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Partnering for Long-Term Management of Radioactive Waste – Overview of Evolution and Current Practice in Twelve Countries

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Partnering for Long-Term Management of Radioactive Waste – Overview of Evolution and Current Practice in Twelve Countries Unclassified NEA/RWM/FSC(2009)2 Organisation de Coopération et de Développement Économiques Organisation for Economic Co-operation and Development 31-Mar-2009 ___________________________________________________________________________________________ English - Or. English NUCLEAR ENERGY AGENCY RADIOACTIVE WASTE MANAGEMENT COMMITTEE Unclassified NEA/RWM/FSC(2009)2 Forum on Stakeholder Confidence (FSC) PARTNERING FOR LONG-TERM MANAGEMENT OF RADIOACTIVE WASTE – OVERVIEW OF EVOLUTION AND CURRENT PRACTICE IN TWELVE COUNTRIES The Forum on Stakeholder Confidence has provided updated information on experience with local partnership arrangements in the context of radioactive waste management, for 12 countries: Belgium, Canada, Finland, France, Hungary, Japan, Korea, Spain, Sweden, Switzerland, the UK and the USA. The document also describes the characteristics, advantages and aims of community partnerships, setting them into the context of FSC work. This is the first version, including information valid at the time of writing (Oct. 2008 – Jan. 2009 according to country). The document will be presented at the FSC business meeting of 6 April 2009. FSC members are requested to insert any further updated information that may be pertinent, and then to validate their chapter and the introductory material, for a deadline to be decided at the April 2009 Business Meeting. Please address any queries regarding this document to [email protected]. English - Or. English JT03262313 Document complet disponible sur OLIS dans son format d'origine Complete document available on OLIS in its original format NEA/RWM/FSC(2009)2 FOREWORD The Forum on Stakeholder Confidence (FSC) was created in 2000 under a mandate from the OECD Nuclear Energy Agency’s Radioactive Waste Management Committee to facilitate the sharing of international experience in addressing the societal dimension of radioactive waste management (RWM). It explores means of ensuring an effective dialogue amongst all stakeholders, and considers ways to strengthen confidence in decision-making processes. The working definition given to the term stakeholder is: Any actor – institution, group or individual – with an interest or with a role to play in the process. National RWM programmes are in various phases of siting facilities, regarding different technical models and different categories of waste. In all cases, it is necessary for institutional actors and the potential or actual host community to build a meaningful, workable relationship. The FSC has documented a wealth of experience through topical sessions and studies, and in particular through its national workshops and community visits. Summaries and proceedings are available online; see the FSC website www.nea.fr/html/rwm/fsc.html. In 2004 the Forum synthesised countries’ experience of relationship- building in the report “Learning and Adapting to Societal Requirements”. Partnership approaches were cited as effective in achieving a balance between the requirements of fair representation and competent participation. They were also found to help achieve the desirable combination of licensable site and management concept with host community support. Finally, partnership arrangements help to achieve a balance between compensation, local control and development opportunities. Elements of the partnership approach have been incorporated into the RWM strategy of most OECD countries. Such an approach to decision-making, to jointly own both the problem and the solution, is increasingly implemented with success worldwide. The present volume documents how the approach to partnering has been or is being implemented in twelve countries, namely: Belgium, Canada, Finland, France, Hungary, Japan, Korea, Spain, Sweden, Switzerland, the UK and the USA. The present report takes its place in the FSC library of data gathering and benchmarking publications. It documents, in a factual manner, the background to the approach taken in each country and the state of partnership affairs at today’s point in time. This trace could aid future assessments of subsequent evolution and progress. The publication can be consulted now for ideas and learning – notably, transversal findings are provided in the opening pages. Acknowledgements The present publication has grown out of a study prepared in 2007 by the Nuclear Decommissioning Authority (NDA) reviewing the partnership approach in ten countries. The NDA has gracefully accepted the FSC proposal to leverage – augment and disseminate – their study. Special thanks are due to Ms. E. Atherton, a Forum member from the UK and the NDA’s Head of Stakeholder and Community Engagement for Radioactive Waste Management. 2 NEA/RWM/FSC(2009)2 OVERVIEW AND TRANSVERSAL FINDINGS The search for sites for radioactive waste management (RWM) facilities attracts attention from implementers, government bodies, local communities, and the public at large. Facility siting processes, in general, tend to be marred by conflicts, disagreements and delays. In response a shift has taken place, in the RWM area, from a more traditional “decide, announce and defend” model to one of “engage, interact and co-operate”. The essence of the new attitude is an approach of co-operation or partnership between the implementer and the affected communities, involving dialogue between experts and citizens, mutual learning and public involvement in the process of decision-making. National ministries and authorities have also been called to play a more visible role. The intensity and degree of partnering may vary from country to country and in different phases of project development. In its first phase of work, the Forum on Stakeholder Confidence (FSC) synthesised countries’ experience in its report “Learning and Adapting to Societal Requirements”1. Partnership approaches in Belgium, Canada and Finland were cited as examples of helping achieve a balance between the requirements of fair representation and competent participation. Other advantages of the partnership approach were linked to helping to achieve a combination of licensable site and management concept with host community support, and helping to achieve a balance between compensation, local control and development opportunities. Those observations are still valid today. It is a fact that key elements of the partnership approach have been incorporated into the RWM strategy of most OECD countries and that these approaches to decision-making, to jointly own both the problem and the solution, are increasingly implemented with success worldwide. A great variety of approaches exists according to the legal and institutional arrangements within each given country, their political and cultural traditions, the economy of the affected communities, and the characteristics of the relevant national RWM programmes. The present volume documents how the approach to partnering has been or is being implemented in twelve countries, namely: Belgium, Canada, Finland, France, Hungary, Japan, Korea, Spain, Sweden, Switzerland, the UK and the USA. Components of the partnership approach Volunteerism, formally or informally ensured right of veto to the affected communities, collaboration with local stakeholders in facility design and implementation, and the provision of community benefits packages are the main components of the so-called partnership approach2. 1 NEA (2004) Learning and Adapting to Societal Requirements for Radioactive Waste Management – Key Findings and Experience of the Forum of Stakeholder Confidence. OECD, Paris, www.nea.fr/html/rwm/reports/2004/nea5296- societal.pdf. 2 It should be noted that, in some countries, processes without volunteerism and veto power have also taken place. 3 NEA/RWM/FSC(2009)2 By ‘volunteerism’ we refer to the local government representatives of a community expressing an interest in participating in a process to determine the suitability of siting a radioactive waste management facility within the boundaries of community. Such an expression of interest may be in response to an invitation by the waste management organisation, by government or it may be an unsolicited offer. By ‘right of veto’ we mean that community is allowed to withdraw from consideration within a certain period. Collaboration with affected communities may take a variety of administrative formats relying on legally binding agreements or on less formal arrangements. Sample bodies seen to participate as partners for the community side include non-governmental organisations, associations, ad-hoc groups, committees or informal networks with participation of identified stakeholders or their representatives. The composition of the relevant working bodies, tasks to be carried out, tools to be applied, fact finding and decision- making mechanisms may also vary widely. Community benefits are key components of the partnership approach. Social and economic benefits are aimed at recognising that a community that hosts a facility is volunteering an essential service to the country. Engagement packages are designed to enable the affected communities to meaningfully participate in the partnership and in the decision-making process. Practical implementation Volunteerism In most volunteer processes, waste management organisations or national government invite all municipalities in a given country to participate in a siting exercise. Sometimes, before searching for volunteers, a preliminary screening is carried out based on desirable technical and/or socio-economic characteristics. There exist cases where municipalities themselves
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