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Legal Affairs 2019
Legal Frameworks for Long-Term Operation of Nuclear Power Reactors
Legal Affairs
Legal Frameworks for Long-Term Operation of Nuclear Power Reactors
© OECD 2019
NEA No. 7504
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 36 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, Latvia, Lithuania, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, 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 33 countries: Argentina, Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Luxembourg, Mexico, the Netherlands, Norway, Poland, Portugal, Korea, Romania, Russia, the Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The European Commission and the International Atomic Energy Agency also take 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 sound 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 analyses in areas such as energy and the sustainable development of low-carbon economies.
Specific areas of competence of the NEA include the safety and regulation of nuclear activities, radioactive waste management and decommissioning, 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.
This document, as well as any [statistical] data and 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/about/publishing/corrigenda.htm.
© OECD 2019
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Cover photos: Workers at a GE factory in Poland prepare a massive generator stator for shipment to Darlington Nuclear Plant (GE Power).
Foreword
Legal Frameworks for Long-Term Operation of Nuclear Power Reactors comes at a time when more and more governments, as well as regional and international organisations, are focusing greater attention on nuclear energy’s potential role in combating global climate change. At the same time, the nuclear energy sector is facing many complex issues, with legal systems playing an increasingly vital role in adjudicating public policy and regulatory questions, particularly in countries with long-established nuclear power programmes.
One of the issues receiving greater attention today is the potential long-term operation of nuclear power reactors. In Western Europe and North America, for example, many countries are currently assessing reactor operation past the 40-year mark and considering the continued operation of plants for as long as 80 years. Decisions to pursue long-term operation do not simply involve technical matters, but are complex, national decisions that concern long-term energy policy, economics and social licence. As a result, many of these decisions have been subjected to legal reviews in member and partner countries of the OECD Nuclear Energy Agency (NEA).
For many countries, if nuclear energy is to remain a part of their strategy to achieve a lowcarbon energy future, the safe, environmentally sound and economical, long-term operation of nuclear power reactors must be ensured. Working towards this goal, the NEA has been leading technical work on the integrity and ageing of the components and structures of nuclear power reactors and has been at the vanguard of economic work assessing and analysing technical and economic data on upgrade and lifetime extension experience in its member countries. Complementing this work, the International Energy Agency’s Nuclear Power in a Clean Energy System (2019) has highlighted the crucial need to expand the use of nuclear power in order to address climate change, as well as the vital role of long-term operation in OECD countries. Ongoing work by the United Nations Economic Commission for Europe analysing the role of environmental reviews in long-term operation and the European Nuclear Safety Regulators Group’s first topical peer review on “Ageing management of nuclear power plants and research reactors” add further support for this same goal.
Legal Frameworks for Long-Term Operation of Nuclear Power Reactors adds a new dimension to national and international discussions about long-term operation. This first-of-a-kind report, addressing the legal and regulatory aspects of decisions to authorise or approve the long-term operation of nuclear power reactors in countries around the world, will serve as a key resource for not only lawyers, but also for policy makers, engineers and academics. While the choice to proceed with long-term operation is a matter of national policy, Legal Frameworks for Long-Term Operation of Nuclear Power Reactors demonstrates that enhancing knowledge in this important area is critical.
William D. Magwood, IV
Director-General
Nuclear Energy Agency
LEGAL FRAMEWORKS FOR LONG-TERM OPERATION OF NUCLEAR POWER REACTORS, NEA No. 7504, © OECD 2019 |
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Acknowledgements
The Working Party on the Legal Aspects of Nuclear Safety of the OECD Nuclear Energy Agency (NEA) prepared this report under its Chair, Ms Lisa Thiele (Canadian Nuclear Safety Commission), and former Chair, Ms Margaret Doane (United States Nuclear Regulatory Commission). The report was endorsed for publication by the NEA Nuclear Law Committee.
The conception, drafting and overall co-ordination of the report was led by Ms Kimberly Sexton Nick, Deputy Head, NEA Office of Legal Counsel (OLC), along with Mr Pierre Bourdon, Legal Adviser, OLC. This report would not have been possible without the strong and enthusiastic support of the many NEA member and partner countries included within these pages. More than 80 individuals contributed in some way to the report. These individuals are listed in Annexes 3 and 4. The NEA would like to extend its gratitude in particular to the following members of the informal expert group for their in-depth review, suggestions and comments on the report:
Name |
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Organisation |
Country |
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Mr Roland Dussart-Dessart |
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FPS Economy, SMEs, Self-employed and Energy |
Belgium |
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Ms Jasmine Saric |
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Canadian Nuclear Safety Commission |
Canada |
Ms Lisa Thiele |
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Mr Yves Guannel |
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Nuclear Safety Authority |
France |
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Mr Marc Léger |
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Alternative Energies and Atomic Energy Commission |
France |
Ms Olivia Passerieux |
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Mr Kohei Goto |
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Nuclear Regulation Authority |
Japan |
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Ms Carrie Safford |
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Nuclear Regulatory Commission |
United States |
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Finally, many members of NEA staff made invaluable contributions to the development of this publication, in particular Ms Chiara Petroli for her work on this report and for supporting all of the activities of the WPLANS. In addition, the editorial and graphic support provided by Mr Laurie Moore, as well as the thorough revision and valuable comments by Ms Janice Griffiths are gratefully acknowledged.
