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Legal and Democratic Services The Lonsdale Building The Courts Carlisle
Cumbria CA3 8NA Fax 01228 226372
Tel 01228 606060 Email [email protected]
To: The Council Leader and Members of Cabinet
Agenda
CABINET
A meeting of the Cabinet will be held as follows:
Date:
Time:
Place:
Wednesday 30 January 2013
10.00 am
The Courts, Carlisle
Angela Harwood
Assistant Director – Legal and Democratic Services
Enquiries and requests for supporting papers to: Nick Evans
Direct Line:
01228 226367
Email:
[email protected]
This agenda is available on request in alternative formats
Serving the People of Cumbria
1
MEMBERSHIP
Mr E Martin (Leader)
Mr SF Young (Deputy Leader)
Mr J Airey
Mrs A Burns
Mr DS Fairbairn
Mr TJ Knowles
Mrs EA Mallinson
Mr AJ Markley
Mr OH Pearson
Mr GB Strong
ACCESS TO INFORMATION
Agenda and Reports
Copies of the agenda and Part I reports are available for members of the public to inspect
prior to the meeting. Copies will also be available at the meeting.
The agenda and Part I reports are also available on the County Council’s website –
www.cumbria.gov.uk
Background Papers
Requests for the background papers to the Part I reports, excluding those papers that
contain exempt information, can be made to Legal and Democratic Services at the
address overleaf between the hours of 9.00 am and 4.30 pm, Monday to Friday.
2
AGENDA
PART 1:
1
ITEMS LIKELY TO BE CONSIDERED IN THE PRESENCE OF THE PRESS
AND PUBLIC
APOLOGIES FOR ABSENCE
To receive any apologies for absence.
2
DISCLOSURES OF INTEREST
Members are invited to disclose any disclosable pecuniary interest they have in any item
on the agenda which comprises
1
Details of any employment, office, trade, profession or vocation carried on for
profit or gain.
2
Details of any payment or provision of any other financial benefit (other than from
the authority) made or provided within the relevant period in respect of any
expenses incurred by you in carrying out duties as a member, or towards your
election expenses. (This includes any payment or financial benefit from a trade
union within the meaning of the Trade Union and Labour Relations
(Consolidation) Act 1992.
3
Details of any contract which is made between you (or a body in which you have
a beneficial interest) and the authority
(a)
Under which goods or services are to be provided or works are to be
executed; and
(b)
Which has not been fully discharged.
4
Details of any beneficial interest in land which is within the area of the authority.
5
Details of any licence (alone or jointly with others) to occupy land in the area of
the authority for a month or longer.
6
Details of any tenancy where (to your knowledge)
(a)
The landlord is the authority; and
(b)
The tenant is a body in which you have a beneficial
interest.
7
Details of any beneficial interest in securities of a body where
(a)
That body (to your knowledge) has a place of business or land in the
area of the authority; and
3
(b)
Either –
(i)
The total nominal value of the securities exceeds £25,000 or one
hundredth of the total issued share capital of that body; or
(ii)
If that share capital of that body is of more than one class, the total
nominal value of the shares of any one class in which the relevant
person has a beneficial interest exceeds one hundredth of the total
issued share capital of that class.
In addition, you must also disclose other non-pecuniary interests set out in the Code of
Conduct where these have not already been registered.
Note
A “disclosable pecuniary interest” is an interest of a councillor or their partner
(which means spouse or civil partner, a person with whom they are living as
husband or wife, or a person with whom they are living as if they are civil
partners).
3
MINUTES
To receive the minutes of the Cabinet meeting held on 10 January 2013 (copy enclosed)
(Pages 1 - 8)
4
EXCLUSION OF PRESS AND PUBLIC
To consider whether the press and public should be excluded from the meeting during
consideration of any item on the agenda.
5
STATEMENTS BY THE LEADER OF THE COUNCIL AND CABINET
MEMBERS
To receive statements by the Leader of the Council and Cabinet Members.
6
PUBLIC PARTICIPATION
a
Mr R Stirzaker to present a petition
Mr Stirzaker to present a petition from Radiation Free Lakeland re: MRWS
b
Ms M Birkby
Ms Birkby would like to ask cabinet the following question:Would you agree that Cumbria County Council should not make a decision on
whether Cumbria should consider hosting a disposal facility for radioactive waste
until the fundamental research needs identified by the Government’s Advisory
Committee, ‘CoRWM’ have been met?
(supporting information for this question will be provided for members on the day)
4
c
Mr Phill Roberts,
Mr Roberts would like to ask cabinet the following question:"Given the conflicting geological and technical information available from eminent
academics and professionals in the field of geology and safe storage of Nuclear
Waste we call upon the executive of Cumbria County Council not to move to
stage 4 of the Nuclear Waste Consultation Process and to reject the proposal for
Deep Disposal of Nuclear Waste in Cumbria"
d
Mrs Irene Sanderson
Mrs Sanderson would like to ask cabinet the following question:"Why is the county willing to buy a pig in a poke?
The NDA have not proposed a specific project in a specific location and have only
given vague assurances. The only concrete project hitherto (NIREX) was
rigorously examined and comprehensively rejected.
You are being offered a pig in a poke. Why would you buy it?"
e
Mr H Hutchinson, Kirkbride
Mr Hutchinson would like to ask cabinet the following question:What has happened to Democracy?
(supporting information for this question will be provided for members on the day)
f
Mr R Parker Petition re: MRWS
Mr Parker would like to present a petition on behalf of residents of West Cumbria.
You have volunteered the Lake District as a potential site for a nuclear waste
dump. Your constituents don’t want this - and scientific evidence has already
concluded the area is unsuitable. We are calling on you to withdraw us from the
process immediately
g
Ms M Lawley, Keswick
Mary Lawley would like to ask the following question of Cabinet:‘The most suitable geology for a GDF is in Eastern England. Why has Cumbria
Council volunteered our area and hampered the process of siting it in the safest
area of the UK?’
5
h
Mr Ron Williams from Bothel, Wigton
Mr Williams wishes to ask cabinet the following question:We live in possibly the most beautiful area of the country which thus attracts
millions of tourists, both British and foreigners, generating the greatest form of
revenue we have in Cumbria. Therefore would the cabinet agree with me that the
very presence of a repository for nuclear waste in this county would greatly affect
this tourism and hence seriously reduce the income from that source even taking
into account financial sweeteners (also known as bribes) which would no doubt
result from this development? I therefore urge the cabinet to to make a decision
which truly represents the opinion of Cumbrians and visitors.
i
Mr David Penney
David Penney would like to ask Cabinet the following question:“Would Cabinet agree that due to the unresolved problems of the Management of
Radioactive Waste in the light of the findings of Nirex Planning Inquiry, 19956 and the conclusions of the European Report: "Rock Solid?" (September 2010),
commissioned by Greenpeace International for GeneWatch UK, it would be
foolish and dangerous in the extreme to consider a Radioactive Waste
Management deep storage facility in the Lake District as well as to add to the
growing waste mountain by building any more nuclear plants in Cumbria and
elsewhere in the UK?"
j
Mr S Nicholson on behalf of Sellafield Workers Campaign
Mr Steve Nicholson, Sellafield Workers Campaign wants to ask cabinet the
following question:Do Cumbria County councillors have any reasons to doubt the British
Government's pledge that CCC can withdraw from the search for a GDF site at
the end of Stage 4, at the end of Stage 5 and before construction?
k
Mr Colin Wales
Mr Wales would like to ask a question of cabinet – details of the question to follow
l
Ms Fiona Goldie - Representing the campaign group "3 weeks to save The
Lakes"
Ms Goldie would like to ask a question of cabinet in relation to the concerns of the
‘3 weeks to save the Lakes’ group, (details of question still awaited)
6
m
Mr A Ellis - Nuclear Decommissioning Agency
Mr Alan Ellis has indicated he would like to ask a question of cabinet - details still
awaited
n
Mr John Wilson
Mr Wilson wishes to ask a question of cabinet in relation to legal and planning
issues relating to MRWS (details awaited)
o
Mr Harry Marsden
Mr Marsden wishes to ask cabinet a question in relation to branding issues
relating to a nuclear waste repository for Cumbria (details awaited)
p
Ms M Davidson
Mary Anne Davidson would like to ask a question of cabinet – details still awaited
q
Ms C Murray
Cate Murray has indicated she would like to ask a question of cabinet - details still
awaited
r
Ms R Balogh
Ruth Balogh has indicated she would like to ask a question of cabinet - details still
awaited
A world class environment
7
MANAGING
RADIOACTIVE
PARTICIPATION IN STAGE 4
WASTE
SAFELY:
DECISION
ABOUT
To consider a report from the Cabinet Member for Transport and Environment and the
Corporate Director – Environment (copy enclosed)
(Pages 9 - 478)
7
PART II - ITEMS CONSIDERED NOT IN THE PRESENCE OF THE PUBLIC AND
PRESS
8
PROPOSED IMPLEMENTATION PLAN FOR CONNECTING CUMBRIA
To consider a report from the Cabinet Member for Organisational and the Deputy Leader
Development and the Corporate Director – Environment and Corporate Director –
Resources (copy enclosed)
Not for publication by virtue of Paragraph(s) 3 of Part I of Schedule 12A of the Local
Government Act 1972, as this report contains exempt information relating to financial or
business affairs of any particular person (including the authority holding that
information).
(Pages 479 - 488)
8
Agenda Item 3
CUMBRIA COUNTY COUNCIL
Minutes of a Meeting of the Cabinet held on Thursday, 10 January
2013 at 10.00 am at The Courts, Carlisle
PRESENT:
Mr E Martin (Leader)
Mr SF Young (Deputy Leader)
Mr J Airey
Mrs A Burns
Mr DS Fairbairn
Mrs EA Mallinson
Mr AJ Markley
Mr OH Pearson
Mr GB Strong
In Attendance:
Mrs T Macur
Officers in attendance:
Chief Executive, Corporate Director - Resources, Corporate Director Adult and Local Services, Corporate Director - Environment, Corporate
Director - Children's Services, Assistant Director Policy and Performance,
Assistant Director - Finance, Assistant Director - Public Protection, Senior
Manager - Legal Practice, Senior Manager - Democratic Services and
Strategic Communications Adviser.
The Leadership Support Officers for the Conservative, Labour and Liberal
Democrat Groups were also in attendance.
PART 1 ITEMS CONSIDERED IN THE PRESENCE
OF THE PUBLIC AND PRESS
139
APOLOGIES FOR ABSENCE
Apologies for absence were received on behalf of Mr Knowles.
140
DISCLOSURES OF INTEREST
None for this meeting.
1
Page 1
141
MINUTES
RESOLVED, that the minutes of the meeting held on 6 December 2012
be agreed as a correct record and signed by the Chair.
142
EXCLUSION OF PRESS AND PUBLIC
RESOLVED, that the press and public be excluded from the meeting
during consideration of agenda items 11 (Procurement of
Carers Assessment Services and Support for Carers), 12
(Connecting
Cumbria
–
ERDF
Business
Support
Programme), 13 (Award of Contract – Services for
Vulnerable Children) and 14 (Money Advice Service – Award
of Contract) by virtue of paragraph 3 of Part 1 of Schedule
12A of the Local Government Act 1972, as these reports
contain exempt information relating to financial or business
affairs of any particular persons (including the authority
holding that information).
143
STATEMENTS BY THE
CABINET MEMBERS
LEADER
OF
THE
COUNCIL
AND
The Leader and Deputy Leader both made statements in relation to the
Cumbria Electoral Changes Order 2012 published on 20 December 2012
derived from the final proposals of the Local Government Boundary
Commission for England. Cabinet noted that the County Council had
made representations to the Commission regarding the process
undertaken and the refusal of the Commission to review District Ward
Boundaries at the same time given the confusion that not doing so would
cause. The Deputy Leader was disappointed that changes in County
electoral divisions would not be replicated at District ward level for 2 – 3
years pending the review of the six district councils. Members also noted
the poor quality of mapping that had been made available which
exacerbated the problem and welcomed the news from the Corporate
Director – Resources that the matter was being addressed and would be
discussed with District colleagues in the coming days.
The Deputy Leader confirmed that the local government settlement was
received shortly before Christmas with further information being received
regularly since. Despite national headlines about the relatively generous
settlements work by officers had calculated that the County Council
budget had reduced by 7.1%. The conservative estimate of the likely
level of savings required in 2013-14, before consideration of the Council
Tax Freeze Grant, which was being consulted on at £18m was now
confirmed at £22.5m which required an additional £4.5m of savings to be
identified. The median estimate by officers at £22m had proved to be
extremely accurate and congratulations were offered for the accuracy of
2
Page 2
their forecasts. At its next meeting Cabinet would consider the budget to
be proposed to County Council.
144
PUBLIC PARTICIPATION
None for this meeting.
145
SCRUTINY REVIEW - CUSTOMER SERVICES STRATEGY
(1)
Scrutiny Review
Mrs T Macur presented a report from the Customer Services Task and
Finish Group on the Customer Services Review. The review examined
customer service delivery by the County Council sought to identify good
practice, opportunities for improvement and how they could be
implemented.
RESOLVED, that the report be noted.
(2)
Cabinet Member Response
The Cabinet Member for Stronger Communities welcomed the report and
thanked the scrutiny panel for their work. All recommendations with the
exception of 1 and 5 were accepted with recommendation 6 being a
matter for Scrutiny Management Board (SMB). Recommendation 1 which
suggested a single customer services function under a single Corporate
Director was not accepted as it was felt that the current strategy
whereby customer services was mainstreamed across directorates with
the pursuit of better customer service being integral to the day to day
operation was better suited to driving improvement. Oversight of the
implementation of the Customer Services Strategy was entrusted to the
Customer Services Executive Board under the sponsorship of the
Corporate Director – Adult & Local Services. Recommendation 5 which
suggested the use of mobile customer services units was not supported
due to the financial investment required and the lack of a business case
or evidence of public demand. As the Council had a large dispersed
workforce all staff had a role in engaging with the public and delivering
the best services.
RESOLVED,
that with the exception of recommendations 1 & 5 the
recommendations be supported.
146
REVIEW OF REGULATION OF INVESTIGATING POWERS ACT
(RIPA) POLICY
The Cabinet Member for Community Safety and Local Services presented
a report which sought approval of the Regulation of Investigatory Powers
3
Page 3
Act 2000 (RIPA) policy which had been reviewed and updated to reflect
legislative changes under the Protection of Freedoms Act 2012.
RESOLVED, that the current legal position with regard to the Protection
of Freedoms Act 2012 and the revised Policy be approved.
147
SCHOOL FUNDING REFORM: SPECIAL EDUCATIONAL NEEDS
AND EARLY YEARS PROVISION
The Cabinet Members for Children’s Services presented a report on the
School Funding Reform: Special Educational Needs and Early Years
Provision.
In March 2012 the Department for Education (DfE) released a national
consultation document “Next Steps Towards a Fairer System” which
outlined proposals to change the way in which schools were funded
across the country. This was followed in June by “Schools Funding
Reform: Arrangements for 2013-14”, which detailed the way in which
schools were to be funded from April 2013 following the outcomes of the
national consultation.
School funding would continue to be allocated through the Dedicated
Schools Grant, however from April 2013, this would be allocated to Local
Authorities in three notional blocks:
•
•
•
Schools Block
High Needs Block
Early Years Block
In November 2012, Cabinet consulted with the Schools Forum
determined how the Schools Block would be allocated.
recommendations from the Schools Forum and the views from
consultation with schools and Academies in Cumbria were taken
account by Cabinet in the decision making process.
and
The
the
into
The High Needs Block funds support for pupils with high level SEN. The
DfE had defined high needs pupils as those who required provision
costing more than £10,000 per year in total. This threshold would
distinguish between the needs that the DfE expect to be met through
mainstream funding and the point at which additional high needs funding
was provided. The allocation of the High Needs Block did not require
consultation.
There was Operational Guidance from the Department for Education that
Authorities should allocate the funding for high needs pupils across all
schools.
This guidance was non-statutory and Cabinet were
recommended that the Council should not implement the guidance but
continue to fund high needs places based on the individual pupils with
4
Page 4
high needs within each school as this would ensure that the funding for
high needs pupils was targeted on schools with pupils with high needs.
Allocation across all schools would result in a lower level of funding for
schools with high needs pupils.
The Early Years Block provided funding for the provision of free nursery
entitlement for three and four year olds. It also included the new
entitlement for free nursery provision for 2 year olds who were either
looked after children or from low income families.
The regulations required local authorities to consult on how funding
within the Early Years Block will be allocated.
RESOLVED, for the reason outlined above that
148
(1)
DfE guidance to allocate High Need funding notionally
across all schools should not be implemented but
instead the Council continue to fund schools based on
the statement costs of individual pupils with high
needs;
(2)
consultation take place with the School Forum to
determine how funding for three and four year olds
should be allocated;
(3)
consultation take place with the School Forum to
determine how funding for two year olds should be
allocated.
FUNDING
OF
THE
MAIN
IMPROVEMENT PROJECT
STREET
COCKERMOUTH
Members considered a report by the Cabinet Member for Economy and
Highways which sought approval to allocate £700,000 of the Flooding
(betterment) capital budget towards the Main Street, Cockermouth
Highway Improvement Project. The total project was estimated to cost
£1.6m with the balance of funding coming from the DFT flood recovery
fund (£820,000), Allerdale Local Committee (£61,000) and other partner
funding sources (£34,000).
The project would repair the flood damage to Main Street, Cockermouth
to at least the standard it was prior to the flooding in 2009 and enhance
the drainage to safeguard against future flooding.
RESOLVED, that £700,000 of the Flooding (betterment) capital budget
be allocated towards the Main Street, Cockermouth Highway
Improvement Project as detailed in Option 2 of the report.
5
Page 5
PART 2: ITEMS LIKELY TO BE CONSIDERED IN THE ABSENCE
OF THE PRESS AND PUBLIC
149
PROCUREMENT OF CARERS ASSESSMENT SERVICES AND
SUPPORT FOR CARERS
The Cabinet Member for Adult Social Care and Deputy Leader presented
a report which set out the timetable and method of procurement of
Carers Assessment and Support for Carers in the county. This built upon
the development of the Carers Strategy and the carers consultation on
services required to support them.
RESOLVED, that the following be approved:-
150
(1)
commencement of a procurement exercise for a
contract to provide a Carers Assessment Service to
the Council as a means of meeting the statutory
duties under the Carers Recognition and Services Act
(1995), Carers and Disabled Children’s Act 2000 and
the Carers Recognition Act (2004) to assess the needs
of carers;
(2)
the principle that provision of ongoing support to
carers is through an approach that develops and uses
community
capacity,
use
of
volunteers
and
partnerships between organisations and grant funding
to support carers in local communities;
(3)
extension of the current carers contracts listed in
appendix 1 of the report by nine months until
30 June 2014 to facilitate the full evaluation of the
effectiveness of the MSP model and to report to
Cabinet on the preferred procurement method.
CONNECTING
PROGRAMME
CUMBRIA
-
ERDF
BUSINESS
SUPPORT
The Cabinet Members for Organisational Development, Economy and
Highways and Deputy Leader presented a report on Connecting Cumbria
– ERDF Business Support Programme.
The report summarised the outcome of the tender process to appoint a
supplier to deliver a Business Support Programme for eligible Small and
Medium Sixed Employees (SMEs) to complement the roll out of the
Connecting Cumbria superfast broadband network. The procurement had
been carried out in line with EU tender procedures.
6
Page 6
RESOLVED,
That Cabinet gives approval for the successful bidder
identified in paragraph 4.7 of the report to be appointed as the preferred
supplier to deliver the Connecting Cumbria Business Support programme,
subject to agreement of contract and all funding being approved.
151
AWARD OF
CHILDREN
CONTRACT
-
SERVICES
FOR
VULNERABLE
The Cabinet Members for Children’s Services and Deputy Leader
presented a report on the Award of Contract – Services for Vulnerable
Children.
It was outlined that in July 2012, Cabinet gave ‘permission to tender’ for
a number of services for vulnerable children and this tender exercise had
now reached its conclusion.
The paper sought approval to award three higher value contracts, in line
with the Constitution. The results of each evaluation panel were set out
in the report for Member’s information.
The paper also updated Members on the award of the smaller value
contracts in this round of re-commissioning
RESOLVED, that
152
(1)
the contracts as detailed in appendix 1 of the report
be awarded;
(2)
the award of other smaller contracts, approved by the
Corporate
Director
Children’s
Services
in
consultation with the Cabinet Members for Children’s
Services detailed in appendix 2 of the report be noted.
MONEY ADVICE SERVICE - AWARD OF CONTRACT
The Cabinet Member for Stronger Communities and Deputy Leader
presented a report which sought the approval of Cabinet to award the
contract for the delivery of a Money Advice Service. The contract would
run from 1 April 2013 to 31 March 2015.
RESOLVED, that the Money Advice contract be awarded to the
successful bidder highlighted at 4.10 in the report for a
period of 2 years from 1 April 2013–31 March 2015 at a
value of £317,000 per annum.
The meeting ended at 11.40a.m.
7
Page 7
This page is intentionally left blank
Page 8
Agenda Item 7
CABINET
Meeting date: 30 January 2013
From:
Cabinet Member for Transport & Environment
Corporate Director – Environment
MANAGING RADIOACTIVE WASTE SAFELY: DECISION
ABOUT PARTICIPATION IN STAGE 4
PART A - RECOMMENDATION OF CABINET MEMBER
1.0
EXECUTIVE SUMMARY
1.1.
After more than three years of work, the West Cumbria Managing
Radioactive Waste Safely (MRWS) Partnership’s Final Report was
published in August 2012. The Executive Summary is attached at
Appendix 1 and the full Report is annexed at Appendix 2. The Report
has been submitted to the three local authorities (Allerdale Borough
Council, Copeland Borough Council and Cumbria County Council) as a
key piece of evidence to support their consideration of whether or not
to participate in the next Stage of the MRWS process.
1.2.
The Managing Radioactive Waste Safely White Paper Cm7386 (“the
White Paper”) is appended to this Report as Appendix 3. The White
Paper makes it clear (page 51) that community engagement may raise
issues requiring further discussion with Government prior to a
Decision about Participation. In October, the three local authorities
wrote to DECC requesting a three month pause in the process to allow
for further discussion around a number of key issues, including the
right of withdrawal and the process for agreeing community benefits.
This letter, and DECC’s reply (which provides a number of assurances
on the concerns raised by the local authorities), a further letter from
the County Council and a final letter from Ed Davey (Secretary of State
at DECC) are attached at Appendix 4.
1.3.
The decision the Cabinet now needs to take is whether or not to
participate in the next Stage of the MRWS process (Stage 4), which
involves desk-based studies in participating areas. Participation in this
Stage would not constitute a binding commitment to host a deep
geological disposal facility.
1.4.
The three local authorities have committed to work together on this
decision (the “decision about participation” or DaP) and have agreed to
take into account the final Report of the Partnership and the views of
Page 9
the general public and stakeholders, including whether there is ‘net
support’ for entering the next Stage of the process.
2.0
STRATEGIC PLANNING AND EQUALITY IMPLICATIONS
2.1.
County Council policy supports deep geological disposal of higher
activity radioactive wastes, subject to monitoring and retrievability of
wastes should circumstances require it.
2.2.
Cabinet, on behalf of the County Council, has made an Expression of
Interest for the Copeland and Allerdale areas in the Government’s
Managing Radioactive Waste Safely (MRWS) process.
2.3.
County Council policy supports engagement with districts about the
Government’s implementation framework to site a geological disposal
facility.
2.4.
This issue relates to the 2011-14 Council’s ‘high quality and
sustainable environment’ objective.
2.5.
Cabinet must consider how its decisions impact on equality. The
potential equality impact of a decision to participate in Stage 4 has
been assessed and the assessment is appended as Appendix 5.
3.0
RECOMMENDATION
3.1.
Cabinet is recommended to consider the options set out in this report
and to decide whether or not the County Council wishes to participate
in the next stage of the MRWS process (Stage 4 of the stages in the
White Paper) in the respect of the areas of Allerdale, Copeland or both.
Tim Knowles, Cabinet Member for Transport & Environment
PART B – ADVICE OF CORPORATE DIRECTOR - ENVIRONMENT
4.0
BACKGROUND
4.1.
The West Cumbria MRWS Partnership was set up to make
recommendations to Allerdale BC, Copeland BC and Cumbria CC on
whether or not they should participate in the geological disposal facility siting
process, without commitment to eventually host a facility”. The three
Councils are the Decision Making Bodies defined in the White Paper. The
White Paper sets out the UK Government’s framework for managing higher
activity radioactive waste in the long term through geological disposal
coupled with safe and secure interim storage and on-going research and
development to support an optimal programme of implementation. As a
result of the White Paper the West Cumbria communities, through their
Councils, expressed an interest in opening up, without commitment,
discussions with Government on the possibility of hosting a geological
disposal facility at some point in the future.
Page 10
4.2.
The White Paper sets out Government’s expectation that the Decision
Making Bodies take the lead role in initiating the discussions with potential
local partners and organising community engagement. In establishing the
MRWS Partnership the Decision Making Bodies assumed this role. The
White Paper also states Government’s requirement to be satisfied that a
Decision to Participate is credible. The word ‘credible’ in its use here and by
the Partnership refers specifically to paragraph 6.22 of the MRWS White
paper, which states: “Credibility might be demonstrated on the basis of a
local consultation process applying established local good practice. Credible
local support would be expected amongst organisations likely to form a
Community Siting Partnership (i.e. during Stage 4) should a decision to
participate be taken, as well as among the local community.”
4.3.
The MRWS Partnership was Cumbria’s collective response to the
requirements of the MRWS White Paper. The Partnership met on a six
weekly cycle for three years to gather information about safety and design of
a geological disposal facility for higher activity wastes and how that might
impact on a host community and wider community. It has consulted the
public in West Cumbria, and the rest of Cumbria three times, including an 18
week public consultation on its draft final Report, and surveyed opinion in
West Cumbria by telephone on four occasions.
4.4.
The MRWS White Paper explains that the Decision to Participate should be
accompanied by a report setting out the approach taken to engagement, the
outcomes of that engagement and making clear the basis of the decision. It
also notes, “Not every resident in a potential Host Community will favour a
Decision to Participate in the siting process. Government is not expecting, or
seeking, a particular threshold of support but is keen to see evidence of
appropriate community engagement and meaningful feedback on any
concerns of those affected”. The MRWS Partnership Final Report details the
work it has done over its three year existence on public and stakeholder
engagement, carrying out three rounds of engagement in order to inform
people, seek their input, and give feedback on how that engagement
changed its work and opinions. Appendix 1 contains the MRWS Partnership
Report’s Executive Summary. This explains how the MRWS Partnership
undertook its three extensive rounds of engagement and that it
commissioned a statistically significant opinion survey (undertaken by
IPSO/MORI) the findings of which were presented to the May 2012 meeting
of the Partnership.
4.5.
The MRWS Partnership’s engagement aimed to understand concerns so
they could be addressed to ensure its opinions and advice were credible.
The Partnership used three indicators of credibility, (explained in more detail
in Chapter 14 of the Final Report):
§
Broad support for the Partnership’s initial opinions
§
Understanding and addressing concerns
§
Net support for continuing with the process
Page 11
4.6.
The key points from the Partnership’s Report are set out in an Executive
Summary (Appendix 1) and relate to: Overarching Issues (Trust &
Confidence); Design and Engineering; Inventory; Geology; Safety, Security,
Environment & Planning; Impacts; Community Benefits; Siting Process
(Stages 4 & 5).
4.7.
The MRWS Partnership considered that, overall, most Partnership members
were satisfied that the opinions and advice contained in its Final Report
reflected the public and stakeholder views that it received.
4.8.
