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1999/878/CFSP: Council Joint Action of 17 December 1999
establishing a European Union Cooperation Programme for Non-proliferation
and Disarmament in the Russian Federation
Official Journal L 331 , 23/12/1999 P. 0011 - 0016
COUNCIL JOINT ACTION of 17 December 1999
establishing a European Union Cooperation Programme for Non-proliferation
and Disarmament in the Russian Federation
(1999/878/CFSP)
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Common Strategy of the European Union on Russia(1)
adopted by the European Council on 4 June 1999 which inter alia expressed
the European Union's commitment to promote disarmament and curbing
of the profileration of weapons of mass destruction (WMD), support
for arms control, the implementation of existing agreements and the strenthening
of export controls,
Having regard to the Treaty on European Union (TEU), and in particular
Article 14, in conjunction with Article 23(2) thereof,
Whereas:
(1) The Agreement on partnership and cooperation establishing a partnership
between the European Communities and their Member States, of one part,
and the Russian Federation, of the other part(2) promotes inter alia
an increasing convergence of positions on international issues of mutual
concern thus increasing security and stability;
(2) The Union is prepared to promote cooperative risk reduction activities
and the safe and secure dismantlement of WMD-related resources in Russia;
(3) Such activities would take place in parallel with activities
carried out by the European Community and bilaterally by the Member States;
(4) All such activities should be coordinated to the greatest possible
extent to avoid unnecessary duplication;
(5) European Union activities can also be undertaken in cooperation
with other countries;
(6) The Commission has agreed to be entrusted with certain tasks
necessary for the implementation of this Joint Action,
HAS ADOPTED THE FOLLOWING JOINT ACTION:
Article 1
1. A European Union Cooperation Programme for non-profileration and
disarmament in the Russian Federation (hereinafter referred to as "the
Programme") is hereby established.
2. The objective of the Programme is to support the Russian Federation
in its efforts towards arms control and disarmament and, to that end:
- to cooperate with the Russian Federation in the latter's pursuit
of a safe, secure and environmentally sound dismantlement and/or reconversion
of infrastructure and equipment linked to its WMD;
- to provide a legal and operational framework for an enhanced European
Union role in cooperative risk reduction activities in the Russian Federation
through project-orientated cooperation;
- to promote coordination as appropriate of programmes and projects in
this field at Community, Member State and international level.
Article 2
1. The Programme shall contribute in the first phase to:
- a chemical weapons pilot destruction plant situated in Gorny, Saratov
region, Russia;
- a set studies and experimental studies on plutonium transport, storage
and disposition;
A full description of the activities above is set out respectively in
Annexes I and II.
2. Other projects to be funded under the Programme (in the biological,
chemical and nuclear fields) in the future shall be determined by
the Council, on a recommendation of a Member State and/or the Commision.
Article 3
1. The Council shall entrust the Commission, for the duration of the
Programme and subject to Article 5, with the task of preparing the projects
to be approved, as well as with supervising their proper implementation.
The Commission shall report to the Council, on a regular basis and as
the need arises, under the authority of the Presidency assisted by the
Secretary-General of the Council, High Representative for the CFSP.
2. The Commission shall be assisted by a unit of experts. The number of
members of the unit and the expertise required from them, as well as a
definition of their tasks are set out in the terms of reference appearing
in Annex III. The Commission shall establish as appropriate a Task Force
in Moscow, in order to:
- operate in close coordination with personnel working under Community
funded projects;
- as appropriate, carry out feasibility studies;
- liaise with the local authorities and with the representatives of other
contributing countries;
- negotiate with the local authorities the arrangements necessary for
the implementation of the Programme;
- monitor the expenditure of the funds committed for the implementation
of the Programme;
- assist Member States in identifying and implementing bilateral projects.
Article 4
1. The financial reference amount intended to cover the costs related
to the establishment of the Programme shall be as follows:
- EUR 8900000 for the years 1999 and 2000.
2. The expenditure financed by the amounts stipulated in paragraph 1 shall
be managed in accordance with the European Community procedures and rules
applicable to the budget
3. The European Union shall finance the infrastructure and current expenditure
of the Programme.
4. The Council notes that the Commission intends to direct its action
towards achieving the objectives and the priorities of this Joint Action,
where appropriate by pertinent Community measures.
5. The Council and the Commission shall ensure appropriate coordination
between the Programme, Community assistance and the bilateral assistance
provided by the Member States.
6. This Joint Action shall be the subject to bilateral consultations with
Russia and other partners within the framework of existing political dialogue
meetings.
Article 5
1. The Council shall review annually the actions taken pursuant to this
Programme and shall take the necessary decisions for the continuation
of the Programme beyond 31 December 2001. This review shall also assess
Russian capabilities to absorb and utilise increased assistance.
