards  requirements  in  view  of  optimising  and 
facilitating  the  licensing  process  and  to  ensure  that  technologies  are  verified  and 
validated independently through an early integration of safety, security and safeguards 
requirements  into  the  designs.  Ensuring  the  safe  deployment  of  these  new  systems 
requires  sufficient  support  from  the  research  side  to  demonstrate  the  passive  safety 
features, the advanced control systems, improved materials and fuel performance. It also 
necessitates a thorough analysis of the future European supply chain and the associated 
workforce availability.  

In parallel, the research provided under the Euratom programme needs to address the 
lifetime extension of several nuclear installations in the EU to ensure their continued 
operational  safety  and maintain  a dispatchable supply  of low  carbon energy. Ageing 
nuclear reactors in the EU requires continuous improvement of safety standards and to 
address  the  issues  common  to  different  designs  and  technologies  such  as  ageing 
management, structural integrity assessment, and defect tolerance evaluation.  

−  Nuclear innovation and modelling for a safe and prosperous future: for the longer 
term, Euratom research will focus on safety and safeguards aspects of advanced nuclear 
technologies,  including  Advanced  Modular  Reactors  (AMRs),  innovative  fuels  and 
materials. In line with advancing technological innovation, the efficiency and safety of 

80   External study: European Commission: Directorate-General for Energy, Pancotti, C., Catalano, G., Colnot, 
L., Banfi, S. et al., Interim evaluation study of the implementation of the Council decision (Euratom) 2021/281 
amending  decision  2007/198/Euratom  establishing  the  European  joint  undertaking  for  ITER  and  the 
development of fusion energy and conferring advantages upon it – Final report, Publications Office of the 
European Union, 2025, https://data.europa.eu/doi/10.2833/1515037 

81   Commission launches Call for Evidence to support first-ever EU-wide Fusion Strategy 

30 

 
 
 
 
the nuclear fuel cycle management requires attention with the research supporting new 
types  of  fuels  such  as  accident  tolerant  fuels  (ATF)  to  address  relevant  safety  and 
safeguards  aspects  and  advanced  fuel  cycles  to  reduce  long-lived  radioactive  waste. 
Improved fuel cycle management also hinges on strengthening the security of supply of 
nuclear fuel, including by achieving autonomy on raw materials acquisition and the fuel 
production  chain.  JRC  in-house  modelling  capacities  will  contribute  to  better 
understand the behaviour of  energy components  and systems  by integrating research 
and experimental data. 

In addition to electricity production, a prosperous and sustainable EU requires research 
on a broad range of other nuclear technologies, including applications beyond energy 
production, cogeneration, space exploration, and maritime use.  

-  Strengthening nuclear safeguards, security and non-proliferation: the emergence 
of  new  technologies  poses  a  particular  challenge  to  the  Euratom  safeguards  system, 
requiring a holistic approach to address current technology, as well as advanced systems 
poised  to  go  into  operation  in  the  coming  years.  An  enhanced  Euratom  programme 
would  support  research  to  introduce  safeguards  approaches  at  the  design  stage, 
alongside safety and security provisions, to the back end of the fuel cycle facilities, as 
well  as  to  future  reactor  systems.  Recent  geopolitical  developments  have  shown  the 
importance  of  reinforcing  capacities  to  enable  strategic  trade  and  export  control, 
technical support to defining and monitoring the sanction lists, as well as proliferation 
risks analysis. Further, maintaining expertise in nuclear security relies on the use and 
availability of advanced detection technologies, the continued provision of training to 
border  and  front-line  officers  to  bolster  in-field  response,  as  well  as  underpinning 
research  on  enabling,  analytical  methods  and  on  nuclear  forensics  signature 
development. 