There were three aspects where members of the Partnership’s views
differed (timing of strategic environmental assessments and geological
surveys as well as how a community siting partnership should be constituted
and operate). More details about these differences are set out in the
appropriate chapters of the document, Chapter 8 (Geology) and Chapter 13
(Stages 4 and 5 of the MRWS Process). These differences are not ones of
principle and are more to do with the fact that uncertainty is a key
characteristic of the early stages MRWS process, which will reduce in later
stages if a decision to participate is taken. Members will recall that Stage 4
would involve the NDA’s delivery organisation undertaking more detailed
assessments focusing on the suitability of a specific site or sites within each
potential host community. These assessments would be mainly through
desk-based studies, and would involve gathering information about the
candidate communities and sites and evaluating them against the site
selection criteria (paragraph 7.16 of the White Paper).
4.9.
Concerns about the Right of Withdrawal (RoW) and how and when it may be
exercised were a feature of many responses to the Partnership’s
consultation. These concerns were highlighted in the 1 October letter to
DECC that triggered the deferral period. The White Paper (Page 5)
describes the RoW as “an important part of the voluntarism approach
intended to contribute to the development and maintenance of community
confidence. Up until a late stage, when underground operations and
construction are due to begin, if a community wished to withdraw then its
involvement in the process would stop.” Baroness Verma’s letter of 19
December committed to making the RoW legally binding and to do this
through primary legislation, subject to parliamentary time being available.
LOCAL SUPPORT
4.10. Summary results from the first three opinion surveys are set out below.
Favour
Survey 1:
All of Cumbria
Survey 2:
All of Cumbria
Survey 3:
All of Cumbria
Survey 3:
Net
Support
50%
No
Oppose
opinion or
D/K
25%
25%
43%
27%
30%
13%
48%
25%
28%
20%
52%
23%
25%
27%
Page 12
25%
Allerdale
Survey 3:
Copeland
Survey 3:
Rest
Cumbria
62%
20%
19%
43%
44%
26%
30%
14%
of
4.11. The results of a fourth and final statistically significant survey by
IPSOS/MORI of 3000 households across Cumbria were published in May
2012. The results from this final survey of opinion of West Cumbria
households are one of three key Partnership indicators for determining how
to advise the decision making councils. Overall net support (the number of
“yeses” minus the number of “nos” - see below) remains strong though
weakened in Allerdale:
Favour
No
Oppose
opinion or
D/K
Net
Support
All of Cumbria
53%
14%
33%
20%
Allerdale
51%
12%
37%
14%
Copeland
68%
9%
22%
45%
15%
35%
16%
Rest
Cumbria
of 50%
Figures may not always total 100% due to rounding
ADDITIONAL INPUTS FOR CONSIDERATION
4.12. The County Council discussed the MRWS Partnership Report at its meeting
on 5 September. The minutes of this meeting are attached at Appendix 6.
4.13. The Cumbria Association of Councils (CALC) was a member of the MRWS
Partnership and as such its views were discussed and are reflected in the
Partnership’s Final Report. On 20 August, CALC wrote to the Leader of the
Council and to all Members to outline its own specific position regarding a
potential decision about participation and have formally requested that the
Cabinet consider the views of CALC as part of their consideration of a
decision about participation. Subsequently, CALC wrote to DECC (22
October) and DECC responded (19 November). All of these letters are
attached at Appendix 7 to this report.
4.14. The Lake District National Park Authority also participated in the Partnership
and wrote to DECC. This letter (26 November) and DECC’s response (11
December) are attached at Appendix 8.
Page 13
4.15. Since the close of the MRWS Partnership the Leader and some Members
have received a large number of additional representations. The issues
raised in this correspondence echo the views submitted to the Partnership
during its formal consultation and are therefore reflected in the Final Report
at Appendix 2. Members will have seen this correspondence as copies have
been made available in the Group Offices and many of the letters were
copied around the Cabinet as they arrived. A full set will also be available
for Members of the Cabinet to reference on 30 January. The main issues
raised in this correspondence include:
§
The impact that constructing and operating a GDF would have on
Cumbria, including increased traffic, a huge amount of spoil to manage
and the perceived negative impact on tourism (Chapter 11 of the
MRWS Partnership Report);
§
Concerns that the Right of Withdrawal would never be honoured by
Government and so this is the last opportunity for Cumbria to pull out of
the process (Page 60 of the MRWS Partnership Report);
§
A belief that all of West Cumbria can already be ruled out due to a lack
of suitable geology and that there are more appropriate/better sites
elsewhere in the UK (Chapter 8 of the MRWS Partnership Report);
§
A belief that the NIREX enquiry had already ruled out all of West
Cumbria (Chapter 8 of the MRWS Partnership Report);
§
A general lack of trust in Government (Page 53 of the MRWS
Partnership Report);
§
Concerns that there is no willing host community and that any
community benefits that may ultimately be offered are merely a bribe
(Chapters 12 and 13 of the MRWS Partnership Report); and
§
Concern that the decision is being taken by the County Council’s
Cabinet and not the whole Council (Page 222 of the MRWS
Partnership Report).
THE DEFERRAL PERIOD
4.16. On 1st October, the three DMBs sent a joint letter to Baroness Verma (see
Appendix 4), Parliamentary Under Secretary of State at DECC requesting a
three month pause and setting out a number of issues on which further
discussion and clarification was required. The issues were:
§
The need to strengthen the Right of Withdrawal, to make it legally
binding;
§
Further discussion around the process for negotiation of community
benefits;
§
Due to uncertainties over the suitability of geology, there was a need to
consider alternative radioactive waste management solutions;
Page 14
§
The need for adequate engagement funding and Cumbria brand
protection; and
§
The economic future of West Cumbria.
4.17. On 19th December, Baroness Verma responded to the three local
authorities. The full letter is at Appendix 4, but the key points are:
5.0
§
DECC has agreed that primary legislation should be the preferred
mechanism for strengthening the RoW and will bring forward
proposals, which reflect input from the DMBs, within 18 months of a
decision to participate. This compares to the commitment DECC gave
to the MRWS Partnership which was to agree the mechanisms to be
used to put aspects of the MRWS process on a firmer legal footing by
the end of Stage 4 (i.e. 5 years). In addition, DECC has agreed to roll
forward the decision-making arrangements set out in the November
2011 letter from Charles Hendry (also at Appendix 4).
§
On community benefits, DECC has committed to establishing a
Community Fund and agreed to make specific funding proposals
covering the nature, scope, scale, timing, and governance of a fund
within 18 months of any Decision to Participate and to involve the
DMBs in the development of those proposals. This is again an
acceleration of the commitment given to the Partnership which was to
start the negotiations in Stage 4.
§
On geology, DECC has recognised that this is a key uncertainty for the
community and asked NDA to look at how the geological work that
would be carried out in Stage 4 could be accelerated. DECC has also
committed to involving the DMBs in any work to “re-design” Stage 4.
§
DECC has also recognised that it is important to look at alternatives
and committed to conducting a thorough review of the potential
alternative radioactive waste management solutions, including
extended interim storage. Such a review would be conducted in
parallel with the MRWS process, resulting in a twin-track process that
looks at taking forward the MRWS process while also considering
alternative storage options.
OPTIONS
The Cabinet has the following options:
5.1.
Decide to participate in Stage 4 in respect of both Allerdale and Copeland;
§
Cabinet could take a Decision to Participate in stage 4 of the process
for identifying a site for a geological disposal facility described in the
White Paper in respect of Allerdale and Copeland, having considered
and relied upon the contents of the letter to the Leader dated 19
December 2012 from the Parliamentary Under-Secretary of State,
including (i) the Government’s express and unequivocal commitment
Page 15
that if the County Council exercises the Right of Withdrawal (as
described in the White Paper) the process will not continue in those
areas even if Allerdale Borough Council or Copeland Borough Council
or the Secretary of State wishes it to; (ii) the statements made by the
Government in the Appendices to that letter.
5.2.
5.3
§
The Partnership’s Final Report acknowledges that some uncertainties
remain, primarily because they relate to issues that can only be
considered in detail at a later date.
§
The Partnership advises then that, should a decision to participate be
taken, “Ja community siting partnership uses the indicative schedule
provided in the Stage 4 and 5 chapter (Chapter 13) to build its work
programme and, in doing so, help reduce the range of uncertainties
that exist”.
§
Cabinet therefore need to consider whether they are confident that the
work to be done in the next Stage will be sufficient to address any ongoing uncertainties, and that sufficient evidence of support from the
local community or the organisations likely to form a community siting
partnership has been demonstrated. If so, then Cabinet could decide to
participate.
Decide to participate in Copeland, but not Allerdale:
§
White Paper in respect of Copeland only, having considered and relied
upon the contents of the letter to the Leader dated 19 December 2012
from the Parliamentary Under-Secretary of State, including (i) the
Government’s express and unequivocal commitment that if the County
Council exercises the Right of Withdrawal (as described in the White
Paper) the process will not continue in Copeland even if Copeland
Borough Council or the Secretary of State wishes it to; (ii) the
statements made by the Government in the Appendices to that letter.
§
partnership has been demonstrated in Copeland. If so, then Cabinet
could decide to participate in Copeland only.
Decide to participate in Allerdale, but not Copeland:
§
White Paper in respect of Allerdale only, having considered and relied
upon the contents of the letter to the Leader dated 19 December 2012
from the Parliamentary Under-Secretary of State, including (i) the
Government’s express and unequivocal commitment that if the County
Council exercises the Right of Withdrawal (as described in the White
Paper) the process will not continue in Allerdale even if Allerdale
Page 16
Borough Council or the Secretary of State wishes it to; (ii) the
statements made by the Government in the Appendices to that letter.
§
5.3.
partnership has been demonstrated in Allerdale. If so, then Cabinet
could decide to participate in Allerdale only.
Decide not to participate;
§
Cabinet could decide not to participate in Stage 4, particularly if it
considered that there was insufficient evidence of support from the
partnership in relation to both Allerdale and Copeland.
6.0
RESOURCE AND VALUE FOR MONEY IMPLICATIONS
6.1
In relation to Cabinet's consideration of the Decision to Participate there are
no direct financial implications. Costs to date incurred by the Council in
relation to officer time and costs of engagement have been met in
accordance with the requirements of an Annual Engagement Package
agreed with Department of Energy and Climate Change.
7.0
LEGAL IMPLICATIONS
7.1.
The national Government framework for long term management of higher
activity radioactive waste through geological disposal is set out in the White
Paper.
7.2.
Cumbria County Council is a decision making body in respect of Cumbria
participation in the MRWS process and is responsible for decisions including
continuing participation at key stages and exercising a right of withdrawal
(once it has taken a decision to participate). The Council (along with
Allerdale and Copeland District Councils) has completed Stage 3 of the
process (Community consideration leading to Decision to Participate).
7.3.
Under the Local Government Act 2000 and regulations made thereunder the
decision whether to participate in Stage 4 is an executive decision that must
be taken by Cabinet.
7.4.
In order to proceed to Stage 4, the Cabinet should be satisfied that it has a
clear basis for making the decision. Government’s requirement in the White
Paper is that the decision is “credible” and expects credible local support
amongst organisations that would be likely to form a Community Siting
Partnership should a decision to participate be taken as well as amongst the
local community. Government has not set a threshold for support but would
expect to see evidence of appropriate community engagement and
meaningful feedback of any concerns of those affected.
Page 17
7.5.
A Decision to Participate in Stage 4 does not irrevocably commit the Council
to hosting a geological disposal facility. In particular a Decision to
Participate does not extinguish the Right of Withdrawal under the
voluntarism process set out in the White Paper. The Right of Withdrawal
can be exercised during Stage 4.
7.6.
The Government’s letter of 19 December 2012 stated that the MRWS
process in West Cumbria can only continue if the relevant district council,
the County Council and Government all agreed. This statement does not
create a legally enforceable contract between the County Council and the
Government. However, it does create a legitimate expectation, which the
Secretary of State could not lawfully renege on unless there were sufficient
reasons to justify his doing so, that if one of the Councils exercised the Right
of Withdrawal the process set out in the White Paper would stop.
7.7.
It is difficult to see at this stage how the Secretary of State could justify
proceeding with a site in Cumbria in the face of opposition from the County
Council. However the Government reserved the right in the White Paper to
explore other approaches if it considered that voluntarism was not working. If
the Government determines that Cumbria is the most appropriate location
for a geological disposal facility it may be able to justify proceeding without
the agreement of the County Council.
7.8.
To ensure the integrity of their decision, Members must ensure that they
approach the decision to participate with an open mind and do not make any
decision in advance of hearing and weighing up all relevant considerations
and evidence. They must ensure that they have regard to all relevant issues
and do not take any irrelevant matters into account.
7.9.
In making its decision, Cabinet must comply with the public sector equality
duties. These are set out in more detail in the attached Equality Impact
Assessment. It is open to Cabinet to conclude that there are no equality
implications of a decision whether or not to participate in Stage 4. If Cabinet
considers that its decision would have adverse effects on equality then it
should consider how those effects should be mitigated.
8.0
CONCLUSION
8.1.
The Report sets out the process to date so that Members may now decide
how they wish to proceed.
Jim Savege
Corporate Director - Environment
January 2013
APPENDICES
Appendix 1 - Executive Summary of MRWS Partnership Report
Appendix 2 – The Final Report of the MRWS Partnership
Appendix 3 – The White Paper (Cm7386)
Appendix 4 - Correspondence between CCC and DECC
Appendix 5 – Equality Impact Assessment
Page 18
Appendix 6 – Record of the County Council discussion (5 September)
Appendix 7 - Correspondence from CALC
Appendix 8 – Correspondence between LDNPA and DECC
Electoral Division(s):
All
* Please remove whichever option is not applicable
Executive Decision
Yes
Key Decision
Yes*
If a Key Decision, is the proposal published in the current Forward Plan?
Yes
Is the decision exempt from call-in on grounds of urgency?
No
If exempt from call-in, has the agreement of the Chair of the relevant
Overview and Scrutiny Committee been sought or obtained?
N/A*
Has this matter been considered by Overview and Scrutiny?
If so, give details below.
No
Has an environmental or sustainability impact assessment been
undertaken?
No
Has an equality impact assessment been undertaken?
N.B.
Yes
If an executive decision is made, then a decision cannot be implemented until the
expiry of the eighth working day after the date of the meeting – unless the decision is
urgent and exempt from call-in and the Corporate Director has obtained the
necessary approvals.
PREVIOUS RELEVANT COUNCIL OR EXECUTIVE DECISIONS
County Council policy as reflected in its agreed submission to the
Consultation on Managing Radioactive Waste Safely by letter to DEFRA, 1
November 2007
County Council policy as determined by decision of the full County Council
meeting on 26 June 2008
County Council policy as determined by decision of the County Cabinet
meeting on 9 December 2008
County Council policy as expressed in the Minerals and Waste Development
Framework, Core Strategy, adopted April 2009
County Council policy as expressed by decision of the County Cabinet
meeting on 15 September 2011
CONSIDERATION BY OVERVIEW AND SCRUTINY
Not considered by Overview and Scrutiny
Page 19
BACKGROUND PAPERS
None
RESPONSIBLE CABINET MEMBER
Tim Knowles, Cabinet Member for Transport & Environment
REPORT AUTHOR
Contact: Richard Griffin, Strategic Nuclear Policy Development Manager
Page 20
westcumbria:mrws
West Cumbria Managing Radioactive Waste Safely Partnership
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Location
Egremont
1.31
Keswick
1.43
Cockermouth
2.02
Sellafield
6
Smallest
estimated size
Workington
6
Whitehaven
6.40
6.60
19.95
Carlisle
Largest
estimated size
York
23
29.65
30
Page 74
20
10
0
Area in
km2
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#D)?=#&+YN9MA++PZ)./@)!O.>,!F5(>(!0a1F^(!.&5>.)!>4!)%&!>5#4#>4!(+.V&=
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Should take part in the search
Neutral
Should not take part in the search
Don’t know
Net
Overall (4,262)
Allerdale (1,452)
53%
51%
Copeland (1,412)
Rest of
Cumbria (1,398)
5%
4%
68%
50%
9%
37%
8% +14
23%
4%
5%
+20
33%
35%
5% +45
10%
+16
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Page 318
3456(789:;:7<8=8;7:;:>
Managing
Radioactive
Waste Safely
A Framework
for Implementing
Geological Disposal
June 2008
A White Paper by Defra,
BERR and the devolved
administrations for Wales
and Northern Ireland
Page 319
Managing Radioactive
Waste Safely
A Framework for Implementing
Geological Disposal
Presented to Parliament by the Secretary of State
for Environment, Food and Rural Affairs
by Command of Her Majesty
June 2008
Cm 7386
£18.55
Page 320
© Crown Copyright 2008
The text in this document (excluding the Royal Arms and other departmental or agency
logos) may be reproduced free of charge in any format or medium providing it is
reproduced accurately and not used in a misleading context.The material must be
acknowledged as Crown copyright and the title of the document specified.
Where we have identified any third party copyright material you will need to obtain
permission from the copyright holders concerned.
For any other use of this material please write to Office of Public Sector Information,
Information Policy Team, Kew, Richmond, Surrey TW9 4DU or e-mail: licensing@
opsi.gov.u
Page 321
Contents
Executive Summary
1
Chapter 1. Introduction
9
Chapter 2. Summary of the way forward
13
Chapter 3. The waste to be managed
15
Chapter 4. Preparation and planning for geological disposal
23
Chapter 5. Protecting people and the environment: regulation,
planning and independent scrutiny
35
Chapter 6. Site selection using a voluntarism and partnership approach
47
Chapter 7. The site assessment process
61
Chapter 8. Next steps
69
Annex A
Features of a geological disposal facility
71
Annex B
Initial sub-surface screening criteria
73
Annex C
Guidance on Community Siting Partnerships
76
References
81
Glossary
86
Page 322
iii
Managing Radioactive Waste Safely
iv
Page 323
Executive Summary
The purpose of this White Paper
1
Published as part of the Managing Radioactive Waste Safely (MRWS) programme,
this White Paper sets out the UK Government’s framework for managing higher
activity radioactive waste in the long-term through geological disposal, coupled with
safe and secure interim storage and ongoing research and development to support
its optimised implementation. It also invites communities to express an interest in
opening up without commitment discussions with Government on the possibility of
hosting a geological disposal facility at some point in the future.
Background
2
3
On 25 June 2007, UK Government, in conjunction with the devolved administrations
for Wales and Northern Ireland, published a MRWS consultation document covering:
t
the technical programme and aspects of design and delivery of a geological
disposal facility for the long-term management of higher activity radioactive
waste
t
the process and criteria to be used to decide the siting of that facility, including:
–
development of a voluntarism/partnership approach; and
–
the assessment and evaluation of potential disposal sites including the initial
screening-out of areas unlikely to be suitable for geological disposal.
The consultation closed on 2 November 2007. One hundred and eighty-one responses
were received. These responses were analysed, reported in a Summary and Analysis
of Responses that was published on 10 January 2008, and have been taken into
consideration in the development of the way forward set out in this White Paper.
Page 324
1
Coverage of White Paper
4
This White Paper sets out the framework for the future implementation of geological
disposal, including:
t
the approach to compiling and updating the UK Radioactive Waste Inventory
(UKRWI) and using it as a basis for discussion with potential host communities
t
the Nuclear Decommissioning Authority’s (NDA’s) technical approach for
developing a geological disposal facility, including the use of a staged
implementation approach and ongoing research and development to support
delivery
t
the arrangements to ensure sound regulation, scrutiny and control of the
geological disposal facility development
t
how relevant planning processes might be addressed as the programme
proceeds
t
the definition of ‘community’ for the purposes of the site selection process.
t
the process for issuing invitations and providing information to communities
t
how a partnership arrangement can be used to support a voluntarism approach
t
the use of affordable and value for money Engagement and Community
Benefits Packages as part of the voluntarism and partnership approach
t
the initial sub-surface screening criteria and the way in which Government will
apply these criteria
t
a refined set of criteria for assessing and evaluating candidate sites and details
of further consultation on the way in which these criteria should be applied.
The amount of waste for disposal
5
The United Kingdom Radioactive Waste Inventory (UKRWI) provides regular updates
of the amounts of existing and expected holdings of radioactive waste in the United
Kingdom. The 2007 UKRWI, for the first time, contains radioactive materials not
currently classified as waste. This change in the scope of the UKRWI will allow it to
be used to track the latest estimates in waste and materials that will potentially need
to be treated as waste at some future point. This will allow a Baseline Inventory
estimate of the higher activity wastes requiring geological disposal to be produced
and regularly updated.
6
The amount of radioactive waste that would arise as a result of a new nuclear build
programme would depend on such issues as the number and type of reactors.
Updates of the Baseline Inventory using the UKRWI would also take into account
any additional arisings from future new nuclear build.
2
Page 325
Executive Summary: The purpose of this White Paper
Preparation and planning for geological disposal
7
Interim Storage – A robust programme of interim storage will play an integral part
in implementing geological disposal. The Nuclear Decommissioning Authority (NDA)
is reviewing UK waste storage arrangements. The regulators and Government are
closely involved in this work. The review will be completed in 2008 and the results
will be reflected in the next NDA Strategy.
8
Facility design – The detailed layout and design of the geological disposal facility,
both above and below ground, will be tailored to the Baseline Inventory and the
characteristics at the site in question.
9
The issue of retrievability of the waste has been a subject of discussion.
Government’s view is that the decision about whether or not to keep a geological
disposal facility (or vaults within it) open for an extended period of time can be
made at a later date in consultation with the independent regulators and local
communities. In the meantime the planning, design and construction can be carried
out in such a way that the option of extended retrievability is not excluded.
10
In principle the UK Government sees no case for having more than one geological
disposal facility if one facility can be developed to provide suitable, safe containment
for the Baseline Inventory.
11
Research – The NDA has statutory responsibility under the Energy Act 2004 for
carrying out research to support the activities for which it is responsible. The NDA
will undertake further research during the geological disposal facility development
process to, for example: refine facility design and construction; improve
understanding of the chemical and physical properties and interactions of emplaced
waste; address specific issues raised by regulators; and support the development of
site-specific safety cases.
12
NDA as implementing body – The NDA has established a new Radioactive Waste
Management Directorate (RWMD), incorporating resources from United Kingdom
Nirex Ltd, which it will develop into an effective delivery organisation to implement
geological disposal. It is envisaged that the RWMD will evolve under the NDA into
the organisation responsible for the delivery of the geological disposal facility. In due
course, management of the organisation can then be opened up to competition in
line with other NDA sites.
Protecting people and the environment: regulation, planning and
independent scrutiny
13
Regulation – The geological disposal facility will comply fully with the standards
required by the independent regulators. The environment agencies (the Environment
Agency, and the Environment and Heritage Service of the Department of the
Environment, Northern Ireland) will be providing updated guidance on the
requirements for authorisation of geological disposal facilities.
Page 326
3
14
Planning arrangements – In May 2007, the UK Government published the Planning
White Paper, “Planning for a Sustainable Future”. This proposed the introduction
of a new single consent regime and an independent commission to determine
applications for nationally significant infrastructure projects in England. Whilst not
having yet taken a final decision, Government is currently inclined to look towards
applying the new planning system if the location of geological disposal facility is in
England.
15
Environmental impacts – European legislation requires that certain plans and
programmes likely to have significant effects on the environment are subject to
a process of ‘strategic environmental assessment’ (SEA). It is good practice to
integrate SEA within a wider sustainability appraisal (SA) which also considers social
and economic factors. European legislation also requires ‘environmental impact
assessment’ (EIA) of certain individual projects.
16
Following the publication of this White Paper, NDA, working closely with
Government, will prepare and publish for consultation proposals on the scope and
nature of its environmental assessment and sustainability appraisal.
17
Public engagement – Public consultation is a requirement both of the planning
permission process, where the public will be consulted on the planning application
and the accompanying environmental statement, and as part of the environmental
regulator’s decision on whether to grant an authorisation to dispose of radioactive
waste. The SEA, SA and EIA processes will also provide opportunities for public
engagement.
18
Committee on Radioactive Waste Management – Government is committed
to ensuring strong independent scrutiny of the proposals, plans and programmes
to deliver geological disposal. Accordingly, the Committee on Radioactive Waste
Management (CoRWM) has been reconstituted, with modified terms of reference
and expertise. The Committee will provide independent scrutiny and advice to UK
Government and devolved administration Ministers on the long-term radioactive
waste management programme, including storage and disposal. CoRWM will
undertake its work in an open and consultative manner.
Site selection using a voluntarism and partnership approach
19
4
Voluntarism and Partnership – Following the MRWS consultation, Government
remains of the view that geological disposal and an approach based on voluntarism
and partnership as a means of siting of a geological disposal facility is the right way
forward (see Chapter 6). Government does not wish to be over-prescriptive about
the way that the voluntarism and partnership arrangements should work at the
outset as individual local circumstances differ and, to a degree, a tailored approach
to any discussions will need to be taken. This flexibility does not apply to the way in
which technical issues, such as geology, are assessed, where there will be objective
and consistent assessment.
Page 327
20
In carrying forward a voluntarism/partnership approach, the White Paper identifies
three types of community;
t
Host Community – the community in which any facility will be built. This will
be a small geographically defined area and include the population of that area
and the owners of the land. For example, it could be a town or village.
t
Decision Making Body – the Local Government decision-making authority for
the host community.
t
Wider Local Interests – other communities that have an interest in whether or
not a facility should be built in the Host Community. Such as the next village, a
neighbouring district or a community on the local transport routes to the Host
Community.
All three levels of community, will need to liaise closely with one another as the
process is taken forward. Both Government and the NDA will engage with all three
‘communities’.
21
Early Process – During the early stages of the process there will be two key local
decision points:
t
Expression of Interest – the decision point at which local communities register
their without commitment interest in discussions with Government about
potential involvement in the siting process.
t
Decision to Participate – the decision point at which a Decision Making Body/
ies makes a formal commitment to participate in the geological disposal facility
siting process, but without commitment to host the facility.
Chapter 6 explains the steps that will be involved in arriving at these two
decision points.
22
Community Siting Partnerships – Following a Decision to Participate, the site
selection process and in particular the development of the facility, will require
considerable engagement with communities. Government favours a partnership
approach to this, as followed in other countries.
23
Government expects a Community Siting Partnership to be a partnership of local
community interests. The NDA’s delivery organisation would be a member but would
not be directly involved in decisions on community-related issues. Government could
participate in the work of the Community Siting Partnership as and when required.
Further details are given in Chapter 6.
24
Right of Withdrawal – The Right of Withdrawal (RoW) is an important part of the
voluntarism approach intended to contribute to the development and maintenance
of community confidence. Up until a late stage, when underground operations
and construction are due to begin (see paragraph 7.20), if a community wished
to withdraw then its involvement in the process would stop. As with other key
local decisions in the siting process, the Decision Making Body will be responsible
for exercising the RoW, based on advice and recommendations from the local
Community Siting Partnership. All parties in a Partnership would be expected
to work positively to seek to avoid the need to exercise the RoW. Proposed
arrangements for this are explained in Chapter 6.
Page 328
5
25
Engagement Packages – Communities that have taken a decision to declare an
Expression of Interest and subsequently a Decision to Participate will incur costs
in considering the issues and in setting up and operating a Community Siting
Partnership. Government will assist communities in either partly or wholly meeting
these costs through the provision of an Engagement Package. The level, coverage
and the point at which funding is available, will be considered as part of the initial
discussions between the community and Government.
26
Benefits Packages – Construction and operation of a geological disposal facility
will be a multi-billion pound project that will provide skilled employment for
hundreds of people over many decades. It will contribute greatly to the local
economy and wider socio-economic framework. There could be spin-off industry
benefits, infrastructure benefits, benefits to local educational or academic resources,
and positive impacts on local service industries that support the facility and its
workforce. It is also likely to involve major investments in local transport facilities
and other infrastructure, which would remain after the facility had been closed. In
addition there may be other benefits which may be commensurate with developing
the social and economic wellbeing of a community that has decided to fulfil such an
essential service to the nation.
27
The Government acknowledges that siting of the facility raises other issues, some of
them intergenerational, and an approach needs to be identified that recognises and
addresses the potential impact on a community over the long timescales involved.
