ANNEX 3
of the Commission Implementing Decision on the Annual Action Programme 2013 for
Nuclear Safety Cooperation to be financed from the general budget of the European
Union
Action Fiche for Jordan Nuclear Safety Cooperation
1.
IDENTIFICATION
Title/Number
JO3.01/13 Provision of assistance related to developing and
strengthening the capabilities of Jordan Nuclear Regulatory
Commission (JNRC) and the radioactive waste management in
Jordan
Total cost
Total estimated cost: EUR 2 million
Total amount of EU budget contribution
Instrument for Nuclear Safety Cooperation (INSC)
Aid method /
Method of
implementation
Project approach:
DAC-code
23064
Direct centralised management –Procurement of services
Sector
2.
RATIONALE & CONTEXT
2.1.
Summary of the action and its objectives
Nuclear Safety
This project participates to the establishment of the nuclear safety legal framework in
Jordan by developing corresponding regulations and normative documents. It supports
the national Regulatory Authority capacity building and addresses the radioactive
waste management issue.
2.2.
Context
As Jordan’s existing power stations offer a total generation capacity of 2,400
megawatts, the country is forced to buy electricity from neighbouring Arab countries
to meet its domestic needs.
The rapidly increasing cost of oil, and almost complete dependence on foreign
resources in a politically sensitive area and the expected availability of commercially
mineable uranium ore, Jordan has embarked on a nuclear programme for peaceful
purposes. Jordan has decided to start uranium mining; to construct a research reactor
for research and for medical isotope production, and to construct a nuclear power plant
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(NPP) for power generation. Jordanian energy plans envisage the NPP to be in
operation by 2022.
The national strategy plan foresees that by 2030 or 2040, nuclear power shall provide
30% of the country's electricity. To obtain support in the safe implementation of the
nuclear programme and construction of the NPP, Jordan has concluded several nuclear
cooperation agreements, e.g. with Canada, China, France, Russia, Spain, South Korea,
and the United Kingdom. One of the pre-conditions for the above programme is to
develop the necessary infrastructure starting from the legislative framework and the
enhancement of capabilities of the regulatory body in order to ensure adequate control
of nuclear activities and other uses applications of ionising radiation, from the point of
view of the nuclear and radiation safety.
In 2007, the former JAEC (Jordan Atomic Energy Commission) established in 2001
and previously reporting to the Ministry of Energy and Mineral Resources (MEMR
had duties related to radiation protection and nuclear energy. Later it was divided in
two independent entities - one still named JAEC and the other named the Jordan
Nuclear Regulatory Commission (JNRC). The reason for this act was to separate
promotional (JAEC) and regulatory (JNRC) functions of the state in line with the
international safety standards and best practice. At present JNRC is independent but is
not yet able to deal with the planned parallel applications for new nuclear activities
(e.g. NPP development) according to the internationally accepted safety standards.
This is one of the reasons why Jordan has applied for EU support for the JNRC.
The JNRC has started to build up capabilities for the independent Technical
Assessment and Review of Nuclear Licensee’s documentation and activities, which
may lead to the foundation of an independent Technical Support Organisation (TSO)
in the country. This TSO will be included in this project, if it is established during the
timeframe of the project.
Jordan has developed a strategy and legal requirements for radioactive waste
management, but it requires support to bring this as much as possible in line with the
relevant international standards (IAEA, EU directives and regulations) and best
practice and experience. Jordan has a site for intermediate storage of radioactive waste
under the responsibility of JAEC. It also has a disposal facility, which is part of a
centralised disposal facility for hazardous waste under the responsibility of the
Ministry for Environment. The management of the radioactive waste disposal facility
needs to be improved in the area of occupational radiation protection.
2.3.
Lessons learnt
Lessons learned from previous EU projects JO3.01/08 and JO3.01/10 (see Section
2.4.), which started mid-March 2010 and September 2012 respectively will be taken
into consideration in this project implementation. Initial results have shown the need
for a follow-up project in order to reinforce the on-going regulatory activities and
develop new ones. Cooperation between the EU and the Jordan authorities developed
very efficiently during the first two projects.
2.4.
Complementary actions
This project is directly linked to the on-going project JO3.01/10 (see Section 2.4).
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2.5.
Donor coordination
Jordan extensively benefits from technical cooperation programmes of the
International Atomic Energy Agency (IAEA). For the years 2010-2011 the following
IAEA Technical Cooperation projects have been carried out:

Supporting a Technical and Economic Feasibility Study for a Nuclear Power and
Water Desalination Plant (JOR/4/005);

Establishing a Research Reactor (JOR/4/007).

