Changes from report parliamentary committee draft to plenary report

AddedL. whereas while most Russian oil and coal imports have been sanctioned, Russian gas and nuclear imports have regrettably remained outside of the EU’s sanctions regime amid concerns over security of supply;

Removed6. Notes the need for a broader approach to flexibility and storage that incorporates molecules and heat; highlights the potential of district heating systems that can use thermal storage to reduce the temperature of the loop and incorporate waste heat, solar and other alternatives;

AddedM. whereas the share of Russian pipeline gas, both liquefied natural gas (LNG) and pipeline, in the EU’s total energy imports significantly decreased from 45 % in 2021 to approximately 19 % in 2024; whereas EU imports of Russian fossil fuels in the third year of the invasion have surpassed the EU financial aid sent to Ukraine in the same period (EUR 18.7 billion in 2024); whereas since the beginning of the war, Russia has earned a total of EUR 206 billion in revenue from fossil fuel exports to the EU; whereas global fossil fuel exports constitute the single largest source of revenue for Russia, amounting to EUR 250 billion per year – equivalent to 160 % of the Russian military budget for this year;

Removed7. Stresses that the impact of climate change on generation assets, networks and consumption patterns should be better integrated into the modelling and preparedness of energy infrastructure;

AddedN. whereas among the 100 reactors operating in the EU, 18 are located in five EU countries and are of Russian or Soviet-design, each with varying levels of built-in reliance on Rosatom, which poses a particular risk to European energy security; whereas in 2024, Russia met around 23 % of the EU’s total demand for uranium conversion services and 24 % for uranium enrichment services;

Removed8. Emphasises that technological neutrality plays a key role in enhancing the security of energy supply while fostering sustainability and economic efficiency;

AddedO. whereas Russia has been circumventing sanctions through its shadow fleet, which transports oil to willing buyers under false flags or without flags and which poses serious environmental risks; whereas Member States have yet to implement the effective measures adopted by the Council in the 15th sanctions package against sanctions evasion through the shadow fleet;

Removed9. Commends the Draghi report which highlights the need to establish a long-term strategy for natural gas that should guide infrastructure development, international partnerships and legislation; notes, with concern, that inconsistent policies on natural gas have weakened the trading position of EU companies, leaving them exposed to global spot market prices and creating a gap between what the EU has contractually secured and what will be imported over time;

AddedP. whereas in its November 2024 resolution, Parliament called for the EU and its Member States to ban all imports of Russian energy, including LNG and nuclear, to require that ships exporting LNG from Russia be banned from entering EU ports and to refrain from concluding any new agreements with Rosatom or its subsidiaries;

Removed10. Stresses that nuclear energy has an important role to play in an integrated energy system with increasing penetration of renewables; underlines the need to support the development of a new generation of nuclear technologies that will contribute to building a competitive technological supply chain in the EU so as to ensure open strategic autonomy;

AddedQ. whereas the absence of an updated robust EU energy security strategy is adversely affecting businesses, industries and households; whereas, among other contributing factors, this has led to a sharp rise in energy poverty with nearly one in ten households (10.6 %) unable to adequately heat their homes in 2023, an increase from 6.9 % in 2021;

Removed11. Recognises that increasing domestic production, including in less developed sectors, such as geothermal, biomethane and marine energy, is crucial to strengthening energy security and should be pursued in a way that reflects regional diversity and the needs of local industries; notes the need to increase natural gas production in the EU and the European Economic Area;

AddedR. whereas attacks against critical energy infrastructure can lead to a loss of power affecting several Member States simultaneously and substantial economic damage, undermine public security and have implications for the EU’s defence capabilities; whereas Europe’s energy sector has been inundated with cyberattacks since Russia’s invasion of Ukraine; whereas the Baltic Sea’s critical energy infrastructure is under regular attack from Russia; whereas the growing number of perimeter harassment incidents against offshore energy infrastructure poses a serious concern;