Accepting that delivery mechanisms to achieve this will be developed as discussions
progress, the following could be some of the overarching objectives for the
investment that a community might benefit from as a result of hosting a geological
disposal facility:
28
6
t
Improved local training/skills development/education investment
t
Increased business for local service industries
t
Improved public services/infrastructure/housing/ recreational facilities
t
Improved transport infrastructure
t
Better local healthcare to meet the increased needs of the community
t
Local environmental improvement
This list is illustrative rather than exhaustive as short and long term local needs
may vary depending on the community that hosts the facility. As potential host
communities and Community Siting Partnerships work with the NDA’s delivery
organisation and Government they will begin a dialogue about the local needs
arising from hosting a geological disposal facility. Ultimately the community and
Government will need to agree between them on the final arrangement.
Page 329
The site assessment process
29
The site assessment process will be conducted in parallel to discussions between
Government, the NDA and a local community from the point at which a community
has made an Expression of Interest in opening up discussions with Government.
30
It will be a staged process, allowing all those involved to take stock before deciding
whether or not to move to the next stage at a particular site. It may be represented
diagrammatically as follows and is explained further in Chapter 7.
Figure 1: Stages in the site selection process
Stage 1:
Invitation issued and
Expressions of Interest
from communities
Advise
community
not suitable
Unsuitable
Stage 2:
Consistently applied
‘sub-surface
unsuitability’ test
Potentially suitable
Stage 3:
Community
consideration leading
to Decision to
Participate
Stage 4:
Desk-based studies in participating
areas
Stage 5:
Surface investigations on remaining
candidates
Stage 6:
Underground operations
Page 330
7
Timing
The programme for developing a facility needs to be flexible and able to incorporate both
robust technical site investigations and ongoing interactions between the project and the
Host Community. This may mean accommodating longer discussion periods and more
research to address stakeholders’ concerns. There is nevertheless, the need to maintain
momentum in taking forward this important programme to ensure the safe and secure
long-term management of higher activity radioactive waste in the UK.
Next steps
With publication of this White Paper, Government invites communities to express an
interest in opening up without commitment discussions on the possibility of hosting a
geological disposal facility at some point in the future.
To support consideration of this invitation, a dedicated website has been set up with
several layers of background information on radioactive waste and its long-term
management. This website provides, or links to, detailed information which is intended
to be accessible and helpful to people with all levels of background knowledge from nontechnical readers to experts. Further details are given in Chapter 8.
8
Page 331
Chapter 1:
Introduction
This White Paper
1.1
Published as part of the Managing Radioactive Waste Safely (MRWS) programme,
this White Paper sets out the UK Government’s framework for managing higher
activity radioactive waste in the long-term through geological disposal, coupled
with safe and secure interim storage and ongoing research and development to
support its optimised implementation. It also invites communities to express an
interest in opening up without commitment discussions on the possibility of hosting
a geological disposal facility at some point in the future.
1.2
The position of the Welsh Assembly Government (WAG), the Department of the
Environment in Northern Ireland (DoENI) and the Scottish Executive (SE) is explained
in paragraphs 1.9 – 1.14.
1.3
In this White Paper the term “Government” refers to the UK Government unless the
context indicates otherwise.
Background
1.4
In 2001 the UK Government and devolved administrations initiated the Managing
Radioactive Waste Safely (MRWS) programme with the aim of finding a practicable
solution for the UK’s higher activity wastes that:
t
achieved long-term protection of people and the environment
t
did this in an open and transparent way that inspired public confidence
t
was based on sound science
t
ensured the effective use of public monies.
Page 332
9
1.5
In October 2006, following recommendations made by the independent Committee
on Radioactive Waste Management (CoRWM) (Ref. 1), the UK Government and
the devolved administrations published a response (Ref. 2) accepting CoRWM’s
recommendations that geological disposal, preceded by safe and secure interim
storage, was the best available approach for the long-term management of higher
activity radioactive wastes. The response committed to consulting on a framework
for implementing geological disposal as the next stage of the MRWS programme.
Box 1 Key points of Government policy in its response to CoRWM
10
t
Geological disposal is the way higher activity radioactive waste will be
managed in the long-term
t
this will be preceded by safe and secure interim storage until a geological
disposal facility can receive waste. This period will include contingency
planning to cover any uncertainties associated with implementation. Storage
is a proven, safe and secure technology for the interim management of
higher activity radioactive waste
t
there will be ongoing research and development to support optimised delivery
of the geological disposal programme, and the safe and secure storage of the
radioactive waste in the interim
t
Government will pursue an approach to geological disposal site selection
based on voluntarism and partnership
t
the Nuclear Decommissioning Authority (NDA) is the body responsible for
planning and implementing geological disposal. The NDA has statutory
responsibility under the Energy Act 2004, for the disposal and safe and secure
interim storage of its waste in designated circumstances, and this is being
provided for in its Strategy (Ref. 3) and Business Plan (Ref. 4)
t
the arrangements will be subject to strong independent regulation by the
statutory regulators
t
scrutiny and advice to Government on the implementation programme will
be provided by the independent CoRWM
t
an open and transparent approach which enables the public and stakeholders
to be involved throughout the implementation process
t
implementation will be undertaken on a staged basis, with clear decision
points allowing progress to be reviewed and costs, affordability, and value for
money, safety, and environmental and sustainability impacts to be assessed
before decisions are taken on how to move to the next stage.
Page 333
Chapter 1: Introduction
1.6
On 25 June 2007, UK Government, in conjunction with the devolved administrations
for Wales and Northern Ireland, published a MRWS consultation document (Ref. 5).
This covered:
t
the technical programme and aspects of design and delivery of a geological
disposal facility; and
t
the process and criteria to be used to decide the siting of that facility, including:
–
development of a voluntarism/partnership approach; and
–
the assessment and evaluation of potential disposal sites; including the
initial screening-out of areas unlikely to be suitable for geological disposal.
The consultation closed on 2 November 2007.
1.7
One hundred and eighty-one responses to the Government’s consultation document
proposals were received. These responses have been analysed and the Summary and
Analysis of Responses was published on 10 January 2008 (Ref. 6), and taken into
consideration in the development of the way forward set out in this White Paper.
1.8
This White Paper covers the management of any higher activity waste arising in
the UK, which is not covered by the SE’s policy for higher activity waste, currently
interim near-surface, near-site storage as announced on 25 June 2007 (Ref. 7).
With this exception the framework set out in this White Paper complements UK
Government and devolved administration policy for the Long Term Management of
Solid Low Level Radioactive Waste in the United Kingdom published in March 2007
(Ref. 8).
Devolved administration positions
1.9
Devolved administration positions in respect of this White Paper, at the time of its
publication, are as follows.
Welsh Assembly Government (WAG)
1.10 Following the MRWS consultation with the people of Wales on proposals for taking
forward geological disposal of higher level radioactive wastes, WAG has noted the
proposals and has decided to reserve its position (Ref. 9).
1.11 The Assembly Government recognises the work by CoRWM leading to the
Committee’s recommendations supporting geological disposal and the use of
a voluntarist approach to seeking potential host communities. The Assembly
Government also attaches particular importance to ensuring the safe and secure
interim storage of waste, maintaining the security of such storage against terrorist
attack, and the need for research and development to support the optimised
management and disposal of waste, as recommended by CoRWM. For Wales, the
Assembly Government does not accept that any decision on legacy waste should
necessarily set a precedent for the disposal of waste from any new nuclear power
stations, and considers that it would be unproductive at this stage to ask Welsh
communities to consider accepting waste from new nuclear power stations at this
time. The Assembly Government supports the proposal by the UK Government that
the full costs of waste disposal from any new nuclear power stations should be met
in full by the operators.
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11
1.12 The Assembly Government will continue to play a full part in the Managing
Radioactive Waste Safely programme in order to secure the long term safety of
radioactive wastes, to ensure the implementation of a framework appropriate to the
needs of Wales and to ensure that the interests of Wales are taken into account in
the development of policies in this area.
Northern Ireland
1.13 The Department of the Environment in Northern Ireland (DoENI) supports the
Managing Radioactive Waste Safely programme, in recognition that it is in the
best interests of Northern Ireland that the UK’s higher activity radioactive waste is
managed in the safest and most appropriate manner.
Scottish Executive (SE)
1.14 The SE was not a sponsor of the 2007 MRWS consultation on the framework
for geological disposal. It continues to support long term interim storage and an
ongoing programme of research and development. It continues to endorse the low
level waste policy (LLW) published in March 2007 (Ref. 8).
12
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Chapter 2:
Summary of the way forward
The framework
2.1
In light of the Managing Radioactive Waste Safely (MRWS) consultation (Ref. 5), the
Summary and Analysis of Responses to it (Ref. 6) and careful consideration of the
points raised, this White Paper sets out the framework for implementing geological
disposal, including:
t
the approach to compiling and updating the UK Radioactive Waste Inventory
(UKRWI) and using it as a basis for discussion with potential host communities
(see Chapter 3, in response to Question 1 of the MRWS consultation document)
t
the Nuclear Decommissioning Authority (NDA’s) technical approach for
implementing geological disposal, including the use of a staged implementation
approach and ongoing research and development to support delivery (White
Paper paragraphs 4.1 – 4.35, in response to Question 2 of the MRWS
consultation document)
t
the approach to public and stakeholder engagement (White Paper paragraphs
4.36 – 4.40, see Question 3 of the MRWS consultation document)
t
the arrangements to ensure sound regulation, scrutiny and control of the
geological disposal facility development (White Paper paragraphs 5.1 – 5.21, see
Question 4 of the MRWS consultation document)
t
how relevant planning processes might be addressed as the programme
proceeds (White Paper paragraphs 5.23 – 5.37, see Question 5 of the MRWS
t
the definition of ‘community’ for the purposes of the site selection process (White
Paper paragraphs 6.6 – 6.9, see Question 6 of the MRWS consultation document)
t
the process for issuing invitations and providing information to communities
(paragraphs 6.10 – 6.11, see Question 7 of the MRWS consultation document)
t
how a Partnership arrangement can be used to support a voluntarism approach
(paragraphs 6.27 – 6.37, see Question 10 of the MRWS consultation document)
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13
2.2
t
the availability of an Engagement Package and a Community Benefits Package
which addresses intergenerational needs, as part of the voluntarism and
partnership approach, subject to being affordable and offering good value
for money (paragraphs 6.46 – 6.61, see Questions 11 and 12 of the MRWS
t
the initial sub-surface screening criteria and the way in which Government
will apply these criteria (paragraphs 7.4 – 7.12, see Question 8 of the MRWS
t
a refined set of criteria for assessing and evaluating candidate sites and details
of further consultation on the way in which these criteria should be applied
(paragraphs 7.23 – 7.31, see Question 9 of the MRWS consultation document).
In carrying forward the policy of geological disposal preceded by safe and secure
interim storage, Government recognises the need to take account of developments
in disposal and storage options, as well as possible new technologies and solutions.
Roles and responsibilities
2.3
The key roles and responsibilities for implementing geological disposal are:
Box 2 Roles and responsibilities for implementing geological
disposal
14
t
Government is responsible for the policy, will take final decisions and
engage with stakeholders to ensure that the objectives of the MRWS
programme are met
t
The NDA is the implementing organisation, responsible for planning and
delivering the geological disposal facility and, as part of this process, will
engage with communities and other stakeholders. NDA already provides
interim storage of waste on its sites and will continue to do so for as long as
it takes to site and construct a geological disposal facility. The NDA will also
undertake a programme of research and development to support optimised
delivery of geological disposal and interim storage. The role of the NDA as
implementing organisation is discussed in Chapter 4
t
Communities with a potential interest in hosting a geological disposal facility
will have the opportunity to work with the NDA and others in a partnership
approach during the process. The role of communities is discussed further in
Chapter 6
t
Local government will be fully engaged in a partnership approach and will
play a part in local decision-making during the site selection process. The role
of local government is discussed in Chapter 6
t
Independent regulators will ensure robust, independent regulation in
relation to statutory responsibilities for ensuring that national, EU and
international safety, security and environmental legislation and standards are
met. The role and responsibilities of the regulators is discussed in Chapter 5
t
Committee on Radioactive Waste Management (CoRWM) will
provide independent scrutiny and advice to Government on the plans and
programmes for delivering geological disposal including interim storage. The
role of CoRWM is discussed further in Chapter 5.
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Chapter 3:
The waste to be managed
Introduction
3.1
Responses to the Managing Radioactive Waste Safely (MRWS) consultation on this
issue raised points such as coverage of the UK Radioactive Waste Inventory, factors
that affected the magnitude of the Inventory, whether spent nuclear fuel, plutonium
and uranium would be included for disposal, how changes to the Inventory would
be dealt with in facility planning and development and how the issue of new build
wastes might be addressed. This chapter explains what is meant by higher activity
radioactive waste that needs to be managed in the long-term through geological
disposal and also addresses the above points. The Government will use the UK
Radioactive Waste Inventory (UKRWI) to provide a record of UK radioactive wastes
and materials to be managed in the long-term through geological disposal.
The waste to be managed
3.2
The higher activity radioactive waste to be managed in the long-term through
geological disposal are those that:
t
cannot be managed under the “Policy for the Long-term Management of Solid
Low Level Radioactive Waste in the United Kingdom” published in March 2007
(Ref. 8)
t
are not managed under the Scottish Executive’s (SE’s) policy for higher activity
waste, currently interim near-surface, near-site storage as announced on 25
June 2007 (Ref. 7).
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15
3.3
Higher activity waste is composed of all radioactive material that has no further use.
It includes the following categories of radioactive waste:
High level waste (HLW): Defined in the UK as waste “in
which the temperature may rise significantly as a result of
their radioactivity, so that this factor has to be taken into
account in designing storage or disposal facilities” (Ref.
10). HLW arises in the UK initially as a highly radioactive
liquid, which is a by-product from the reprocessing of spent
nuclear fuel. By 2015, the majority of HLW will have been
made ‘passively safe’ by converting the liquid HLW into solid
form using a treatment process called ‘vitrification’. This
involves adding treated HLW to glass forming materials and
pouring the mixture into 150 litre capacity stainless steel
containers and allowing the waste to solidify. Current plans
are that vitrified HLW be stored for at least 50 years, to allow
a significant proportion of the radioactivity to undergo a
natural decay process, for the waste to become cooler, and
so make it easier to transport and dispose of.
Intermediate level waste (ILW): Defined in the
UK as waste “with radioactivity levels exceeding the
upper boundaries for low-level wastes, but which
do not require heating to be taken into account in
the design of storage or disposal facilities” (Ref. 10).
ILW arises mainly from the reprocessing of spent
fuel and from general operations and maintenance
at nuclear sites, and can include metal items such as
fuel cladding and reactor components, and sludges
from the treatment of radioactive liquid effluents.
As decommissioning and clean up of nuclear sites
proceeds, more ILW will arise. Like other radioactive
waste, ILW needs to be contained to protect
workers and the public from radiation. Typically,
ILW is packaged for disposal by encapsulation in
cement in highly-engineered 500 litre stainless steel
drums or in higher capacity steel or concrete boxes.
3.4
Cutaway showing
simulated vitrified
HLW in a stainless
steel container
(courtesy BNFL)
Cutaway showing simulated
conditioned ILW in a stainless
steel container (courtesy BNFL)
Higher activity waste also includes a small fraction of the following type of waste –
Low level waste (LLW): LLW is the lowest activity category of radioactive waste,
and was defined in the recently updated Government LLW policy statement
(Ref. 8) as:
“Radioactive waste having a radioactive content not exceeding four
gigabecquerels per tonne (GBq/te) of alpha or 12 GBq/te of beta/
gamma activity”
LLW currently being generated consists largely of paper, plastics and scrap metal
items that have been used in hospitals, research establishments and the nuclear
industry.
16
Page 339
Although LLW makes up more than 90 per
cent of the UK’s waste legacy by volume, it
contains less than 0.1 per cent of the total
radioactivity (Ref. 11). Most operational LLW is
super-compacted to reduce its volume and sent
for disposal at the LLW repository (LLWR) near
the village of Drigg in West Cumbria, where
it is encapsulated in cement and packaged in
large steel containers. These are then placed
Drum of raw LLW of miscellaneous
in an engineered vault a few metres below the
materials (courtesy BNFL)
surface. A small fraction of the total volume of
LLW cannot be disposed of in this way, due principally to the concentration
of specific radionuclides1 and so will need to be disposed of in a geological
disposal facility.
Other materials
3.5
In addition to existing wastes, there are some radioactive materials that are not
currently classified as waste but that may, if it were decided at some point that they
had no further use, need to be managed through geological disposal. These include:
Spent fuel: Fuel that has been used to power nuclear reactors is not currently
classified as waste, because it still contains large amounts of uranium (and
some plutonium) which can potentially be separated out through reprocessing
and used to make new fuel. Most of the UK’s spent fuel from civil reactors has
been reprocessed in this way, producing separated plutonium and uranium and
HLW, ILW and LLW as waste by-products. Spent fuel need not be reprocessed,
however, and could instead be packaged and disposed of directly in a geological
disposal facility, as is planned in Finland and Sweden. Some spent fuel from
existing UK Advanced Gas-cooled Reactor (AGR) power stations and all the spent
fuel from Sizewell B Pressurised Water Reactor (PWR) is not currently destined for
reprocessing and may ultimately need to be managed in this way.
The recent Government White Paper ‘Meeting the Energy Challenge: The Future
of Nuclear Power’, (Ref. 12) explained that in the absence of any proposals from
industry, the Government has concluded that any new nuclear power stations
that might be built in the UK should proceed on the basis that spent fuel will not
be reprocessed and that plans for, and financing of, waste management should
proceed on this basis. We are not currently expecting any proposals to reprocess
spent fuel from new nuclear power stations. Should such proposals come
forward in the future, they would need to be considered on their merits at the
time and the Government would consult on them.
Plutonium: Plutonium is created in nuclear reactors as a result of irradiating the
uranium in nuclear fuel. Like uranium it can be extracted from the spent fuel
after it leaves the reactor by means of reprocessing (see above). The majority of
it, like spent fuel, is not currently classified as waste, because it can still have a
use, for example in the manufacture of some reactor fuels (Ref. 13).
1
For example those with very long half-lives.
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17
Uranium: Uranium is found naturally in many parts of the world. UK stocks of
uranium, which are not classified as waste, come mainly from refining uranium
ore (to make fuel), and from reprocessing spent fuel. The UK stocks include small
quantities of ‘enriched’ uranium (which like plutonium is suitable for making fuel
for modern nuclear reactors), but the vast majority of the UK’s uranium stocks
(around 70 per cent) consist of ‘depleted’ uranium, which is less radioactive and
has more commonplace uses, such as counterweights in aircraft.
3.6
Currently waste owners place a zero asset value on these radioactive materials
meaning that they are neither classed as waste nor a commercial asset.
3.7
Government asked the Nuclear Decommissioning Authority (NDA) to undertake a
macro-economic study of its civil nuclear materials and its findings were submitted
to Government in March 2007. A public version of the results was published in June
2007 (Ref. 13) and further work is now being carried out as a follow-up to this.
3.8
Government will decide, in conjunction with the radioactive material owners,
whether or not any of these holdings should be declared as waste. In the meantime
the NDA will factor possible inclusion of all these materials into the design and
development of the geological disposal facility.
Waste ownership
3.9
The management of higher activity radioactive waste in the long-term through
geological disposal will apply to all wastes owned by:
(i)
the NDA
(ii) private companies which produce higher activity waste, including both the
nuclear and non-nuclear sectors
(iii) Ministry of Defence (MoD).
3.10 It will be for operators in categories (ii) and (iii) above to negotiate appropriate
commercial contracts with the NDA for emplacement of their waste in the
geological disposal facility. In the case of operators of new nuclear power stations
the Government would expect to set a fixed unit price for geological disposal of
the operator’s waste based on the operator’s projected full share of waste disposal
costs at the time when the approvals for the station are given, prior to construction
of the station. The price will be set at a level over and above expected costs and
will include a significant risk premium. Government is undertaking further work to
establish the costs in the context of ensuring that new operators make sufficient
and secure financial provision to cover their full costs of decommissioning and their
full share of costs of waste management (see paragraph 4.30). Further information
can be found in the Government’s consultation on Funded Decommissioning
Programme Guidance for New Nuclear Power Stations (Ref. 23).
18
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Chapter 3: The waste to be managed
Indicative amounts of waste
The UK Radioactive Waste Inventory (UKRWI)
3.11 Since 1984, the UK has published 12 ‘snapshots’ of the current UKRWI, which includes
both existing and expected waste volumes from ongoing nuclear operations. The
last published Inventory has a stock date of 1 April 2007 (Ref. 11). The UKRWI is
currently updated every three years.
3.12 Following careful consideration of responses, Government considers that the approach
proposed in the MRWS consultation to compiling and updating the UKRWI and
using it as a basis for continued open and transparent discussions with potential
host communities for a geological disposal facility, is the right approach.
3.13 The 2007 UKRWI (Ref. 11), for the first time, contains radioactive materials not
currently classified as waste. This change in the scope of the UKRWI will allow it to
be used to track the latest estimates in waste and materials that will potentially need
to be treated as waste at some future point.
Baseline Inventory
3.14 As part of its work the Committee on Radioactive Waste Management (CoRWM)
put together a “Baseline Inventory” (Ref. 14) of higher activity wastes for geological
disposal using data from the 2004 UK Radioactive Waste Inventory (Ref. 15).
CoRWM took a prudent approach including the total amounts of radioactive wastes
and other materials that could, possibly come to be regarded as waste in the future.
3.15 Using information from the 2007 UKRWI (Ref. 11) the Baseline Inventory has been
updated in Table 1.
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19
Table 1 : 2007 Radioactive Waste and Materials Inventory (Ref. 11)
Materials
Packaged volume
Radioactivity (At 1 April 2040)
Notes
Cubic Metres
%
Terabequerels
%
HLW
1, 2,
3, 5
1,400
0.3%
36,000,000
41.3%
ILW
1, 2, 5
364,000
76.3%
2,200,000
2.5%
LLW (not for
LLWR)
1, 2, 5
17,000
3.6%
<100
0.0%
Spent nuclear
fuel
1, 4, 5
11,200
2.3%
45,000,000
51.6%
Plutonium
1, 4, 5
3,300
0.7%
4,000,000
4.6%
Uranium
1, 4, 5
80,000
16.8%
3,000
0.0%
476,900
100
87,200,000
100
Total
Notes
1. Quantities of radioactive materials and wastes are consistent with the 2007 UK Radioactive Waste
Inventory (Ref. 11).
2. Packaging assumptions for HLW, ILW and LLW not suitable for disposal at the existing national LLWR
are taken from the 2007 UKRWI. Note that they may change in the future.
3. The HLW packaged volume may increase when the facility for disposing the canisters, in which the
vitrified HLW is currently stored, has been implemented.
4. Packaging assumptions for plutonium, uranium and spent nuclear fuels are taken from the 2005
CoRWM Baseline Inventory [Ref. 14]. Note that they may change in the future.
5. Radioactivity data for wastes and materials was derived using the 2007 UK Radioactive Waste
Inventory. 2040 is the assumed start date for the geological disposal facility.
6. It should be noted that at present the Baseline Inventory is based on UK Inventory figures, and as
such, currently contains waste expected to be managed under the Scottish Executive’s policy of
interim near-surface, near-site storage as announced on 25 June 2007 (Ref. 7)
3.16 These figures are calculated on a number of detailed assumptions and can only
be taken as indicative because legacy waste amounts will change over time due,
for example, to changes in planned operations and ability to reduce the amounts
of waste for disposal through application of the waste hierarchy2. In practice,
there may also be some types of waste – for example, the graphite cores from
Magnox nuclear reactors – where alternative management options could alter the
inventory of waste destined for geological disposal. NDA competitions will introduce
international expertise in decommissioning and waste management that could lead
to other options being proposed and implemented in due course.
3.17 Changes in the UKRWI, and hence the Baseline Inventory, will occur. The estimated
quantity and the types of waste to be consigned to a disposal facility needs to be
visible and regular UKRWI updates will ensure transparency and indicate the nature
of these changes. Any final agreement with a community on a preferred site for the
geological disposal facility will need to address possible changes to the Inventory in
future years.
2
Use of a hierarchical approach to minimise the amounts of waste requiring disposal. The hierarchy consist
of; non-creation where practicable; minimisations of arisings where the creation of waste is unavoidable;
recycling and reuse; and, only then disposal.
20
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Chapter 3: The waste to be managed
Waste from new nuclear reactors
3.18 CoRWM’s recommendations to UK Government were about existing and committed
waste arisings (Ref. 1). CoRWM considered that “should a new build programme
be introduced… it would require a quite separate process to test and validate
proposals for the management of wastes arising”. The nuclear consultation (Ref.
16) document set out the Government’s views on the feasibility and desirability of
disposing of new build waste in a geological disposal facility including the balance
of ethical considerations in relation to any decision to create new waste.
3.19 Following that consultation, the UK Government issued a White Paper on Nuclear
Power (Ref. 12). In this, the UK Government set out the following conclusion:
“Having reviewed the arguments and evidence put forward, the
Government believes that it is technically possible to dispose of
new higher-activity radioactive waste in a geological disposal facility
and that this would be a viable solution and the right approach
for managing waste from any new nuclear power stations. The
Government considers that it would be technically possible and
desirable to dispose of both new and legacy waste in the same
geological disposal facilities and that this should be explored through
the Managing Radioactive Waste Safely programme. The Government
considers that waste can and should be stored in safe and secure
interim storage facilities until a geological facility becomes available.
Our policy is that before development consents for new nuclear
power stations are granted, the Government will need to be satisfied
that effective arrangements exist or will exist to manage and dispose
of the waste they will produce.
The Government also believes that the balance of ethical
considerations does not rule out the option of new nuclear power
stations.”
3.20 Through the Generic Design Assessment process (Ref. 17) the nuclear regulators
– Health and Safety Executive (HSE), Environment Agency and the Office for Civil
Nuclear Safety (OCNS) – will assess the safety, security and environmental impact
of power station designs, including the quantities and types of waste (gaseous,
liquid and solid) that are likely to arise, their suitability for storage and their
disposability (Ref. 18). The NDA will be involved in this work specifically to consider
disposability of wastes being proposed at an early stage. The nuclear power
station designs that are currently available have simpler structures (Ref. 19) than
most existing facilities, use fewer materials and produce less waste than earlier
generations of nuclear reactors.
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21
3.21 It is not possible to provide at this time a definitive inventory of radioactive waste
that would arise as a result of a new nuclear build programme. This is because it will
depend on aspects such as the reactor type, how many new reactors there are and
how long they operate. The size of any programme of new nuclear power stations
might impact on whether all of the new waste could be accommodated in the same
geological disposal facility as legacy waste. It is the government’s policy that the
owners and operators of new nuclear power stations must set aside funds over the
operating life of the power station to cover the full costs of decommissioning and
their full share of waste management and disposal costs.
3.22 Through agreed mechanisms for updating the Baseline Inventory, inclusion of new
waste will be taken forward in discussion with host communities as the programme
proceeds. Geological disposal facility design activities will consider the necessary
features to safely accommodate particular waste types if that proves necessary.
22
Page 345
Chapter 4:
Preparation and planning for
geological disposal
Introduction
4.1
Geological disposal involves isolating radioactive waste deep inside a suitable rock
formation to ensure that no harmful quantities of radioactivity ever reach the
surface environment. It is a multi-barrier approach, based on placing wastes deep
underground, protected from disruption by man-made or natural events. Geological
disposal is internationally recognised as the preferred approach for the long-term
management of higher activity radioactive waste.
4.2
Many of the responses to the Managing Radioactive Waste Safely (MRWS)
consultation made specific comment on the proposed technical approach for
developing a geological disposal facility. These are summarised in the Summary
and Analysis of MRWS responses (Ref. 6) and covered the design of a facility, the
additional research and development necessary to support its delivery, the feasibility
of co-location of wastes, the issue of retrievability and the need for planning and
costing of the implementation programme. There were also comments on the need
for greater clarity on how interim storage would be dealt with.