Preparing Regulations, Codes, Guides and Standards for a Nuclear Power Plant,
Research Reactor and Radiation Facilities (JOR/9/009).
The following IAEA Technical Cooperation projects are to be carried out in 20122013:

Developing Nuclear Infrastructure for the Construction and Operation of a Nuclear
Power Plant (JOR/2/007);

Establishing a Uranium Extraction Laboratory and Quality System (JOR/2/008);

Enhancing National Capabilities for Safety Assessment and Effective Use of the
Research Reactor (JOR/1/005);

Strengthening the Regulatory Capability of the Jordan Nuclear Regulatory
Commission (JNRC) (JOR/9/010);

Upgrading the Infrastructure for Radioactive Waste Management (JOR/9/011).
The proposed project and activities will be coordinated with the above mentioned
and other IAEA-funded projects (e.g. Regulatory Cooperation Forum, RCF).
In addition, special attention will be given to cooperation activities of other donors
(e.g. US Nuclear Regulatory Commission). JNRC will therefore give detailed
information on any other projects within the Cooperation Plan to be established/
updated under Task 1 of this project.
3.
DETAILED DESCRIPTION
3.1.
Objectives
The project will build on and complement the previous project JO3.01/10. It aims at
improving (i) the legislative basis (i.e. laws) and developing regulations and
supporting normative documents (e.g. guidance) for all aspects of nuclear and
radiation safety, and (ii) the operational capability and training of the regulatory staff
(both practical and normative aspects). Another objective is to support (iii) the
improvement of the radioactive waste management in Jordan.
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3.2.
Expected results and main activities
This project will consist of the following tasks:
–
Component A Support to the regulatory body
–
Task A1
Update of the Strategic Plan, the Action Plan and the Cooperation
Plan in the field of capacity building for the enhancement of National
Regulatory Body including an overview of the present situation
Subtask A1.1 - Update of the Strategic Plan and the Action Plan
This is a follow-up action of the first two cooperation projects between Jordan through
the INSC programme. This task, together with sub-task A1.2, will provide input for
continued cooperation.
The Strategic Plan is a national development plan established by JNRC and assisted by
the EU Consultant during project JO3.01/08. It is being updated under the JO3.01/10
project The Plan will be also updated, clearly describing Jordan’s needs, objectives
and priorities in the regulatory field.
Support will also be given to update the national Action Plan of the regulatory body.
In this document JNRC’s short and medium term objectives should be clearly and
realistically identified, taking into account the absorption capacity of JNRC, the
availability of EU funds, as well as project implementation periods. The Action Plan
shall outline the development and expansion of the JNRC for the next five years
especially in view of licensing of the new NPP, a subcritical assembly, a 5 MW
research reactor and the mining facilities.
Subtask A1.2 - Update of the Cooperation Plan
Based on the Action Plan and the Strategy Plan, the Cooperation Plan for INSC is to
be updated, including an indication of the resources (personnel, technical, training
components) required as well as mentioning any other possible donors' contributions.
–
Task A2:
Assistance in the field of regulatory framework (legislation,
regulations, and guidance)
The task is a continuation of the EU support in establishing an effective regulatory
framework, in particular in the development of the legislative pyramid in accordance
with the international conventions, IAEA safety standards and EU directives,
regulations and experience. It builds on the activities of the previous EU and other
projects.
The high level (primary) legislation is planned to be fully in place by the start of this
project, but depending on the actual situation advice in this area may be given. The
focus is expected to be on the implementation of the legislation.
Support will involve review of legislative documents, such as regulations and
guidance in the following areas:
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
The safe use of nuclear energy,