Removed12. Notes that infrastructure bottlenecks impede the benefits of sector integration and aggravate the threats to energy security; underlines the importance of investing in new energy networks and optimising existing infrastructure;

AddedS. whereas NATO’s role in energy security was first defined at the 2008 Bucharest Summit and has since been strengthened; whereas NATO is strengthening the security of critical infrastructure to prevent sabotage, including through the recently launched Baltic Sentry initiative; whereas NATO is supporting national authorities in enhancing their resilience against energy supply disruptions that could affect national and collective defence;

Removed13. Emphasises the need to invest in the protection of energy infrastructure against military and cyber attacks; notes, with concern, that small distributed energy resources connected to the internet, such as inverters, are not covered by cybersecurity legislation, and that if they are manufactured in non-EU countries, they could give those countries control over EU electricity grids;

AddedT. whereas the integration of the Baltic states’ electricity systems into the continental European network in February 2025 was a critical step towards enhancing their energy security, as it eliminated reliance on the Russian-controlled grid, thereby reducing geopolitical vulnerabilities and strengthening the resilience of the Baltic region;

Removed14. Urges the Member States to address security risks associated with foreign investment in and acquisitions of energy infrastructure;

AddedA new vision for energy security in a changing global landscape

Removed15. Stresses that energy security should include the supply of key technologies and critical raw materials; calls for increased support for the EU’s grid manufacturing industry;

Added1. Recalls that the European Environment Agency defines energy security as ‘the availability of energy at all times in various forms, in sufficient quantities, and at reasonable and/or affordable prices’; considers that a comprehensive approach to energy security should take into account the physical infrastructure dimension, the availability, reliability, stability and affordability of supplies and their sustainability, and should place emphasis on the geopolitical and climate dimensions;

Removed16. Highlights that the EU should prioritise partnerships with like-minded energy suppliers, such as the European Economic Area;

Added2. Stresses that energy security is a cross-sectoral issue that underpins the functioning of all critical sectors, making it indispensable for economic stability, public safety and national resilience; underlines that integrating energy security considerations into relevant policies and their underlying impact assessments is crucial for enhancing the coherence, consistency and overall effectiveness of EU policymaking;

Added3. Emphasises that the current geopolitical situation and continued perilous energy supply dependencies underscore the need to revise the understanding of energy security and recognises that the resilience of energy systems, understood as the ability to anticipate, withstand, adapt to, and quickly recover from possible disruptions, is now a strategic imperative;

Added4. Stresses that as the energy system continues to decarbonise, the share of renewables increases and electrification advances, a well-functioning and integrated energy market, energy efficiency, the integration of flexibility sources (electricity and heat storage, hydrogen, comprehensively developed and resilient infrastructure, demand response, etc.), and sufficient dispatchable capacity will be crucial to successfully manage the intermittency of renewable energy sources and unlock the full potential of the energy transition;

Added5. Highlights that energy security cannot work without adequacy; notes that ‘the scarcity issues tend to shift from the peripheral areas of Europe in 2025 to the central parts of the continent by 2033’; believes that capacity remuneration mechanisms play a structural role in securing dispatchable backup capacity to ensure adequacy during peak times or periods of supply shortages and in helping to incentivise the necessary investments in generating capacity that market signals, relying solely on infrequent scarcity price hours, may fail to justify; underlines the need to ensure that the mechanisms are open to different types of resources (such as demand side, energy savings, aggregation, storage units and cross-border resources) capable of providing the necessary services, such as flexibility, do not create undue market distortions or limit cross-zonal trade, and reflect compatibility with a future decarbonised electricity system, including through coherence with defined emission limits as set out in Article 22 of the EMD Regulation; recalls that remuneration for capacity mechanisms only covers their availability; stresses the urgent need to simplify and streamline their approval processes, as requested by the EMD revision, while giving due consideration to the specific problems of the electricity market in the respective Member States in the Commission’s approval process; notes the Commission report on the assessment of possibilities of streamlining and simplifying the process of applying a capacity mechanism and the ongoing works on the Clean Industrial Deal State Aid Framework with concrete proposals to accelerate the approval process; notes that while the balancing market provides essential short-term services, it is not yet investment-friendly and calls therefore on the Commission to develop incentives to build the flexible assets that balancing markets urgently need;

