N-BASE BRIEFING 141 - - - - - - 26th July 1998
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141.1 Reprocessing industry given deadline of year 2020
-------------------------------------------------------
Europe's spent fuel reprocessing industry has been given
until the year 2020 to reduce its radioactive marine
discharges to as "close to zero" as is technically feasible
and governments will "work towards" substantial reductions
in discharges "by the year 2000".
These is the main decision of the Ministerial Meeting of
the OSPAR Convention held in Portugal last week concerning
the nuclear industry. While the environmental group
Greenpeace has hailed last week's decisions as an historic
breakthrough and "the beginning of the end of the nuclear
reprocessing industry", the UK and French governments and
their reprocessing companies seem relatively happy with the
deal - considering it might have been worse. Sellafield
operators, BNFL, and the UK Government described the new
restrictions as demanding, challenging, but achievable and
so safe-guarding the 8,000 jobs at Sellafield.
However, the new regulations will mean the likely closure
of the UK's eight remaining Magnox nuclear reactors between
2007 and 2009. Built in the 1950s the eight stations have
had their expected operating life of 25 years extended by
regulators after safety appraisals. The old reactors earn
substantial cash for BNFL and it had been hoped that at
least some of the them would continuing operating, assuming
their safety was approved, for more than another 10 years.
Closure of the reactors by 2009 would allow Sellafield to
reprocess all remaining Magnox fuel before the 2020 "near
zero" deadline. While technetium-99 is stored as waste in
the reprocessing of other type of fuel, Sellafield discharges
it into the sea when working with Magnox fuel and this is
what is expected to mean the end to Magnox reactors.
Sellafield faces a challenge, however, in reducing
technetium-99 discharges. It has an application to
discharge presently before the Environment Agency -
which may be 'called-in' for review by ministers who
gave specific commitments at the OSPAR meeting that
Irish and Nordic concerns over Tc-99 "will be addressed
in their forthcoming decisions concerning the discharge
authorisations for Sellafield".
The Nordic and Irish governments came away from the meeting
with commitments to almost immediate reductions in discharges
leading to "close to zero" in 22 years and they will be
looking to commitments given by the UK on reducing
discharges of technetium-99. There are sure to be long
arguments in the future over the "technical feasibility"
of discharge reduction methods and possibilities and
Greenpeace sees the OSPAR targets as almost impossible for
the reprocessing industry to meet, either technically or
economically, and that is the reason for its optimistic
statements about an end to reprocessing.
The Nordic and Irish governments went into last week's
meeting calling for discharges from Sellafield to be reduce
to zero or close to zero, without any mention of what might,
or might not be technically feasible which would have
effectively closed the plant. The UK was determined the
plant remained opened and insisted the negotiations were
about reducing discharges as much as technically possible
and as quickly as possible. The French government had
already told its reprocessing plant at Cap la Hague to
produce plans to reduce discharges to close to zero and it
was the French Green MP and environment minister, Dominique
Voynet, who proposed the compromise wording which was
eventually adopted.
Ministers' statement and OSPAR strategy
The Ministerial Statement agrees to "progressive and substantial
reductions of discharges" with the aim of "near background values
for naturally occurring radioactive substances and close to zero
for artificial radioactive substances". But this aim must take
into account three issues: "legitimate uses of the seas, technical
feasibility' radiological impacts to man and biota". "We shall
ensure that discharges, emissions and losses of radioactive
substances are reduced by the year 2020 to levels where the
additional concentrations in the marine environment above historic
levels, resulting from such discharges, emissions and losses,
are close to zero."
Ministers "noted" the concerns about Tc-99 discharges and that
the UK "indicated" these concerns would be addressed. They also
welcomed the UK government's announcement that there would be
no further commercial reprocessing at Dounreay, resulting in
future reductions in discharges.
In the strategy agreed by ministers there is a commitment
that: "...by the year 2000 the [OSPAR] Commission will,
for the whole maritime area, work towards achieving further
substantial reductions or elimination of discharges,
emissions and losses of radioactive substances; [and]
by the year 2020...the Commission will ensure that discharges,
emissions and losses of radioactive substances are reduced to
levels where the additional concentrations in the marine
environment above historic levels, resulting from such
discharges, emissions and losses, are close to zero."
Also "effective action is to be taken by Contracting Parties
concerned, when there are reasonable grounds for concern
that radioactive substances introduced into the marine
environment, or which reach or could reach the marine
environment, may bring about hazards to human health,
harm living resources and marine ecosystems, damage amenities
or interfere with other legitimate uses of the sea, even when
there is no conclusive evidence of a causal relationship
between inputs and effects."