Safety and security of radiation sources,

Legal provisions of licences and permits,

Financial provisions for licences and approvals,

Radiation protection,

Management of radioactive waste and spent fuel,

Transport of radioactive materials,

Mining and processing of mineral resources which may be radioactive such as
uranium ore.
Depending on the needs of Jordan the result of this task will be text proposals and
recommendations for improvements.
–
Task A3:
Assistance in the field of authorization (licences and permits)
The application of the principles of nuclear and radiation safety in the development of
a NPP and other nuclear facilities should be ensured from the first phases of its
planning (siting) and design through the lifetime of the facility until decommissioning
or until closure of a disposal facility, including post-closure period. This task is aimed
at enabling JNRC and its eventual TSO to make adequate and best use of the
experience of EU member states during technical review and licensing so JNRC will
be able to enforce the up to date international safety standards from the beginning of
those activities.
Project activities will be dedicated to licensing activities, and training on regulatory
review and assessment of new activities and facilities using radioactive material.
Selected parts of the documentation submitted in support to licensing applications will
be reviewed by EU experts in parallel with the review activities by JNRC (and/ or its
Technical Support Organisation) experts. JNRC expects the following licensing
activities in the scope of this project: assessment of an updated Preliminary Safety
Analysis Report of the research reactor; application for a siting permit for a NPP, and
a Preliminary Safety Analysis Report of one or more NPPs; application for new
uranium mining activities and possible upgrades of the radioactive waste storage
facilities.
–
Task A4:
On-Site Support
Organization(s) of JNRC
to
JNRC
and
the
Technical
Support
The objectives of this task is to support a strong regulatory oversight performed by
JNRC and its eventual Technical Support Organisation and to support them in
enhancing their regulatory effectiveness in a number of main regulatory areas such as
regulatory management practices, the development of regulatory competencies, the
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establishment of regulations, review of safety assessment, conduct of licensing and
inspection.
In order to achieve these objectives, a consultant will give support, including on-site
direct management support to the JNRC with EU experts, who have relevant practical
regulatory and senior management experience.
The EU experts will work together with the JNRC and its eventual Technical Support
Organisation(s), focusing on management advice in all agreed areas, including
management of regulatory activities in the JNRC, regulatory inspection and
enforcement of nuclear and radiation safety.
–
Task A5:
Training and qualification of JNRC staff
This task shall support JNRC and eventual TSO staff to receive further training and to
participate in national, regional and international conferences/workshops related to
nuclear safety and radiation protection to strengthen their network and increase
technical and regulatory competence.
The existing training plan for the professional development of JNRC shall be updated
and maintained. The plan shall take into account the programmes/events which are
routinely proposed by international organisations (e.g. IAEA or EU training and
tutoring project). The training must be based on the actual needs of JNRC staff.
Necessary resources and a realistic schedule shall be included in the plan. The main
general areas of the training are as follows:

Basic training in regulatory control,

Nuclear safety and radiation protection;

Nuclear fuel cycle (from siting to decommissioning),

Transport of radioactive material,

Radioactive waste management (e.g. processing, storage and disposal),

On-site regulatory inspections, objectives, approach, programme, and guidance.

Civil structures, mechanical structures and components: safety requirements and
regulatory review approach, inspection activity during construction

Environmental and seismic qualification requirements for safety related system,
structures and components

