Developing Infrastructure for New Nuclear Power Programmes

Developing Infrastructure for New
Nuclear Power Programmes:
IAEA Services for Member States
A. Starz
Nuclear power can make an important contribution to meeting the growing
global energy demand. While it is up to each country to decide whether or
not to opt for nuclear power, the International Atomic Energy Agency (IAEA)
has a key role to play in ensuring that the development of nuclear power
programmes takes place in a safe, efficient, responsible and sustainable
manner. This article summarizes the support and services that the IAEA offers
to those Member States considering or embarking on a new nuclear power
programme.
A
s of today, 438 nuclear power reactors operating in 30
countries provide about 11%
of the world’s electricity. They have a
combined capacity of about 380 Giga
Watts. The IAEA’s 2015 projections
show that nuclear power is likely to
continue to grow steadily, .with 2.4%
in the low projection, and 68% in the
high projection by 2030. Today there
are 67 units under construction in 15
countries.
In addition to the 30 established
users of nuclear power, about the
same number of countries have decided or are considering adding nuclear to its energy mix — the so-called
“newcomers”. These countries are
at different stages of development:
the United Arab Emirates (UAE)
and Belarus, the first two countries
in nearly 30 years to start constructing their first nuclear power plants,
are expected to start commissioning
in 2016-2017. Turkey has ordered its
first nuclear power plant under a
Build-Own-Operate (BOO) approach
with the Russian Federation, while
Bangladesh, Egypt, Jordan, Kazakhstan, Nigeria, Poland and Viet Nam
are preparing the necessary nuclear
infrastructure following a national
decision to develop a nuclear power
programme. Several other countries
are currently at the “consideration”
stage and have not yet made a national decision. More developing countries may begin to explore the nuclear
option when the UAE and Belarus
start commercial operation. But the
stakes are high: for several newcomer countries, the nuclear power programme represents the largest public
sector investment in the country.
The resurgence of interest in nuclear power cannot be without challenges. The accident at Japan’s Fukushima Daiichi nuclear power plant
undoubtedly had an impact on public
acceptance of nuclear power. A few
countries even announced their intention to phase out nuclear power. But
the overall increased interest is not
surprising, since the main drivers of
nuclear power remain. These include
concerns about climate change, increases in global electricity demand,
volatile fossil fuel prices and securing energy supply. Hence, providing
support, upon request from Member
States that are considering new nuclear power programmes, continues to
be a high priority for the IAEA.
© D.Calma/IAEA
Anne Starz
Senior Advisor for Policy and Strategy,
Department of Nuclear Energy,
International Atomic Energy Agency
(IAEA).
Anne Starz started her career in the
US Department of Energy, where she
managed international projects on
different aspects of nuclear energy. She
spent several years as a Science Attaché
at the US Permanent Mission in Vienna
before joining the IAEA in 2008. Ms Starz
has been developing and leading the
IAEA’s work with countries starting new
nuclear power programmes.
A Different Strategic
Environment
The challenges of starting a new nuclear power programme are different
today than in the past. The model
from the time when the majority
of programmes started was largely
national: a research reactor was a
starting point to gain experience, the
government was the main investor,
a public sector utility operating in a
regulated electricity market relied
on indigenous human resources, and
a nuclear power plant was bought
from a vendor through a turn-key
contract.
NUCLEAR ESPAÑA September 2015 27
NUCLEAR NEWCOMERS
This does not fit with the globalized nuclear industry of today.
The financing and ownership models have become more complex with
cross-border investments, strategic
partnerships, and projects backed by
government-to-government agreements. Newcomers lacking experience are hiring foreign nationals or
exploring other possibilities to take
advantage of their more experienced
partners. Moreover, the expectations
of the international community have
increased along with the number of
international conventions and treaties, safety standards, and security
guidelines, to which countries are encouraged to adhere and which should
be incorporated in national laws.
IAEA Provides Neutral Advice and
Support
The IAEA is the first place that countries considering or starting nuclear power programmes approach for
neutral, unbiased advice and guidance. The IAEA’s assistance for nuclear newcomers is small, but strategic. Our role is to help connect
newcomers with other countries to
share experiences in building their
infrastructure for nuclear power.