* The relevant sections concerning radioactive discharges of
the Ministerial Statement and the OSPAR Strategy documents
are reproduced in full at the end of the Briefing *
Ocean dumping ended
The OSPAR meeting also saw the formal acceptance by the UK
and France of the ban on dumping low and intermediate level
wastes in the sea. The ban had been accepted by all the other
contracting parties at the last meeting, but France and the
UK lodged 'reservations' objecting to the policy. Both
governments had announced their intentions of changing the
policy and accepting the ban before last week's meeting.
141.2 Dounreay News in Brief
----------------------------
Radioactive sludge found on shore
Radioactive sludge discharged into the sea from Dounreay has
been swept back onto the local beach. The waste was part of
routine low-level liquid waste discharges which were washed
onto the shore by storm weather conditions.
Castle open to public again
The historic Dounreay Castle is once again open to the
public after radioactive contamination was cleared up.
Land around the castle was contaminated in the 1950s during
an experiment to study discharges into the sea. The land
remained contaminated until last year when a GBP100,000
project was started to clean-up the site and remove hundreds
of cubic metres of low-level soil waste. The site has
been visited by members of the Scottish Castles Association,
but members of the public wanting to visit the Castle have
to ask Dounreay first as access is through the site.
Commons debate
Reprocessing at Dounreay and the long catalogue of waste
management problems at the site were the subject of a
short debate in the House of Commons last week initiated
by the Scottish National Party. the SNP attacked the
safety record at Dounreay, highlighted the concerns about
marine discharges and argued that all reprocessing work
at Dounreay should stop.
141.3 News in Brief
------------------
Trident emergency
A British Trident nuclear submarine suffered an emergency
recently when it went into an uncontrollable dive following
a power failure. HMS Vanguard was on a training exercise
between south-east Ireland and south-west England when the
emergency took place after the back-up power system failed as
well. The crew got the submarine back under control when it
was reportedly at its maximum operating depth of 1500ft and the
vessel has returned to port for repairs.
Millennium problems
Health and Safety Executive officials have reportedly found
problems with the computer systems at four UK nuclear power
stations. The problems are associated with the so-called
'millennium bug'.
Mobile phone warning
A biologist in Wales has started a legal action to try and
force mobile telephone companies to issue health warnings with
all new products. Mr Roger Coghill said mobile phones were
the biggest source of domestic appliance radiation and should
carry health warnings.
Irradiated sperm cancer link
Researchers from the Cancer Research Campaign have discovered
that sperm cells that had been damaged by radiation produced
off-spring that were more vulnerable to the induction of
cancer and leukaemia. For affected cells subsequently exposed
to a cancer causing agent, or 'second hit', a two-fold risk
of developing leukaemia was found when compared with normal
cells. The new report suggests that the high incidence
of childhood leukaemia at Seascale near Sellafield might
be explained by the new research into radiation-damaged sperm
and by population mixing - the two pieces of research being
'complementary'.
Another Sellafield leak
Thirteen workers were evacuated from the Magnox Encapsulation
Plant (B205) at Sellafield after a leak of radioactivity from
a bin containing radioactive swarf - the outer casing of fuel
rods which is 'peeled-off' at the start of the reprocessing
process. The accident also closed the Fuel Handling Plant
and the B38 Swarf Silos. Public bus tours of the site were
stopped for two days as a result of the leak.
==============================================================
Below are the relevant texts of the OSPAR Ministerial Statement
and the agreed OSPAR Strategy on dealing with Radioactive
Substances
SINTRA MINISTERIAL STATEMENT
---------------------------
"Radioactive Substances
We welcome the announcements by the French and United Kingdom
Governments that they wish to give up their possible future
exemptions from the ban on the dumping of low-level and
intermediate-level radioactive wastes. We are glad to complete
that ban through a unanimous Decision terminating the possible
exemptions for France and the United Kingdom.
We agree, in addition, to prevent pollution of the maritime
area from ionising radiation through progressive and
substantial reductions of discharges, emissions and losses
of radioactive substances, with the ultimate aim of concentrations
in the environment near background values for naturally
occurring radioactive substances and close to zero for
artificial radioactive substances. In achieving this objective,
the following issues should, inter alia, be taken into
account:
legitimate uses of the sea;
technical feasibility;
radiological impacts to man and biota.
We shall ensure that discharges, emissions and losses of
radioactive substances are reduced by the year 2020 to levels
where the additional concentrations in the marine environment
above historic levels, resulting from such discharges, emissions
and losses, are close to zero. We shall pay particular attention
to the safety of workers in nuclear installations.