Added6. Stresses that decarbonisation should take into account the specificities of Member States and their regions, including Europe’s outermost territories and Just Transition Fund regions and their level of access to different types of clean energy sources, the needs of their industries and the vulnerability of their citizens in order to ensure a just transition that maintains energy security by creating synergies between climate ambitions, geographical and natural conditions, and social and economic realities;

Added7. Notes the need for a broader approach to non-fossil flexibility and energy storage that incorporates molecules and heat; highlights the potential of district heating systems that can use thermal storage to reduce the temperature of the loop and incorporate waste heat, solar, geothermal and other renewable sources, where appropriate, using natural gas and biomass in a transition period; draws attention to the important role that the optimal use of high-efficiency cogeneration, in line with the Energy Efficiency Directive, can play in contributing to balancing the electricity grid and to the competitiveness of some industrial sectors, especially those that do not have alternative ways of producing affordable heat in their industrial processes; stresses the need to modernise and expand district heating grids to this end;

Added8. Emphasises that technological neutrality plays a key role in enhancing the security of energy supply while avoiding lock-in effects and fostering sustainability, economic efficiency and a just transition; recalls the need to invest in a diverse portfolio of clean technologies that allow regions to adopt technologies best suited to their needs in a cost-effective way, making energy more affordable and accessible;

Added9. Notes that the Draghi report highlights that a reduction in dependency on fossil fuel imports would enhance EU competitiveness and the affordability and security of supply; notes that natural gas is currently a component of the EU’s energy security, with demand of 320 bcm in 2024, and notes the International Energy Agency (IEA) forecasts indicating a moderate demand of 260 bcm annually by 2035, while a REpowerEU scenario projected a possible demand reduction of 184 bcm by 2030, implying an approximate 50 % slash in natural gas demand in less than five years, compared to demand of 356 bcm in 2022; recalls Draghi’s proposal to establish a comprehensive strategy for natural gas, managing its role during the transition and securing its supply, that should guide infrastructure choices, international partnerships and legislation; notes, with concern, that inconsistent policies on natural gas have weakened the trading position of EU companies, leaving them exposed to global spot market prices and potentially creating a gap between what the EU has contractually secured and what will be imported over time;

Added10. Stresses that the development of nuclear energy remains a national prerogative in the framework of EU law; notes that for the Member States that choose to have nuclear power in their energy mix, it can have an important role to play in an integrated energy system with increasing penetration of renewables; notes that a number of Member States see a need to support the development and deployment of both existing and a new generation of nuclear technologies, as well as the entire nuclear fuel cycle, that will contribute to building a competitive technological supply chain in the EU so as to ensure open strategic autonomy; stresses the importance of assessing the full cost of the entire nuclear energy life cycle, including construction, operation, security, environmental and health impacts, waste management and decommissioning; notes the existing and ongoing reliance on foreign providers, with approximately 97 % of the EU’s natural uranium supply in 2022 coming from oversea sources and stresses the need to diversify uranium and nuclear fuel supply sources and to follow the Euratom Supply Agency’s recommendation in developing reliable supply chains to meet the growing demand for nuclear and new nuclear technologies; notes, in this regard, the European Investment Bank’s recent decision to renew its support for strengthening European uranium enrichment capacities; underlines that small modular reactors (SMRs) and advanced modular reactors (AMRs) have the potential to enhance energy security by providing low-carbon power; notes, however, that the technology is not yet fully developed; welcomes the announced assessment of the possibility of streamlining licensing practices for new nuclear energy technologies such as SMRs;