2. Independent evaluations and audit shall be conducted at periodic stages,
depending on progress.
3. The Council may suspend the Programme if the Russian Federation fails:
- to cooperate fully with the implementation of the programme;
- to allow European Union monitoring and/or periodical external evaluations
and audit to that effect.
Article 6
This Joint Action shall enter into force on the date of its adoption.
It shall expire on the date of expiry of the European Union Common Strategy
on Russia unless the Council decides otherwise in accordance with Article
5(1) of this Joint Action.
Article 7
This Joint Action shall be published in the Official Journal.
Done at Brussels, 17 December 1999.
For the Council
The President
K. HEMILÄ
(1) OJ L 157, 24.6.1999, p. 1.
(2) OJ L 327, 28.11.1997, p. 3.
ANNEX I
EU-Russia chemical weapons destruction project in Gorny
1. Background
In the framework of the implementation of the Chemical Weapons Convention
(CWC), the Russian Federation is committed to construct an industrial
pilot chemical weapons destruction facility at Gorny.
The facility at Gorny (Saratov region) is one out of seven sites
in the Russian Federation earmarked for the destruction of chemical weapons.
It is foreseen that the Gorny facility will process (destroy or recycle)
225 tonnes of lewisite, 690 tonnes of yperite and 210 tonnes of a lewisite-yperite
mixture. This represents about 2,9 % of total stocks earmarked by Russia
for destruction under the Chemical Weapons Convention.
The Chemical Weapons Convention stipulates the total elimination of chemical
weapons by 2007. However, against the background of financial and economic
problems the Russian Federation faces, this task is very complex and surely
requires expanded international support in view of meeting the commitments
taken under the convention.
The site comprises a destruction and detoxification processing line for
the detoxification and recycling of specific mixtures. The technology
for the destruction of lewisite on the basis of hydrolyse and electrolyse
is established, leaving arsine as end-product to be further utilised for
industrial purposes. Some technical problems concerning the destruction
of yperite and yperite/lewisite mixture require some further research.
Russian legislation stipulates that the construction of related social
infrastructure must precede the construction of the destruction facility
itself. This law has been followed by the Gorny project. Much attention
has been attached to confidence building measures, including the establishment
of an environmental monitoring mechanism, and related projects to establish
social acceptability of the destruction facility in the community. Measures
comprise, among others, the purification of water for the facility and
the village, air purification, housing for military officers, soldiers
and workers, medical doctors and teachers. Delegations from Kambarka have
visited the Gorny site. In particular, social acceptability measures are
considered as standard setting and have contributed to change public opinion
in Kambarka for the better.
The international community is assisting Russia in its efforts to implement
the CWC. In particular at Gorny a Russia-Germany joint chemical weapons
destruction project supports the establishment of the destruction facility
since 1993. Gorny production principles will be replicated at the Kambarka
facility, where the same types of weapons are stored and the same storage
method applied. The Gorny facility plays thus an important role in catalysing
chemical weapons destruction in selected other sites. 6400 tonnes of chemical
weapons will be destroyed in Kambarka. So far, 48,5 million DM was spent
on the German side for engineering, materials and special equipment. Support
is provided on the basis of annual appropriations firom the German Federal
budget.
The Russian Federation takes over the funding of infrastructure, construction
and deliveries. For the first time, in 1999, the Russian contribution
to the project outweighed the German contribution considerably. All 1999
budgetary means earmarked for chemical weapons destruction were allocated
to the Gorny project.
2. Status of construction and agenda for the finalisation of the Gorny
facility
Progress has been evaluated and documented by the German side in
August 1999. The report is very positive. Construction advances rapidly.
The "point of no return" was apparently passed. The finalisation
of the lewisite destruction facility is foreseen for the end of 2000,
and the finalisation of the yperite and lewisite/yperite mixtures destruction
facility is foreseen for the end of 2001.
Currently, 50 - 60 % of equipment is already delivered and stored at the
Gorny facility. Installation depends on the finalisation of relevant buildings.
Construction has been completed up to about 90 %.
According to German assessments, additional funding in the order of EUR
15 million is required for purchase of equipment in the next two years
to come. The Russian delegation clarified that the Russian Federation
is fully committed to chemical weapons destruction. Swift foreign assistance
can speed up the process and free funds for the remaining six sites on
which parallel activities are being prepared.
As regards Gorny, the launch of chemical weapons destruction in April
2001 seems realistic (instead of 1999 as foreseen by the original master
plan). According to Russian indications, this is due to the delayed
ratification of the Chemical Weapons Convention and lack of budgetary
resources.