The services which the IAEA offers
to those Member States include advice on proper planning, building
the required human resources and
infrastructure, establishing legal and
regulatory frameworks, and ensuring the highest standards of safety and security, without increasing
proliferation risks. The IAEA offers
independent know-how on the construction, commissioning, start-up
and operation of nuclear reactors.
Through its technical cooperation
programme, the IAEA provides targeted support to newcomer countries
in response to national development
needs. The aim is for countries to
be able to introduce nuclear power
knowledgeably, profitably and safely.
One thing must be clear: it is the
sovereign decision of every country
whether to launch a nuclear power
programme. The IAEA does not try
to influence that decision. But when
a Member State decides to go that
route, the IAEA is there to help.
Energy Planning
Clearly, the first step for considering the potential contribution of nuclear power in a country is energy
analysis and planning. This is vital
to meeting future capacity needs in
ways that are economic, clean, and
socially and environmentally re28 NUCLEAR ESPAÑA September 2015
Figure 1.Construction of Unit 1 of the Barakah Nuclear Power Plant in the UAE.
(Photo: ENEC, UAE).
sponsible. The IAEA’s energy planning models and tools [1] are used
by 130 Member States and 20 regional and international organizations.
They assist countries in making informed decisions on future plans, irrespective of their interest in nuclear
power.
The IAEA Milestones Approach:
A Systematic Approach to
Introducing Nuclear Power
The decision to introduce nuclear
power and the implementation of
that decision requires much more
than the outcome of energy planning. A nuclear power programme
is a major undertaking that needs
careful planning, preparation and
investment in time, institutions and
human resources. While nuclear
power is not alone in this respect, it
is unique due to the safety, security
and safeguards requirements associated with using nuclear material.
A nuclear power programme entails
a commitment of at least 100 years,
and planning for nuclear power can
take 10–15 years until commissioning
of the first plant.
The IAEA has developed guidelines to help countries work in a
systematic way towards the introduction of nuclear power. Using
the IAEA “Milestones Approach”, a
methodology covering 19 key nuclear
infrastructure issues, in three phases
and with three milestones, can increase transparency both within a
country introducing nuclear power, and between it and other States.
The IAEA Nuclear Energy Series
publication Milestones in the Development of a National Infrastructure for
Nuclear Power Nuclear Power, originally issued in 2007, documents this
approach. The activities associated
with the document have generated a
rich body of guidance materials and
services, and the tangible results can
be seen in Member States.
This Milestones publication was
recently updated [2], taking into account lessons learned from the Fukushima Daiichi accident, the IAEA Action Plan on Nuclear Safety [3] (2011),
more detailed IAEA guidance published since 2007, results from IAEA
review missions and feedback from
Member States. The revised version
was published in September 2015.
Integrated Nuclear
Infrastructure Reviews
One of the Agency’s most requested
services for newcomers is the Integrated Nuclear Infrastructure Review (INIR) mission. Building on a
Member State’s self-evaluation, it uses an evaluation methodology based
on the Milestones approach to assess
the national nuclear infrastructure
status across all 19 infrastructure
issues at each phase of programme
development. Suggestions and recommendations are provided in a report to the national Government, enabling it to update its national action
plan accordingly.
19 Nuclear Infrastructure
Issues
The IAEA Milestones approach outlines 19 infrastructure issues that
o p e r at i n g c o u nt r y,
also saw the value of
inviting an INIR mission a head of t hei r
expansion plans. The
most recent missions
we r e conduc t e d i n
Niger ia (Ju ne 2015)
and in Kenya (August
2015). a further INIR
mission is scheduled
in Morocco later in the
year. This indicates increased interest to add
nuclear power to the
African continent’s energy mix.
Other IAEA review
and advisory services i nclude t he Integ rated Reg ulator y
Review Ser vice (IRRS), Pre-Operational
Safet y Review Team
(Pre-OSART) review,
E me rge n c y P r e pa rFigure 2. The IAEA Milestones Approach for Nuclear Power Infrastructure Development. (Graph: IAEA).
ed ness Rev iew S ervice (EPREV), International Phys14. Emergency Planning
need to be addressed in developing a
ical Protection Advisory Service
15. Nuclear Security
new nuclear power programme:
(IPPAS) and the IAEA Safeguards
16. Nuclear Fuel Cycle
1. National Position
Advisory Service Mission (ISSAS).