4.3
This chapter addresses these responses to the MRWS consultation document.
It sets out how geological disposal of higher activity radioactive waste will be
implemented, including safe and secure interim storage up until disposal. It
also acknowledges the need for ongoing research and development to support
safety case development and explains the generic design features that a disposal
facility would need to include, outlining the Nuclear Decommissioning Authority’s
(NDA’s) role in implementing the programme and how the NDA will engage with
stakeholders and the public, throughout. Some of the more detailed aspects of
facility design will have to be addressed in more detail over future years and could
depend to a degree on discussions with potential host communities.
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23
Box 3 Geological disposal internationally (Ref. 20)
t
As of 2006 at least 39 countries (including the UK) had significant arisings of
radioactive waste.
t
Of those countries, 25 have taken final decisions on a long-term policy and all
had opted for geological disposal. These include Belgium, Canada, Finland,
France, Germany, USA and Sweden.
t
A further six have expressed a preference for geological disposal with the
remainder yet to decide.
t
The USA has an operational facility which is disposing of transuranic wastes
(broadly equivalent to Low Level Waste (LLW) – Intermediate Level Waste
(ILW)) and Germany is planning to have its geological facility for non-heat
generating wastes operational by 2013.
t
A number of countries (including Finland and Sweden) are already
investigating their preferred sites for a geological disposal facility for spent
fuel. Finland and Sweden already have shallow geological facilities for
disposal of ILW and LLW. Sweden has been operating the deep geological
research facility, testing techniques for disposal of spent fuel, for a number of
years.
t
France is investigating a site at Bure with a view to it becoming the final
disposal facility and Canada is developing a deep repository for LLW and ILW
at Kincardine.
t
All countries also have some form of interim storage. But no country has
indicated that it has chosen, or is considering, indefinite storage as its longterm waste management policy.
Interim storage
4.4
It will be many years before a geological disposal facility could be completed.
Government accepted CoRWM’s recommendation that a robust programme of
interim storage must play an integral part in the long-term management strategy
and believes this will provide an extendable, safe and secure means to hold waste
for as long as it takes to identify a site and to construct a geological disposal facility.
4.5
Interim stores provide safe and secure protection for waste packages, although for
a period much shorter than the half-life of the radioactive materials which require
management. In terms of preventing hazardous releases to the outside environment,
a number of engineered barriers are provided to complement safety management
arrangements, for example:
24
t
the waste form
t
the container
t
shielding (either of the package or of the store structure)
t
the external store structure.
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Chapter 4: Preparation and planning for geological disposal
Figure 2: Interim Storage – physical and environmental layers of protection
(courtesy NDA)
1 The passivity of the
wasteform is the
primary barrier.
2 The waste container is
the secondary barrier.
4
3
2
3 Control of the store
environment is the tertiary
barrier and is important
in maintaining integrity
of the wasteform and
waste container.
1
4 The store structure is the
final layer of protection.
4.6
Shielding of the waste packages reduces the radiation emitted. To assure passive
safety the focus of these engineered barriers is on the waste form first, then the
container and finally, the store. The store building itself represents the final barrier of
a series of barriers between the waste and the wider environment.
4.7
The emphasis is on early immobilisation of operational and legacy waste materials
to reduce their hazard. Such packaged wastes need to be placed into appropriate
interim storage until they can be disposed of in the geological disposal facility.
Packaging requirements are kept under review by the NDA’s Radioactive Waste
Management Directorate (RWMD), under arrangements scrutinised by the regulators
so as to minimise the possibility that waste will have to be repackaged prior to
receipt in the repository whilst in storage. Wastes will be made passively safe as soon
as practicable, consistent with the objective of avoiding future repackaging and the
attendant double handling of wastes.
4.8
Existing stores for waste packages are typically designed to provide a service life of 50
to 100 years. These stores will have their service lives extended as required, in order to
provide sufficient safe and secure interim storage throughout the geological disposal
facility development programme. The replacement of stores will be avoided wherever
possible, but the NDA will ensure that its strategy allows for the safe and secure
storage of the waste contained within them for a period of at least 100 years.
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25
4.9
The security of all stores is of paramount importance. NDA sites are operated under
contract by site licensee companies (SLC)3. These SLCs, and other operators of
interim waste stores such as British Energy, are regulated and advised by the Office
for Civil Nuclear Security (OCNS). Account is taken of matters including the design
and engineering of new stores and the refurbishment of existing stores, in light of
the risks to the security of their contents, now and into the future.
4.10 Following the Committee on Radioactive Waste Management’s (CoRWM’s)
recommendation (Ref. 1) that a robust programme of interim storage must play an
integral part in implementing geological disposal, the NDA is reviewing UK waste
storage arrangements. The review covers legacy facilities containing unpackaged
waste as well as more modern stores for packaged waste. The review also extends
to consideration of British Energy and MoD wastes not managed by the NDA. The
regulators and Government are
closely involved in this work and
the results will be reflected in
the next NDA Strategy. The NDA
review focuses on the ongoing
provision of storage for packaged
wastes pending the availability
of a geological disposal facility
and also considers the storage of
unconditioned wastes currently
held in legacy facilities. The review
will be completed in 2008.
Encapsulated product store, Sellafield (courtesy NDA)
4.11 Similar arrangements to those above apply to the safe and secure storage of other
radioactive materials such as spent fuel, uranium and plutonium.
4.12 Radioactive wastes owned by the Ministry of Defence (MoD) and held at MoD
owned or related facilities are stored safely and securely in accordance with
MoD regulations. MoD Intermediate level waste (ILW) is currently stored at AWE
Aldermaston until a geological disposal facility becomes available. The MoD has no
high level waste (HLW).
3
An SLC is a corporate body to whom a nuclear site licence to install or operate a nuclear reactor or other
prescribed nuclear installation (such as a geological disposal facility) has been granted. An SLC has legal
responsibility for the safe operation of the installation, and liability for injury to persons or damage to
property resulting from occurrences involving nuclear matter or emissions of ionising radiations. It is the SLC
and not the NDA who will be subject to regulatory control.
26
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Disposal facility design and delivery
4.13 Some of the waste to be placed in a geological disposal facility will remain radioactive
and thus potentially hazardous for hundreds of thousands of years. The principle
of geological disposal is to isolate the waste deep inside a suitable rock formation
to ensure that no harmful quantities of radioactivity reach the surface environment.
Meanwhile the process of radioactive decay will continue reducing the hazard of
the waste until it eventually presents no further danger.
4.14 To achieve this, the waste will be placed in an engineered underground containment
facility – the ‘geological disposal facility’. The facility will be designed so that natural
and man-made barriers work together to minimise the escape of radioactivity. It is
inevitable that some radioactivity from the facility will eventually reach the surface.
But the disposal facility will be designed to ensure that risks arising from such release
would be insignificant compared to the levels of radioactivity all around us in the
environment from natural background sources. The natural process of radioactive
decay over time will assist this aim.
4.15 As noted earlier, the UK
Government policy is
aligned with countries such
as Finland, France, Sweden
and the USA who have
already made good progress
towards implementing
geological disposal. The UK
is therefore well-placed to
benefit from international
experience in this field,
while using and maintaining
Underground facilities at the Waste Isolation Pilot Plant (WIPP) in
New Mexico USA (courtesy WIPP information centre)
domestic capabilities. Close
scrutiny of international
best practice and exchanging experience with other countries will be a key part of a
geological disposal facility development process over the coming decades.
4.16 The detailed layout and design of the basic geological disposal facility, both above
and below ground, will be tailored to the Baseline Inventory and the geography and
specific geological characteristics at the site in question. An illustrative co-located
facility structure is shown in Figure 3 (it should be noted that the underground areas
need not necessarily be constructed on a single level but can be layered to take
account of the most advantageous local geology).
4.17 During the course of 2008-9, the NDA will undertake early planning for the
implementation of a geological disposal facility. This will include provision for a
staged implementation approach, with clear decision points, that allows design and
development, cost, affordability and value for money, safety, and environmental
and sustainability impacts to be reviewed at the end of each stage before a decision
to move on to the next stage is agreed with Government. This planning will be
progressively refined and costed as the implementation programme proceeds.
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27
Figure 3: Generic co-located geological disposal facility
4.18 Some of the more detailed aspects of the design of a geological disposal facility are
discussed in Annex A.
4.19 Construction and operation of a geological disposal facility will be a long-lived,
multi-billion pound engineering project. It will draw on the skills of both the
underground construction and nuclear industries, and will provide skilled
employment for hundreds of people over many decades. As such, it will have
significant positive economic and social impacts on the surrounding area. How these
can be managed are discussed in Chapter 6.
Retrievability of waste
4.20 Government acknowledges that there is a divergence of views on the issue of waste
retrievability, but on balance considers that CoRWM’s conclusion was correct, i.e.
that “leaving a facility open, for centuries after waste has been emplaced, increases
the risks disproportionately to any gains” (Ref. 1). Closure at the earliest opportunity
once facility waste operations cease provides greater safety, greater security from
terrorist attack, and minimises the burdens of cost, effort and worker radiation dose
transferred to future generations.
4.21 CoRWM noted that it is likely to be at least a century from publication of their
recommendations in July 2006 until final closure of an entire facility is possible
Ref. 1). In practice it could be longer. This timescale provides sufficient flexibility for
further research to be undertaken.
4.22 Hence Government’s view is that the decision about whether or not to keep a
geological disposal facility (or vaults within it) open once facility waste operations
cease can be made at a later date in discussion with the independent regulators
and local communities. In the meantime the planning, design and construction can
be carried out in such a way that the option of retrievability is not excluded. Any
implications for the packaging of wastes will be kept under review.
28
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Co-location of wastes in a geological disposal facility
4.23 It would be possible to build
more than one geological
disposal facility, for example
one for ILW and LLW and
one for HLW and spent fuel
(or indeed two facilities that
each took some of each
waste type). This could be
necessary if the geology
at potential sites was not
suitable for a ‘co-located’
(i.e. combined) geological
disposal facility.
Waste being stacked in a disposal vault at the Waste Isolation Plant
(WIPP) in New Mexico USA (courtesy WIPP information centre)
4.24 Some respondents to the
MRWS consultation questioned whether different types of waste could be safely colocated in a disposal facility. Research will be required to support the detailed design
and safety assessment for the disposal facility for each type of waste, and in relation
to any potentially detrimental interactions between the different disposal systems.
Previous studies and evaluations (Ref. 21) have identified the most important
interactions and these will be kept under review in light of any new research
findings. This includes the exchange of information with a number of international
waste management programmes.
4.25 In principle the UK Government sees no case for having separate facilities if one facility
can be developed to provide suitable, safe containment for the Baseline Inventory. This
is because the sharing of surface facilities, access tunnels, construction support and
security provision could lead to significant benefits, including major cost savings and
lower environmental impacts. There is no reason why this should not be technically
possible, in theory, although the final decision would be made in the light of the
latest technical and scientific information, international best practice and site specific
environmental, safety and security assessments.
Design implications of including waste from any new nuclear power stations
4.26 Government considers that it would be technically possible, and desirable, to
dispose of any new waste in the same geological disposal facility as legacy
waste and has committed to exploring this through the MRWS process (Ref. 12,
paragraphs 3.18 – 3.22).
4.27 The fact that construction of a geological disposal facility has not begun will allow
any necessary engineering features to be built into the design to accommodate
particular types of waste if necessary. The size and timing of any programme of new
nuclear power stations may have an impact on the amount of any new waste that
could be disposed of in the same facility as the legacy waste. If new build waste
were to be accommodated in the same facility as legacy waste, additional capacity
would have to be provided and the design would need to be modified. The facility
may also have to stay open longer, as new power stations could be decommissioned
later than existing plants.
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29
4.28 The issue of the disposability of waste will be specifically considered as any applications
for new nuclear build come forward. Through the Generic Design Assessment
process (Ref. 17) the nuclear regulators will assess the safety and security, and the
environmental impact, of power station designs, including the quantities and types
of waste (gaseous, liquid and solid) that are likely to arise, and the ability to store and
dispose of solid wastes (Ref. 18). The NDA will be involved in this work specifically to
consider disposability of wastes being proposed at an early stage.
Costs of geological disposal facility development
4.29 The exact cost of a geological disposal facility development will be influenced by
many different factors, including the Baseline Inventory of waste, the geology at the
site in question and the design of a geological disposal facility. The NDA is currently
developing a parametric cost model which will allow the implications and costs of
different scenarios to be assessed. Indicative figures will be published in the NDA’s
Annual Report and Accounts.
4.30 The UK Government is undertaking further work to establish the costs of managing
waste from new nuclear power stations. This work is in the context of ensuring
that the operator of any new power station makes sufficient and secure financial
provision to cover their full decommissioning costs and their full share waste
management costs. Further information can be found in the Government’s
consultation on Funded Decommissioning Programme Guidance for New Nuclear
Power Stations published on 22 February 2008 (Ref. 23).
Research and development (R&D) to support implementation
4.31 The need for more
research and development
was raised in a number
of MRWS consultation
responses. The NDA has
statutory responsibility
under the Energy Act 2004
for carrying out research
to support the activities
for which it is responsible.
The UK Government
believes, in the light of
Part of a Geological disposal facility under construction in Finland
(courtesy Posiva)
CoRWM’s work and wider
international experience,
that there is already sufficient research work available to be confident that
geological disposal is technically achievable. In line with CoRWM’s recommendation
4 (Ref. 1) and responses to the MRWS consultation, the NDA will undertake further
research during the geological disposal facility development process in order to
refine concepts, improve understanding of chemical and physical interactions in a
disposal facility, address specific issues raised by regulators, support development of
site-specific safety cases (see Chapter 5) and to optimise facility design and delivery.
30
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4.32 Whilst Government policy
is to pursue the geological
disposal of higher activity
radioactive waste,
Government recognises
the need to take account
of developments in storage
and disposal options,
as well as possible new
technologies and solutions.
Future research and
development may identify
Copper cylinder for spent fuel disposal in Finland (courtesy Posiva)
new options for dealing
with some wastes, which under application of the waste hierarchy (see footnote 2,
pg 20), could reduce the amounts of waste requiring disposal. The NDA will also
keep options such as Borehole Disposal of certain types of waste under review.
The cost implications of the various options explored will be estimated by the NDA
as part of its work programme and Government will look to CoRWM (Ref. 24) to
provide independent scrutiny and advice on the NDA research programme.
4.33 The NDA’s Radioactive Waste Management Directorate already has a focused
research and development programme in support of geological disposal and a
document setting out these proposals has been issued for wide-ranging review
(Ref. 25). This sets out the key drivers, a proposed programme and potential
arrangements for carrying out the work.
4.34 Furthermore, to ensure a world class scientific programme, combined with cost
effectiveness and value for money, the NDA has a number of partnerships and
strategic alliances. These include:
t
strategic relationships with universities
t
bi-lateral agreements with overseas waste management organisations for joint
research work and information exchange
t
participation in European Commission funded research projects alongside
overseas waste management organisations
t
involvement in research projects with the Nuclear Energy Agency of the
Organisation for Economic Co-operation and Development (OECD)
t
links with learned societies and professional bodies.
4.35 Review and scrutiny of NDA’s research and development programme supporting
geological disposal will be undertaken by the NDA’s Research Board and Research
Forum, the independent regulators and CoRWM.
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31
Managing Radioative Waste Safely
Public and stakeholder engagement
4.36 MRWS consultation responses (Ref. 6) were broadly in favour of proposals set out
in the consultation document for public and stakeholder engagement. There were
comments on the overall approach that would be adopted, which bodies should
be viewed as stakeholders and the means by which they would be engaged. These
points have been carefully considered and reflected in the approach below. A key
element will be the NDA framework for public and stakeholder engagement and
communication which will be subject to further stakeholder consultation. This will
include all those who responded to this aspect of the MRWS consultation.
4.37 In light of responses, the UK Government’s proposal is that the NDA and its delivery
organisation should work in partnership with potential host communities
throughout the process of geological disposal facility siting, development and
operation. This will enable engagement with those stakeholders and members of
the public who would be most affected by development of a geological disposal
facility. It is also likely that some high level engagement with Host Communities and
their Decision Making Body/ies will need to be led by central Government.
4.38 The NDA already engages widely with the public and with its current stakeholders,
consulting on the work covered by its Strategy (Ref. 3) and Business Plans (Ref.
4), using various mechanisms including a National Stakeholder Group and Site
Stakeholder Groups at its sites.
4.39 During the development of the geological disposal facility, the NDA will seek views
from CoRWM and stakeholder forums established by various interest groups as
well as using a range of engagement mechanisms to involve stakeholders. This
will include a range of activities at national, regional and local level in order to
increase transparency, raise awareness of the issues and enable interested parties
to provide input to proposed arrangements for delivery of a geological disposal
facility. These are likely to include workshops and seminars on specific aspects of
geological disposal in response to demand; posting information on the NDA website
and distributing it to interested parties; providing briefings and presentations; and
working with the media. At a local and regional level much of this engagement
will be through the NDA’s involvement in the Community Siting Partnership (see
paragraph 6.29).
4.40 Following publication of this White Paper, the NDA will set out its framework for
public and stakeholder engagement and communication during development of
the geological disposal facility. Stakeholders will be invited to comment on the
framework to allow an engagement and communications strategy to be developed.
Views will be sought on what stakeholders want from engagement with the NDA,
the timing of that involvement and their preferred means of engagement. The
32
Page 355
resulting strategy, which must be agreed by Government, is likely to include the
following three elements:
t
formal consultations required under statutory or regulatory requirements
t
engagement as part of the NDA’s wider community engagement activities,
including Site and National Stakeholder Groups
t
meeting the specific requirements of local communities which are participating
in the site selection process (see Chapter 6).
Revised governance of the NDA
4.41 Revised governance arrangements for the NDA have been set in place to recognise
the existing joint statutory responsibilities of the Secretary of State for Business,
Enterprise and Regulatory Reform and the Scottish Ministers, but also acknowledge
the radioactive waste management policy interests of Defra, the Welsh Assembly
Government (WAG) and the Department of the Environment in Northern Ireland
(DoENI).
4.42 The Waste Management Steering Group (WMSG) has been established to augment
existing governance arrangements. The Group is made up of officials from:
t
Defra, BERR, WAG and DoENI (as sponsors of the MRWS programme)
t
HM Treasury
t
SE
t
NDA
It monitors all of the NDA’s long-term waste management planning and
development programmes to ensure a coherent approach to the management
of all radioactive wastes, including both higher activity and low level waste. The
development of a geological disposal facility for higher activity waste will be the
main focus of the Steering Group’s work.
4.43 As part of its work, the WMSG will consider CoRWM’s advice to Ministers on the
NDA’s long-term waste management planning and implementation programmes.
The Steering Group may make proposals to Ministers on how Government, in
conjunction with the NDA should respond to such advice. It also provides advice
to UK Government and devolved administration Ministers on progress with
implementation of geological disposal, and on the decisions that will need to
be taken as the staged implementation programme proceeds. The Chair and
appropriate members of CoRWM will be invited to attend Steering Group meetings,
as necessary.
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33
Managing Radioative Waste Safely
The NDA as the implementing body
4.44 The Government’s response to CoRWM in October 2006 (Ref. 2) gave responsibility
for planning and implementing geological disposal to the NDA, so as to enable the
NDA to take an integrated view across the waste management chain, with both long
and short term issues addressed in planning and strategy development. Since then
the NDA has established a new Radioactive Waste Management Directorate (RWMD),
incorporating resources from the former United Kingdom Nirex Ltd, which it will
develop into an effective delivery organisation to implement geological disposal.
4.45 It is envisaged that RWMD will evolve under the NDA into the ‘NDA’s delivery
organisation’. This organisation will be responsible for the delivery of the geological
disposal facility and in due course its ownership can be opened up to competition in
line with other NDA sites. Further dialogue with Government, the regulators and the
supply chain will be required before this step is taken to determine whether this is
the appropriate implementation approach.
4.46 Key objectives for the RWMD are set out in the NDA Business Plan, which has
recently been revised and published following public consultation (Ref.4).
34
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Chapter 5:
Protecting people and the
environment: regulation,
planning and independent
scrutiny
Summary
5.1
Managing Radioactive Waste Safely (MRWS) consultation responses generally
regarded existing regulation as satisfactory. Responses stressed the need for clarity
of responsibilities, the need for regulators to work together in an integrated manner,
the need for staged regulation and also the possible need for new, or an update to
current, legislation to support regulatory delivery. These points have been addressed
in this chapter.
5.2
The Government’s arrangements to ensure sound regulation, scrutiny and control
of the Nuclear Decommissioning Authority’s (NDA’s) geological disposal facility
development programme are summarised in the box overleaf.
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35
Box 4 Regulation, scrutiny and control
Government is committed to strong and effective control and regulation of the
geological disposal facility development process, and this will be enforced in the
following way:
t
The NDA and its delivery organisation will comply with the appropriate
regulatory and planning processes
t
Government will look to early and continued involvement of the safety,
environmental, security, transport and nuclear safeguard regulators
throughout the MRWS implementation programme
t
The regulators will make clear their regulatory requirements to the NDA’s
delivery organisation at an early stage
t
Government will expect the NDA’s delivery organisation, in discussion with
relevant planning authorities and the regulators, to develop a coordinated
strategy for seeking the necessary planning permission and regulatory
approvals, with roles, responsibilities and any ‘hold-points’ clearly identified
t
Environmental impact and sustainability issues will be assessed through
application of the Strategic Environmental Assessment (SEA), Sustainability
Appraisal (SA) and Environmental Impact Assessment (EIA) processes
t
Regulatory processes for granting any necessary licences or authorisations will
provide opportunity for input and assessment of public and stakeholder views
t
Regulatory reviews will be published, and regulatory decision-making
processes will be open and transparent while taking account of necessary
issues such as national security and commercial confidentiality.
Regulation
5.3
Robust, effective and independent regulation is vital for public confidence
in a geological disposal facility programme which meets high safety, security
and environmental standards based on comprehensive risk assessment and
management.
5.4
The UK has a strong and effective regulatory regime for the management of
radioactive waste, including storage. This is delivered principally through the
following bodies in Box 5.
36
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Chapter 5: Protecting people and the environment: regulation, planning and independent scrutiny
Box 5 Regulatory bodies
Health and Safety
Executive (HSE)
The statutory body responsible
for the enforcement of health
and safety law on nuclear
sites in Great Britain. HSE is
the licensing authority for
nuclear installations in Great
Britain and, through its Nuclear
Installations Inspectorate
(NII), regulates the nuclear,
radiological and industrial
safety of nuclear installations.
Office for Civil Nuclear
Security (OCNS)
This Division within HSE’s
Nuclear Directorate regulates
security arrangements in the
civil nuclear industry, including
security of nuclear material
in transit, exercising statutory
powers on behalf of the
Secretary of State for Business,
Enterprise and Regulatory
Reform (BERR).
5.5
Environment agencies
The Environment Agency is responsible in
England and Wales for the enforcement
of environmental protection legislation in
the context of sustainable development. It
authorises and regulates radioactive and nonradioactive discharges and disposals to air,
water (both surface water and groundwater)
and land. The equivalent body in Scotland is
the Scottish Environment Protection Agency
(SEPA) and in Northern Ireland this function is
carried out by the Environment and Heritage
Service within the Department of the
Environment (DoENI)
Department for Transport (DfT)
Regulation of the safety of radioactive
material transport by road, rail and sea in
Great Britain is carried out by DfT, HSE,
the Office of Rail Regulation (ORR) and the
Maritime and Coastguard Agency (MCA).
The DfT exercises its statutory powers of
enforcement on behalf of the Secretary of
State for Transport. In Northern Ireland,
regulation of the carriage of radioactive
material by road is the responsibility of
the Department of the Environment.
Responsibility for regulating the carriage of
radioactive material by rail is the responsibility
of the Department of Enterprise, Trade and
Investment.
A number of Managing Radioactive Waste Safely (MRWS) consultation responses
highlighted the need for clarity of responsibilities between the regulatory bodies
in regulating the delivery of the geological disposal facility programme. Regulatory
bodies will work closely together to ensure the regime as a whole is coherent,
effective and efficient. Individual aspects of regulation will be carried out in
accordance with the statutory responsibilities of each regulatory body and will be
clearly delineated. Implementation of the geological disposal facility programme
by the NDA will comply fully with relevant UK and international legislation and
conventions, including:
t
all relevant Euratom Treaty requirements as transposed into UK law, including
Council Directive 96/29/Euratom laying down basic safety standards for the
protection of the health of workers and the general public against the dangers
of ionising radiation (Ref. 26, the Basic Safety Standards Directive)
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37
t
all relevant legislation, including the Radioactive Substances Act 1993 (RSA93)
(Ref. 27), the Health and Safety at Work etc. Act 1974 (HSWA74) (Ref. 28),
the Nuclear Installations Act 1965 (NIA65) (Ref. 29), the Carriage of Dangerous
Goods and Use of Transportable Pressure Equipment Regulations 2007 and the
Nuclear Industries Security Regulations 2003
t
the Joint Convention on the Safety of Spent Fuel Management and on the
Safety of Radioactive Waste Management, and the Convention on Physical
Protection of Nuclear Material
t
the principles of radiological protection established by the International
Commission on Radiological Protection (ICRP) as reflected in European Union
and UK legislation and standards, the latter based on independent advice from
bodies such as the Health Protection Agency (HPA) and the Committee on
Medical Aspects of Radiation in the Environment (COMARE).
5.6
Some comments from MRWS consultation responses included the suggestion that
Government should enact bespoke legislation for these purposes, rather than relying
on existing legislation. Government does not consider that bespoke legislation is
required for implementation of geological disposal but it will keep this under review.
5.7
The NDA’s delivery
organisation will meet
all relevant regulatory
requirements in its delivery
of the geological disposal
facility. It will be the
responsibility of the delivery
organisation to ensure
that its programme is
appropriately coordinated as
part of a staged application
and approval process to
Transport cask in the reception area of Swedish central interim
ensure that permissions
storage facility for spent nuclear fuel (courtesy SKB)
are obtained in the right
order. The geological disposal facility will comply fully with the requirements of the
independent regulators, who will work closely together. The environment agencies
will be providing updated guidance on the requirements for authorisation of
geological disposal facilities.
5.8
Early and ongoing engagement between the regulators, the NDA and its delivery
organisation will inform and assist the subsequent formal regulatory stages.
Regulatory scrutiny of early work will assist the process of site selection;
provide information to stakeholders; build confidence in the safety, security and
environmental performance of the proposed geological disposal facility; inform the
work required during future stages; and help to avoid unnecessary and costly delays
during the formal regulatory stages.
5.9
The paragraphs below are not intended as a detailed description of the regulatory
requirements, but summarise the key requirements that will apply to the
development of a geological disposal facility in the UK.
38
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Nuclear site licensing – safety regulation
5.10 A geological disposal facility will require a Nuclear Site Licence under the Nuclear
Installations Act 1965 (NIA65) (Ref. 29). Granting a licence is dependent on
satisfactory assessment of a safety case for the facility by the Health and Safety
Executive. Licence conditions cover all aspects of nuclear safety relating to the
development of the facility and provide for a series of construction and operational
hold points e.g. consent to start construction or excavation, consent to start
commissioning, etc. Before work can proceed beyond a hold point, the Health and
Safety Executive will need to be satisfied that the proposed activity following the
hold point is backed by a satisfactory safety case submission4.
5.11 After completion of operational and decommissioning activities on a nuclear licensed
site, the site remains under the nuclear site licensing regime until the licence holder
is able to demonstrate to the safety regulator that it is appropriate to end the
‘period of responsibility’. As the criteria for ending this institutional control have
only ever been applied to nuclear facilities operating at the surface these may have
to be reviewed to ensure that there is appropriate consideration of the distinction
between traditional surface facilities and a geological waste disposal facility.