Added11. Recognises that renewable energy constitutes an enabler of energy autonomy and long-term security of supply; stresses that renewables are essential in delivering energy security as they already constitute the main source of home-grown energy for the EU; highlights the importance of maximising the use of existing renewable capacities, particularly by tackling the issue of curtailment, as grid congestion in the EU curtailed over 12 TWh of renewable electricity in 2023, resulting in an additional 4.2 million tons of CO₂ emissions; notes that renewables have already helped to reduce EU dependence on Russian gas as they accounted for 25 % of the energy and 45 % of the electricity consumed in the EU in 2023; reaffirms the importance of sustained EU support for the development and deployment of established renewable technologies, such as solar, wind power, geothermal and heat pumps; reiterates the necessity of policy and investment support for less developed or emerging sectors in order to accelerate the deployment of renewable technologies that are the most relevant given their national and local circumstances, such as innovative geothermal technologies, biomethane, solar thermal, marine energy, tidal energy, osmotic energy and concentrated solar power; expresses concern that, without targeted support policies, some innovative technologies may fail to reach commercialisation in a timely manner, and therefore calls on the Member States to support their research, demonstration, market adoption and scale-up; calls on the Commission to present an investment plan for these renewable technologies;

Added12. Notes, in particular, the potential of geothermal energy, estimated to reach 510 GW by 2035 at a capacity factor of 80-90 %; highlights the vast untapped resources in certain EU regions and calls on the Commission to deliver on Parliament’s call to support the development of geothermal energy, including through the establishment of risk mitigation instruments;

Added13. Asks the IEA to conduct an analysis to assess the possibilities for using EU natural gas resources; notes that domestic EU natural gas production dropped by more than a third between 2020 and 2023 and that this decline is expected to continue with no significant near-term increase in the production of green gases, including biogas and biomethane, in the EU; notes that Draghi’s report highlights that while progressively decarbonising and moving to hydrogen and green gases in line with RED III and REPowerEU as a transitional measure, domestic natural gas production – where deemed justified by individual Member States – could also play a role in contributing to security of supply and avoiding exposure to negative geopolitical developments;

Added14. Highlights that diversification is vital to mitigate the risk of supplier dominance in a changing geopolitical context; believes the EU needs to strengthen international partnerships with reliable suppliers of energy, raw materials and clean-tech components in all regions of the world, and, in particular, with European Economic Area countries;

Added15. Underlines that enhancing energy security requires a holistic approach, notably through improving energy efficiency in key end-use energy sectors, such as buildings and industry, promoting energy savings, boosting investment in research and development, and ensuring meaningful citizen participation, all of which are essential to achieving a resilient, sustainable and inclusive energy system;

Added16. Calls on the Commission to be mindful of future military capability and mobility needs in the development of the EU’s energy system; notes, with concern, that the EU is highly import-dependent for crude oil and petroleum products; calls on the Commission to prepare a comprehensive strategy on liquid fuels in order to ensure their readily available access for the military in a crisis situation, and to reduce dependencies on vulnerable import chains and unreliable producers, particularly thorough the development of advanced synthetic fuels (such as sustainable aviation fuels and e-fuels) in Europe;

Added17. Draws attention to the Niinistö report’s recommendation on the need for further work on priority dual-use transport corridors for civilian and defence-related logistical needs, and on the expansion of fuel supply chains for the armed forces along these corridors, as well as stockpiling and strategic reserves of energy, that could be particularly useful for the regions with insufficiently developed pipeline infrastructure and fuel storage; calls, in this respect, on the Commission to review the Oil Stocks Directive in the light of recent geopolitical shifts and the military readiness needs in order to strengthen energy security and resilience against emerging military risks;

Added18. Acknowledges the rapidly accelerating energy demand driven by the digital sector, particularly the substantial energy requirements of data centres and artificial intelligence systems; stresses that this trend highlights the urgent need for robust energy efficiency policies and underscores the importance of the EU proactively pursuing sustainable, forward-looking solutions to meet this growing demand while safeguarding the resilience of its energy system;