A European project would be highly welcome by the Russian authorities
in view of addressing specific bottlenecks in finalising the facility
and making it operational.
3. Components of the EU-Russia chemical weapons destruction project
in Gorny
The Commission hosted an ad hoc experts meeting on 19 November 1999
in Brussels. Russian and German experts and project managers agreed on
three project components to be addressed and funded as a matter of priority,
thus allowing smooth continuation of the project according to schedule.
Project components were identified, in order of priority, as follows:
1999 EU-Russian Chemical Weapons Destruction Project Gorny
>TABLE POSITION>
Further details:
Component 1: Main equipment parts are available. Construction of buildings
("building 1/1 ") is well advanced. Special expertise is
required for the final installation and fitting of equipment and related
connections. Supervision of works is to be contracted out to a European
integrator. Sub-contracts are to be concluded by the European integrator
with Russian companies for implementation purposes.
Component 2: Filter boxes are to be installed in view of limiting air
pollution through by-products set free in the destruction and recycle
process. Boxes include coal fillings and special equipment for filling/emptying
the filters with coal.
Component 3: Given the high risks related to the transportation of chemical
weapons of mass destruction, specific equipment is required for the transportation
from interim storage at the facility to the destruction line.
Procurement: Components 2 and 3 are to be tendered according to EU procurement
legislation. Given the technological and technical specifics of the equipment
already delivered for the destruction line, Component 1 is to be contracted
out on the basis of a direct agreement to the company that has produced
and delivered the equipment to be installed. Final decision on the funding
of the three components will be taken against the availability of sufficient
financial resources under the Joint Action.
Project management: In order to ensure compatibility and complementarity
of the EU-Russia Gorny chemical weapons destruction project with main
Russia-Germany project, the management of the EU-Russia project is to
be entrusted to the German project manager ("Auswärtiges Amt"
(Foreign Office) in cooperation with "Bundesamt für Wehrtechnik
and Beschaffung" (Federal Office for Arms Technology and Procurement))
in close cooperation with the Ministry of Defence of the Russian Federation
as a state customer for this facility. Close consultation with and regular
reporting to the Head of the Policy and Project coordination section appointed
under the Joint Action (Annex III) is to be ensured. The latter is
to be associated to all bilateral meetings and consultations related to
the EU-Russia project.
ANNEX II
EU-Russia Nuclear weapons related action
1. Background
The proper management of the weapons plutonium released by the disarmament
is of critical importance in the framework of the non-proliferation objective.
The European Commission has, since 1993 and reinforced by the conclusions
on plutonium management of the G8 NPEG meeting of Paris in October 1996,
started discussions with the Russian Minatom (owner of the plutonium once
released by the Ministry of Defence) with the objective of analysing
the different ways of using the plutonium as fuel for reactors. Different
study projects were financed, mainly through the International Science
and Technology Centre. A coordination mechanism was established through
a Contact Expert Group, assembling the concerned Russian organisations,
western partners and representatives of other main international programs
working with the Russians on the subject (France-Germany-Russian Federation
(RF), United States-Russian Federation, Japan (J)-Russian Federation
programmes).
As a result of this coordination activity, the Community is able to propose
a specific set of studies and experimental studies which would clearly
support the Russian side in proceeding on a timely basis with the disposition
of their weapons grade plutonium.
2. Set of studies and experimental studies
2.1. Drafting of a detailed Short Term Action Plan for the
Pu disposition
The political agenda (on going United States-Russian Federation negotiations
and the discussions at the G8 NPEG level) considers the year 2008
to start the commercial operation of plants with fuel containing ex-weapons
plutonium.
A workshop organised jointly by the Commission and Minatom end October
1999 has shown that different partial action plans were developed by different
organizations within different programs, but that there is a clear need
to assemble all the pieces, to establish consistency between the projects
and to fill the gaps, in order to get a fully integrated, exhaustive and
agreed (by all concerned) plan for action. Such a plan must include
the licensing aspects and therefore must involve, as main players, the
plant operators (who will have the responsibility of using plutonium in
their reactors) and the safety authority (who will have the responsibility
of authorising the plant operation with plutonium fuel).
The study supports the designated Russian organisations (in line with
the share of responsibilities for licensing) in drafting such an
integrated action plan. EU specialists having the expertise of designing,
licensing and operating reactor fuel with plutonium would be contracted
to work with the Russian counterparts.
The result could be the integrated, detailed and agreed action plan. Such
a plan would then be recognised at international level, including at G8
level and foster the timely implementation of the political agenda.
Duration: 9 months, Budget: up to EUR 500000.
