DEPARTMENT OF
MINERALS AND ENERGY
RADIOACTIVE WASTE MANAGAGEMENT POLICY AND STRATEGY FOR THE REPUBLIC OF SOUTH
AFRICA 2005
VISION
The management of radioactive waste in South Africa shall be in accordance
with national objectives and recognized international principles as set out in
Government Policy.
PURPOSE OF THE DOCUMENT
To ensure the establishment of a comprehensive radioactive waste governance
framework by formulating, additional to nuclear and other applicable
legislation, a policy and implementation strategy in consultation with all
stakeholders.
MINISTERIAL FOREWORD
The development of a lasting solution to radioactive waste management is
one of the critical issues for the future of nuclear applications. Wastes have
arisen from activities associated with nuclear power as well as those
associated with other programmes, some of which have been discontinued. In the
past, owing to a lack of consultation, secrecy was commonly associated with
certain activities. As a result, a waste policy could not be developed, because
this would have entailed an indication of the scale of activities being
undertaken. Since 1994, Government has committed itself to transparency, a
culture of consultation and structured stakeholder participation. In our Energy
Policy White Paper we undertook to develop a waste management policy.
Radioactive waste in South Africa is currently being managed without a common
framework, which this policy and strategy will direct. It is clear that the
bulk of the waste was generated during a period that was characterized by a
need to ensure self-sufficiency at any cost. The global village in which we
live has since reached consensus against such practices. As a result of the
curtailment of most of the front-end activities in the nuclear fuel cycle and
modern waste management practices, it is unlikely that huge volumes of waste
would again be generated over such a short period.
The National Radioactive Waste Management Policy and Strategy lays down options
to be considered for managing used fuel and high-level waste. The latter is the
main concern among all the different classes of waste. The low volumes of this
kind of waste produced by South Africa makes these decisions even more
challenging. Nevertheless, with the participation of all stakeholders, the
various options will be discussed and Government will then make an informed
decision on the most suitable management option.
As one studies the document, one's mind should shift from considering only
disposal and/or reprocessing to considering what option would be best for safe
management, as that is what the objective of the policy will be. I trust that
you will find this document as an indication of the direction Government
intends taking in addressing radioactive waste management.
Minister of Minerals and Energy
DEPUTY MINISTER'S FOREWORD
The Radioactive Waste Management policy and strategy outlines government's
thinking in relation to Radioactive Waste management. This document sets out
the main policy principles that the Department of Minerals and Energy will
endeavour to implement through its institutions in order to achieve the overall
policy objective. This policy gives us a formidable framework to interact with
the world, and our own past, present and future.
This is a bold policy with a broad vision founded on respect for all the
relevant principles for the safe management of radioactive waste. Chief among
these is the protection of human health and the commitment to protect future
generations in its implementation. Another of its great achievements is its
participatory process that produced it and the continued partnerships among
government departments.
The radioactive waste management policy is founded on the belief that all
nuclear resources of South Africa are a national asset and the heritage of its
entire people, and should be managed and developed for the benefit of present
and future generations in the country as a whole.
It is the objective of the radioactive waste management policy to improve the
overall contribution from the nuclear industry to this belief. Since nuclear is
a relatively small sector within the national economy, its contribution will
remain modest when measured in terms of macro-economic significance.
Radioactive waste management is not the exclusive preserve of government. The
private sector and civil society have a crucial role to play in the
implementation of the policy. The fostering of partnerships between government
and the private sector is a prerequisite for sustainable and effective
radioactive waste management to take place. Similarly, the spirit of
partnerships and cooperative governance between organs of state is equally
important due to the crosscutting nature of radioactive waste management.
Monitoring and collection of information on waste generation are crucial for
the implementation of waste reduction measures. Moreover, the sharing of such
information and creating awareness about the issues will enable all
stakeholders, including communities, to gain a better understanding of the
relation between radioactive waste management and the quality of life.
Deputy Minister of Minerals & Energy
1. INTRODUCTION AND SCOPE
This radioactive waste management policy and strategy serves as a national
commitment to address radioactive waste management in a coordinated and
cooperative manner.
Most human enterprises produce waste, some of which is radioactive. Radioactive
waste contains materials that emit ionising radiation, which has been
recognised as a potential hazard to human health since the beginning of the
20th century. The safe management of radioactive waste is therefore essential
to ensure the protection of human health and the environment, in the present
and future.
