Stakeholder Participation in Radiological Decision Making
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Radiation Protection 2004 Stakeholder Participation in Radiological Decision Making: Processes and Implications Stakeholder Participation in Radiological Decision Making: Since 1998, the OECD Nuclear Energy Agency has been organising a series of workshops to address the various aspects of stakeholder involvement in radiological protection decision making. These workshops have been instrumental in forging consensus and improving understanding of key issues Processes and Implications in this area. Building on the experience of the first two “Villigen workshops”, the third in the series exten- Third Villigen Workshop sively analysed three case studies, which covered the licensing of a new facility, the clean-up and Villigen, Switzerland release of an old facility, and the rehabilitation of a large, contaminated area. Consideration was given to the stakeholder involvement processes that had been used, and the implications that these did or 21-23 October 2003 could have on radiological protection policy, regulation and application. The workshop papers ana- lysing these processes and implications are presented in these proceedings, which should provide valuable examples and lessons for governments, regulators and practitioners. (66 2004 12 1 P) E 24.00 -:HSTCQE=VU]WZ\: ISBN 92-64-10825-4 NUCLEAR•ENERGY•AGENCY Radiation Protection STAKEHOLDER PARTICIPATION IN RADIOLOGICAL DECISION MAKING: PROCESSES AND IMPLICATIONS Third Villigen Workshop Villigen, Switzerland 21-23 October 2003 © OECD 2004 NEA No. 5298 NUCLEAR ENERGY AGENCY ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT Pursuant to Article 1 of the Convention signed in Paris on 14th December 1960, and which came into force on 30th September 1961, the Organisation for Economic Co-operation and Development (OECD) shall promote policies designed: to achieve the highest sustainable economic growth and employment and a rising standard of living in member countries, while maintaining financial stability, and thus to contribute to the development of the world economy; to contribute to sound economic expansion in member as well as non-member countries in the process of economic development; and to contribute to the expansion of world trade on a multilateral, non-discriminatory basis in accordance with international obligations. The original member countries of the OECD are Austria, Belgium, Canada, Denmark, France, Germany, Greece, Iceland, Ireland, Italy, Luxembourg, the Netherlands, Norway, Portugal, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The following countries became members subsequently through accession at the dates indicated hereafter: Japan (28th April 1964), Finland (28th January 1969), Australia (7th June 1971), New Zealand (29th May 1973), Mexico (18th May 1994), the Czech Republic (21st December 1995), Hungary (7th May 1996), Poland (22nd November 1996), Korea (12th December 1996) and the Slovak Republic (14th December 2000). The Commission of the European Communities takes part in the work of the OECD (Article 13 of the OECD Convention). NUCLEAR ENERGY AGENCY The OECD Nuclear Energy Agency (NEA) was established on 1st February 1958 under the name of the OEEC European Nuclear Energy Agency. It received its present designation on 20th April 1972, when Japan became its first non-European full member. NEA membership today consists of 28 OECD member countries: Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Luxembourg, Mexico, the Netherlands, Norway, Portugal, Republic of Korea, the Slovak Republic, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The Commission of the European Communities 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, as well as 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 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. © OECD 2004 Permission to reproduce a portion of this work for non-commercial purposes or classroom use should be obtained through the Centre français d’exploitation du droit de copie (CCF), 20, rue des Grands-Augustins, 75006 Paris, France, Tel. (33-1) 44 07 47 70, Fax (33- 1) 46 34 67 19, for every country except the United States. In the United States permission should be obtained through the Copyright Clearance Center, Customer Service, (508)750-8400, 222 Rosewood Drive, Danvers, MA 01923, USA, or CCC Online: http://www.copyright.com/. All other applications for permission to reproduce or translate all or part of this book should be made to OECD Publications, 2, rue André-Pascal, 75775 Paris Cedex 16, France. FOREWORD Contemporary society has become increasingly interested in participating more actively in public decision making regarding health, safety and environmental protection issues. As governments have tried to understand these interests better, and to integrate societal needs in their decision-making processes more adequately, it has become possible to glean some common policy-level issues and lessons from the wide variety of situations in which stakeholders have participated effectively in the elaboration of decisions. The trends in the nuclear industry mirror those in other broader governance areas, and public interest in some situations can be extremely high. In the field of radiological protection, stakeholder issues have moved steadily to the forefront of policy discussions, and clearly form key elements in decisions regarding the development and implementation of radiological protection policy. The NEA Committee on Radiation Protection and Public Health (CRPPH) has explored the details and implications of stakeholder involvement in decision-making processes over several years. The roots of this interest are found in the Committee’s 1994 Collective Opinion, Radiation Protection Today and Tomorrow. On the basis of this reflection, the Committee organised the 1st Villigen Workshop held in January 1998 on Societal Aspects of Decision Making in Complex Radiological Situations, which reached the broad conclusion that radiation protection must adapt to meet the needs of society, and not the reverse. To deepen the understanding of this important subject, the CRPPH launched further studies that resulted in the organisation of the 2nd Villigen Workshop held in January 2001 on Better Integration of Radiation Protection in Modern Society. This workshop concluded that although broad stakeholder participation was not needed to reach agreement on the vast majority of regulatory decisions, it can be the best and sometimes only way to achieve agreement in certain, blocked situations. In addition, the workshop showed that it is important to develop a common understanding of stakeholder roles and responsibilities, to distinguish clearly between scientific knowledge and social judgement, and to foster an atmosphere of mutual learning. Processes and Implications of Stakeholder Participation There is currently a broad recognition of the value, in some circumstances, of stakeholder participation in decision-making processes. However, the understanding of the implications of such participation is only beginning to emerge. A key point that is clear from the CRPPH and other discussions of stakeholder participation is that the inclusion of stakeholders has had a significant impact on how decision-making processes are developed and structured. The emerging distinctions between concepts such as decision framing, decision aiding and decision making are also important aspects of these discussions. These raise several policy-level questions, the answers to which should be clearly understood by all decision participants before entering into specific discussions. For example: x What are the roles, and limits of the roles, of each stakeholder involved in the decision- making process? 3 x How should any bounds placed on the possible outcomes of stakeholder discussions be defined and agreed upon? x Can case-specific lessons learnt be relevant and applicable under other circumstances? x How should scientific uncertainty, particularly with regard to the assessment of absolute levels of risk, be best presented and taken into account by stakeholders in the decision- making process? x What are the respective roles of international and national norms and standards, and of stakeholder involvement in the context of decision-making processes? The 3rd Villigen Workshop In order to address these, and other issues, the CRPPH organised