5.12 In light of MRWS consultation responses and discussions with the Health and Safety
Executive (HSE), Government will keep under review the legislative and regulatory
provisions available to the safety regulator to ensure they are sufficient to enable it
to undertake the necessary staged licensing of the NDA’s geological disposal facility
development.
Authorisation of waste disposal – environmental regulation
5.13 The disposal of radioactive waste is subject to authorisation under the RSA 935
(Ref. 27) by the appropriate environmental regulator6. The NDA’s delivery
organisation will be required to apply to the environmental regulator for
authorisation. Before the environmental regulator grants any authorisation, the
European Commission (EC) will also need to be satisfied that other countries will
not be adversely affected by the proposed disposal facility. Within an authorisation
for radioactive waste disposal, the environmental regulator has the right to impose
additional controls on the NDA’s delivery organisation to ensure protection of the
environment from a non-radiological perspective.
5.14 The development of a geological disposal facility will be subject to staged
authorisation by the environmental regulator. Following careful consideration
of responses to the MRWS consultation, Government is looking to amend the
legislative powers available to the Environment Agency to enable it to undertake a
staged authorisation process more effectively.
4
Safety case submissions are documents required to be produced by applicants for nuclear site licenses and
by existing licensees under their nuclear site licensing conditions to allow the safety regulator to assess, and
thus ensure, the safety of their proposed operation practices and arrangements.
5
Under the Better Regulation initiative, the Environmental Permitting Programme (EPP) is a joint Defra, Welsh
Assembly Government and Environment Agency initiative to streamline waste management licensing and
pollution prevention control regimes. UK Government is currently investigating whether RSA93 could be
updated or any sections clarified under the EPP programme.
6
See Box 6 : Regulatory bodies
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39
5.15 Staged authorisation will bring in a series of important hold points each requiring
decisions as the development programme progresses. At each hold point the NDA’s
delivery organisation will submit an updated environmental safety case to provide
continuing assurance that the site will meet regulatory requirements. If satisfied with
the updated safety case, the environmental regulator will grant approval, by means
of an authorisation or amended authorisation. This will be subject to conditions and
limitations considered appropriate at that time, for development of the facility to
proceed beyond the hold point. As well as covering aspects such as management
controls, disposal limits, monitoring and reporting, the authorisation conditions
could also specify key actions such as specific research and development work that
the environmental regulator requires the NDA’s delivery organisation to undertake
before the next hold-point.
5.16 Staged authorisation will support open and constructive engagement between
the delivery organisation, the environmental regulator, stakeholders and the public
throughout the facility development. This engagement will involve stakeholders and
the public under the principles set out in Box 4 and will be underpinned by formal
regulatory consultations at appropriate hold points to help provide assurances that
an acceptable development path is being followed.
5.17 The environmental regulators are consulting on revised guidance on the regulatory
requirements for authorisation of both deep geological disposal and near surface
disposal facilities (Ref. 30 and 31). This will update the document “Disposal Facilities
on Land for Low and Intermediate Level Radioactive Wastes: Guidance on the
Requirements for Authorisation” published in 1997 (Ref. 32). The revised guidance
will be finalised for publication later this year. It will cover environmental safety
in the operational phase and long-term environmental safety after closure of the
facility, and will have regard to the need for staged regulation.
Security
5.18 Civil nuclear installations must have a site-specific security plan approved by
the OCNS, and any proposed changes to security plans must also be approved
in advance by OCNS. The security plan must provide details on site security
management, policing and guarding, and to describe in detail the site security
measures and arrangements for managing and reporting incidents. OCNS approval
of carriers and transport plans will also be required where movement of nuclear
material to the facility is involved.
5.19 It is intended that the OCNS will ensure that security measures are included in plans
for the construction of any new facility from the outset. Doing so will avoid the need
to retrofit security measures once construction is under way. This will also enable
regulators to make an early judgement on the most appropriate measures for any
construction site (Ref. 33) and help ensure that security is ingrained into practices at
a site from day one.
40
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Non-proliferation of nuclear materials (nuclear safeguards)
5.20 Nuclear safeguards are international measures that assure individual states comply
with their international obligations not to use civil nuclear materials (plutonium,
uranium and thorium) for nuclear explosives purposes. The International Atomic
Energy Agency (IAEA) can choose which civil nuclear material in UK facilities it
verifies, but the EC must apply safeguards to all such material according to the
requirements of Chapter 7 of the Euratom Treaty (Ref. 34) and Euratom Safeguards
Regulation 302/2005 (Ref. 35). These requirements mean that preliminary
information on the basic design and operation of a new geological disposal facility
must be provided to the Safeguards Inspectorate of the European Commission at
least 200 days before construction begins (Ref. 35). In practice, information
would be available well in advance
of this deadline. The information,
and its subsequent updating, then
provides a basis for agreement
with the Safeguards Inspectorate
on safeguard arrangements to
be applied to the facility – both
to fulfil the relevant reporting
requirements of Commission
Regulation (Euratom) 302/2005
(Ref. 35) and to enable the
inspection activities necessary to
Underground transport facilities at a disposal facility in Sweden
verify these reports.
(courtesy SKB)
Transport package approval
5.21 Waste will need to be transported safely from interim stores to the site of the
geological disposal facility. The requirements for the safe transport of radioactive
material by road, rail and sea stem from international agreements and European
Directives. These requirements have been implemented in UK legislation setting out
what types of transport package are allowed, how much radioactivity they are allowed
to contain, and how they should perform against specified tests. Approval from the
transport safety regulator is required for certain package designs and shipments
(see Ref. 36 for a list of the provisions that apply). The transport safety regulator
responsible for granting approvals is the DfT, and enforcement powers are allocated
between DfT, HSE, DoENI and the Maritime and Coastguard Agency (MCA). These
transport package approval requirements will apply to movements of waste required
under the geological disposal facility development and operation programme.
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Justification
5.22 European legislation (Ref. 26) requires that any new practice involving ionising
radiation initiated on or after 13 May 2000 needs a justification decision from
the Member State that the benefits of the practice outweigh any detriment to
health that might be caused by exposure to radiation. However, guidance from
the International Commission on Radiological Protection (ICRP) (Ref. 37) and Defra
(Ref. 38) on behalf of the Justifying Authorities, states that waste management and
disposal operations are an integral part of the practice that generates the waste and
it is inappropriate to regard them as free-standing practices that require their own
justification.
Planning arrangements
5.23 The NDA’s delivery organisation will require planning permission for the development
of a geological disposal facility. Under the current planning system, development is
‘plan led’; that is, governed by the Development Plan. In England the Development
Plan for any given area outside London comprises the Regional Spatial Strategy and
any Development Plan Documents which have been adopted. A similar situation
exists in Wales, with each local planning authority having regard to the Wales Spatial
Plan and its adopted Development Plan. Different arrangements apply in other parts
of the UK.
5.24 Under the current arrangements, applications would be determined by the relevant
local planning authority, or by Ministers under powers to call in some planning
applications.
Planning reform in England
5.25 By the time any application for a geological disposal facility is made, a new system
is likely to be in place, implementing proposals in the May 2007 Planning White
Paper, “Planning for a Sustainable Future” (Ref. 39). This proposed the introduction
of a new single consent regime and an independent commission to determine
applications for nationally significant infrastructure projects. This is intended to allow
decisions to be taken in a way that is timely, efficient and predictable, to improve
the accountability and transparency of the system, and to improve the ability of the
public and communities to participate effectively in the process.
5.26 Under the proposed reforms, the UK Government would produce national policy
statements for different categories of nationally significant infrastructure setting out
the national need. Decisions on individual applications for development consent
for nationally significant infrastructure would then be taken by an Infrastructure
Planning Commission (IPC) composed of experts drawn from a range of fields.
5.27 In November 2007, the Government introduced a Planning Bill to implement the
reforms set out in the Planning White Paper. Responding to concerns raised during
consultation on the Planning White Paper, the Bill places public consultation and
participation at the heart of all three key stages in the regime:
t
42
by creating a clear duty to ensure effective public consultation on national policy
statement. This consultation should include positive and proactive means of
engaging citizens and communities. Where national policy statements identify
locations or potential locations for development, there will be a duty to consult
in those locations
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t
by placing clear legal obligations on developers to consult local communities
before they submit a planning application, and ensure that this consultation is
of high quality
t
by making planning inquiries accessible and ensuring peoples’ rights to be
heard are protected. In particular the Bill will make it clear that any person who
registers an interest can give oral evidence at relevant stages of the inquiry.
5.28 Ministers will have a duty to contribute to sustainable development in preparing
national policy statements. The IPC must take account of all information specific to
the case before it which it considers relevant and important to its decision, including
local impacts.
5.29 In the MRWS consultation (Ref. 5), views were invited on whether the proposed
planning reforms in England should apply to the development of a geological
disposal facility. Responses to the consultation indicated that there was a clear
majority in favour of the new arrangements applying, although some local
authorities and their representative organisations suggested that this might be
inconsistent with a voluntarism and partnership approach.
5.30 Whilst not having yet taken a final decision, Government is currently inclined
to look towards applying the new planning system. Government considers that
a geological disposal facility is likely to be regarded as a nationally significant
infrastructure project and believes that the new arrangements could assist the delivery
of agreements with local communities.
5.31 If it is decided in future that radioactive waste should be dealt with by the IPC,
the Government will bring forward a statutory instrument to have it included.
That would be subject to the affirmative resolution procedure, thus ensuring
parliamentary debate and a decision from both Houses.
Planning in Wales
5.32 In Wales, the Wales Spatial Plan and Unitary and Local Development Plans have
regard to various regional and topic-based strategies. In Wales, all local authorities
as well as the three National Park Authorities are local planning authorities. Almost
all planning functions in Wales are devolved and amendments to the Planning Bill
will enable the Assembly to pass Measures (the equivalent to Acts of Parliament)
in relation to development plans and the Wales Spatial Plan. The White Paper and
Planning Bill are neutral in their approach to the devolution settlement. Whilst
extension of the IPC’s role to geological disposal facilities in Wales would therefore
not be appropriate, the Welsh Assembly Government will continue to consider the
issues raised by disposal facilities in the context of the existing statutory consenting
regime in Wales.
Planning in Northern Ireland
5.33 The Planning Service in Northern Ireland intends to consider the implications of the
English planning reforms in the context of any changes envisaged as a result of the
Review of Public Administration in Northern Ireland.
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43
Staging of planning permissions
5.34 Over the duration of a geological disposal facility development programme, it is
envisaged that more than one planning permission will be needed. For example,
in the earlier stages permission will be needed for some surface-based site
investigations. Following completion of surface-based site investigations, a further
permission will be required before work on underground-based investigations and
facility construction can begin.
5.35 Underground-based investigations would only be undertaken if surface-based
investigations generate sufficient information to provide confidence that the
location is likely to be appropriate for facility construction. Advances in surfacebased characterisation techniques over the past decade, supported by experience
from overseas programmes, are expected to ensure the level of information that
could give this confidence.
5.36 Past experience has indicated that, even for a planning application solely for
underground-based investigations, it would be necessary to demonstrate that
the location was likely to be appropriate for facility construction. NDA, as the
implementing organisation, is therefore exploring whether a single planning
application covering underground-based investigations and the construction of the
disposal facility could be possible. NDA is considering the merits of a ‘parameterbased’ approach where the characteristics of the facility would be defined in such a
way to allow the environmental and other impacts of the proposal to be described,
and any appropriate mitigation measures to be identified.
5.37 Whether sufficient information can be obtained from surface-based investigations
to enable this ‘parameter-based’ approach to be followed will not be known until
site data is available. If sufficient information cannot be obtained from surface-based
investigations, then it may be necessary to consider separate planning applications
for underground-based investigations and facility construction.
Assessment of environmental effects and sustainability
5.38 European legislation requires that certain plans and programmes likely to have
significant effects on the environment are subject to assessment during their
preparation to ensure that these effects are fully taken into account before the plan or
programme is adopted. This process is known as ‘strategic environmental assessment’
or ‘SEA’ (Refs. 40 and 41). It is good practice to integrate SEA within a wider
sustainability appraisal (SA) which also considers social and economic factors and tests
the effects of plans and programmes against sustainability criteria (Ref. 42).
5.39 European legislation (Refs. 43 – 45) also requires ‘environmental impact assessment’
(EIA) of certain individual projects. For proposals requiring EIA, the developer is
required to prepare an environmental statement on the impacts of the project,
which must be considered when deciding whether to grant planning permission.
44
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5.40 Government is committed to ensuring that the NDA’s geological disposal facility
programme fully assesses and accounts for environmental impact and sustainability
issues through the application of SEA, SA and EIA. The Government expects the
NDA to undertake sustainability appraisal, meeting the requirements of the SEA
Directive. The Government and the NDA will undertake work on the scope of that
sustainability appraisal following publication of the White Paper. There will be close
co-ordination and integration of this work and it will continue after candidate
communities have been identified to enable local issues and views to be integrated
into the sustainability appraisal.
5.41 Following the publication of this White Paper, NDA will prepare and publish for
consultation its proposals for sustainability appraisal and environmental assessment.
Opportunities for public engagement
5.42 Public consultation is a requirement both of the planning permission process, where
the public will be consulted on the planning application and the accompanying
environmental statement, and as part of the environmental regulator’s decision
on whether to grant an authorisation to dispose of radioactive waste. Many of
the required regulatory and SEA, SA and EIA processes also provide opportunities
for public engagement. Copies of application documents will be made publicly
available, and comments made by members of the public will be taken into account
during the decision-making processes. Over and above this, Government has
asked the NDA to prepare and consult on its proposals for public and stakeholder
engagement in the context of its geological disposal development programme.
Committee on Radioactive Waste Management’s (CoRWM’s) role –
independent scrutiny and advice
5.43 The UK Government and the devolved administrations’ statement of October 2006
(Ref. 2) made clear that Government will ensure strong independent scrutiny of the
proposals, plans and programmes to deliver geological disposal.
5.44 Accordingly, CoRWM has been reconstituted with modified terms of reference (Ref.
24) and expertise. The role of the Committee is to provide independent scrutiny
and advice to UK Government and devolved administration Ministers on the longterm radioactive waste management programme, including storage and disposal.
CoRWM’s primary task will be to provide independent scrutiny of the Government’s
and NDA’s proposals, plans and programmes to deliver geological disposal, together
with robust interim storage, as the long-term management for the UK’s higher
activity wastes.
5.45 CoRWM will undertake its work in an open and consultative manner. It will engage
with stakeholders and it will publish advice (and the underpinning evidence) in a
way that is meaningful to the non-expert. CoRWM will undertake ongoing dialogue
with UK Government and the devolved administrations, the NDA, local authorities
and stakeholders, and will liaise with appropriate advisory and regulatory bodies to
provide annual reports of its work.
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45
5.46 Governance and monitoring arrangements of the NDA have been reviewed and
amended to reflect the NDA’s new role. Government will engage with the NDA
regarding CoRWM’s advice, including Government’s response to it and any actions
that are necessary and will take account of NDA views through the forum of the
Waste Management Steering Group (see Chapter 4). CoRWM’s advice, and the
response of UK Government and relevant devolved administrations, will be made
available to Parliament and Assemblies. Parliamentary and Assembly committees will
also have the opportunity to engage directly with CoRWM and may propose work
for inclusion in the Committee’s work programme to sponsoring Ministers.
5.47 These arrangements reflect the fact that, to maintain its independent position,
CoRWM cannot be part of the implementation machinery itself. Neither should it
assume any of the constitutional roles of Government or the statutory roles of the
NDA or the independent regulators.
46
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Chapter 6:
Site selection using a
voluntarism and partnership
approach
How a voluntarism and partnership approach would work
6.1
Government believes that nothing has emerged from the MRWS consultation
that alters its view that an approach based on voluntarism and partnership is the
best means of siting of a geological disposal facility. Responses to the Managing
Radioactive Waste Safely (MRWS) consultation on this issue were mainly about the
details of delivering such an approach. This chapter addresses how a voluntarism
and partnership approach would work.
6.2
Government does not wish to be over-prescriptive about the way that the
voluntarism and partnership arrangements should work at the outset as individual
local circumstances differ and, to a degree, a tailored approach to any discussions
will need to be taken. This does not apply to the way in which technical issues, such
as geology, are assessed, where there will be objective and consistent assessment.
6.3
For the purposes of this White Paper ‘an approach based on voluntarism’ means
one in which communities voluntarily express an interest in taking part in the
process that will ultimately provide a site for a geological disposal facility. Initially
communities will be invited to express an interest in finding out more about what
hosting a geological disposal facility would mean for the community in the longterm.
6.4
Participation up until late in the process, when underground operations and
construction are due to begin (see paragraph 7.20), will be without commitment
to further stages, whether on the part of the community or Government. If at
any stage a community or Government wished to withdraw then its involvement
in the process would stop. In practice, development could also be halted by the
independent regulators at any point in the process through a refusal to grant
authorisations for the next stage of work.
6.5
In the event that at some point in the future, voluntarism and partnership does not
look likely to work Government reserves the right to explore other approaches.
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47
What are communities in this context?
6.6
There will always be differences of opinion on what constitutes a ‘community’.
Government acknowledges the important role that existing local democratic
decision-making structures are likely to play in a successful process as they are the
elected representatives with a mandate to speak for communities.
6.7
Following careful consideration of responses to the MRWS consultation, the
Government will define three types of community for the purposes of the site
selection process. These definitions are below in Box 6. They are not rigid; the
intention is to retain flexibility to account for local circumstances and allow
communities to have a degree of self-definition.
6.8
The concept of ‘community’ is considered under three headings: the Host
Community, the Decision Making Body and Wider Local Interests.
Box 6 Community definitions
Host Community – The community in which any facility will be built can
be termed the ‘Host Community’. The ‘Host Community’ will be a small
geographically defined area, and include the population of that area and the
owners of the land. For example, it could be a town or village.
Decision Making Body – Local Government will have decision-making authority
for their host community. There are different local authority structures in different
parts of the UK. For example, in England local authorities include district councils,
county councils, metropolitan district councils and London Boroughs whereas in
Wales, local authorities are unitary. Such a body will be termed ‘Decision Making
Body’.
Wider Local Interests – Outside the Host Community, there are likely to be
other communities that have an interest in the development of a facility in
the Host Community, and there needs to be a mechanism that allows them to
become involved in the process. Such a community might be the next village, a
neighbouring district or a community on the local transport routes to the Host
Community. Such communities will be termed ‘Wider Local Interests’.
6.9
48
All three levels of community will need to liaise closely with one another as the
process is taken forward. Both Government and the Nuclear Decommissioning
Authority (NDA) will need to engage with all three ‘communities’.
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Chapter 6: Site selection using a voluntarism and partnership approach
Issuing Invitations
6.10 In the MRWS consultation document Government invited views on providing
information to communities and the manner in which it should issue invitations.
Taking into account comments received on potential publicity campaigns,
Government has decided to issue a public invitation for communities to express an
interest in taking part in the siting process at the same time as the publication of
this White Paper. This will publicise the invitation widely at the outset. Government
has worked with the Welsh and Norther Ireland devolved administrations and with
the Nuclear Legacy Advisory Forum7 (NuLeAF) and, given the process is based on
voluntarism, does not propose holding events or targeting media in specific regions
or areas of the country. Initially the aim will be to raise awareness within particular
stakeholder groups, in particular local government.
6.11 A number of responses to the MRWS consultation commented on the provision
of information. Taking these into consideration and working with the Welsh and
Northern Ireland devolved administrations and NuLeAF, a dedicated website
(www.defra.gov.uk/mrws) has been set up to provide several layers of information
on radioactive waste and its long-term management. This website provides, or links
to, detailed information which is intended to be accessible and helpful to people
with all levels of background knowledge from non-technical readers to experts.
The factual information contained on the website has been commented on, in a
personal capacity, by a number of members of the learned societies and academies
including the Royal Society of Chemistry, the Royal Academy of Engineering and the
Geological Society. All the information on the website will also be available in hard
copy for those without internet access.
The early process
6.12 A number of responses to the MRWS consultation commented that there needed
to be further interim step in the initial stages. In particular, it was suggested that a
formal local decision was required that would follow an initial Expression of Interest.
The Expression of Interest would be to facilitate initial discussion in the process.
In light of these comments, there will be two key local decision points during the
course of the early process:
tan Expression of Interest – this is the decision point at which local communities
register their ‘without commitment’ interest in discussions about potential
involvement in the siting process.
ta Decision to Participate – this is the point at which a Decision Making Body/ies
makes a formal commitment to participate in the geological disposal facility
siting process, but ‘without commitment’ to eventually host the facility.
7
The special interest group of the Local Government Association
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49
6.13 An indication of the potential steps for the early stages is set out in Table 2.
Government would expect communities to make steady progress towards a Decision
to Participate following an initial approach, but acknowledges that in practice, the
precise nature of the steps could be subject to change as the process advances.8
Table 2: Indicative Steps to Decision to Participate
Stage8
Indicative Step
Comment
1. Publication
of White Paper
and invitation for
Expression of Interest
Internet based information pack launched –
www.defra.gov.uk/mrws
2. Preliminary
discussion between
potential local
partners
Preliminary soundings taken. For example,
through existing Local Strategic Partnerships or
specifically convened meetings. Potential local
partners might include, County/District Councils,
Parish/Town Councils, local Community, Business
and Environmental stakeholder groups, and
neighbouring local authorities.
Stage 1 3. Opportunity for
initial discussions
between potential
local partners and
Government/NDA
Preliminary discussions between potential local
partners may raise issues that require clarification
from Government/NDA prior to making an
4. Further soundings
from potential local
partners
The outcome of any discussions with
Government/NDA may require further soundings
to be taken from potential partners
5. Decision about
This decision will only be a trigger point to initiate
high level geological screening and development
of a programme of community engagement
8 Note Stages relate to Figure 1, pg 62
50
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Table 2: Indicative Steps to Decision to Participate (continued)
Stage8
Stages
2&3
Indicative Step
Comment
6. Communicate
to local stakeholders
and communities
It is important that the limited nature of the
decision is widely understood. It is without
commitment.
7. Undertake high
level geological
screening
The screening will inform community
engagement (see below). The screening process
(see paragraphs 7.4 – 7.12) will enable potential
local partners to review preliminary findings.
8. Develop
programme
for community
engagement
The objective of community engagement would
be to inform a Decision to Participate. Planning
for the programme of engagement might run in
parallel to the high level geological screening.
9. Seek agreement
with Government
on an Engagement
Package
A Community may incur costs from taking part
in the process and Government will contribute to
these costs
10. Undertake
community
engagement
A mixture of engagement methods could be
used to ensure feedback from stakeholders and
disinterested members of the public. This might
include citizens panels, workshops, discussion
in local groups or organisations, information
provision to local communities, groups or
individuals, quantitative feedback from opinion
polls etc. Engagement should seek to identify the
extent of support for participation; any issues of
concern about participation; and the reasons for
any opposition to participation.
11. Opportunity
for discussion with
Government/NDA
about the outcome
of community
engagement
Community engagement may raise issues
requiring further discussion with Government/
NDA prior to a local Decision to Participate.
12. Local review of
pros and cons of
participation
Local authority decision-makers will wish to
review the outcome of community engagement
and discussions with Government/NDA prior to
reaching a Decision to Participate
13. Local Decision to
Participate
Decision Making Body/ies make a formal Decision
to Participate (probably through a full meeting of
the council/s)
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51
6.14 With publication of this White Paper, Government invites communities to express an
interest in opening up without commitment discussions on the possibility of hosting a
geological disposal facility at some point in the future (See Chapter 8 – The next steps).
6.15 The Government wishes to allow sufficient time for any community to consider
expressing an interest. At this early stage, it is expected that some communities
may be better informed of the issues than others, for example those who already
have local nuclear facilities, however, the option to express an interest will be left
open for the foreseeable future. Any expressions of interest further into the process,
when Government or the NDA’s delivery organisation are already engaged with
Communities who have taken a Decision to Participate, will be considered on a case
by case basis.
Who can express an interest?
6.16 Government does not want to be prescriptive about who could initiate local
discussions about an Expression of Interest, but expects the local Decision Making
Body (or bodies) to be involved in an approach to Government. There may be initial
interest from a local authority, a Parish Council or from organisations or landowners
within an area. A community might make an initial approach to Government
before identifying a specific site. Government would expect any Parish Council,
organisation or landowner that wanted to be considered in the siting process
to contact its local authority in the first instance to discuss putting forward an
Expression of Interest to Government. If discussions stall at this stage, Government
may be interested in entering into discussions with relevant parties to provide
further information and to focus on any questions or areas of concern about the
siting process and geological disposal.
6.17 Should a community within Wales wish to put forward an Expression of Interest it
should do so to the Welsh Assembly Government (WAG). If this were to happen the
WAG would at that point consider its position in respect of the geological disposal
programme and the specific Expression of Interest. Should a community in Northern
Ireland want to respond to the invitation, it should contact the Department of the
Environment in Northern Ireland. Should a community in Scotland want to respond,
UK Government would refer it to the Scottish Executive through the appropriate
devolution mechanisms.
6.18 Before making an Expression of Interest, Government suggests that the local
authority should have canvassed opinion, for example, through existing Local
Strategic Partnerships or specifically convened meetings with potential local
partners. These partners might include Parish/Town Councils, local Community,
Business and Environmental stakeholder groups, and neighbouring local authorities.
An Expression of Interest must be made in writing and Government would expect it
to outline the actions taken to gather opinion and arrive at the Expression.
6.19 There is no reason why two or more local authorities should not submit a combined
Expression of Interest as, in practice, the initial area of investigation could cross local
authority boundaries or involve two tiers of local government.
52
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6.20 A local authority, or authorities, that make an Expression of Interest should have
a clear commitment to organising community engagement to inform a Decision
to Participate. Costs of such engagement will be funded, either partly or wholly,
through Government to assist communities in considering these issues (paragraph
6.47 – 6.52).
Moving to a Decision to Participate
6.21 An Expression of Interest will enable without commitment discussion between
local communities and Government to begin. The scope of initial discussions will
be for mutual agreement between the local community/ies and Government. It
could include discussion of what support might be available to assist continuing
community engagement up until the next stage and of the point at which the NDA
(and others) might become involved in discussions. At the same time the British
Geological Survey (BGS) will be asked to apply sub-surface screening criteria in order
to eliminate from the process any area that is obviously geologically unsuitable (see
paragraph 7.4 – 7.12).
6.22 Government expects that the Decision Making Body will take the lead role in
initiating further discussions with potential local partners and organising community
engagement. Government will want to be satisfied that a Decision to Participate
is credible. Credibility might be demonstrated on the basis of a local consultation
process applying established local good practice. Credible local support would be
expected amongst organisations likely to form a Community Siting Partnership (see
paragraph 6.27 – 6.37), should a decision to participate be taken, as well as among
the local community.
6.23 It is anticipated that Government and NDA involvement in early local engagement
would come at the invitation of local authority decision-makers working in
consultation with potential local partners. It is not anticipated that Government or
NDA would organise local community engagement at their own initiative.
6.24 Engagement should seek to identify the extent of local support for participation;
any issues of concern about participation; and the reasons for any opposition to
participation. Engagement methods might include:
t
citizens’ panels
t
workshops
t
discussion in local groups or organisations
t
information provision to local communities, groups or individuals
t
quantitative feedback from opinion polls
6.25 The Decision to Participate should be accompanied by a report setting out the
approach taken to engagement, the outcomes of that engagement and making
clear the basis of the decision.
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53
6.26 Not every resident in a potential Host Community will favour a Decision to Participate
in the siting process. Government is not expecting, or seeking, a particular threshold
of support but is keen to see evidence of appropriate community engagement and
meaningful feedback on any concerns of those affected.
Community Siting Partnerships
6.27 Following a Decision to Participate, Government recognises that the site selection
process and in particular the development of the facility, will require considerable
engagement with communities. Whilst it does not propose to be prescriptive
about how this engagement is undertaken, Government favours a partnership
approach. This is an approach that also has a strong degree of support from many
others, including the Committee on Radioactive Waste Management (CoRWM) and
the Nuclear Legacy Advisory Forum (NuLeAF) (Refs. 46 and 47).