AddedA resilient energy infrastructure

Added19. Notes that infrastructure bottlenecks impede the benefits of sector integration and aggravate the threats to energy security; underlines the importance of investing in new energy networks, including cross-border interconnectors and offshore grids, and optimising existing infrastructure to increase capacity using grid-enhancing technologies (GETs) while reducing new infrastructure needs, in order to enable the integration of renewables and other new generation facilities, close price gaps, improve the overall system efficiency and foster solidarity among the Member States in the event of an energy crisis; emphasises the need for technically sound infrastructure planning that takes into account geographical and natural characteristics while ensuring long-term viability and avoiding the creation of stranded assets;

Added20. Calls on the Commission to urgently assess areas where interconnectors are insufficient so as to achieve the current 15 % interconnection target as set out in Regulation (EU) 2018/1999; stresses the importance of Projects of Common Interest (PCIs) in facilitating the efficient and secure flow of electricity across Member States and regions, thereby strengthening cross-border integration and energy solidarity within the EU; acknowledges the role of the Connecting Europe Facility for Energy (CEF-E) in completing the above investments and reiterates its call for its funding to be significantly increased when proposing the next multiannual financial framework;

Added21. Calls on the Member States to accelerate permitting procedures for electricity installations and networks; notes that excessively long permitting procedures could create legal uncertainty, undermining resource adequacy by delaying the implementation of critical projects – whether for repowering or revamping existing generation sites, or for developing transmission, distribution, or storage infrastructure; welcomes the positive progress made regarding provisions adopted in the latest revision of the Renewable Energy Directive and the Emergency Regulation on Permitting to accelerate, streamline and simplify permit-granting procedures;

Added22. Recalls that climate change continues to worsen, placing increasing stress on the energy system due to extreme weather events, such as heat waves, that lead to thermal power plant shutdowns, droughts that reduce generation output, and severe storms, floods and fires that damage electricity grids and gas pipelines; stresses that the impact of climate change on generation assets, networks and consumption patterns should be better integrated into the modelling and preparedness of energy infrastructure; emphasises the need for resilient energy system planning, incorporating climate-adaptive strategies such as advanced cooling technologies, grid flexibility, decentralised renewable generation and strengthened infrastructure protections; highlights the importance of integrating a climate-proofing plan, grounded in an initial risk-based assessment, into energy projects from the earliest stages of development;

Added23. Calls on the Commission to build on Directive (EU) 2022/2557 on the resilience of critical entities by facilitating its full and harmonised implementation through the provision of best practices, guidance materials and methodologies, and cross-border training activities and exercises to support Member States, competent authorities and critical energy entities;

Added24. Emphasises the need to invest in the protection and resilience of energy infrastructure against human-caused threats, such as military, hybrid and cyber attacks; expresses concern about recent sabotage incidents in the Baltic Sea and calls for stronger EU-level action to protect the EU’s critical energy infrastructure, including cross-border connections with non-EU countries, such as subsea pipelines and cables, offshore wind farms and interconnections, designed to support the most impacted Member States, and to complement national measures; welcomes, in this regard, the joint communication on the EU Action Plan on Cable Security;

Added25. Notes that the decentralisation of the energy system, that both strengthens resilience and facilitates the energy transition, and increased diversity of sources and autonomy, reduce reliance on centralised power plants, minimise outage risks, enhance grid stability, and enable quicker recovery from disruptions; emphasises at the same time that the increased number of remote and dispersed sources of energy, energy storage and new connections require enhanced measures to ensure robust infrastructure protection;

Added26. Calls on the Commission to draw on the lessons learned from the war in Ukraine, particularly the critical role of electricity interconnection, microgrids, distributed solar power, wind power and battery storage in ensuring greater resilience of the electricity grid against military attacks, including cyberattacks, drones and missiles; commends Ukraine’s sustained efforts to maintain the functionality and safety of its energy system in the face of Russia’s war of aggression, and underscores that supporting Ukraine also entails helping to safeguard the soundness of its national electrical grid;