−  Improving  citizens'  lives  with  nuclear  medicine,  reducing  radiation  risks  and 
enhancing emergency preparedness: an enhanced Euratom programme would be able 
to  adequately  address  the  increasing  interest  for  non-power  applications  of  nuclear 
technology, especially in the medical field, while securing supply of radioisotopes for 
cancer treatment amid global shortages in line with the Strategic Agenda for Medical 
Ionising Radiation Applications (SAMIRA) adopted in 202182. Euratom partnership for 
radiation protection would continue leading role in fundamental research in this field. 
The JRC’s research, enabled by dedicated European infrastructure and long-standing 
expertise, will make an essential contribution to the innovative uses of radionuclides, 
by  expanding  current  research  in  Targeted  Alpha  Therapy  to  other  radionuclides  an 
expanding  capacity  building  programmes  and  partnerships.  The  Russian  war  of 
aggression against Ukraine demonstrated that the Programme will also need to focus 
more on emergency preparedness for radiological events, supported notably by JRC’s 
activities in environmental radioactivity monitoring. 

−  Ensuring safe and safeguarded management of radioactive waste and spent fuel: 
Euratom  programme  could  enhance  Europe’s  global  leadership  in  radioactive  waste 

82 

https://energy.ec.europa.eu/topics/nuclear-energy/radiological-and-nuclear-technology-health/samira-action-
plan_en 

31 

 
 
 
 
management (RWM), by increasing the EURAD Partnership capacity to respond more 
dynamically to evolving needs and policy changes in this field. It would enable stronger 
support for Member States with smaller nuclear inventories or those in early stages of 
RWM  programme  development.  The  new  actions  could  include  developing  waste 
management solutions for new technologies (SMRs, AMRs and fusion) and for waste 
streams without mature or efficient processing methods. The decommissioning field is 
gaining importance as many nuclear plants across Europe approach end of the life. This 
creates  an  opportunity  for  Euratom  supported  innovation,  particularly  through  the 
involvement  of  small  and  medium-sized  enterprises  (SMEs)  Strengthening  the 
connection between research outputs and practical, real-world applications remains a 
key area for improvement. Additional funding would enable the JRC to support further 
research into the implementation of sustainable solutions in this area through radioactive 
waste and spent fuel characterization, waste treatment and conditioning, as well as the 
analysis of waste streams from advanced reactor systems and fuel cycles. The technical 
support provided by the JRC to monitor the implementation of the Council Directive 
2011/70/Euratom (Radioactive Waste Directive) and insights gathered into the status of 
national  R&D  programs  for  waste  management  translate  into  important  expertise 
serving the successful operation of the EURAD-2 partnership. 

−  Boost  nuclear  skills,  competences  and  infrastructure:  in  the  face  of  potential 
shortages in qualified nuclear workforce, concerns over the retention of adequate levels 
of nuclear skills in the EU, as well as foreseen needs in view of planned or ongoing new 
build  projects,  it  is  essential  to  address  this  priority  issue  with  a  reinforced  Euratom 
programme. Such a programme would continue and expand direct support to students 
and  researchers  and  bring  stability  and  predictability  for  users  of  nuclear  research 
facilities. Euratom direct and indirect actions would enhance specialised training and 
access to research infrastructure – through both the dedicated European User Facility 
Network and the JRC Open Access programme. To make a real difference in nuclear 
competences and to substantially increase number of beneficiaries, actions supporting 
researchers’ mobility and studies at MSc, PhD and postdoctoral level must be launched 
in  synergy  with  Maria  Sklodowska-Curie  Actions  and  other  actions  under  Horizon 
Europe.  Nuclear  research  infrastructure,  including  those  managed  by  the  JRC,  are  a 
pivotal asset for EU Member States, and the necessity to maintain their compliance with 
national  regulatory  provisions  for  safety  and  security,  while  ensuring  continuous 
maintenance and operation, requires dedicated financial support. 

Additional new actions of the Euratom Programme with the supplementary budget planned in 
the MFF 2028-34 (compared to 2021-27) would include: 

− 

Increasing the optimal use and access of nuclear research infrastructures in Europe (both 
DG RTD and JRC).  