6.28 By a partnership approach Government means the setting up of a formal Community
Siting Partnership such that the Host Community, Decision Making Bodies and
Wider Local Interests will work with the NDA’s delivery organisation and with
other relevant interested parties to achieve a successful outcome. This could be by
ensuring that questions and concerns about the geological disposal facility siting,
construction, operation, closure and post-closure are addressed and resolved as far
as reasonably practicable and that the project contributes to a community’s further
development and well-being.
6.29 Experience here and in other countries (Refs. 48 and 49) indicates that a partnership
approach is often an effective method to provide opportunities for all parts of a
community (i.e. Host Community, Decision Making Bodies and Wider Local Interests)
to work together. These are often underpinned by formal agreements between the
parties. In this proposed siting process a Partnership would provide a forum for the
Host Community and the NDA’s delivery organisation to exchange information and
views and for the Community Siting Partnership to advise Decision Making Bodies in
an open and constructive manner.
6.30 The MRWS consultation invited comments on whether and how partnership
arrangements could be used to support a voluntarism approach. The partnership
approach itself was not generally questioned, rather the responses suggested the
need for more detail on the proposed arrangements. The following section sets out
more detail on a partnership approach including the establishment of a partnership,
its suggested role, objectives and decision-making responsibilities.
The operation of a Partnership
6.31 The role of the Community Siting Partnership in this context might be:
54
t
Developing advice and recommendations for Decision Making Bodies
t
Consideration of, and contribution to the work the implementing organisation and
delivery organisation are undertaking to design, construct and operate a facility
t
Obtaining specialist advice or commissioning research to inform its advisory
role, address community concerns or identify ways of developing community
well-being
Page 377
t
Ensuring that the siting process for a facility within a potential Host Community
is effective and focussed on making progress
t
Provision of public information about the activities, views and recommendations
of the Community Siting Partnership
t
Engagement or consultation with potential Host Communities and Wider Local
Interests
t
Identifying and addressing divergent views within those communities
t
Liaison and discussion with local bodies with remits related to the mission of
the Community Siting Partnership (e.g. Local Strategic Partnerships9 or NDA Site
Stakeholder Groups10)
t
Building the capacity of its membership to enable it to effectively carry out
these roles
6.32 Government expects a Community Siting Partnership to be a partnership of local
community interests, with members identified and recruited locally to enable its
mission to be fulfilled. The NDA’s delivery organisation would be a member of
the Community Siting Partnership but would not be directly involved in decisions
on community-related issues. There will need to be ongoing interaction between
the NDA’s delivery organisation and other members of the Community Siting
Partnership. The NDA’s delivery organisation will remain responsible throughout for
ensuring compliance with technical and regulatory requirements.
6.33 The leadership role and democratic accountability of local government means that
it should be responsible for major local decisions within the siting process. Local
Government will be termed the ‘Decision Making Body’ and will take decisions
relating to:
t
continued participation at key stages, or exercising a Right of Withdrawal
t
the local acceptability of proposals for Community Benefits Packages
t
the local acceptability of the sites within an area that are proposed for field
surface-based investigations
t
whether potential retrievability of wastes has been adequately considered
In each case, the Decision Making Body would take careful account of advice and
recommendations from the Community Siting Partnership.
6.34 The relevant local authority/ies are likely to have a lead role in setting up the
Community Siting Partnership. In some overseas examples this has been done with
the assistance of independent support and advice. Members of the Community
Siting Partnership might include representatives of:
t
local authorities (elected members and non-elected officers)
t
the local Member of Parliament
t
local public services (fire, police, health trust etc)
t
local residents or resident groups
9
Local Strategic Partnerships – www.neighbourhood.gov.uk/page.asp?id=531
10
NDA Site Stakeholder Groups – www.nda.gov.uk/stakeholders/
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55
t
established local organisations (for example, local non-governmental
organisations)
t
Wider Local Interests
t
NDA’s delivery organisation
6.35 Although not a member of a Partnership, Government could participate in the
work of the Community Siting Partnership as and when required. This might be as
an associate member, or on an ad hoc basis depending on the requirements of a
particular stage in the process. Regulatory bodies will also be involved, for example by
providing advice to the Community Siting Partnership, although regulators will need
to have a strictly defined role and remit that does not compromise their independence.
6.36 Government recognises that the nature and extent of a Community Siting
Partnership, including its membership, may vary at different stages in the process.
Government also anticipates that, because of the scale and importance of the issue,
such a Partnership would be specific to this issue alone and not be a component
part of another Partnership.
6.37 Government does not want to be prescriptive about the form of a Community Siting
Partnership although guidance, providing example objectives, roles and responsibilities,
should be taken into account by interested parties. This guidance is at Annex C.
Right of Withdrawal
6.38 The Right of Withdrawal (RoW) is an important part of the voluntarism approach
intended to contribute to the development and maintenance of community
confidence. Up until a late stage, when underground operations and construction
are due to begin (see paragraph 7.20), if a community wished to withdraw then its
involvement in the process would stop. As with other key local decisions in the siting
process, the Decision Making Body will be responsible for exercising the RoW, based
on advice and recommendations from the Community Siting Partnership.
6.39 All parties in a Community Siting Partnership should work positively to seek to avoid
the need to exercise the RoW. This will be particularly important following a surfacebased investigation programme, when considerable investment will have already
been made.
6.40 To help avoid the need to exercise the RoW late in the process, it is proposed that
the stated objectives of a Community Siting Partnership include seeking to develop
partner and local community confidence that:
56
–
there is a good prospect for developing an acceptable environmental safety
case
–
the potential development is likely to be able to address the planning
requirements of the planning authority.
–
a Community Benefits Package will be agreed such that the overall balance
of benefits and any perceived detriments will reflect the needs of local
communities and their future generations
–
the question of potential retrievability of wastes has been adequately
considered taking account of regulatory constraints
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6.41 These objectives should be seen in the context of the proposed mission of a
Community Siting Partnership (see Annex C). It is recognised that a Partnership
may wish to adopt additional objectives that are related to this mission. Different
elements of a Partnership’s objectives will be achieved at different stages of
the siting process. For example, it may be desirable for relevant parties to reach
agreement about a Benefits Package in advance of the start of a borehole
programme as part of surface-based investigations. In which case, this agreement
could be ‘banked’ and would not be re-opened when considering whether to
exercise a post-borehole RoW.
6.42 It is envisaged that a Community Siting Partnership will regularly review progress
towards fulfilling its mission and objectives and address and resolve difficulties as
they are identified.
6.43 Information from site investigations and in particular from a surface-based
investigation programme will be needed to assess the prospects for an acceptable
environmental safety case, facility design and planning decision. A post borehole
RoW could be exercised only in circumstances where, despite the best efforts of
all parties, one or more of the Community Siting Partnership’s objectives identified
above is not going to be achieved.
6.44 In order to minimise financial risk and uncertainty, before the NDA’s delivery
organisation embarks on a borehole survey programme the circumstances in
which a post borehole RoW might be exercised should be identified and agreed
with Government through discussion and negotiation within a Community Siting
Partnership and with Decision Making Bodies. The Government will expect the
formal agreement that establishes the Community Siting Partnership to set out a
commitment to undertake this work.
6.45 The requirement to define these circumstances before a borehole programme is
likely to be both challenging and beneficial: challenging because it will involve
matters of judgement; and beneficial because the definition will focus discussion,
enhance understanding and make criteria for a RoW decision explicit before
extensive work has been undertaken.
Engagement Packages and Community Benefits Packages
6.46 In light of the responses to the MRWS consultation, Government has decided that
an Engagement Package and a Community Benefits Package will form part of
its voluntarism and partnership approach, subject to them being affordable and
offering good value for money. This would recognise that a community which
expressed an interest in hosting a facility should be enabled to participate in the
selection process; and that a community which hosts a geological disposal facility
for higher activity radioactive wastes will be volunteering an essential service to the
nation. A community will want to ensure that the impact of a geological disposal
facility on their long term social and economic prospects is understood and that the
needs of future generations are addressed appropriately.
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57
Engagement Packages
6.47 Question 11 of the MRWS consultation document invited views on the use of
community Engagement Packages and the activities that this might cover. Responses
were supportive of the use of such packages and suggested a need for greater
clarity of their coverage and the way they might operate.
6.48 In line with broad support from the responses, costs of local community
engagement in the process will be funded, either partly or wholly, through
Government to assist communities in considering the issues. What support, and
the point at which it is available, will be something to be considered in the scope of
initial discussions following an Expression of Interest.
6.49 Communities that have taken a Decision to Participate will incur costs in setting up
and operating a Community Siting Partnership and so the work of a Partnership will
also be supported through the Engagement Package.
6.50 Subject to overall budget and programme approval, and audit arrangements agreed
with Government, it will be for a Community Siting Partnership to decide exactly
how it spends its funding in seeking to fulfil its mission.
6.51 Government expects that a local authority will be the employing organisation for
the Community Siting Partnership and a local authority member of the Community
Siting Partnership will be the budget holder. Therefore the Partnership will be
accountable to the local authority for the management of the budget and will be
subject to local authority budget management rules as well as the agreed audits
referred to above.
6.52 Based on the proposed role of a Community Siting Partnership and taking into
account responses to the MRWS consultation, Government anticipates that such
funding might cover:
58
t
public information
t
liaison, consultation and engagement
t
salaries and associated costs of Community Siting Partnership staff
t
office costs and overheads
t
organisational costs of running the Community Siting Partnership and any
working groups it might establish
t
commissioning specialist advice
t
reimbursement for out of pocket expenses of Community Siting Partnership
members
t
process evaluation
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Community Benefits Packages
6.53 Question 12 of the MRWS consultation invited comments on how the development
of a geological disposal facility could deliver lasting benefits to the host community
and whether this should involve the use of benefits packages taking into account
the best use of public funds. Comments were diverse including the need for clear
funding criteria and for sound financial management. There was also the suggestion
that the benefits package should be proportionate to the amount of waste or to the
proximity of a community to a facility.
6.54 Construction and operation of a geological disposal facility will be a multi-billion
pound project that will provide skilled employment for hundreds of people over
many decades. It will contribute greatly to the local economy and wider socioeconomic framework. There could be spin-off industry benefits, infrastructure
benefits, benefits to local educational or academic resources, and positive impacts
on local service industries that support the facility and its workforce. It is also likely
to involve major investments in local transport facilities and other infrastructure,
which would remain after the facility had been closed.
6.55 As such, hosting a geological disposal facility is likely to bring significant economic
benefits to a community in terms of employment and infrastructure, maintained
over a long period.
6.56 Any community that ultimately hosts a geological disposal facility will be keen to
understand and agree the nature of these benefits, and will expect Government and
the NDA to ensure that the project contributes to its development and well-being.
6.57 In addition there may be other benefits which may be commensurate with
developing the social and economic wellbeing of a community that has decided to
fulfil such an essential service to the nation. Government acknowledges that it could
be at least a century until final closure of an entire facility is possible and so the
development and operation of a geological disposal facility is an intergenerational
issue. The local needs arising from the development are also likely to have an intergenerational element. This point was raised by a number of consultation responses
and an approach needs to be identified that recognises and addresses the potential
impact on a community over the long timescales involved.
6.58 Accepting that delivery mechanisms to achieve this will be developed as discussions
progress, and without wishing to pre-judge what these might be, the following
could be some of the overarching objectives for the investment that a community
might benefit from as a result of hosting a geological disposal facility:
t
Improved local training/skills development/education investment
t
Increased business for local service industries
t
Improved public services/infrastructure/housing/ recreational facilities
t
Improved transport infrastructure
t
Better local healthcare to meet the increased needs of the community
t
Local environmental improvement
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59
6.59 This list is illustrative rather than exhaustive, as short and long term local needs may
vary depending on the community that hosts the facility.
6.60 Government does not believe it sensible to specify at this stage what specific
mechanisms could be used, or to define the level or nature of benefits. Government
remains open-minded, believing that any Benefits Packages should be developed
between communities, the Government and NDA as discussions progress, taking
into account local needs, affordability and value for money considerations.
6.61 As potential host communities and Community Siting Partnerships work with the
NDA and Government they should begin a dialogue about the local needs arising
from hosting a geological disposal facility. Final agreement on a package that
delivers appropriate investment in the Host Community may take time, and possibly
some years, as the precise nature and means of delivery of the geological disposal
facility becomes clearer.
60
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Chapter 7:
The site assessment process
A staged approach
7.1
The site assessment process will start from the point at which a community has
made an Expression of Interest in opening up discussions with Government. It
will be conducted in parallel to discussions between Government, the Nuclear
Decommissioning Authority (NDA) and a local community.
7.2
It will be a staged process, allowing all those involved to take stock before deciding
whether or not to move to the next stage at a particular site. Figure 1 overleaf
indicates the main stages in the process.
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61
Figure 1: Stages in the site selection process
Stage 1:
Invitation issued and
Expressions of Interest
from communities
Advise
community
not suitable
Unsuitable
Stage 2:
Consistently applied
‘sub-surface
unsuitability’ test
Potentially suitable
Stage 3:
Community
consideration leading
to Decision to
Participate
Stage 4:
Desk-based studies in participating
areas
Stage 5:
Surface investigations on remaining
candidates
Stage 6:
Underground operations
Further explanation of this site assessment process is as follows.
Stage 1: Expression of Interest
7.3
Stage 1 corresponds to the period, discussed previously (see paragraph 6.12), up to
the point where a community decides to open up without commitment discussions
with Government.
Stage 2: Initial screening out of unsuitable areas
7.4
62
Question 8 of the Managing Radioactive Waste Safely (MRWS) consultation invited
views on the initial sub-surface screening criteria and their application. Following the
consultation the Chairs of the two expert groups who developed the sub-surface
screening criteria (the Criteria Proposal Group, CPG and the Criteria Review Panel, CRP)
were asked to consider their findings in light of the consultation responses received.
Page 385
Chapter 7: The site assessment process
7.5
The Chairs did not consider that any significant new sub-surface screening criteria
were identified by respondents. Some responses identified possible site selection
criteria that may need to be applied at some point later in the process although
many were not sub-surface characteristics – i.e. population density or the nature
conservation status of some potential sites.
7.6
Some responses expressed surprise that earthquakes and faults and “geological
movements” were not exclusion criteria. Following careful consideration, the Chairs
continue to consider that any potential impact as a result of geological instability
should be considered as part of the site specific risk assessments that will be needed
later in the site selection process. This is based on their initial advice that the
potential for seismic effects to occur in the UK is low by global standards.
7.7
Overall, the Chairs concluded that the criteria recommended in the MRWS consultation
should stand and that further criteria are unnecessary at this initial stage.
7.8
They did, however, take the opportunity to make clearer the wording of a few parts
of their summary advice and also to provide a definition of what they mean by
“shallow permeable formations”, that is, formations of this kind that occur at less
than 500 metres.
7.9
The updated sub-surface screening criteria and further information on how they
were derived are available at Annex B.
7.10 On the application of the criteria the Chairs believed that there was nothing in
the response material that seemed to challenge the proposal of inviting the British
Geological Survey (BGS) to apply the criteria consistently to all areas that made an
Expression of Interest. Some responses suggested that the criteria should be applied
before inviting communities to express an interest although Government continues
to believe that applying the criteria after initial Expressions of Interest is the right
approach. Applying the criteria to every part of the UK would be prohibitively
expensive, time-consuming and unnecessary in a voluntarist process.
7.11 Once communities have expressed an interest in opening up discussions with
Government, the BGS will be asked to apply sub-surface screening criteria to
an area. This will eliminate areas that are obviously unsuitable and avoid further
unnecessary work.
7.12 For each area that expresses an interest, the BGS will make a draft report available
for discussion and peer review to the Host Community, the Decision Making Body,
the NDA, the regulators and the Committee on Radioactive Waste Management
(CoRWM) before completion and publication in its final form. Government will fund
this initial screening work and the BGS report will help inform a decision about
whether to participate.
Stage 3: Community consideration leading to Decision to Participate
7.13 Stage 3 corresponds to the period during which a Decision Making Body makes a
formal commitment to participate in the siting process, but ‘without commitment’
to host the geological disposal facility (see paragraph 6.12 – 6.26). Stage 3 will run
in parallel to Stage 2 although a Decision to Participate will only be able to be made
if Stage 2 does not lead to the whole area associated with the community being
‘screened out’.
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63
7.14 Following this Decision to Participate, Government expects that a formal Community
Siting Partnership will be set up such that the Host Community, Decision Making
Bodies and Wider Local Interests work with the NDA and other relevant interested
parties for the remaining stages.
Stage 4: Desk-based studies in participating areas
7.15 Participating communities whose areas have not been screened out by sub-surface
criteria and who wish to continue their involvement will be carried forward to the
desk-based studies at stage 4.
7.16 Stage 4 will involve the NDA’s delivery organisation undertaking more detailed
assessments focusing on the suitability of a specific site or sites within each potential
Host Community. These assessments will be mainly through desk-based studies, and
will involve gathering information about the candidate communities and sites and
evaluating them against the site selection criteria. The NDA’s delivery organisation
will work with Community Siting Partnerships to ensure that local issues are
addressed in the assessments. In parallel, Government anticipates that Partnerships
will be discussing the package of measures that they would like to see implemented
alongside a disposal facility to develop the community’s social and economic
wellbeing (see Chapter 6).
7.17 The stage 4 assessment will be reviewed by the independent regulators and subject
to independent scrutiny by CoRWM. On the basis of these assessments and reviews:
t
The Community Siting Partnership would make recommendations to local
Decision Making Bodies about whether to proceed to the next stage of the site
selection process
t
The Decision Making Bodies would decide whether to proceed to the next stage
of the site selection process
t
The Government would then decide on one or more candidate sites to take
forward to Stage 5.
Stage 5: Surface-based investigations of
remaining candidates to identify a preferred site
7.18 This stage will involve the NDA’s delivery
organisation obtaining planning permission to
undertake surface-based investigations at the
remaining candidate site or sites, which would
include non-intrusive seismic surveys and then
later the drilling of boreholes to various depths
to investigate local geology in more detail.
Assuming planning permission were granted,
the NDA’s delivery organisation would undertake
the surface-based investigations, which could
last a number of years, and carry out more
detailed assessments of the sites in question.
The NDA’s delivery organisation will work with
Community Siting Partnerships to ensure that
local issues are addressed in the assessments,
and will evaluate sites against the criteria
discussed below. As part of a staged
64
Borehole drilling during surface investigations in Sweden
(courtesy SKB)
Page 387
authorisation process, it is envisaged that the NDA’s delivery organisation would
require an authorisation from the environmental regulator before proceeding with
the Stage 5 investigations.
7.19 Government proposes that once these more detailed assessments have been
completed they be reviewed, as at the previous stage, and that then:
t
The Community Siting Partnership would make recommendations to its local
Decision Making Bodies about whether to proceed to the next stage of the site
selection process
t
The Decision Making Bodies would decide whether they wish to proceed to the
next stage of the site selection process
t
Government would make an informed decision on a preferred site.
7.20 Because subsequent stages of the process are specific to one site and involve very
significant expenditure, Government proposes that the decision to proceed in the
bullets in paragraph 7.19 above would be the final opportunity for a community
to withdraw. This would also be the point at which any final agreement should
be reached on the scope of any Benefits Package (see Chapter 6). Although
the community would have given its final consent for development to proceed,
the continuing process of disposal facility development would still be subject to
regulatory approval with appropriate hold-points, as described earlier, and would be
discontinued if the necessary regulatory approvals could not be obtained. Provision
is contained within the relevant regulatory processes for public body notification and
opportunity for Community Siting Partnerships to influence development proposals.
Stage 6: Underground operations
7.21 Part of this work will involve the NDA’s delivery organisation undertaking long-term
underground investigations. The aim of this work will be to confirm a site’s suitability
to host a geological disposal facility that complies with safety and environmental
regulatory requirements. This process will be
subject to regulatory scrutiny and the NDA’s
delivery organisation will have to submit specific
assessments for review at agreed hold-points.
If the site meets the regulatory requirements,
the regulators will permit construction of a
geological disposal facility to proceed at the
preferred site. Planning permission will be
required for underground investigative work
and construction of the geological disposal
facility (see Chapter 5).
Measurements of drill cores from test drilling in Sweden
(courtesy SKB)
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65
Timing
7.22 The programme for developing a facility needs to be flexible and able to incorporate
both robust technical site investigations and ongoing interactions between the
project and the Host Community. This may mean accommodating longer discussion
periods and more research to address stakeholders’ concerns. There is nevertheless,
the need to maintain momentum in taking forward this important programme to
ensure the safe and secure long-term management of higher activity radioactive
waste in the UK.
Criteria for assessing and evaluating candidate sites
7.23 Question 9 of the MRWS consultation invited views on whether Government had
identified the relevant assessment criteria and asked for comments on how the
criteria should be applied at different stages. Responses included comments on the
weighting of the criteria, the need for more detail on the proposed process and the
need for criteria to reflect the views of potential host communities.
7.24 Analysis of the responses showed broad support for the criteria proposed in the
MRWS consultation document as a basis for evaluation of sites. Responses did not
identify any new broad criteria, but provided proposals of further factors that should
be included within those already outlined.
7.25 In light of responses, the proposed criterion ‘level of community support’ has been
removed. It is already a central feature of the process and a key determinant in a
community Right of Withdrawal. Government considers that the voluntarism process is
based on community support and as such it would apply to all communities and sites.
7.26 The proposed criteria that should be taken into account in carrying out the
assessments are:
t
geological setting
t
potential impact on people
t
potential impact on the natural environment and landscape
t
effect on local socio-economic conditions
t
transport and infrastructure provision
t
cost, timing and ease of implementation.
7.27 Not all of these criteria may be relevant at every stage and they may have a different
weight in different assessments. As explained in the Government consultation
document (Ref. 5) the criteria have been derived from various sources, including
from requirements under Strategic Environmental Assessment (SEA), Sustainability
Appraisal (SA) and Environmental Impact Assessment (EIA) (see paragraphs 5.38 and
5.39).
7.28 At each stage of the process increasingly detailed assessments will be made of
potential sites, with resources focussed on investigating those that are most likely to
be suitable.
66
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7.29 In light of MRWS consultation responses, particularly those suggesting a need
for criteria to reflect the views of potential host communities, Government has
decided not to publish a firm methodology or relative weighting at this stage.
Instead, Government has asked the NDA to develop proposals for a site assessment
methodology. A document setting out those proposals is available on the NDA
website at www.nda.gov.uk/strategy/waste/geological-disposal.cfm. The proposals
take account of MRWS consultation responses, comments from CoRWM, inputs
from the London School of Economics on decision theory and from SKB – the
Swedish Waste Management Organisation – who have successfully developed and
implemented a siting process for a geological disposal facility in Sweden.
7.30 The publication of the proposals for a site assessment methodology allows
stakeholders, including communities who express an interest in participating, to
consider and comment on the proposals during the development of the methodology.
This will be done as part of the strategic environmental assessment framework.
7.31 The methodology will need to be finalised and agreed by Government prior to
final publication and will include proposals for a process to review and establish
criteria, a scoring system, their relative weightings and their means of application.
The methodology will not produce a decision as its output but rather be a decision
aiding process.
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67
68
Page 391
Chapter 8:
Next steps
8.1
With publication of this White Paper, Government invites communities to express an
interest in opening up without commitment discussions on the possibility of hosting
a geological disposal facility at some point in the future.
8.2
To support consideration of this invitation, a dedicated website – www.defra.
gov.uk/mrws – has been set up with several layers of background information on
radioactive waste and its long-term management. This website provides, or links to,
detailed information which is intended to be accessible and helpful to people with
all levels of background knowledge from non-technical readers to experts. It also
provides information on how a community can make an Expression of Interest.
8.3
Government wishes to allow sufficient time for any community to consider
expressing an interest. At this early stage, it is expected that some communities
may be better informed of the issues than others, for example, those who already
have local nuclear facilities. However, the option to express an interest will be left
open for the foreseeable future. Any expressions if interest further into the process,
when Government or the Nuclear Decommissioning Authority’s (NDA’s) delivery
organisation are already engaged with Communities who have taken a Decision to
Participate, will be considered on a case by case basis.
8.4
Expressions of Interest in opening up such discussions or securing further
information should be sent or emailed to:
Senior Responsible Officer
Managing Radioactive Waste Safely Programme
4 C, Ergon House
Horseferry Road
London
SW1P 2AL
Phone: 020 7238 1728
Email: [email protected]
Fax: 020 7238 6471
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69
8.5
Should a community within Wales wish to put forward an Expression of Interest it
should do so to the Welsh Assembly Government (WAG). If this were to happen the
WAG would at that point consider its position in respect of the geological disposal
programme and the specific Expression of Interest.
Radioactivity and Pollution Prevention Branch
Welsh Assembly Government
Cathays Park
Cardiff
CF10 3NQ
Email: r&[email protected]
8.6
Should a community in Northern Ireland want to respond to the invitation, it
should contact the Department of the Environment in Northern Ireland. Should
a community in Scotland want to respond, UK Government would refer it to the
Scottish Executive through the appropriate devolution mechanisms.
8.7
UK Government and devolved administrations will notify other Managing
Radioactive Waste Safely (MRWS) sponsors following receipt of Expressions of
Interest.
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Annex A: Features of a geological disposal facility
Annex A:
Features of a geological disposal facility
A.1
The features of a geological disposal facility will include the following:
Surface facilities
A.2
A variety of different facilities will be needed above ground, for example
construction support facilities, management and administration offices, workshops
and, possibly, a waste encapsulation plant and a visitor centre. There will also be
a need for transport-related infrastructure to manage the arrival of waste at the
facility. Transport of waste is subject to strict regulatory control, as discussed in
Chapter 5.
A.3
Access to the underground vaults and disposal tunnels could be via one or more
sloping underground tunnels (‘drifts’) and/or one or more vertical shafts. The
number required will be determined by the need to provide separate access routes
for personnel and waste to segregate the construction and waste emplacement
operations and to provide services such as power and ventilation. The depth at
which the underground vaults and disposal tunnels will be located is likely to be
somewhere between 200 and 1000 metres, but this will depend on the geology at
the site in question. Given the length of time over which a facility will be expected
to function, the potential local effects of some future surface change e.g. through
ice ages, erosion, etc. will also need to be taken into account in the design.
Underground facilities for Intermediate Level Waste/Low Level Waste
(ILW/LLW)
A.4
ILW/LLW wastes will typically be immobilised in a cement-based grouting material
within standardised, highly engineered stainless steel or concrete-lined stainless
steel containers. The waste packages will then be placed in horizontal engineered
vaults or other suitable structures within the host geological environment. The waste
packages can then be stored underground until the decision is taken to close the
vaults. Following emplacement of the wastes the vaults would be ‘backfilled’ when
technically required, for example with alkaline grout, specially formulated to inhibit
dissolution of any radionuclides, and then sealed.
Underground facilities for High Level Waste (HLW) and spent fuel
A.5
Because they generate heat, HLW and spent fuel (if classified as waste for disposal)
require different disposal structures and layouts from ILW, LLW and other non-heat
generating radioactive materials. There are a number of ways in which HLW and
spent fuel could be packaged and contained, and research in this area is likely to
present alternative models over the coming years. For example, one method that
is planned to be used in Sweden and Finland, and could potentially be applicable
in the UK to stocks of HLW and spent fuel, is based on sealing the waste in copper
canisters with a cast iron internal frame for strength. These canisters are placed in
individual deposition holes drilled in the floor of deposition tunnels and surrounded
by bentonite clay, which expands on contact with water and so seals the space
around the canister. Under appropriate conditions copper is extremely resistant to
corrosion, and in a suitable geo-chemical environment such as this the canisters
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71
can be expected to maintain their integrity for hundreds of thousands of years.
Following waste emplacement, the deposition tunnels would be backfilled and
sealed.