Requirements for Probabilistic Safety Analysis and regulatory review approach and
objectives,
Support will not cover meetings where presence is a legal obligation.
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–
Task A6:
Radiation protection of workers (guidelines,
enforcement, and inspection of occupational exposure)
instructions,
The support will be oriented to radiation protection of workers in all applications with
strong emphasis on the guidance for radiation protection in industrial applications.
Recommendations will be made to the regulatory body on updating of legislation and
requirements in line with theEU legislation. This will include advice on the regulatory
use of the registry of occupational exposure, as well as support in training staff of
JNRC or users of radioactive sources in methods and skills to enforce those
requirements and ensure compliance with them through inspection.
The initial phase of the task will be mapping the needs of the beneficiary and
stakeholders. Needs for some additional specialized equipment can be identified for
later procurement (future separate project). No supply of software or equipment is
foreseen under this project.
The general objectives are to help:

developing written procedure for authorization, enforcement and inspection;

developing instruction and procedures on radioactive waste management;

developing instructions and procedures on emergency preparedness and
response in relation with radiation facilities.
To achieve these objectives, recommendations will be made to the regulatory body on
updating of existing legislation and requirements in line with the EU legislation. The
initial phase of the task will be mapping the needs of the beneficiary and stakeholders.
Needs for some additional specialized equipment can be identified for later
procurement (future separate project). No supply of software or equipment is foreseen
under this project. The support will be oriented to radiation protection of workers in all
areas and applications, but with a strong emphasis on the guidance for radiation
protection in industrial applications. This will include in particular advice on the
regulatory use of the registry of occupational exposure, as well as support in training
staff of JNRC or users of radioactive sources in methods and skills to enforce those
requirements and ensure compliance with them through inspection.
–
Component B Strengthening radioactive waste management in Jordan
This component will help Jordan to implement the comprehensive radioactive waste
management strategy.
–
Task B1:
Framework analysis
The existing status of the radioactive waste strategy and the relevant regulations will
be analysed and improvements will be recommended based on EU legislation and
experience and well as internationally accepted safety standards (e.g. IAEA), by
involving the relevant stakeholders, including the Ministry for Environment, JNRC
and JAEC.
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–
Task B2:
Analysis of Radioactive Waste Generation and Management
Infrastructure
The actual radioactive waste management arrangements, including review of waste
generators, distribution of responsibilities, available processing, storage and disposal
facilities, transport (on and off-site) arrangements, nuclear security arrangements,
emergency preparedness and environmental monitoring, will be analysed. The relevant
installations include the JAEC waste storage facility, the central disposal facility at
Swaqa site and mining facilities. The analysis will include a feasibility study for
transferring used ionising radiation sources from the Swaqa Waste Disposal Site to the
JAEC intermediate storage location.
Improvements will be recommended, based on EU experience, EU legislation and
IAEA safety standards.
–
Task B3:
Training on Occupational Radiation Protection and Waste Safety
A long term training plan will be developed for staff, which has to handle radioactive
waste including waste disposal, for achieving and maintaining the necessary
capabilities, based on EU legislation and experience. It will focus on radiation
protection and waste safety (operational and post-closure). Staff at relevant locations
for handling, processing, transporting, storing and disposing of radioactive waste
management will receive proper training.
3.3.
Risks and assumptions
The project will take place in an unsecure region. Due to these developments the
security situation in Jordan might deteriorate. This will be detrimental to the
implementation of the project. Problems of governance could negatively affect the
results to be achieved under the project. These risks are being mitigated by
promoting inter-agency cooperation for example through the organisation of regular
meetings between the main partners under this project.
Effective implementation of the project depends on the full support from the national
authorities and institutions identified as partners.
Adequate monitoring during the project implementation phase will take place in order
to detect at an early stage possible deficiencies. This monitoring will also be carried
out to ensure that the partners will mobilise the necessary capacity and capability for
the management of the project cycle as well as make the required human resources
available.
3.4.
Cross-cutting issues
The project contributes to the improvement of the governance in the policy area of
nuclear safety. It will enhance the capacity and regulatory capabilities of the Jordan
National Nuclear Regulatory Commission and will increase the capacity of the
authorities in charge of radioactive waste management.