Added27. Notes, with concern, that small distributed energy resources (DERs) connected to the internet, such as inverters, are not covered by appropriate conformity assessment procedures under cybersecurity legislation, such as the Cyber Resilience Act, and since they can be remotely controlled and their software updated by the manufacturer, which, in many cases, are non-trusted vendors, they could give these non-trusted vendors control over EU electricity grids; urges the Commission to establish mandatory risk assessments for DERs based on the country of origin, ensuring that devices controlled from jurisdictions with potential security concerns are subject to strict oversight and localisation requirements; calls for enhanced resilience in European supply chains by promoting EU-based manufacturing of DERs and fostering alliances with trusted international partners; highlights the need for an adequate number of professionals specialised in cybersecurity and close coordination among Member States to address these vulnerabilities;

Added28. Calls on energy companies that manage critical infrastructure to work closely with the EU Agency for Cybersecurity and equip themselves with the most advanced cybersecurity tools; considers that cooperation with NATO in the field of cybersecurity should be strengthened in order to counter hybrid threats to Europe’s energy security;

Added29. Notes that the Member States need to do their utmost to increase their resilience, which encompasses the ability to prevent, protect against, respond to, resist, mitigate, absorb, accommodate and recover from incidents, taking into full account the interdependence of the EU energy market and the potential domino effect that infrastructure failures in one country may have across the Union; underlines, in particular, the need to strengthen the recovery aspect, which could be achieved through an efficient European repair and response mechanism and national and regional operational plans, which could serve as an important element of the EU’s deterrence strategy; notes the importance of EU solidarity in responding to potential infrastructure incidents, ensuring coordinated action and mutual support among Member States;

Added30. Recalls that energy infrastructure constitutes a particularly sensitive sector in need of protection against foreign interests; urges the Member States and the Commission to address security risks associated with foreign investment in and acquisitions of energy infrastructure; expresses concern about a series of potentially sensitive foreign investments, particularly in grids; welcomes, in this regard, the ongoing revision of the Foreign Investment Screening Regulation as a timely step towards adopting a stringent strategic approach to the development and oversight of European energy infrastructure;

Added31. Stresses that energy security should include the supply of key clean technologies, components and critical raw materials and notes the need for their diversified sourcing; calls for increased support for the EU’s grid manufacturing industry as a strategic pillar of the energy transition, with particular emphasis on ensuring a fair and competitive regulatory environment for European manufacturers, while exploring the potential for local content requirements to strengthen energy security, supply chain resilience and industrial competitiveness; calls for an update of the Public Procurement Framework to simplify and reduce the administrative burden for grid operators to access the needed grid technologies;

Added32. Emphasises the importance of integrating circularity principles into the design of critical infrastructure and equipment, and calls for increased support for their implementation, with the goal of reducing the EU’s dependence on imports of foreign raw materials and enhancing resource efficiency;

Phase out of Russian energy supplies

Change 3

Removed17. Expresses concern that the EU is increasing its reliance on Russian gas as it imported 30 % more natural gas from Russia in May 2024 than in September 2022;

Added33. Highlights that the challenges posed by a lack of solidarity in the EU and by some Member States prioritising particular interests have made the whole continent aware of the dangers of dependence on an unreliable energy supplier weaponising energy exports; underlines that the lessons learned from Russia’s war of aggression against Ukraine need to be at the core of future EU actions, particularly highlighting the critical importance of a united European response in order to eliminate perilous dependencies in energy supplies;

Removed18. Stresses that the roadmap for phasing out Russian energy imports must pave the way for their definitive end as soon as possible, including nuclear and related technologies;

Added34. Underlines that the EU has made advances in reducing its energy dependence thanks largely to the REPowerEU plan and the 16 sanctions packages, leading to a decline in imports of Russian gas (pipeline and LNG) from 45 % of total EU gas imports in 2021 to 19 % as of 2024;

Removed19. Expresses concern that official data does not provide a complete picture of Russian energy imports, as relabelled Russian oil and gas continue to enter the EU market; notes with regret that this often happens with the tacit approval of EU Member States;