Size of a geological disposal facility
A.6
The dimensions of the underground areas of a geological disposal facility will be
determined by the exact inventory for disposal, the properties of the host rock and
the geometry of features within it. Nevertheless indicative geological disposal facility
dimensions have been estimated for an inventory similar to the Committee on
Radioactive Waste Management (CoRWM) Baseline Inventory discussed in Chapter
3 and therefore does not cover waste arising from any new nuclear power stations.
Those estimates indicate that the underground area of host rock required (i.e. the
‘footprint’) for an ILW/LLW disposal facility would be of the order of 1km², and
for a HLW and spent fuel disposal facility (assuming that the latter were treated
as a waste) would be of the order of 3km². In practice it may be possible to build
a geological disposal facility over a smaller area, by building deposition tunnels or
vaults on different levels. This would however depend on the geology of the site.
Construction and operations
A.7
Construction of a geological disposal facility would employ standard techniques
that are used in the underground construction and nuclear industries for other
major engineering projects, and have already been used to construct operational
underground radioactive waste facilities in other countries. The project will also
require ongoing involvement of the scientific (and in particular the geological)
community. Underground facilities would be developed in stages to enable waste
emplacement operations to begin as soon as practicable once relevant approvals
(see Chapter 5) had been received. Main facilities would be developed first, after
which additional vaults and deposition tunnels would be constructed, equipped
and commissioned as required throughout the life of a geological disposal facility.
Construction and waste emplacement activities would be managed to ensure
physical segregation of the two activities.
Closure
A.8
72
Once a geological disposal facility has been filled with waste, a process which
could take many decades, the shafts and tunnels can be backfilled and sealed
and the surface facilities dismantled or used for something else. There will then
follow a period of post-closure institutional control and monitoring in accordance
with regulatory requirements. What happens to the site will be a matter for future
generations – the site could be farmed, forested, allowed to return to nature, or
used for construction or other purposes, with the waste itself isolated within the
multi-barrier system in the geological formations hundreds of metres below the
ground. Records of the location and general contents of the facility would be held
by The National Nuclear Archive.
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Annex B: Initial sub-surface screening criteria
B.1
In late 2006, Government asked for scientific advice on the criteria that could
be used to rule out areas of the UK put forward for the geological disposal of
radioactive waste but which, because of their sub-surface characteristics, would
probably not in fact be suitable. Two independent groups of scientists were asked to
consider this issue. One group would identify such “screening (or exclusion) criteria”
and the other group would review the proposals. The two groups were known as
the Criteria Proposals Group (CPG) and the Criteria Review Panel (CRP).
B.2
A joint report by CPG and CRP was submitted to Government in April 2007. Wider
public and stakeholder comments were sought on the proposed criteria which were
set out in a summary of the CPG/CRP advice included as part of the June 2007
consultation document “A framework for implementing geological disposal”.
B.3
After the consultation closed, the Chairs of the two groups, Professor Peter Styles
and Professor Howard Wheater, were asked to review their advice in light of the
responses. It was made clear that they were free, for example, to include new
criteria or take out any of their original ones as they thought appropriate. Their
views can be read in full at:
www.defra.gov.uk/environment/radioactivity/waste/hilw/disposal.htm,
but the Summary section is as follows:
In light of responses to the Government’s recent consultation on implementing
geological disposal, we have reviewed the advice we gave on criteria for
screening out areas that, because of their sub-surface characteristics, are
probably unsuitable for this form of long-term radioactive waste management.
Our conclusions are that the criteria we recommended should stand, that
further criteria are unnecessary at this initial stage of site selection, and that
we see no need for any fundamental change to the way in which our original
recommendations were set out.
We are, however, taking the opportunity to make clearer the wording of a few
parts of our summary advice. We are also providing a definition of what we
mean by “shallow permeable formations”, that is, formations of this kind that
occur at less than 500 metres.
B.4
The two Chairs also wanted to make clear that it was the full version of their
original advice, rather than the summary given in the consultation document, that
should be regarded as authoritative. Similarly, members of the public interested in
the exclusion criteria should also read the CPG/CRP review document in full.
B.5
On the basis of this review, Government is satisfied that the exclusion criteria to
be used at this early stage of the site selection process are robust, appropriate
and fit for purpose. The CPG/CRP review indicated that some minor changes were
necessary to the way in which the recommended criteria were expressed. These
points have been incorporated into a revised Table summarising the exclusion criteria
recommended by CPG and CRP (as well as some other criteria considered by CPG/
CRP but not, in the event, recommended for use at this stage). The Summary Table
B1 of criteria (originally included in the consultation document as Table A1) has
therefore been updated and sets out those that will be applied.
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73
Table B1: Summary table of initial sub-surface screening criteria
To be
applied as
exclusion
criteria?
Reasons/explanations and
qualifying comments
Coal
Yes
Intrusion risk to depth, only when
resource at >100m depth
Oil and gas
Yes
Intrusion risk to depth
Oil shales
Yes
Intrusion risk to depth
Industrial minerals
(except evaporites)
No
Low resource value – limiting the
potential for economic exploitation
at depth
Evaporite minerals
No
Wide distribution – insufficient
resource loss and intrusion risk to
justify exclusion
Metal ores
Some ores
Intrusion risk only where mined at
depth, i.e. >100m
Bulk rock resources
No
Not exploited at depth
Disposal of wastes/gas
storage
Yes
Only where already committed or
approved at >100m depth
Geothermal energy –
shallow1 ground source
heat
No
Not exploited at depth
Geothermal energy
– low grade heat
extraction from deep
rocks and groundwaters
No
Not an a priori general exclusion –
value for development is currently
speculative
Aquifers
Yes
Where all or part of the geological
disposal facility host rock is located
within the aquifer
Shallow1 permeable
formations
Yes
Where all or part of the geological
disposal facility host rock would be
provided by permeable formations that
might reasonably be exploited in the
future
Deep permeable saline
formations
No
No potential as exploitable
groundwater resources
Natural resources
Groundwater
1. “Shallow”, in this context, means less than 500 metres below the surface. Therefore, “deep” and
“at depth” mean more than 500 metres below the surface.
74
Page 397
Table B1: Summary table of initial sub-surface screening criteria (continued)
To be
applied as
exclusion
criteria?
Reasons/explanations and
qualifying comments
Formations
neighbouring
exploitable
groundwater
No
Where the host rock volume provides
adequate long-term isolation of the
waste
Specific complex
hydro-geological
environments
Yes
Deep karstic formations and known
source rocks for thermal springs
Earthquakes & faults
No
Later assessment of potential impact
on sites
Uplift and erosion
No
Influence on geological disposal
facility depth and design and later site
exclusion in extreme cases
Other geohazards
No
Site specific risk assessment will be
required later in the process
No
Later assessment when detailed site
data are available
Specific complex
geological
environments
No
Need not be excluded at this stage
Other geological
and hydrogeological
characteristics
No
Only required at in-situ geoscientific
investigation stage
Geological stability
Geotechnical issues
Rock stress and
engineering issues
Other sub-surface
criteria
Page 398
75
Annex C:
Community Siting Partnerships: Guidance
Introduction
C.1
The Government is committed to a partnership approach. This approach is
important in two main ways. First, to shape the relationships between national and
local bodies. Second, to inform the establishment of a formal Community Siting
Partnership of local community interests in those areas where decisions have been
taken to participate in the siting process.
C.2
Although Government does not wish to be prescriptive about the forms of
Community Siting Partnership that are established, the following guidance should
be taken into account by interested parties.
Mission Statement
C.3
A Community Siting Partnership should adopt a formal mission statement, for
example:
The mission of a Community Siting Partnership is to ensure that: all
the questions and concerns of potential Host Communities within its
area and its Wider Local Interests about the geological disposal facility
siting, construction, operation, closure and post-closure are addressed
and resolved as far as reasonably practicable; and that the project
contributes to a community’s development and well-being
Objectives
C.4
A set of objectives should also be identified to help guide the work of the
Community Siting Partnership, and enable it to review progress. It is suggested
that the objectives might include seeking to develop partner and local community
confidence that:
t
there is a good prospect for developing an acceptable environmental safety case
t
the potential development is unlikely to lead to significant objections on
planning grounds
t
a Benefits Package will be developed such that the overall balance of benefits
and impacts will contribute to the well-being of local communities and their
future generations
t
the question of potential retrievability of wastes has been adequately considered
t
the Host Community and the Wider Local Interests – have been engaged in the
debate.
Such objectives will need to be achieved for a successful siting process.
76
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Annex C: Community Siting Partnerships: Guidance
The Role of a Community Siting Partnership
C.5
In order to fulfil its mission and objectives, Government envisages that the role of
the Partnership will include:
t
Developing advice and recommendations for Decision Making Bodies
t
Consideration of, and contribution to the work the implementing organisation
and delivery organisation are undertaking to design, construct and operate a
facility.
t
Obtaining specialist advice or commissioning research to inform its advisory role,
address community concerns or identify ways of developing community wellbeing
t
Ensuring that the siting process for a facility within a potential Host Community
is effective and focussed on making progress
t
Provision of public information about the activities, views and recommendations
of the Community Siting Partnership
t
Engagement or consultation with potential Host Communities and Wider Local
Interests
t
Identifying and addressing divergent views within those communities
t
Liaison and discussion with local bodies with remits related to the mission of
the Community Siting Partnership (e.g. Local Strategic Partnerships or Site
Stakeholder Groups)
t
Building the capacity of its membership to enable it to effectively carry out these
roles.
Participants in a Partnership may wish to adopt additional formulations of their role,
as related to the mission of the Partnership.
Decision-Making Responsibilities
C.6
Although a Community Siting Partnership would be able to take decisions
about how it undertakes all elements of its role, it would not have powers to
usurp the decision-making responsibilities of other bodies, including the Nuclear
Decommissioning Authority (NDA) as implementing organisation, the NDA’s delivery
organisation, the regulators, and local and national government. A Partnership is
expected to play a crucial part in ensuring that the decisions of those bodies are
well-informed and robust, particularly regarding community concerns.
C.7
The leadership role and democratic accountability of local government means that
it should be responsible for major local decisions within the siting process. It will be
the Decision Making Body and will take decisions relating to:
t
continued participation at key stages, or exercising a Right of Withdrawal
t
the local acceptability of proposals for Community Benefits Packages
t
the local acceptability of the sites within an area that are proposed for field
surface-based investigations
t
whether potential retrievability of wastes has been adequately considered
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77
In each case, the Decision Making Body would take careful account of advice and
recommendations from the Community Siting Partnership.
C.8
For participating areas that cross local authority boundaries or have two tier local
government, Government will require clarity about which local authorities will take
decisions about Partnership recommendations as the siting process progresses.
Timescales
C.9
It is envisaged that potential partners would begin to work together in the steps
leading up to a local Decision to Participate in the siting process. If a Decision
to Participate is taken, the formal Community Siting Partnership would then be
established. The Partnership must be able to develop, evolve and respond to change
over a period of decades to enable it to fulfill its mission and objectives.
Membership
C.10 Government expects a Community Siting Partnership to be a partnership of local
community interests, with members identified and recruited locally to enable its
mission to be fulfilled. The NDA’s delivery organisation would be a member of
the Partnership but would not be directly involved in decisions by the Partnership
on community-related issues. The relevant local authority/ies are likely to have a
lead role in setting up the Partnership. Recruitment should be informed by local
research to identify all stakeholders that wish to participate. There will be flexibility
in the geographic scope and membership of a Partnership to take account of local
circumstances.
C.11 Government expects the relevant local authority/ies to be effectively represented
within the Community Siting Partnership so that its views can be expressed, local
political realities are recognised and there are no surprises when proposals are
presented for decision.
The Role of National Bodies
C.12 The NDA’s delivery organisation would not be directly involved in decisions by
the Partnership on community-related issues or in finalising Partnership advice to
Decision Making Bodies, other than when asked to provide a view or technical
input. There will, however, need to be ongoing interaction between the NDA’s
delivery organisation and other members of the Partnership, and Government
believes this involvement will allow them to be exposed directly to community
concerns and allow real-time feedback of information in both directions. It is hoped
this will assist in achieving the most efficient and open engagement, allowing
unhelpful misunderstandings to be avoided wherever possible. Of course, the NDA’s
delivery organisation will remain responsible throughout for ensuring compliance
with technical and regulatory requirements.
C.13 Although not a member of a Community Siting Partnership, Government could
participate in the work of the Partnership as and when required. This might be
as an observer, an associate member, or on an ad hoc basis depending on the
requirements of a particular stage in the process. Regulatory bodies will also be
involved, for example by providing advice to the Partnership, although regulators
will need to have a strictly defined role and remit that does not compromise their
independence.
78
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Annex C: Community Siting Partnerships: Guidance
C.14 The role of the national bodies could include:
t
The pro-active provision of timely information and advice, including the
presentation of proposals, advice and research findings
t
Participation in Partnership discussions, working groups and studies
t
Responding to Partnership requirements for further information and advice
t
Involvement in wider community engagement and consultation initiatives as
organised by the Partnership, hearing community views directly and providing
information as required
t
Assistance with building the capacity of Partnership members to fulfil its mission
and objectives
Establishing the Community Siting Partnership and Early Steps
C.15 UK experience of Local Strategic Partnerships highlights the importance of
enabling prospective members of a Partnership to develop a shared vision about
its mission, objectives, role and the way they will be delivered. Discussion will need
to address organisation and procedures, access to specialist knowledge, external
communications and engagement, training and skills, funding and resources, and
evaluation of progress. Government expects prospective members of the Partnership
to develop recommendations in each of these areas that will form the basis of a
formal Partnership Agreement. Government and the NDA’s delivery organisation will
need to be able to sign up to the Agreement.
C.16 A very early task of a Community Siting Partnership will be to develop a detailed
local implementation plan for the Partnership’s work, building on the national
implementation framework. This should enable the Partnership to work with
the NDA’s delivery organisation to integrate the requirements of the Partnership
approach with the technical programme, resulting in a shared understanding of the
way forward and a plan that is owned by all key players at national and local levels.
Costs and Funding
C.17 To achieve its mission and fulfil its roles effectively, a Community Siting Partnership
will need adequate funding. Government will make available an agreed level of
funding as part of the Engagement Package.
C.18 Subject to overall budget approval and audit arrangements agreed with
Government, it will be for a Partnership to decide exactly how – in seeking to fulfil
its mission – it spends its funding.
C.19 Government expects that a local authority member of the Community Siting
Partnership will be the budget holder and employing organisation for the
Partnership. Therefore the Partnership will be accountable to the local authority
for the management of its budget and will be subject to local authority budget
management rules as well as the agreed audits.
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79
C.20 Based on the role of a Community Siting Partnership, Government anticipates that
such funding might cover:
t
public information
t
liaison, consultation and engagement
t
salaries and associated costs of Partnership staff
t
office costs and overheads
t
organisational costs of running the Partnership and any Working Groups it
might establish
t
commissioning specialist advice
t
capacity building of members
t
reimbursement for out of pocket expenses of Partnership members
t
process evaluation
Agreements
C.21 It is envisaged that agreements will be put in place between the members of the
Community Siting Partnerships and the Government. These could cover:
80
t
A description of the facility being proposed
t
The mission, aims and objectives of the Partnership
t
The roles of the parties involved
t
Requirements for community involvement
t
Funding arrangements for the Partnership
t
Who the Partnership is responsible to and how that responsibility is managed
t
How the Partnership’s work and accounts will be scrutinised
t
Right of Withdrawal.
Page 403
References
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1.
Committee on Radioactive Waste Management, “Managing our Radioactive
Waste Safely- CoRWM’s Recommendations to Government”, July 2006. CoRWM
Document 700. Available at www.corwm.org.uk
2.
UK Government and the devolved administrations, “Response to the Report
and Recommendations from the Committee on Radioactive Waste Management
(CoRWM)”, (PB 12303) October 2006. www.defra.gov.uk/environment/radioactivity/
waste/pdf/corwm-govresponse.pdf
3.
The Nuclear Decommissioning Authority, “The NDA Strategy”, March 2006. Further
information available by visiting www.nda.gov.uk/strategy/
4.
The Nuclear Decommissioning Authority, “NDA Business Plan 2008-2011”, 1 April
2008. Further information available by visiting www.nda.gov.uk/documents/loader.
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5.
Defra, BERR and the Welsh and Northern Ireland devolved administrations,
“Managing Radioactive Waste Safely: A Framework for Implementing Geological
Disposal”, 25 June 2007. www.defra.gov.uk/corporate/consult/radwaste-framework/
index.htm
6.
Defra, BERR and the Welsh and Northern Ireland devolved administrations,
“Summary and Analysis of Responses to the Consultation on Managing Radioactive
Waste Safely: A Framework for Implementing Geological Disposal”, 10 January
2008. www.defra.gov.uk/corporate/consult/radwaste-framework/index.htm
7.
The Scottish Government, “Ministers Decline to Endorse Deep Storage”,
25 June 2007. News release available at www.scotland.gov.uk/News/
Releases/2007/06/25101822
8.
Defra, DTI, Scottish Executive, Welsh Assembly Government, Northern Ireland
Department of the Environment, “Policy for the Long Term Management of Solid
Low Level Radioactive Waste in the United Kingdom”, March 2007. www.defra.gov.
uk/environment/radioactivity/waste/pdf/llw-policystatement070326.pdf
9.
Welsh Assembly Government Statement published on 18 March 2008 and available
on the Welsh Assembly Government website: http://new.wales.gov.uk/publications/
accessinfo/drnewhomepage/environmentdrs2/environmentdrs2008/racdioactivewast
edisposalmar08/?lang=en
10.
Her Majesty’s Stationery Office, “Review of Radioactive Waste Management Policy:
Final Conclusions”, (Cm 2919) July 1995.
11.
UK Radioactive Waste Inventory 2007, May 2008. See www.nda.gov.uk/strategy/
waste/geological-disposal.cfm
12
Department for Business, Enterprise and Regulatory Reform, “Meeting the Energy
Challenge: A White Paper on Nuclear Power”, January 2008. www.berr.gov.uk/
energy/nuclear-whitepaper/page42765.html
13
The Nuclear Decommissioning Authority, “Uranium and Plutonium: Macro-Economic
Study Draft Final Report – Public Version”, June 2007. www.nda.gov.uk/documents/
upload/Uranium-and-Plutonium-Macro-Economic-Study-June-2007.pdf
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14.
Committee on Radioactive Waste Management, “CoRWM’s Radioactive Waste and
Materials Inventory”, July 2005. CoRWM Document 1279. www.corwm.org.uk
15.
Department for Environment, Food and Rural Affairs and United Kingdom Nirex Ltd,
“The 2004 UK Radioactive Waste Inventory: Main Report”, October 2005. Report
DEFRA/RAS/05.002 and Nirex Report N/090. www.nda.gov.uk/documents/upload/
N090-The-2004-UK-Radioactive-Wastes-Inventory-main-report.pdf
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Department for Business, Enterprise and Regulatory Reform, “The Future of Nuclear
Power, The Role of Nuclear Power in a Low Carbon UK Economy”, Consultation
Document, URN 07/970, May 2007. www.berr.gov.uk/energy/whitepaper/
consultations/nuclearpower2007/page39554.html
17.
The Health and Safety Executive, the Environment Agency, the Scottish Environment
Protection Agency and the Office for Civil Nuclear Security, “Guide to Regulatory
Processes for Generic Design Assessment of New Nuclear Power Stations”, January
2007. Document available at www.hse.gov.uk/nuclear/reactors/toptier.pdf
18.
The Environment Agency, “Process and Information Document for Generic
Assessment of Candidate Nuclear Power Plant Designs”, January 2007. Document
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19.
United Kingdom Nirex Limited, “The Gate Process: Preliminary analysis of radioactive
waste implications associated with new build reactors”, Technical Note, February
2007.
20.
Nuclear Decommissioning Authority, “National Policies on the Long-term
Management of Higher Activity Wastes”, April 2008.
See www.nda.gov.uk/strategy/waste/geological-disposal.cfm
21.
S. J. King and M. Poole, “Issues associated with the co-disposal of ILW/HLW and
HLW/SF in the United Kingdom in WM’02 Conference”, February 24-28 2002,
Tucson, AZ. www.wmsym.org/abstracts/2002/Proceedings/49/465.pdf
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United Kingdom Nirex Limited “Summary Note for CoRWM on Cost Estimates for
CoRWM Option 7 (Deep Geological Disposal) and Option 9 (Phased Deep Geological
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Department for Business, Enterprise and Regulatory Reform, “The Energy Bill 2008:
Consultation on Funded Decommissioning Programme Guidance for New Nuclear
Power Stations”, February 2008. www.berr.gov.uk/consultations/page44784.html
24.
Defra, BERR and the devolved administrations, “Committee on Radioactive Waste
Management Terms of Reference”, October 2007. Document no. 2235. Available at
www.corwm.org.uk
25.
Nuclear Decommissioning Authority, “NDA Radioactive Waste Management
Directorate – Proposed research and development strategy”, May 2008. See www.
nda.gov.uk/strategy/waste/geological-disposal.cfm
26.
The Commission of the European Communities, “Commission Directive 96/29/
Euratom of 13 May 1996, Laying Down Basic Safety Standards for the Protection
of the Health of Workers and the General Public Against the Dangers of Ionising
Radiation”, 1996.
27.
“Radioactive Substances Act”, 1993 ISBN 0105412937.
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28.
“Health and Safety at Work etc Act”, 1974 ISBN 0105437743.
29.
“The Nuclear Installations Act”, 1965 ISBN 0108502163.
30.
The Environment Agency and the Environment and Heritage Service Department of
Environment Northern Ireland. “Deep Geological Disposal Facilities on Land for Solid
Radioactive Wastes: Guidance on Requirements for Authorisation.” 15 May 2008.
www.environment-agency.gov.uk/yourenv/consultations/
31.
The Environment Agency, the Scottish Environment Protection Agency and the
Environment and Heritage Service Department of Environment Northern Ireland.
“Near-Surface Disposal Facilities on Land for Solid Radioactive Wastes: Guidance on
Requirements for Authorisation.” 15 May 2008. www.environment-agency.gov.uk/
yourenv/consultations/
32.
The Environment Agency, Scottish Environment Protection Agency, Department
of the Environment for Northern Ireland, “Disposal Facilities on Land for Low
and Intermediate Level Radioactive Wastes: Guidance on Requirements for
Authorisation”, November 1996. www.environment-agency.gov.uk/business/444304
/945840/1064273/1067644/1738980/?version=1&lang=_e
33.
Office for Civil Nuclear Security, “The State of Security in the Civil Nuclear Industry
and the Effectiveness of Security Regulation: A Report to the Minister of State for
Energy”, April 2006 to March 2007. www.hse.gov.uk/nuclear/ocns/ocns0607.pdf
34.
The European Economic Community, “Euratom (European Atomic Energy
Community) Treaty”, 1957, Rome.
35.
The Commission of the European Communities, “Commission Regulation (Euratom)
No. 302/2005 of 8 February 2005 on the Application of Euratom Safeguards”,
Official Journal of the European Union, 28 February 2005. http://eur-lex.europa.eu/
LexUriServ/site/en/oj/2005/l_054/l_05420050228en00010070.pdf
36.
Various national and international requirements include:
– International Atomic Energy Agency (IAEA) TS-R-1 Regulations for the Safe
Transport of Radioactive Materials 1996 Edition (Revised) or 1996 Edition (As
Amended 2005).
– International Maritime Organisation (IMO) International Maritime Dangerous
Goods (IMDG) Code (Amdt 32-04).
– United Nations Economic Commission for Europe (UNECE) European Agreement
concerning the International Carriage of Dangerous Goods by Road (ADR) 2007
Edition.
– Intergovernmental Organisation for International Carriage by Rail (OTIF)
Convention concerning International Carriage by Rail (COTIF) Appendix B. Uniform
Rules concerning the Contract for International Carriage of Goods by Rail (CIM)
Annex 1 Regulations concerning the International Carriage of Dangerous Goods
by Rail (RID) 2007 Edition.
– Council Directive 94/55/EC of 21 November 1994 on the Approximation of the
Laws of Member States with regard to the Transport of Dangerous Goods by
Road.
– Council Directive 96/49/EC of 23 July 1996 on the Approximation of the Laws of
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83
Member States with regard to the Transport of Dangerous Goods by Rail
– The Carriage of Dangerous Goods and Use of Transportable Pressure Equipment
Regulations 2007, SI 2007 No 1573.
– For British registered ships and all other ships whilst in United Kingdom territorial
waters, The Merchant Shipping (Dangerous Goods and Marine Pollutants)
Regulations 1997, SI 1997 No 2367; Merchant Shipping Notice No MSN 1791(M),
“The Carriage of Dangerous Goods and Marine Pollutants in Packaged Form
– Amendment 32-04 to the International Maritime Dangerous Goods (IMDG)
Code”.
37.
The International Commission on Radiological Protection, “Radiological Protection
Policy for the Disposal of Radioactive Waste”, 1997. ICRP Publication 77.
38.
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Involving Ionising Radiation Regulations 2004 (SI 2004 No 1769), Guidance on their
Application and Administration”, February 2006. Available at www.defra.gov.uk/
environment/radioactivity/government/legislation/pdf/justification-guidance.pdf
39.
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Future: White Paper”, May 2007. www.communities.gov.uk/publications/
planningandbuilding/planningsustainablefuture
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of the European Parliament and of the Council of 27 June 2001 on the Assessment
of the Effects of certain Plans and Programmes on the Environment”, Official
Journal of the European Communities, L197, 2001.
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Government and Department of Environment in Northern Ireland, “A Practical
Guide to the Strategic Environmental Assessment Directive”, 2005.
42.
Office of the Deputy Prime Minister, “Sustainability Appraisal of Regional Spatial
Strategies and Local Development Documents”, 2005.
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Assessment of the Effects of Certain Public and Private Projects on the Environment
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and the Council On the Application and Effectiveness of the EIA Directive (Directive
85/337/EEC as Amended by Directive 97/11/EC)”, 2003, Brussels.
45.
European Parliament and the Council of the European Union, “Directive 2003/35/
EC of the European Parliament and of the Council of 26 May 2003 Providing for
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Relating to the Environment and Amending With Regard to Public Participation and
Access to Justice Council Directives 85/337/EEC and 96/61/EC”, Official Journal of
the European Communities, L156, 2003.
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Approach to Radioactive Waste Management: Report to Governments”, April 2007.
Document 2146. Available on the CoRWM website at www.corwm.org.uk
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Nuclear Legacy Advisory Forum, “Developing The Implementation Framework:
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48.
The Nuclear Decommissioning Authority, “Managing Radioactive Waste Safely:
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The Nuclear Decommissioning Authority, “Managing Radioactive Waste Safely:
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Page 408
85
Glossary
Activity
The number of atoms of a radioactive substance which decay (radioactive decay) by
nuclear disintegration each second. The unit of activity is the becquerel.
Advanced Gas-cooled Reactor (AGR)
The reactor type used in the UK’s second generation nuclear power plants.
Alpha activity
Alpha activity takes the form of particles (helium nuclei) ejected from a decaying
(radioactive) atom. Alpha particles cause ionisations in biological tissue which may
lead to damage. The particles have a very short range in air (typically about 5 cm)
and alpha particles present in materials that are outside of the body are prevented
from doing biological damage by the superficial dead skin cells, but become
significant if inhaled or swallowed.
Baseline Inventory
An estimate of the higher activity radioactive waste and other materials that could,
possibly, come to be regarded as wastes that might need to be managed in the
future through geological disposal drawn from the UK Radioactive Waste Inventory.
Becquerel (Bq)
The standard international unit of radioactivity equal to one radioactive decay per
second. Becquerels are abbreviated to Bq. Multiples of becquerels commonly used
to define radioactive waste activity are: kilobecquerels (kBq) equal to 1 thousand
Bq; megabecquerels (MBq) equal to 1 million Bq; gigabecquerels (GBq) equal to 1
thousand million Bq.