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The project tasks will contribute to the overall improvement of the living conditions
of the population concerned, and to environmental sustainability. It will reduce the
current health and environmental risks resulting from the present state of radioactive
waste management and of contaminated sites. In particular, remediation of the most
urgent problems of the legacy sites in Jordan will benefit the citizens by substantially
reducing the exposure of the public to sources of ionising radiation.
3.5.
Stakeholders
The main stakeholders will be for component A: JNRC and its future Technical
Support Organisation and for component B: JAEC and the Ministry of Environment.
4.
IMPLEMENTATION ISSUES
4.1.
Financing agreement
In order to implement this action, it is foreseen to conclude a financing agreement
with the partner country, referred to in Article 184(2)(b) of the Financial Regulation.
4.2.
Indicative operational implementation period
The indicative operational implementation period of this action, during which the
activities described in sections 3.2. and 4.3. will be carried out, is 36 months, subject
to modifications to be agreed by the responsible authorising officer in the relevant
agreements.
4.3.
Implementation components and modules
4.3.1.
Procurement (direct centralised management)
4.4.
Subject in generic terms, if possible
Type (works, Indicative
Indicative
supplies,
number
of trimester of
services)
contracts
launch of the
procedure
Support to Regulatory Authority
Services
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3/2015
Scope of geographical eligibility for procurement in direct centralised and
decentralised management
Subject to the following, the geographical eligibility in terms of place of
establishment for participating in procurement procedures and in terms of origin of
supplies and materials purchased as established in the basic act shall apply.
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The responsible authorising officer may extend the geographical eligibility in
accordance with Article 14(7) of the basic act on the basis of the unavailability of
products and services in the markets of the countries concerned, for reasons of
extreme urgency, or if the eligibility rules would make the realisation of this action
impossible or exceedingly difficult.
4.5.
Indicative budget
Module
4.3.3. – Procurement (direct centralised)
Third party
contribution
1.900
N.A.
4.7. – Evaluation and audit (indicative)
60
N.A.
4.8. – Communication and visibility (indicative)
40
N.A.
0
N.A.
2.000
N.A.
Contingencies
Totals
4.6.
Amount in
EUR
thousands
Performance monitoring
The project will be subject to Results Oriented Monitoring providing valuable insights
for each specific project but also on the performance of the contractor on the global
tasks.
Next to Result Oriented Monitoring the project will be monitored internally using
traditional project management Key Performance Indicators (KPI), such as:
 Achievement of milestones,
 Progress reports and technical reports,
 Use of resources.
The long term aspects will be based on Key Performance Indicators to be specified in
the Terms of Reference (ToR). They will be defined so as to quantify the mediumlong term impact of the projects. The implication of the partner country in this
evaluation exercise is important for the sustainability of the activities.
Possible specific Key Performance Indicators could be:
 number of legislative documents developed/reviewed,
 training programme (material, number of staff trained),
 Technical Specifications for equipment.
Each of the indicators should be amenable to an exercise of goal setting, whereby
milestones for the values of the indicators can be set in conjunction with global
strategic plans.
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4.7.
Evaluation and audit
The project will be monitored in compliance with standard procedures. Monitoring
and assessment should be based on periodic assessment of project activity progress,
achievement of project outputs and its objectives.
In addition to the follow-up and controls carried out on the spot, as necessary, by the
Commission, including the European Antifraud Office (OLAF) and the Court of
Auditors, projects shall be monitored on a regular basis by appropriately qualified
specialists based in the field. Independent ex-post evaluations will be conducted
periodically, in order to assess the relevance, effectiveness, efficiency and impact of
the programme.
4.8.
Communication and visibility
Visibility activities will be implemented according to well-defined standards and
rules: the EU visibility guidelines for external actions. These guidelines are a part of
the contractual obligations of implementing partners/Consultants and must therefore
be carried out in the same way as any other contractual element.
On a regular basis, the Consultant will submit Progress Reports to the European
Commission with copies to the Project Partner, the EU Delegation in the partner
country, the EU Joint Research Centre and the EU Monitoring Team. The Consultant
shall pay particular attention to the confidentiality of the data.
Other deliverables dedicated to visibility may include:
•
an inception press release at the start-up of the project;
•
a final press release to be provided with the project final report;
•
a final presentation meeting for the dissemination of the project results
organised by the Consultant.
Other actions to disseminate results or increase the visibility of the EU action may be
implemented in parallel to the present projects.
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