The Stepwise Approach to Decision Making for Long-Term Radioactive Waste Management: Activities of the OECD/NEA Forum on Stakeholder Confidence

Author(s):  
C. Pescatore ◽  
A. Va´ri

The context of long-term radioactive waste management is being shaped by changes in modern society. Values such as health, environmental protection and safety are increasingly important in our society, demanding new forms of risk governance in dealing with hazardous activities. These changes necessitate, in turn, new forms of dialogue and decision-making processes that include a large number of stakeholders. The development and implementation of radioactive waste management schemes take place over a long time scale, on the order of decades. In this complex context, a “decision” no longer means opting, in one go and for all time, for a complete package solution. Instead, a decision is one step in an overall, cautious process of examining and making choices that preserve the safety and well-being of the present generation and the coming ones while not needlessly depriving the latter of their right of choice. Consideration is thus increasingly being given to concepts such as “stepwise decision making” and “adaptive staging” in which the public, and especially the most affected local public, are meaningfully involved in the planning process. This paper is based on the work of the Forum on Stakeholder Confidence. It reviews the current developments regarding the stepwise approach with the aim to pinpoint where it stands, to highlight its societal dimensions, to analyse its roots in social sciences, and to identify guiding principles and issues in implementation.

Author(s):  
Ian Upshall

The creation and subsequent access to accurate information is widely accepted as a vital component of a national radioactive waste management strategy. Information on the origin and quantity of the waste together with its physical, chemical and radiological characteristics provides a catalyst for sound and transparent decision making. This information will originate from a number of potentially disparate sources, including material manufacturers, facility operators, waste producers, Government and Non-Government organisations and regulators. The challenge to those with a role in information management in further increased by the fact that much of the information created is required to support activities, not only in the immediate future, but also in the longer-term — typically many decades or even centuries. The International Atomic Energy Agency (IAEA) has published a number of guidance documents under the Safety Series, one of which makes direct reference to information management. The document [1] is intended to assist Member States in the development of a national system for radioactive waste management and identifies the key responsibilities and essential features of such a system. The following statement appears in Section 5: “The regulatory body, the waste generators and the operators of radioactive waste management facilities should maintain documentation and records consistent with the legal requirements and their own needs.” An essential requirement of these ‘documents and records’ is that they should be “...kept in a condition that will enable them to be consulted and understood later by people different from, and possibly without reference to, those who generated the records ...” The scope of the documentation and records to be kept will be wide ranging but will include “...an inventory of radioactive waste, including origin, location, physical and chemical characteristics, and, as appropriate a record of radioactive waste removed or discharged from a facility”, and “site plans, engineering drawings, specifications and process descriptions ... radioactive waste package identification ...”. It is has long been recognised in the United Kingdom that the management of radioactive waste will require the assembly and secure retention of a diversity of records and data. This information will be needed to inform the strategic decision making process, thus contributing to the future safe, environmentally sound and publicly acceptable management of radioactive waste. In the meantime it will also service the nation’s international commitments. When the planning application for a Rock Characterisation Facility (RCF) was refused and the subsequent Nirex appeal rejected in 1997, it was recognised that transfer of waste to a national repository was ulikely to take place for many decades. The long-term preservation of information by the waste management organisations thus became an issue. Since this time, the UK nuclear industry, including the waste producers, regulators and other Government Departments have worked together to develop a common information management system that is now being implemented. It is based on an Oracle database and is supported by ‘electronic tools’ designed to facilitate entry and retrieval of data in a common format. Long-term access to these data underpins many aspects of the system design. Designing such a system and seeing through its development has been a challenge for all those involved. However, as the project nears the completion of the development phase, it is clear there are several benefits in this approach. These include a sharing of best practice, shared development costs, an improved understanding of the needs of all parties, and the use of a common platform and tools. The ‘partnership approach’ between waste management organisations, Government departments and regulators will also reduce the likelihood of future surprises or conflicts of interest. Industry-wide co-operation also provides a greater degree of confidence that the system will continue to enjoy technical and financial support for the foreseeable future. The British Radwaste Information Management System (BRIMS) is supported by the principal waste producers, the Department for Environment, Food and Rural Affairs (DEFRA), the Nuclear Installations Inspectorate (NII) and United Kingdom Nirex Limited (Nirex). All organisations that have participated in its development over the past seven years have free access to it and may use it as part of their waste management strategy.