LEGAL FRAMEWORKS FOR LONG-TERM OPERATION OF NUCLEAR POWER REACTORS, NEA No. 7504, © OECD 2019 |
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Table of contents
List of abbreviations and acronyms .......................................................................................... |
11 |
Executive summary ...................................................................................................................... |
13 |
Chapter 1. Introduction................................................................................................................. |
15 |
1.1. Background on long-term operation................................................................................ |
15 |
1.2. Aims and objectives ........................................................................................................... |
17 |
1.3. Approach.............................................................................................................................. |
18 |
1.4. Scope..................................................................................................................................... |
18 |
1.5. Terminology ........................................................................................................................ |
19 |
1.6. Report structure .................................................................................................................. |
21 |
Chapter 2. Review of approaches to long-term operation ..................................................... |
23 |
2.1. Background information on reporting countries ........................................................... |
24 |
2.2. Licensing framework.......................................................................................................... |
25 |
2.3. Governmental review and approval................................................................................. |
29 |
2.4. Approaches to LTO ............................................................................................................. |
30 |
2.5. Environmental reviews and transboundary notification.............................................. |
32 |
2.6. New safety requirements .................................................................................................. |
34 |
2.7. Provision of information.................................................................................................... |
35 |
2.8. Public participation............................................................................................................. |
38 |
2.9. Legal challenges .................................................................................................................. |
39 |
Chapter 3. Country reports .......................................................................................................... |
45 |
Argentina .................................................................................................................................... |
45 |
Belgium........................................................................................................................................ |
51 |
Canada......................................................................................................................................... |
55 |
Czech Republic ........................................................................................................................... |
63 |
Finland......................................................................................................................................... |
67 |
France .......................................................................................................................................... |
71 |
Germany...................................................................................................................................... |
77 |
Hungary....................................................................................................................................... |
79 |
Italy .............................................................................................................................................. |
83 |
Japan ............................................................................................................................................ |
85 |
Korea............................................................................................................................................ |
91 |
Netherlands ................................................................................................................................ |
95 |
LEGAL FRAMEWORKS FOR LONG-TERM OPERATION OF NUCLEAR POWER REACTORS, NEA No. 7504, © OECD 2019 |
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TABLE OF CONTENTS
Poland ........................................................................................................................................ |
101 |
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Portugal ..................................................................................................................................... |
103 |
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Romania .................................................................................................................................... |
105 |
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Russian Federation .................................................................................................................. |
109 |
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Slovak Republic ........................................................................................................................ |
113 |
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Slovenia..................................................................................................................................... |
117 |
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Spain .......................................................................................................................................... |
121 |
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Sweden ...................................................................................................................................... |
127 |
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Switzerland............................................................................................................................... |
133 |
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Turkey........................................................................................................................................ |
137 |
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Ukraine ...................................................................................................................................... |
139 |
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United Kingdom....................................................................................................................... |
145 |
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United States ............................................................................................................................ |
151 |
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List of annexes |
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1. |
Survey on Long-Term/Extended/Continued Operation of Nuclear Power and |
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Research Reactors ............................................................................................................... |
159 |
2. |
Format of country reports................................................................................................. |
169 |
3. |
Reporting organisations and contact persons................................................................ |
171 |
4. |
Working Party on the Legal Aspects of Nuclear Safety................................................. |
173 |
List of figures
1.1.Nuclear power plants reaching 25 or 30 years of operation within the years
1990 and 2000 .................................................................................................................. |
16 |
1.2. Distribution of nuclear power reactors by age in the year 2019 .............................. |
17 |
2.1. Operating nuclear power reactors included in this report and status.................... |
24 |
2.2. Nuclear power reactor age distribution in reporting countries ............................... |
24 |
2.3. Length of specific term................................................................................................... |
26 |
2.4. Type of term for initial authorisations ........................................................................ |
28 |
2.5. Is there a specific authorisation for LTO?.................................................................... |
28 |
2.6. Review and approval authorities for LTO.................................................................... |
29 |
2.7. Regulatory approaches to approving or authorising LTO ......................................... |
31 |
2.8. Does the LTO-related review include a review of environmental issues ............... |
32 |
2.9.Is there a legal duty to provide information to the public during the
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LTO-approval process?................................................................................................... |
37 |
2.10. |
Is there a legal duty to solicit public participation during the LTO-approval |
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process? ............................................................................................................................ |
39 |
2.11. Are legal challenges related to the LTO process allowed and have legal |
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challenges been raised in the past? ............................................................................. |
40 |
2.12. |
Who are the potential subject parties (i.e. defendants) to a challenge?................. |
41 |
2.13. |
What are the potential subjects of a challenge? ........................................................ |
41 |
2.14. |
What kind of procedure is the challenge?................................................................... |
42 |
2.15. |
Where should the challenge first be raised?............................................................... |
42 |
3.1. |
Periodic review process in France ................................................................................ |
74 |
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