17. Radioactive Waste Management
2. Nuclear Safety
18. Industrial Involvement
3. Management
Main Issues Faced by Newcomers
19. Procurement
4. Funding and Financing
The top areas of recommendation
Since 2009, 16 such missions have
5. Legislative Framework
from INIR missions provide a good
helped Bangladesh, Belarus, Indone6. Safeguards
snapshot of the main issues that
7. Regulatory Framework
sia, Jordan, Poland, Thailand, Turnewcomers face: (1) establishing a
8. Radiation Protection
key, the United Arab Emirates and
comprehensive national legal frame9. Electrical Grid
Viet Nam assess their own status
work; (2) establishing a management
10. Human Resource Development
of nuclear infrastructure developsystem; (3) financing strategies and
11. Stakeholder Involvement
ment, and benefit from recommenplans; (4) developing a public infor12. Site and Supporting Facilities
dations by international experts on
mation and stakeholder engagement
13. Environmental Protection
how to improve. South Africa, as an
programme; (5) developing policies
and strategies for waste management; (6) establishing a coordinating
body in the Government for decision-making and preparing national
policies; and (7) developing a national human resource plan.
Figure 3. Turkey invited an INIR Mission in November 2013 to review the status of the country’s nuclear infrastructure development. (Photo: MENR, Turkey).
The legal framework in most newcomer countries needs strengthening. The IAEA Office of Legal Affairs is responsible for the legislative
assistance programme. Many newcomer countries have not yet adhered to all of the international legal
instruments associated with a nuclear power programme, nor do they
have a comprehensive nuclear law in
place. Areas that are often identified
as needing strengthening in the law
are the independence of the regulatory body, provisions for spent
fuel and waste management, nuclear security, and civil liability for
nuclear damage. Several newcomer
countries that have taken advantage
NUCLEAR ESPAÑA September 2015 29
NUCLEAR NEWCOMERS
of this assistance are now in a final
stage of the legislative process.
Managing new nuclear power programmes requires a combination
of nuclear and industrial expertise; this is important for leadership in safety culture. The Government usually desig nates one
of three kinds of organizations to
be the future owner-operator: an
atomic energy commission which
has nuclear experience but not large
scale industrial experience, a national utility which may have built
large conventional power plants but
does not have nuclear experience, or
an entirely new organization. The
current group of newcomer countries includes all three options. Even
though the first task of the future
owner-operator is project development and the operating team usually comes later, the institution’s values and leadership for safety should
already be present from its establishment.
The availabilit y of financing is
driving decisions on project structures and other aspects. It is assumed that national governments
will play a role in financing nuclear
power projects, for example through
direct investments on the demand
side and export credits on the supply side. Many factors, including
restrictions on Government spending, have led to the use of strategic
investor arrangements. Several newcomer countries have entered into Inter-Governmental Agreements
(IGAs) which include vendor Government loans and other financial
commitments. Most of these IGAs
are for turn-key projects. Likely, the
first build-own-operate project in
the nuclear field is in Turkey, under
an IGA with Russia.
Talking to the public about nuclear
power and involving stakeholders
leads to strong government commitment and policy stability. Encouraging newcomers to engage
stakeholders and the public around
the national decision making process
and throughout the programme is an
essential part of the Agency’s guidance. Assistance centres on identifying stakeholders and national communication strategies. The technical
community responsible for nuclear
power plant development may find it
difficult adapting a highly technical
complex issue into language understandable by local communities in
developing countries.
30 NUCLEAR ESPAÑA September 2015
Newcomers find it hard to talk persuasively about radioactive waste.
The guidance to newcomers on radioactive waste and spent fuel management is to consider it at the time
of national decision making, and to
prepare policies and strategies as the
project is developed. As no country
has yet offered to host a multilateral
or international radioactive waste
repository, newcomers are recommended to ensure that they develop
safe, secure and sustainable solutions based upon national plans for
disposal within their own territories.
In addition, they may also include involvement in a multinational repository project as part of their national
strategy. The IAEA assists newcomers in understanding the technical
aspects and the messages for public
communication.
A national position forms the basis of policy decisions that affect
the planning and implementation of
the infrastructure and nuclear power plant project. A “knowledgeable
decision” is often a rolling series
of decisions. Many countries find
national decision making, which is a
political decision involving technical
considerations, national policies, and
public opinion, challenging. A national decision may not be one fixed
point in time, but rather, a series of
steps involving an announcement
of intention at the highest level of
Government, an energy policy that
includes nuclear, and a Parliamentary decision (or series of decisions) on
a nuclear law, allocation of funding
or ratification of an IGA.