2.2. Support for defined Russian organisations to build their tools
and expertise required for the licensing of short term plutonium disposition
in Russia.
There is no reason to wait for the action plan to be finalised to launch
some specific studies and experimental studies which already today are
recognised by specialists as being on the critical path for the timely
achievement of the political agenda. Among them two might be retained:
- Support to the Russian side (MINATOM, IPPE, Kurchatov Institute)
to design a required experimental critical facility (not existing today)
to validate the use of plutonium as fuel for VVER reactors, and certify
the calculation codes.
Duration: 1,5 years, Budget: up to EUR 1 million.
- Support to the Russian side (MINATOM, RIAR) for irradiation experiments
in existing research reactors. This would be particularly important to
support the timely usage of lead test assemblies at the Balakovo reactors.
Duration: 1 year, Budget: up to EUR 300000.
2.3. Study of the ways and means for transport and intermediate
storage of the weapons grade Plutonium.
The study would mainly analyse the technical feasibility for transport
and storage in existing installations and/or in new purpose-built installations.
The economic aspects (costs) and non-proliferation aspects (risks
of diversion and safeguards requirements) would be analysed in depth.
As a result recommendations would be made for the most effective and safest
ways to transport and store the plutonium on an interim basis.
Duration: 1 year, Budget: up to EUR 200000.
2.4. Medium term perspective for plutonium disposition.
The Gas Turbine Modular Helium Temperature Reactor (GT MHR) is an
advanced development based on proven technology. Its ability to work without
uranium (only plutonium) makes it highly efficient as plutonium burner.
Moreover, it presents inherent safety characteristics and a high efficiency
(50 %) for electricity and heat production.
Such a reactor is envisaged to be built at Tomsk to replace the Military
Reactors still producing Weapons Plutonium and which can not be stopped
as they also produce heat for the local community. An international Consortium
grouping European Union, Russian, United States and Japanese industries
has been created to support the development and the demonstration of key
technologies, including on the fuel design side.
A specific analysis should be performed to determine the fuel and reactor
design specifics required to maximise the effectiveness of plutonium burning.
As a result, an action plan should be drafted allowing the definition
of future priorities for further projects and supporting the decision
on larger investments for the future development.
Duration: 1 year, Budget: up to EUR 300000.
ANNEX III
Terms of Reference for a unit of experts under the EU Cooperation Programme
for non-proliferation and disarmament in the Russian Federation
The Commission is entrusted with setting up a unit of experts under, and
for the duration of, the EU Cooperation Programme for non-proliferation
and disarmament in the Russian Federation, which will comprise a Policy
and Project Coordination Section at the Commission in Brussels and a project
assistance team based in Moscow, reporting to the Policy and Project Coordination
Section at Brussels.
Experts for the Unit will be identified and appointed by the Commission.
The decision will be taken in close cooperation with Member States and
the Secretary General/High Representative (SG/HR), on the basis of
job descriptions and selection criteria to be drafted by the Commission.
Required experts' qualifications would comprise the following elements:
The Policy and Project Coordination Section in Brussels will comprise
4 EU experts, including the Head of Section, to be administratively supported
by one secretary. The Moscow based project assistance team will comprise
one EU expert and one local Russian technical expert.
The Head of Section will assume overall responsibility for the implementation
of the Joint Action. He will maintain close relations with the EU Presidency,
the Member States and the SG/HR, according to detailed rules to be agreed
upon.
Tasks related to policy and project coordination and development comprise
inter alia the following:
- support coordination of assistance projects and related policies at
Community and Member States levels;
- function as point of contact for international initiatives, supported
by the Commission Joint Research Centre;
- establish a database of projects funded by the European Union and Member
States;
- establish and maintain a database on EU experts, broken down by policy
areas;
- establishing a network of Member States points of contact, supplementing
the competent Council working groups as regards the implementation of
the Joint Action and related activities;
- prepare and submit quarterly progress reports.
Sectoral tasks will cover inter alia the following:
- drawing up a comprehensive sector report;
- providing an in-depth analysis on sectoral core problems;
- identifying projects to address core problems;
- preparing projects to be submitted to the Council in view of possible
future funding under follow-up measures to the Joint Action;
- finalising and implementing projects identified for funding, as appropriate,
in close cooperation with the Moscow based project assistance team.
Specific tasks of the Moscow based project assistance team will comprise:
- close cooperation with personnel working under EU funded projects;
- as appropriate, support to the elaboration of feasibility studies;
- liaise with the local authorities and with the representatives of other
contributing countries;
- negotiate with the local authorities the administrative arrangements
necessary for the implementation of the Programme;
- assist Member States in identifying and implementing bilateral projects;
- facilitating specialised technical assistance.
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