Nuclear Security Governance in India: Institutions, Instruments, and Culture (2019)
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SANDIA REPORT SAND2020-10916 Printed October 2020 Nuclear Security Governance in India: Institutions, Instruments, and Culture (2019) Sitakanta Mishra (Associate Professor, School of Liberal Studies, Pandit Deendayal Petroleum University, Gujarat, India) Happymon Jacob (Associate Professor, School of International Studies, Jawaharlal Nehru University, New Delhi, India) Visiting Research Scholars Cooperative Monitoring Center Sandia National Laboratories P.O. Box 5800 Albuquerque, New Mexico 87185-MS1373 Prepared by Sandia National Laboratories Albuquerque, New Mexico 87185 and Livermore, California 94550 Issued by Sandia National Laboratories, operated for the United States Department of Energy by National Technology & Engineering Solutions of Sandia, LLC. NOTICE: This report was prepared as an account of work sponsored by an agency of the United States Government. Neither the United States Government, nor any agency thereof, nor any of their employees, nor any of their contractors, subcontractors, or their employees, make any warranty, express or implied, or assume any legal liability or responsibility for the accuracy, completeness, or usefulness of any information, apparatus, product, or process disclosed, or represent that its use would not infringe privately owned rights. Reference herein to any specific commercial product, process, or service by trade name, trademark, manufacturer, or otherwise, does not necessarily constitute or imply its endorsement, recommendation, or favoring by the United States Government, any agency thereof, or any of their contractors or subcontractors. The views and opinions expressed herein do not necessarily state or reflect those of the United States Government, any agency thereof, or any of their contractors. Printed in the United States of America. This report has been reproduced directly from the best available copy. Available to DOE and DOE contractors from U.S. Department of Energy Office of Scientific and Technical Information P.O. Box 62 Oak Ridge, TN 37831 Telephone: (865) 576-8401 Facsimile: (865) 576-5728 E-Mail: [email protected] Online ordering: http://www.osti.gov/scitech Available to the public from U.S. Department of Commerce National Technical Information Service 5301 Shawnee Rd Alexandria, VA 22312 Telephone: (800) 553-6847 Facsimile: (703) 605-6900 E-Mail: [email protected] Online order: https://classic.ntis.gov/help/order-methods/ 2 ABSTRACT There is an emerging consciousness in India of the importance of nuclear security and safety. Motivated by a combination of rapid growth in its civil nuclear sector, heightened scrutiny of recent nuclear accidents around the world, and the deteriorating regional security environment, India has pushed to adopt measures to strengthen and enhance its nuclear security and safety governance structures. India recognizes that the various recent global nuclear security initiatives are in its own best interest and has been an enthusiastic participant in the Nuclear Security Summit process. Today, India demonstrates a greater willingness to showcase its nuclear security arrangements before the public and has undertaken many institutional, legal, and operational reforms to maintain international regime compliance. This study takes a comprehensive look at India’s approach to nuclear security and critically examines the physical security measures the country has put in place. Particular focus is placed on the evolution and strengths, as well as weaknesses, of the country’s nuclear security institutions, instruments, practices, and culture. Given that the strengthening of India’s nuclear security governance is an ongoing endeavor, the paper also puts forward a number of policy recommendations. 3 ACKNOWLEDGEMENTS In the process of conducting this study, we have accumulated a series of intellectual and professional debts. At the outset, we wish to thank Adriane Littlefield and Amir Mohagheghi, Managers of the Cooperative Monitoring Center, Sandia National Laboratories, for providing us with a truly enabling and encouraging atmosphere in which to carry out this research. We are particularly grateful to Adam David Williams and Adriane Littlefield for their consistent support, guidance, and inspiration which helped us to formulate and streamline our arguments and findings. We are also thankful for the generous feedback and advice extended by Thomas Ciccateri, David Betsill, Eric Wallace, and Shannon Abbott. The views expressed in this paper are those of the authors and do not necessarily reflect the position of their respective institutions or Sandia National Laboratories. 4 CONTENTS 1. Introduction ............................................................................................................................................... 13 2. India and the Global Nuclear Order ...................................................................................................... 17 2.1. India’s Integration with the Global Nuclear Order ................................................................... 17 2.2. India and the International Export Control Regime ................................................................. 18 3. State of India’s Nuclear Program ............................................................................................................ 21 3.1. The Three-Stage Program.............................................................................................................. 24 3.2. Use of Radiological Material ......................................................................................................... 25 3.3. The Strategic Program .................................................................................................................... 27 4. Nuclear Security Governance in India ................................................................................................... 29 4.1. Institutions: Roles and Responsibilities ....................................................................................... 31 4.2. Legal and Regulatory Framework ................................................................................................. 32 4.2.1. Regulatory Framework Concerns ................................................................................... 35 4.2.2. The Nuclear Safety Regulatory Authority Bill .............................................................. 37 4.3. India and the Global Nuclear Security Regime .......................................................................... 38 4.3.1. Global Centre for Nuclear Energy Partnership ............................................................ 40 4.3.2. Nuclear Security Summits and India’s Commitment ................................................... 41 4.4. The Physical Protection System .................................................................................................... 42 4.4.1. Inbuilt Security ................................................................................................................... 45 4.4.2. Physical Protection ............................................................................................................ 46 4.4.3. Personnel Reliability .......................................................................................................... 50 4.4.4. Material Protection Control and Accounting ................................................................ 52 4.4.5. Transportation Security .................................................................................................... 52 4.4.6. Air and Water Front Defense .......................................................................................... 54 4.4.7. Security of Radiological Materials ................................................................................... 54 4.4.8. Information and Cyber Security ...................................................................................... 58 4.4.9. Nuclear Forensics .............................................................................................................. 61 4.4.10. Security of Strategic Assets .............................................................................................. 61 4.5. Lessons Learned .............................................................................................................................. 62 4.5.1. Lessons Learned from Mayapuri Incident 2010 ........................................................... 63 4.5.2. Public Acceptance of Nuclear Projects .......................................................................... 64 5. NUCLEAR SECURITY CULTURE IN INDIA: AN EVALUATION ........................................ 66 5.1. Absence of an Overarching Security Apparatus ........................................................................ 67 5.2. Regulatory Autonomy .................................................................................................................... 67 5.3. Program Confusions ....................................................................................................................... 68 5.4. Conceptual Tensions ...................................................................................................................... 68 5.5. An Introspection ............................................................................................................................. 68 6. RECOMMENDATIONS FOR ENHANCING NUCLEAR SECURITY GOVERNANCE, INSTITUTIONS, INSTRUMENTS, AND CULTURE ..................................................................