To this end, the Commission will:
undertake the development of environmental quality criteria
for the protection of the marine environment from adverse
effects of radioactive substances and report on progress by
the year 2003;
continue to reduce radioactive discharges from nuclear
installations to the marine environment by applying BAT;
review activities which may give rise to concern of this
kind, and assess them to identify and prioritise fields
where action is required and develop the necessary measures.
We note the concerns expressed by a number of
Contracting Parties about the recent increases in
technetium discharges from Sellafield and their view that
these discharges should cease. We further note that the
UK Ministers have indicated that such concerns will be
addressed in their forthcoming decisions concerning the
discharge authorisations for Sellafield. We welcome the announcement
of the UK Government that no new commercial contracts
will be accepted for reprocessing spent fuel at Dounreay,
with the result of future reductions in radioactive
discharges to the maritime area.
We shall take steps, both nationally and in international
discussions, to bring the Joint Convention on the Safety
of Spent Fuel Management and the Safety of Radioactive Waste
into force as soon as possible."
Sintra, 23 July 1998
==============================================
OSPAR Strategy with Regard to Radioactive Substances
----------------------------------------------------
"RECALLING the Convention for the Protection of the Marine
Environment of the North-East Atlantic (OSPAR Convention) and
in particular Article 2.1(a) in which Contracting Parties
agree to take all possible steps to prevent and eliminate
pollution and to take the necessary measures to protect the
maritime area against adverse effects of human activities so
as to safeguard human health and to conserve marine ecosystems
and, when practicable, restore marine areas which have been
adversely affected;
The Contracting Parties to the Convention for the Protection
of the Marine Environment of the North-East Atlantic ADOPT
the following objective and strategy for the purposes of
directing the future work of the Commission with regard to
radioactive substances:
1. Objective
1.1 In accordance with the general objective, the
objective of the Commission with regard to radioactive
substances, including waste, is to prevent pollution of
the maritime area from ionising radiation through
progressive and substantial reductions of discharges,
emissions and losses of radioactive substances, with the
ultimate aim of concentrations in the environment near
background values for naturally occurring radioactive
substances and close to zero for artificial
radioactive substances. In achieving this objective,
the following issues should, inter alia, be taken
into account:
a. legitimate uses of the sea;
b. technical feasibility;
c. radiological impacts to man and biota.
2. Guiding Principles
2.1 Assessments made, and the programmes and measures
adopted, to achieve this objective will be in accordance with
the general obligations as set out in Article 2 of the OSPAR
Convention and consequently will involve the application of:
a. the precautionary principle;
b. the polluter pays principle;
c. best available techniques and best environmental
practice, including, where appropriate, clean technology;
2.2 When adopting programmes and measures in relation to
radioactive substances, including waste, the Contracting Parties shall
also take account of:
a. the recommendations of the other appropriate
international organisations and agencies;
b. the monitoring procedures recommended by
these international organisations and agencies;
c. existing scientific assessments of dose and
risk as part of the tools for setting priorities and
developing action programmes;
d. the relevant international conventions and
Contracting Parties' obligations under international law
relevant to this OSPAR objective.
3. Strategy of OSPAR with regard to Radioactive
Substances
3.1 The Commission will develop programmes and
measures to identify, prioritise, monitor and control
(i.e. to prevent and/or reduce and/or eliminate) the
emissions, discharges and losses of radioactive substances
caused by human activities which reach, or could reach,
the marine environment and which could cause pollution
through ionising radiation. To these ends, the Commission
will:
a. identify radioactive substances and/or human
activities which give rise to concern about the impact
of discharges, emissions or losses of radioactive
substances;
This identification should be based upon an evaluation of:
(i) the sources and pathways of radioactive substances
and their concentrations in the maritime area;
(ii) the radiation exposure of humans and marine
ecosystems;
(iii) biological and ecological effects in the marine
environment, including the vulnerability of marine ecosystems,
arising from existing and future foreseen discharges, emissions
and losses of radioactive substances;
(iv) other adverse effects which may affect other
legitimate uses of the sea;
and take account of:
(v) results of scientific investigations relevant to
radioactive substances in the marine environment such as the
MARINA-Project of the European Commission and UNSCEAR 1996
'Effects of Radiation on the Environment';
(vi) existing methodologies for the scientific
assessments of dose and risk;
b. assess and prioritise such substances or
activities to judge whether there is a need for action;
develop programmes and measures which ensure the application
of BAT/BEP including, where appropriate, clean technology and
taking into account and not unnecessarily duplicating:
(i) work practices including waste management,
that meet the objectives with regard to radioactive
substances;
(ii) international conventions and standards;
(iii) the outcome of the study by the Nuclear Energy
Agency of the OECD concerning a thorough technical review
and an assessment of the reprocessing and non-reprocessing
options for spent fuel management;
(iv) Contracting Parties' obligations under international
law.