A knowledgeable decision is a key
step in whether a country will go
forward, and a main determinant in
how the IAEA’s assistance is prioritized. Without a national decision,
many aspects of the infrastructure
cannot proceed—for example, national human resource development
planning. Some countries without
a decision receive IAEA assistance
for a long time, while waiting for
an optimal political environment.
An IAEA report, which will describe
some aspects of national positions
and give examples of how they informed project development, is in the
final stages of preparation.
Human resource development and
capacit y building is globalizing.
Recruiting foreign experts into key
positions and using international
consulting firms is a common approach among newcomers who are
successfully moving forward in their
prog ra m me s. O n-t he-job -t ra i ning abroad is an essential element
of experience-building for future
operators. When an existing utility will be involved in the nuclear programme, nuclear training for
non-nuclear executives and engineers will be essential for building
a strong safety culture. Bringing the
educational, training, and knowledge management aspects together
into a roadmap for capacity building
is a high priority for the Agency.
Technical Assistance
The IAEA Technical Cooperation
Programme is the main delivery
mechanism for IAEA assistance.
Nuclear power projects are implemented in the same manner as nuclear applications projects for food,
health, agriculture and science, or
nuclear safety and security. Activities are implemented through national, regional and interregional
projects. The projects are a mix of
expert missions, workshops, training courses, fellowships and scientific visits. The projects are designed
around Member State requests. Regional and interregional projects
are mostly used for training courses
and sharing of experience.
In conclusion, by helping nations
gain or extend access to nuclear
power — one of the great applications of atomic energy — the IAEA
fulfils the mandate it adopted six
decades ago: to “seek to accelerate
and enlarge the contribution of
atomic energy to peace, health and
prosperity throughout the world.”
REFERENCES
[1] IAEA Energy Planning Models
https://www.iaea.org/OurWork/
ST/NE/Pess/PESSenergymodels/
html
[2] Milestones in the Development
of a National Infrastructure for
Nuclear Power, IAEA Nuclear
Energy Series NG-G-3.1 Rev.
1), 2015. http://www-pub.iaea.
org/books/IAEABooks/10873/
Milestones-in-the-Developmentof-a-National-Infrastructure-forNuclear-Power
[3] IAEA Action Plan for Nuclear
Safety, 2011. https://www.iaea.
org/newscenter/focus/nuclearsafety-action-plan.
Nuclear España
J O U R N A L O F S PA N I S H N U C L E A R P R O F E S S I O N A L S
Nº 365•SEPTEMBER 2015
Gonzalo
DE SALAZAR
NUCLEAR
NEWCOMERS
INTERNATIONAL ISSUE
Nuclear España • Nº 365 • September 2015
Ambassador and
Permanent
Representative of the
Kingdom of Spain
to the International
Organizations in Vienna
SPANISH NUCLEAR SOCIETY
Nuclear España
JOURNAL OF SPANISH NUCLEAR PROFESSIONALS
Nº 365. SEPTEMBER 2015
SUMMARY
4
5
8
14
INTRODUCTION
INTERVIEW
Gonzalo DE SALAZAR SERANTES.
Ambassador and Permanent Representative of the Kingdom of Spain to the International
Organizations in Vienna.
NUCLEAR NEWCOMERS
ARTICLE
33 Results of the Spanish Nuclear Sector in the “Analysis of the Potential Development of
Energy Technologies in Spain”.
Rosario Velasco & Pablo T. León
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14 Nuclear Poland? The second approach after 20 years.
Ł. Sawicki, T. Gołębiewski, K.W. Fornalski & D. Gadja
17 Turkey as a Nuclear “Newcomer”
Şebnem Udum
23 Sustainable development of the nuclear energy in the Republic of Belarus: challenges and
first steps
Helena Zhivitskaya
27 Developing Infrastructure for New Nuclear Power Programmes: IAEA Services for Member
States.
Anne Starz
33
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DEL PARA, José Enrique MARTÍN GARCÍA, Aldara MARTÍNEZ ASENSIO,
Ricardo MORENO ESCUDERO, Rafael RUBIO MONTAÑA, Francisca SALESA
ANDRÉS y Eduardo SERRA SINTES.