Author(s):  
Elizabeth Atherton ◽  
Ann McCall

Nirex is the organisation responsible for long-term radioactive waste management in the UK. Our Mission is to provide the UK with safe, environmentally sound and publicly acceptable options for the long-term management of radioactive materials. One of the lessons that Nirex has learned from previous experience in the UK and internationally is the importance of developing due process for finding a long-term solution for radioactive waste management. We have been investigating best practice in this area and incorporating the findings into the work that we undertake. Projects which will have an impact on the environment are subject to EC Directives on Strategic Environmental Assessment (SEA) and Environmental Impact Assessment (EIA). The EIA Directive has already been implemented into law within Member States while the SEA Directive has to be implemented by 2004. Nirex believes that radioactive waste management programmes will have to adhere to the principles outlined in the Directives. Nirex has been investigating how the frameworks set out in the Directives could be used to: • Develop a stepwise approach to decision making in the UK; • Engage stakeholders during the stepwise decision making; • Enable stakeholders’ issues and concerns to be addressed. This paper will outline how Nirex has been developing its work in these areas including reference to the Nirex Involvement Programme, which uses different consultation and dialogue techniques to enable people to engage with Nirex’s work programme.


Author(s):  
Jorge Lang-Lenton Leo´n ◽  
Emilio Garcia Neri

Since 1984, ENRESA is responsible of the radioactive waste management and the decommissioning of nuclear installations in Spain. The major recent challenge has been the approval of the Sixth General Radioactive Waste Plan (GRWP) as “master plan” of the activities to be performed by ENRESA. Regarding the LILW programme, the El Cabril LILW disposal facility will be described highlighting the most relevant events especially focused on optimizing the existing capacity and the start-up of a purpose–built disposal area for VLLW. Concerning the HLW programme, two aspects may be distinguished in the direct management of spent fuel: temporary storage and long-term management. In this regards, a major challenge has been the decision adopted by the Spanish Government to set up a Interministerial Committee for the establishment of the criteria that must be met by the site of the Centralized Intermediate Storage (CTS) facility as the first and necessary step for the process. Also the developments of the long-term management programme will be presented in the frame of the ENRESA’s R&D programme. Finally, in the field of decommissioning they will be presented the PIMIC project at the CIEMAT centre and the activities in course for the decommissioning of Jose´ Cabrera NPP.


Author(s):  
P. Poskas ◽  
J. E. Adomaitis ◽  
R. Kilda

The growing number of radionuclide applications in Lithuania is mirrored by increasing demands for efficient management of the associated radioactive waste. For the effective control of radioactive sources a national authorization system based on the international requirements and recommendations was introduced, which also includes keeping and maintaining the State Register of Sources of lonising Radiation and Occupational Exposure. The principal aim of the Lithuania’s Radioactive Waste Management Agency is to manage and dispose all radioactive waste transferred to it. Radioactive waste generated during the use of sources in non-power applications are managed according to the basic radioactive waste management principles and requirements set out in the Lithuanian legislation and regulations. The spent sealed sources and other institutional waste are transported to the storage facilities at Ignalina NPP. About 35,000 spent sealed sources in about 500 packages are expected until year 2010 at Ignalina NPP storage facilities. The existing disposal facility for radioactive waste from research, medicine and industry at Maisiagala was built in the early 1960’s according to a concept typical of those applied in the former Soviet Union at that time. SKB (Sweden) with participation of Lithuanian Energy Institute has performed assessment of the long-term safety of the existing facility. It was shown that the existing facility does not provide safe long-term storage of the waste already disposed in the facility. Two alternatives were defined to remedy the situation. A first alternative is the construction of a surface barrier and a second one is a retrieval solution, whereby the already stored waste will be retrieved for conditioning, characterisation and interim storage at Ignalina NPP. Facilities for the processing of the institutional radioactive waste are required before submittal to Ignalina NPP for storage, since the present facilities are inadequate. Feasibility study to establish a new central facility has been performed by SKB International Consultants (Sweden) with participation of Lithuanian Energy Institute. This study has identified the process applied and equipment needed for a new facility. Reference design and Preliminary Safety Assessment have also been performed. Plans for the interim storage and disposal of the institutional waste are described in the paper. The aspects of finging safe disposal solutions for spent sealed sources in a near surface repositories are also discussed.


Author(s):  
Hans Code´e ◽  
Ewoud Verhoef

Time will render radioactive waste harmless. How can we manage the time radioactive substances remain harmful? Just ‘wait and see’ or ‘marking time’ is not an option. We need to isolate the waste from our living environment and control it as long as necessary. For the situation in the Netherlands, it is obvious that a period of long term storage is needed. Both the small volume of waste and the limited financial possibilities are determining factors. Time is needed to let the volume of waste grow and to let the money, needed for disposal, grow in a capital growth fund. An organisation such as COVRA — the radioactive waste organisation in the Netherlands — can only function when it has good, open and transparent relationship with the public and particularly with the local population. If we tell people that we safely store radioactive waste for 100 years, they often ask: “That long?” How can we explain the long-term aspect of radioactive waste management in a way people can relate to? In this paper, an overview is given of the activities of COVRA on the communication of radioactive waste management.


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