3.2 The Commission and Contracting Parties,
jointly or individually, should encourage international
organisations and agencies to develop further the scientific
tools for assessing radiation exposure and risk especially
to marine organisms.
4. Time Frame
4.1 This strategy will be implemented in accordance
with the following time frame:
by the year 2000
a.the Commission will, for the whole maritime area,
work towards achieving further substantial reductions or
elimination of discharges, emissions and losses of radioactive
substances;
by the year 2020
b.the Commission will ensure that discharges,
emissions and losses of radioactive substances are reduced
to levels where the additional concentrations in the marine
environment above historic levels, resulting from such
discharges, emissions and losses, are close to zero.
5. Implementation
5.1 This strategy will be implemented and further
developed on the basis of the Commission's Action Plan which
will establish priorities, assign tasks and set appropriate
deadlines and targets. The Action Plan shall concentrate on
substances and/or human activities of the highest concern
to the marine environment and make best use of resources.
5.2 The Commission will review and prioritise radioactive
substances and/or human activities which may give rise to
concern in order to identify topics for action.
5.3 Effective action is to be taken by Contracting
Parties concerned, when there are reasonable grounds for
concern that radioactive substances introduced into the
marine environment, or which reach or could reach the
marine environment, may bring about hazards to human health,
harm living resources and marine ecosystems, damage
amenities or interfere with other legitimate uses of
the sea, even when there is no conclusive evidence of a
causal relationship between inputs and effects.
5.4 Action identified by the Commission should
include:
a.assessment of those situations, including an
identification of the sources of radioactive substances,
their pathways to the marine environment, the relative
contribution of remobilised historic discharges and current
discharges and the radiation exposure which they cause
to humans and marine ecosystems;
b.establishment, with the help of an appropriate
combination of monitoring, modelling and dose and risk
assessments, as to whether these sources represent a
widespread problem or are restricted to regional or local
environments within the maritime area;
and draw upon the work relevant to the concerns identified,
which is carried out by other international organisations
and agencies. The Commission should cooperate with such
organisations and agencies in developing means of
action which may contribute to the solutions of problems
in the maritime area;
5.5 As a result, the Commission will identify and
adopt relevant measures to deal with the problems.
5.6 The Commission will undertake the development
of environmental quality criteria for the protection of
the marine environment from adverse effects of radioactive
substances and report on progress by the year 2003.
5.7Furthermore, the Commission will continue to
develop programmes and measures to reduce radioactive
discharges from nuclear installations to the marine
environment by applying BAT.
5.8The Commission and Contracting Parties,
individually or jointly, will endeavour to maintain and
develop further a constructive dialogue with regard
to radioactive substances, including waste, with all
parties concerned. This should ensure that all relevant
information is available for the work of the Commission
in connection with this strategy.
5.9The implementation of this strategy should take
due account of Article 24 on regionalisation and Annex IV
on assessment of the quality of the marine environment
of the OSPAR Convention 1992.
6.Overall evaluation and Review of Progress
6.1The Commission will develop appropriate
machinery to enable the preparation of a quinquennial
review of progress achieved through this strategy. Based
upon this review the Commission will, if necessary, revise
the strategy. Such a review should, for the first time,
take place by the next ministerial meeting of the Commission,
and take account of inter alia:
a.assessment of the implementation and
effectiveness of measures;
b.the experience gained with this strategy;
c.the findings of the quality assessment
reports of the maritime area (e.g. the QSR 2000);
d.progress achieved in reviewing areas of potential
concern and assessment of these areas;
e.any further new information.
Annex 1
Definitions
For the purpose of this strategy:
a. 'Radioactive substances' mean natural occurring
and artificial radionuclides;
b. 'Radiation exposure assessment' means the estimation
of doses to which humans and marine organisms are or may be
exposed and is based on the determination of the emissions,
discharges and losses, the environmental transfers and
exposure pathways (incl. food-chains) of radioactive
substances;
c. 'Risk assessment' means the estimation of the
likelihood of a radiation effect in humans or marine
organisms.
A number of terms used in this strategy are defined in
Annex 1.
The Commission will take account of all recommendations and
methodologies, as well as legally binding documents, that
have been developed in other international fora, and which
are relevant to the OSPAR Strategy with regard to
Radioactive Substances. Examples of relevant documents
are the recommendations of the International Commission
on Radiological Protection, the Safety Series 111 of
the International Atomic Energy Agency, the Joint Convention
on the Safety of Spent Fuel Management and the Safety
of Radioactive Waste Management and the EU Basic Safety
Standards.
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