Beta activity
Beta activity takes the form of particles (electrons) emitted during radioactive decay
from the nucleus of an atom. Beta particles cause ionisations in biological tissue
which may lead to damage. Most beta particles can pass through the skin and
penetrate the body, but a few millimetres of light materials, such as aluminium,
will generally shield against them.
Borehole Disposal
The concept of disposing of some forms of radioactive waste in extremely deep
boreholes, a number of kilometres down in the Earth’s crust.
British Geological Survey (BGS)
The BGS provides expert services and impartial advice in all areas of geoscience.
Clean-up
The decontamination and decommissioning of a nuclear licensed site.
86
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Glossary
Committee on Radioactive Waste Management (CoRWM)
CoRWM was set up in 2003 to provide independent advice to Government on
the long-term management of the UK’s solid higher activity radioactive waste. In
October 2007, CoRWM was reconstituted with revised Terms of Reference and new
membership. The Committee will provide independent scrutiny and advice to UK
Government and devolved administration Ministers on the long-term radioactive
waste management programme, including storage and disposal. Further information
available at www.corwm.org.uk
Community Siting Partnership (or Partnership)
A partnership of local community interests that will work with the NDA’s delivery
organisation and with other relevant interested parties to ensure questions and
concerns of potential Host Communities and its Wider Local Interests are addressed
and resolved as far as reasonably practicable and to advise Decision Making Bodies
at each stage of the process.
Criteria Proposals Group (CPG)
An expert group set up to recommend a set of scientific criteria for the initial subsurface exclusion of areas of the UK unsuitable for the location of a geological
disposal facility.
Criteria Review Panel (CRP)
An expert group established to undertake independent peer review and assessment
of the CPG’s proposals to ensure that they are sound and workable.
Decommissioning
The process whereby a nuclear facility, at the end of its economic life, is taken
permanently out of service. The term “site clean-up” is sometimes used to describe
the work undertaken to make the site available for other purposes.
Decontamination
Removal or reduction of radioactive contamination.
Department for Business, Enterprise and Regulatory Reform (BERR)
previously Department of Trade and Industry (DTI).
Department for Environment, Food and Rural Affairs (Defra)
Department for Transport (DfT)
Department of Communities and Local Government (DCLG)
Department of Environment Northern Ireland (DoENI)
Devolved administrations
Collective term for the Scottish Executive, Welsh Assembly Government and in
Northern Ireland, the Department of the Environment.
Disposability
The degree to which conditioned waste meets the standards for final disposal.
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Disposal
In the context of solid waste, disposal is the emplacement of waste in a suitable
facility without intent to retrieve it at a later date; retrieval may be possible but, if
intended, the appropriate term is storage.
Energy Act 2004 (EA04)
An Act of Parliament, EA04 which, inter alia, established the NDA and set out its
duties and responsibilities for the decommissioning and clean-up of the UK’s public
civil nuclear sites.
Environment Agency
The environmental regulator for England and Wales. The Agency’s role is the
enforcement of specified laws and regulations aimed at protecting the environment,
in the context of sustainable development, predominantly by authorising and
controlling radioactive discharges and waste disposal to air, water (surface water,
groundwater) and land. The Environment Agency also regulates nuclear sites under
the Environmental Permitting Regulations and issues consents for non-radioactive
discharges.
Environmental Impact Assessment (EIA)
A legal requirement under EU Directive 85/337/EEC (as amended) for certain types
of project, including various categories of radioactive waste management project.
It requires information on the environmental impacts of a project proposal to be
submitted by the developer and evaluated by the relevant competent authority (the
planning authority, HSE or other regulators concerned).
Euratom Treaty
The legislative basis for the activities of European Union countries in the nuclear
energy field.
European Commission (EC)
The executive body of the European Union. Its primary roles are to propose and
implement legislation, and to act as guardian of the treaties which provide the legal
basis for the European Union.
European Union (EU)
The European Union of countries of which the United Kingdom is a member. The EU
issues its own legislation which the UK, as a member state, is obliged to follow.
Expression of Interest (EoI)
The decision point at which local communities register their ‘without commitment’
interest in discussions with Government about potential involvement in the
geological disposal facility siting process.
Gamma activity
An electromagnetic radiation similar in some respects to visible light, but with
higher energy. Gamma rays cause ionisations in biological tissue which may lead to
damage. Gamma rays are very penetrating and are attenuated only by shields of
dense metal or concrete, perhaps some metres thick, depending on their energy.
Their emission during radioactive decay is usually accompanied by particle emission
(beta or alpha activity).
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Glossary
Geological disposal
A long term management option involving the emplacement of radioactive waste
in an engineered underground geological disposal facility or repository, where the
geology (rock structure) provides a barrier against the escape of radioactivity and
there is no intention to retrieve the waste once the facility is closed.
Half-life
The time taken for the activity of a given amount of a radioactive substance to
decay to half of its initial value. Each radionuclide has a unique half-life.
Health and Safety Executive (HSE)
A statutory body whose role is the enforcement of work related health and
safety law. HSE is the licensing authority for nuclear installations. The Nuclear
Safety Directorate of HSE exercises this delegated authority through the Nuclear
Installations Inspectorate (NII) who are responsible for regulating the nuclear,
radiological and industrial safety of UK nuclear installations under the Nuclear
Installations Act 1965.
High Level Waste (HLW)
Radioactive wastes in which the temperature may rise significantly as a result of their
radioactivity, so this factor has to be taken into account in the design of storage or
disposal facilities.
Higher activity radioactive waste
It includes the following categories of radioactive waste: high level waste,
intermediate level waste, a small fraction of low level waste with a concentration of
specific radionuclides.
Infrastructure Planning Commission (IPC)
Intermediate level waste (ILW)
Radioactive wastes exceeding the upper activity boundaries for LLW but which do
not need heat to be taken into account in the design of storage or disposal facilities.
International Atomic Energy Agency (IAEA)
International Commission on Radiological Protection (ICRP)
An international advisory body founded in 1928 providing recommendations and
guidance on radiation protection. ICRP recommendations normally form the basis
for EU and UK radiation protection standards.
Ionisation
When radiation (alpha, beta, and gamma activity) interacts with matter, it can cause
atoms and molecules to become unstable (creating ions). This process is called
ionisation. Ionisation within biological tissue from radiation is the first stage in
radiation leading to possible change or damage within the tissue.
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Legacy Waste
Radioactive waste which already exists or whose arising is committed in future by
the operation of an existing nuclear power plant.
Low Level Waste (LLW)
LLW is defined as “radioactive waste having a radioactive content not exceeding 4
gigabecquerels per tonne (GBq/te) of alpha or 12 GBq/te of beta/gamma activity”.
Managing Radioactive Waste Safely (MRWS)
A phrase covering the whole process of public consultation, work by CoRWM,
and subsequent actions by Government, to identify and implement the option, or
combination of options, for the long term management of the UK’s higher activity
radioactive waste.
Maritime and Coastguard Agency (MCA)
Body with responsibility for developing, promoting and enforcing high standards of
marine safety within British territorial waters and ports.
Ministry of Defence (MoD)
New build
New build of a nuclear power station.
Nirex (UK Nirex Ltd)
An organisation previously owned jointly by Defra and the DTI. Its objectives were,
in support of Government policy, to develop and advise on safe, environmentally
sound and publicly acceptable options for the long-term management of radioactive
materials in the United Kingdom. The Government’s response to CoRWM in October
2006 initiated the incorporation of Nirex functions into the NDA, a process which
was completed in March 2007.
Non-Governmental Organisations (NGOs)
In its broadest sense, a non-governmental organisation is one that is not directly
part of the structure of Government.
Nuclear Decommissioning Authority (NDA)
The NDA is the implementing organisation, responsible for planning and delivering
the geological disposal facility. The NDA was set up on 1 April 2005, under the
Energy Act 2004. It is a non-departmental public body with designated responsibility
for managing the liabilities at specific sites. These sites are operated under contract
by site licensee companies (initially British Nuclear Group Sellafield Limited, Magnox
Electric Limited, Springfields Fuels Limited and UK Atomic Energy Authority). The
NDA has a statutory requirement under the Energy Act 2004, to publish and consult
on its Strategy and Annual Plans, which have to be agreed by the Secretary of State
(currently the Secretary of State for Trade and Industry) and Scottish Ministers.
Nuclear Installations Act 1965 (NIA65)
UK legislation which provides for the operation and regulation of nuclear
installations within the UK.
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Glossary
Nuclear Installations Inspectorate (NII) see HSE
Nuclear Legacy Advisory Forum (NuLeAF)
A special interest group, established by the Local Government Association, to provide
a mechanism for identifying a common local government viewpoint on nuclear
clean-up issues and to act as an interface with Government and the regulatory
bodies as they consult on waste management and clean-up policy and practice.
Nuclear Safeguards
Measures to verify that States comply with their international obligations not to use
nuclear materials (plutonium, uranium and thorium) for nuclear explosives purposes.
Global recognition of the need for such verification is reflected in the requirements
of the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) for the application
of safeguards by the International Atomic Energy Agency (IAEA). Also, the Treaty
Establishing the European Atomic Energy Community (the Euratom Treaty) includes
requirements for the application of safeguards by the European Commission.
Nuclear technology
Technology that involves the reactions of the nuclei of atoms. It forms the basis
for nuclear power plants and supporting research and operations. The world’s first
commercial nuclear power station, Calder Hall in Sellafield, England was opened in
1956.
Nuclear waste
A general term for the radioactive waste produced by those industries involved with
nuclear energy and nuclear weapons’ production.
Office for Civil Nuclear Security (OCNS)
The independent security regulator for the UK civil nuclear industry.
Partnership (see Community Siting Partnership)
Passive Safety
The need to provide and maintain a safety function by minimising the need
for active safety systems, monitoring or prompt human intervention. Requires
radioactive wastes to be immobilised and packaged in a form that is physically
and chemically stable. The package should be stored in a manner that is resistant
to degradation and hazards, and which minimises the need for control and safety
systems, maintenance, monitoring and human intervention.
Planning authorities
A general term for those regional planning bodies and local authorities throughout
the UK who are responsible for the preparation of planning strategies and for
determining applications for construction and operation of waste treatment and
disposal facilities that may be sited in their area of responsibility.
Plutonium
A radioactive element occurring in very small quantities in uranium ores but mainly
produced artificially, including for use in nuclear fuel, by neutron bombardment of
uranium.
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91
Pressurised Water Reactor (PWR)
Reactor type using ordinary water under high pressure as coolant and neutron
moderator. PWRs are widely used throughout the world for electricity generation.
The Sizewell B reactor in Suffolk is of this design.
Radioactive decay
The process by which radioactive material loses activity, e.g. alpha activity naturally.
The rate at which atoms disintegrate is measured in becquerels.
Radioactive material
Material designated in national law or by a regulatory body as being subject to
regulatory control because of its radioactivity.
Radioactive Substances Act 1993 (RSA 93)
UK legislation which provides for regulation of the disposal of radioactive wastes,
including liquid and gaseous discharges to the environment.
Radioactive waste
Any material contaminated by or incorporating radioactivity above certain thresholds
defined in legislation, and for which no further use is envisaged, is known as
radioactive waste.
Radioactive Waste Management Directorate (RWMD)
A new NDA Directorate established to design and build an effective delivery
organisation to implement a safe, sustainable, publicly acceptable geological
disposal programme. It is envisaged that this directorate will become a wholly
owned subsidiary company of the NDA. Ultimately, it will evolve under the NDA
into the organisation responsible for the delivery of the geological disposal facility.
Ownership of this organisation can then be opened up to competition, in due
course, in line with other NDA sites.
Radioactivity
Atoms undergoing spontaneous random disintegration, usually accompanied by the
emission of radiation.
Radionuclide
A term which refers to a radioactive form of an element, for example, carbon-14
and caesium-137.
Repository
A permanent disposal facility for radioactive wastes.
Reprocessing
A physical or chemical separation operation, the purpose of which is to extract
uranium or plutonium for re-use from spent nuclear fuel.
Right of Withdrawal (RoW)
This is an important part of the voluntarism approach intended to contribute to the
development and maintenance of community confidence. Up until a late stage,
when underground operations and construction are due to begin, if a community
wished to withdraw then its involvement in the process would stop.
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Glossary
Safety cases
A ‘safety case’ is the written documentation demonstrating that risks associated
with a site, a plant, part of a plant or a plant modification are as low a reasonably
practicable and that the relevant standards have been met. Safety cases for
licensable activities at nuclear sites are required as license conditions under the
NIA65.
Scottish Environment Protection Agency (SEPA)
The environmental regulator for Scotland. The Agency’s role is the enforcement
of specified laws and regulations aimed at protecting the environment, in the
context of sustainable development, predominantly by authorising and controlling
radioactive discharges and waste disposal to air, water (surface water, groundwater)
and land. SEPA also regulates nuclear sites under the Pollution Prevention and
Control Regulations and issues consents for non-radioactive discharges.
Scottish Executive (SE)
Seismic survey
A technique for determining the detailed structure of the rocks underlying a
particular area by passing acoustic shock waves into the rock strata and detecting
and measuring the reflected signals.
Sizewell B
A PWR nuclear power plant in Suffolk, operated by British Energy.
Spent fuel (Spent nuclear fuel)
Used fuel assemblies removed from a nuclear power plant reactor after several years
use and treated either as radioactive waste or via reprocessing as a source of further
fuel.
Stakeholders
In the context of this document, people or organisations, having a particular
knowledge of, interest in, or be affected by, radioactive waste, examples being the
waste producers and owners, waste regulators, non-Governmental organisations
and local communities and authorities.
Storage
The emplacement of waste in a suitable facility with the intent to retrieve it at a later
date.
Strategic Environmental Assessment (SEA)
In this document, SEA refers to the type of environmental assessment legally required
by EC Directive 2001/42/EC in the preparation of certain plans and programmes.
The authority responsible for the plan or programme must prepare an environmental
report on its likely significant effects, consult the public on the report and the plan
or programme proposals, take the findings into account, and provide information on
the plan or programme as finally adopted.
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93
Sustainability Appraisal (SA)
A form of assessment used in England, particularly in regional and local planning,
covering the social, environmental and economic effects of proposed plans and
appraising them in relation to the aims of sustainable development. SAs fully
incorporating the requirements of the SEA Directive (2001/42/EC) are mandatory
for a range of regional and local planning documents under the Planning and
Compulsory Purchase Act 2004.
Thorium
A naturally occurring, weakly radioactive element and an alternative to uranium as a
nuclear fuel.
UK Radioactive Waste Inventory (UKRWI)
A compilation of data on UK radioactive waste holdings, produced about every
three years. The latest version, for a holding date of 1 April 2007, was published
in June 2008. It is produced by Defra and the NDA. It is the latest public record of
information on the sources, quantities and properties of Low Level Waste (LLW),
Intermediate Level Waste (ILW) and High Level Waste (HLW) in the UK. It comprises
of a number of reports and additional detailed information on the quantities and
properties of radioactive wastes in the UK that existed at 1 April 2007 and those
that were projected to arise after that date.
Unconditioned Waste
Radioactive waste in its initially generated state, prior to its preparation and
packaging for longer term storage and/or disposal in a solid and stable form.
Uranium
A heavy, naturally occurring and weakly radioactive element, commercially extracted
from uranium ores. By nuclear fission (the nucleus splitting into two or more nuclei
and releasing energy) it is used as a fuel in nuclear reactors to generate heat.
Voluntarism
An approach in which communities “express an interest” in participating in the
process that would ultimately provide the site for a geological disposal facility.
Initially a community would be expressing an interest in finding out more about
what hosting such a facility would involve. In the latter stages there would be more
detailed discussion of plans and potential impacts.
Waste Hierarchy
A hierarchical approach to minimise the amounts of waste requiring disposal. The
hierarchy consists of non-creation where practicable; minimisation of arisings where
the creation of waste is unavoidable; recycling and reuse; and, only then, disposal.
Waste Management Steering group (WMSG)
Welsh Assembly Government (WAG)
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Appendix 4
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Jan 2013
In terms of Options 1, 2 and 3, there are no specific reasons to suggest that participation in the next phase
will contravene the Public Sector Equality Duty.
The EIA will check each of the four options outlined in the report against the Equality Duty. This consists of:
• Prevention of discrimination, harassment and unfair treatment
• Advancement of equality of opportunity
• Fostering of good relations
Section 149 Equality Act 2010 imposes a duty on public authorities to have ‘due regard’ to the need to
eliminate unlawful discrimination, harassment and victimisation as well as to advance equality of opportunity
and foster good relations between people who share a protected characteristic and those who do not. The
protected groups covered by the equality duty are: age, disability, gender reassignment, pregnancy and
maternity, race, religion or belief, sex and sexual orientation. Cabinet’s duty is not to achieve the objectives
set out in the legislation, but to bring those objectives into consideration when making its decision. To assist
it to discharge these duties, Cabinet should consider the Equality Impact Assessment below.
To evaluate whether Cabinet’s decision to participate in the next stage of the Managing Radioactive Waste
Safety process meets the Public Sector Equality Duty.
Environment
Waste and Sustainability
Paul Feehily
Cabinet Decision
Cumbria County Council Equality Impact Assessment: MRWS Cabinet Paper
Summary of findings
Legal position
Aims of the EIA
Purpose of the EIA
Directorate
Unit/Team
Assistant Director Responsible for EIA
Service EIA or Proposal
Equality Impact Assessment – Managing Radioactive Waste Safely: Decision about Participation in Stage 4
1
Page 434
51%
68%
50%
Allerdale
Copeland
Rest of
Cumbria
15%
9%
12%
14%
No opinion
or D/K
53%
All of Cumbria
Favour
35%
22%
37%
33%
Oppose
16%
45%
45%
14%
20%
Net
Support
Jan 2013
List examples of background information that you think are relevant.
relevant If carrying out an assessment of a proposal this section should
include the data used to establish whether the proposal has an impact.
Type of information
Findings
Public Consultation IPSOS
The results of a fourth and final statistically significant survey by IPSOS/MORI of 3000 households
Mori
across Cumbria were published in May 2012. The results from this final survey of opinion of West
Cumbria households are one of three key Partnership indicators for determining how to advise the
decision making councils. Overall net support (the number of “yeses” minus the number of “nos” see below) remains strong though weakened in Allerdale:
Phase 1: Gathering information
Scope of the EIA:
The analysis highlights some potential implications for good relations between parties that are in favour and
opposed to proceeding to the next phase and beyond. If options 1-3 are adopted this would need to be taken
into consideration.
Partnership working with Local Authorities
2
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The Partnership’s Final Report acknowledges that some uncertainties remain, primarily
because they relate to issues that can only be considered in detail at a later date.
The Partnership advises then that, should a decision to participate be taken, “…a
community siting partnership uses the indicative schedule provided in the Stage 4 and 5
chapter (Chapter 13) to build its work programme and, in doing so, help reduce the
range of uncertainties that exist”.
Cabinet therefore need to consider whether they are confident that the work to be
done in the next Stage will be sufficient to address any on-going uncertainties, and that
sufficient evidence of support from the local community or the organisations likely to
form a community siting partnership has been demonstrated. If so, then Cabinet could
§
§
§
Jan 2013
Cabinet could take a Decision to Participate in stage 4 of the process for identifying a
site for a geological disposal facility described in the White Paper in respect of Allerdale
and Copeland, having considered and relied upon the contents of the letter to the
Leader dated 19 December 2012 from the Parliamentary Under-Secretary of State,
including (i) the Government’s express and unequivocal commitment that if the County
Council exercises the Right of Withdrawal (as described in the White Paper) the
process will not continue in those areas even if Allerdale Borough Council or Copeland
Borough Council or the Secretary of State wishes it to; (ii) the statements made by the
§
Option 1: Decide to participate in Stage 4 in respect of both Allerdale and Copeland;
The Cabinet has the following options:
Options for Cabinet
Figures may not always total 100% due to rounding
3
Page 436
Cabinet therefore need to consider whether they are confident that the work to be done in
the next Stage will be sufficient to address any on-going uncertainties, and that sufficient
evidence of support from the local community or the organisations likely to form a community
siting partnership has been demonstrated in Copeland. If so, then Cabinet could decide to
participate in Copeland only.
Cabinet could take a Decision to Participate in stage 4 of the process for identifying a site for a
geological disposal facility described in the White Paper in respect of Copeland only, having
considered and relied upon the contents of the letter to the Leader dated 19 December 2012
from the Parliamentary Under-Secretary of State, including (i) the Government’s express and
unequivocal commitment that if the County Council exercises the Right of Withdrawal (as
described in the White Paper) the process will not continue in Copeland even if Copeland
Jan 2013
Cabinet therefore need to consider whether they are confident that the work to be done in
•
Cabinet could take a Decision to Participate in stage 4 of the process for identifying a site for a
geological disposal facility described in the White Paper in respect of Allerdale only, having
considered and relied upon the contents of the letter to the Leader dated 19 December 2012
from the Parliamentary Under-Secretary of State, including (i) the Government’s express and
unequivocal commitment that if the County Council exercises the Right of Withdrawal (as
described in the White Paper) the process will not continue in Allerdale even if Allerdale
•
Option 3: Decide to participate in Allerdale, but not Copeland:
•
•
Option 2: Decide to participate in Copeland, but not Allerdale:
decide to participate.
4
Page 437
Cabinet could decide not to participate in Stage 4, particularly if it considered that there was
insufficient evidence of support from the local community or the organisations likely to form a
community siting partnership.
Future consultation would need to be
broken down more by gender, age,
disability, and socio-economic group to
ensure that the Council has a better
understanding of the views of the public.
Same as option 1
Same as option 1
Same as option 1
Same as option 1
This option would have a neutral impact as it would be the status quo.
The community benefits linked to the
proposals would cut across all protected
characteristics as recognised by the
Equality Act.
Option 2
Option 3
Option 4
Option 1
All/general:
All/general: Any issue that cuts across a number of protected characteristics
Issue
sue
Positive Impact or benefits
Negative impact or risks
Is
Jan 2013
None at this stage,
though action would
be required at the
next stage.
Action Required
From the evidence above use this section to identify the risks and benefits according to the different characteristics protected by the
Equality Act.
Phase 2 Impacts
•
Option
Option 4: Decide not to participate;
the next Stage will be sufficient to address any on-going uncertainties, and that sufficient
evidence of support from the local community or the organisations likely to form a community
siting partnership has been demonstrated in Allerdale. If so, then Cabinet could decide to
participate in Allerdale only.
5
Page 438
There is a potential in the longer term to
address issues relating to gender and
labour market through additional funding
linked to the community offer.
The existing nuclear power industry
provides jobs disproportionately to
males and the Copeland area has one of
the highest pay gaps between average
female and male pay in the UK – at this
stage this is not a critical issue for
gender equality, but it would require
exploration in detail at a future stage.
Option 1
Opponents to the process cite issues
around growth of long term health
conditions related to the nuclear
industry. At this stage this is not a
reason not to proceed, but a fuller
health impact which is linked to disability
and numbers of people likely to contract
long terms conditions is required at a
future stage.
Same as option 1
Same as option 1
Same as option 1
Same as option 1
This option would have a neutral impact on disability as it would be the status quo.
A fuller analysis of the community
benefits could address benefits to people
who are disabled in terms of access to a
wider range of employment, investment
in more accessible infrastructure.
Gender, Transgender,
Transgender, Maternity and Marital Status
Status
Issue
Option 2
Option 3
Option 4
Option 1
Jan 2013
None at this stage,
though action would
be required at the
next stage.
Action Required
Disability and health and wellbeing: All forms of disability recognised under the Disability Discrimination Act including sensory
impairment, mental health, learning disabilities, mobility related conditions, conditions such as heart disease, diabetes, asthma. This
also covers any impact on health and well being
Issue
Action
Action Required
6
Page 439
Same as option 1
Same as option 1
Same as option 1
Same as option 1
This option would have a neutral impact on disability as it would be the status quo.
At a future stage there may be a rise in
If at a future stage migrant labour was
migrant labour if there is a lack of skills in required there would need to be work
the UK workforce to meet the demands
with the rest of the local community to
of building a facility
ensure good relations.
Same as option 1
Same as option 1
Same as option 1
Same as option1
There are no anticipated issues relating to ethnicity resulting from this option.
Potential to address long term structural
labour market issues for young people –
potentially contribute to reduction in
outward migration of young people from
West Cumbria
Same as option 1
Same as option1
Potential issues to consider in future
stages about whether generations too
young to vote may disagree with
decisions made by older generations
Option 2
Option 1
Age: Where a person is at risk of unfair treatment because of their age group
Issue
There are no anticipated issues relating to sexual orientation resulting from any of the options.
Sexual Orientation:
Orientation: including heterosexual, gay, lesbian and bisexual people
Issue
Option 2
Option 3
Option 4
Option 1
Jan 2013
Ensure that the sound
youth engagement
started by the MRWS
Partnership is
continued throughout
the lifetime of the
Action Required
Action Required
None at this stage,
though action would
be required at a future
stage.
Ethnicity: All ethnic groups including Asian, Black, East Asian and white minority ethnic groups, including Eastern Europeans and
Gypsy and Travellers.
Issue
Action Required
Option 2
Option 3
Option 4
7
Page 440
Same as option 1
Same as option 1
project.
This option would option would have a neutral impact on age as it would be the status quo.
Same as option 1 for Copeland
None
Option 3
Option 4
Loss of opportunity to regenerate
Copeland while Allerdale benefits from
increased community investment.
Loss of opportunity to regenerate
Allerdale while Copeland benefits from
increased community investment.
Loss of opportunity to regenerate West
Cumbria
None at this stage in the process.
Dependent on
whether this option is
chosen
Consider implications
Consider implications
None
Opportunity to carry out further work
Agreement to participate could lead to
Option 1
Jan 2013
Continual dialogue and
Community Cohesion: This is where a decision or a change to services may risk creating tensions between community groups in a
local area.
Issue
Action Required
Option 2
Potential for the community offer to put
in place measures to tackle poverty in
West Cumbria
Same as option 1 for Allerdale
Option 1
SocioSocio-Economic Status:
Status: This can include people on low incomes, as well as issues around rural and urban deprivation
Issue
Positive
Action Required
There are no anticipated issues relating to faith resulting from any of the options.
Religion/belief: all faiths including Christianity, Islam, Judaism, Hinduism, Buddhism, Sikhism and non religious beliefs such as
Humanism
Issue
Action Required
Option 3
Option 4
8
Page 441
Dependent on
decision
Dependent on
decision
When
Documents appended
appended to the Equality Impact Assessment:
Based on actions raised in the action required box above
Area for further
Actions proposed
Lead officer
action
Revise EIA if options Develop a detailed
Paul Feehily
1-3 are chosen
action plan relating to
the issues raised as
questions for further
work in this EIA
Address community Incorporate community
relations
engagement and
dialogue into future
work if options 1-3 are
chosen
Phase 3: Action Planning
Option 4
Option 3
Option 2
To be agreed
Resource
implications
To be agreed
increased community divisions between
people who are in favour and against.
Potential for community division
between Allerdale and neighbouring
areas
Same as option 1
Potential for community division
between Copeland and neighbouring
areas
This would maintain the status quo, and
Potential for some groups in West
prevent possible community divisions that Cumbria to believe their views have not
could arise if the Council proceeded to
been taken forward.
the next stage.
on the community implications of
developing the proposal.
Same as option 1
Jan 2013
Ensure that if the
decision to proceed
goes ahead there is
sound processes to
address different views
Each stage of the
project meets S.149 of
the Equality Act
Outcome
Dependent on
whether this option is
chosen
engagement
9
Page 442
Date completed
Lead officer
EIA taken through Directorate Equality Group/or
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Have staff been involved in developing the EIA?
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involved?
Date of latest update of EIA
Quality Assurance and EIA completion
Jan 2013
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Agenda Item 8
By virtue of paragraph(s) 3 of Part 1 of Schedule 12A
of the Local Government Act 1972.
Document is Restricted
Page 479
Page 488

Agenda reports pack PDF 11 MB

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