−  Nuclear innovation for decarbonisation of energy intensive industries incl. switch from 

coal to nuclear, maritime and space applications (both DG RTD and JRC). 

−  Safety  aspects  of  future  reactor  systems  and  fuel  cycles,  including  Small  Modular 
Reactors and Advanced Modular Reactors incl. passive safety systems (both DG RTD 
and JRC).  

−  Enhanced capacity building for frontline officers and other security agents to respond 
to illicit traffic of nuclear material and to other unconventional CBRN threats (JRC) 

32 

 
 
−  Management of radioactive waste and spent fuel incl. solutions for new technologies 
(SMRs,  AMRs),  for  MS  with  smaller  waste  inventory,  for  nuclear  fuel  recycling 
technologies to reduce final waste volumes and for improved circular economy (both 
DG RTD and JRC) 

−  Enhancing  the  EU  competences  in  the  field  of  decommissioning  including  the 

development of AI and robotics solutions (both DG RTD and JRC). 

5.  PLANNING OF FUTURE MONITORING AND EVALUATION  

This initiative will be monitored through the performance framework for the post-2027 budget, 
which is examined in a separate impact assessment83. The performance framework provides for 
an  implementation  report  during  the  implementation  phase  of  the  programme,  as  well  as  a 
retrospective evaluation to be carried out in accordance with Article 34(3) of Regulation (EU, 
Euratom) 2024/2509. The evaluation shall be conducted in accordance with the Commission's 
Better Regulation Guidelines and will be based on indicators relevant to the objectives of the 
Programme.  The  latter  shall  comprise  output,  outcome  and  impact  SMART  (specific, 
measurable, achievable, relevant, and time-bound) indicators to capture the progress towards 
achieving the Euratom’s specific and general objectives, including contribution to ITER, in the 
short-,  medium-  and  long-term,  respectively.  Due  to  the  Treaty’s  5-years  limit  for  the 
Programme, the Commission proposal could include specific provisions on evaluations, linking 
retrospective  evaluation  of  2021-2027  programme,  including  final  evaluation  of  the  ITER 
programme  2021-2027,  with  interim  evaluation  of  2028-2032  programme  and  impact 
assessment  for  extension  of  the  programme  for  two  years  (2033-2034)  in  order  to  match 
duration of the MFF. 

For  ITER,  following  the  establishment  of  the  2024  Baseline,  in  line  with  the  horizontal 
[Performance Regulation], and in line with project management practices, the following output 
indicators will be monitored and reported for both IO’s and F4E’s activities: 

(a) Schedule Performance Index (SPI) is used to monitor the project implementation according 
to the defined schedule and is estimated as a ratio between the “Earned Value” and the “Planned 
Value”. 

(b) Cost Performance Index (CPI) is used to monitor expenditures and is a measure of the value 
earned for the money spent. For the ITER project it is defined as the ratio between the value 
earned with the payments and the actual payments. 

(c) Estimate At Completion (EAC) is used to forecast the total cost of the ITER project based 
on current performance. It indicates how much the project is expected to cost when it is finished. 
For F4E, EAC estimates the total project cost at completion based on the project’s performance 
up to a given point in time.  

83 SWD(2025)590 

33 

 
 
 
 
(d) Percentage  of Completion provides an indication how much the project  progressed.  It  is 
defined as the ratio of the Earned Value to the Estimate At Completion.  

In addition, three result indicators will be estimated through application of economic models 
monitored and reported, namely: 

(a) The amount of ITER related contracts implemented in EU (showing their cumulative value 
of the ITER related contracts to the EU economy);  

(b) The estimate of jobs created in EU as a result of the ITER project will identify the new 
employment opportunities; jobs created in the field of fusion energy and EU as a whole in the 
Union in the 2028-2034 period; 

(c) Gross Value Added isas a measure of the value of goods and services produced in the EU 
economy. It will be used to assess the economic c output impacts of the ITER -related spending 
to the overall economy of the EU. 

34