Nuclear Development 2014 Managing Environmental and Health Impacts of Uranium Mining Managing Environmental Managing Environmental and Health Impacts of Uranium Mining NEA Nuclear Development Managing Environmental and Health Impacts of Uranium Mining © OECD 2014 NEA No. 7062 NUCLEAR ENERGY AGENCY ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT The OECD is a unique forum where the governments of 34 democracies work together to address the economic, social and environmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and to help governments respond to new developments and concerns, such as corporate governance, the information economy and the challenges of an ageing population. The Organisation provides a setting where governments can compare policy experiences, seek answers to common problems, identify good practice and work to co-ordinate domestic and international policies. The OECD member countries are: Australia, Austria, Belgium, Canada, Chile, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Japan, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Republic of Korea, the Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The European Commission takes part in the work of the OECD. OECD Publishing disseminates widely the results of the Organisation’s statistics gathering and research on economic, social and environmental issues, as well as the conventions, guidelines and standards agreed by its members. This work is published on the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of the Organisation or of the governments of its member countries. NUCLEAR ENERGY AGENCY The OECD Nuclear Energy Agency (NEA) was established on 1 February 1958. Current NEA membership consists of 31 countries: Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Luxembourg, Mexico, the Netherlands, Norway, Poland, Portugal, the Republic of Korea, the Russian Federation, the Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The European Commission also takes part in the work of the Agency. The mission of the NEA is: – to assist its member countries in maintaining and further developing, through international co-operation, the scientific, technological and legal bases required for a safe, environmentally friendly and economical use of nuclear energy for peaceful purposes; – to provide authoritative assessments and to forge common understandings on key issues, as input to government decisions on nuclear energy policy and to broader OECD policy analyses in areas such as energy and sustainable development. Specific areas of competence of the NEA include the safety and regulation of nuclear activities, radioactive waste management, radiological protection, nuclear science, economic and technical analyses of the nuclear fuel cycle, nuclear law and liability, and public information. The NEA Data Bank provides nuclear data and computer program services for participating countries. In these and related tasks, the NEA works in close collaboration with the International Atomic Energy Agency in Vienna, with which it has a Co-operation Agreement, as well as with other international organisations in the nuclear field. This document and any map included herein are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Corrigenda to OECD publications may be found online at: www.oecd.org/publishing/corrigenda. © OECD 2014 You can copy, download or print OECD content for your own use, and you can include excerpts from OECD publications, databases and multimedia products in your own documents, presentations, blogs, websites and teaching materials, provided that suitable acknowledgment of the OECD as source and copyright owner is given. All requests for public or commercial use and translation rights should be submitted to [email protected]. Requests for permission to photocopy portions of this material for public or commercial use shall be addressed directly to the Copyright Clearance Center (CCC) at [email protected] or the Centre français d'exploitation du droit de copie (CFC) [email protected]. Cover photos: Helmsdorf tailings disposal area, Germany (A. Jakubik/Wismut); McClean Lake tailings management area, Canada (AREVA). FOREWORD Foreword Uranium is the raw material used to produce fuel for nuclear power plants that generate significant amounts of electricity with life cycle carbon emissions that are as low as renewable energy sources. However, the mining of this valuable energy commodity remains controversial, principally because of environmental and health impacts associated with the early years of uranium mining. Maximising production in the face of rapidly rising demand was the principal goal of uranium mining at the time, with little concern given to properly managing environmental and health impacts. Today, societal expectations and regulation of the industry are directed much more towards radiation protection, environmental stewardship, health and safety. With over 430 operational reactors in the world, nuclear fuel will be required for many decades in order to meet requirements to fuel the existing fleet and demand created by new reactors, given the projected growth in nuclear generating capacity, particularly in the developing world. New mines will in turn be needed. As a result, enhancing awareness of leading practices in uranium mining is increasingly important. This report aims to dispel some of the myths, fears and misconceptions about uranium mining by providing an overview of how leading practice mining can significantly reduce all impacts compared to the early strategic period. It also provides a non-technical overview of leading practices, the regulatory environment in which mining companies operate and the outcomes of implementing such practices. Societal expectations related to environmental protection and the safety of workers and the public evolved considerably as the outcomes of the early era of mining became apparent, driving changes in regulatory oversight and mining practices. Uranium mining is now conducted under significantly different circumstances, with leading practice mining the most regulated and one of the safest and environmentally responsible forms of mining in the world. In support of this statement, this report provides an overview of the evolution of mining practices and outlines how health and environmental impacts of leading practice uranium mines are managed and minimised. All aspects of the full life cycle of a mine are covered, from the time that a deposit is considered to be of economic interest for mining to the time that mining is completed, the facility is closed and remediated and control of the leased land is returned to the landowner, usually the government. Case studies are included to further demonstrate the scale of the changes undertaken as well as to outline the outcomes of historic and modern mining practices. This report provides a factual account of leading practices in order to inform public debate on uranium mine development and to provide policy makers with a framework of approaches that should be undertaken to ensure that uranium mining is conducted in a safe and environmentally responsible manner. Key components in achieving this goal include the establishment of an appropriate regulatory framework, planning for closure before the mine begins production, requiring financial assurance from companies to cover the costs of closure and remediation, application of leading practices to minimise radiation exposure of workers and the public, protection of water resources and the safe, long-term disposal of tailings and problematic waste rock. Public consultation and information sharing, environmental impact assessment and environmental monitoring throughout the life cycle of the mine facility are also shown to be crucial components of this framework. MANAGING ENVIRONMENTAL AND HEALTH IMPACTS OF URANIUM MINING, NEA No. 7062, © OECD 2014 3 ACKNOWLEDGEMENTS Acknowledgements This report was prepared by Mr Robert Vance of the NEA Nuclear Development Division, with input and oversight provided by an ad hoc expert group nominated by member countries. The NEA wishes to express its appreciation to the members of this group: Ms Nicole Hinton, Australia Department of Resources, Energy and Tourism (Chair); Mr Dale Huffman, AREVA Resources Canada (Co-chair); Mr Frank Harris, Rio Tinto Uranium, Australia; Mr Nikolas Arnold, University of Natural Resources and Life Sciences, Austria; Ms Eeva Ruokonen, Talvivaara Mining Company Plc, Finland; Mr Alexander Jakubick, Uranium Mining and Remediation Exchange Group, Germany; Mr Zekail Tyulyubayev, Kazatomprom, Kazakhstan and Mr William von Till, United States Nuclear Regulatory Commission (NRC). Mr Kevin Scissons (KHS Solutions) provided oversight, input and editorial assistance in the final stages of preparation of the report. The efforts of Mr Peter Woods of the International Atomic Energy Agency (IAEA) and Ms Susan Hall of the United States Geological