Radioactive waste is produced during the operational and decommissioning phases
of facilities associated with the following activities:
·
The operation of nuclear reactors and other facilities within the nuclear
fuel cycle.
·
The production and use of radioactive materials in the fields of
research, medicine, industry, agriculture, commerce, education and defense.
·
The extraction, processing and combustion of raw materials containing
naturally occurring radioactive materials.
·
Environmental restoration programmes associated with any of the above.
Radioactive waste may occur in a gaseous, liquid or a solid form that may
range from low radioactivity, for example medical and laboratory waste, and
certain mining wastes, to highly radioactive waste, for example used fuel and
certain spent radioactive sources. The physical and chemical characteristics of
the various wastes e.g. the activity concentration, half-life (rate of decay),
mixture of radioactive nuclides, chemical toxicity and radio-toxicity, varies
widely. Radioactive waste may also occur together with other hazardous chemical
or biological materials. The levels of radiation associated with radioactive
waste should be seen in perspective to the natural background radiation to
which everyone is exposed in everyday life.
Radioactive wastes generated by facilities, range from low volumes, such as
spent radioactive sources, to large and diffuse volumes, such as tailings from
the mining and milling of ores that contain uranium and thorium, and their
radioactive decay products.
The emphasis of this policy and strategy document is on the nuclear industry in
South Africa within which the management of radioactive waste is a national
responsibility assigned to the Minister of Minerals and Energy as per the
Nuclear Energy Act of 1999. The scope of this policy relates to all radioactive
wastes, except operational radioactive liquid and gaseous effluent (waste
discharges), which is permitted to be released to the environment routinely
under the authority of the relevant regulators.
Whilst the Nuclear Energy Act is the leading legislation with regard to the
governance of radioactive waste it is recognised that waste containing
un-concentrated natural occurring radioactive materials from the mining
industry, minerals processing industries and the combustion of coal will also
be managed as set out in the Integrated Pollution & Waste Management policy
of the Department of Environmental Affairs and Tourism and other relevant
legislation.
A. NATIONAL RADIOACTIVE WASTE POLICY FRAMEWORK
2. INTERNATIONAL RADIOACTIVE WASTE MANAGEMENT POLICY PRINCIPLES
The international community through the International Atomic Energy Agency
(IAEA) has developed a comprehensive set of principles for the safe management
of radioactive waste. These basic principles are applicable to all countries
and can be applied to all types of radioactive waste, regardless of its
physical and chemical characteristics or origin.
As a member state of the IAEA, and in accordance with National and
International objectives, it is Government's policy to deal with radioactive
waste in a manner that protects human health and the environment, now and in
the future in accordance with the following principles:
1. Protection of Human Health: Radioactive waste shall be managed in
such a way as to secure an acceptable level of protection for human health.
2. Protection of the Environment: Radioactive waste shall be managed in
such a way as to provide an acceptable level of protection of the environment.
3. Protection Beyond National Borders: Radioactive waste shall be
managed in such a way as to assure that possible effects on human health and
the environment beyond national borders will be taken into account.
4. Protection of Future Generations: Radioactive waste shall be managed
in such a way that predicted impacts on the health of future generations will
not be greater than relevant levels of impact that are acceptable today.
5. Burden on Future Generations: Radioactive waste shall be managed in
such a way that will not impose undue burdens on future generations.
6. National Legal Framework: Radioactive waste shall be managed within
an appropriate national legal framework, including clear allocation of
responsibilities and provision for independent regulatory functions.
7. Control of Radioactive Waste Generation: Generation of radioactive
waste shall be kept to the minimum practicable.
8. Radioactive Waste Generation and Management Interdependencies:
Interdependencies: among all steps in radioactive waste generation and
management shall be appropriately taken into account.
9. Safety of Facilities: The safety of facilities for radioactive waste
management shall be appropriately assured during their lifetime.
3 NATIONAL RADIOACTIVE WASTE MANAGEMENT POLICY PRINCIPLES
The above-mentioned principles tie-in with the objective of sustainable
development, which is development that meets the needs of the present without
compromising the ability of future generations to meet their own needs. In
addition to the internationally accepted principles, waste management in South
Africa shall be managed in accordance with the following policy principles:
1. Polluter pays principle: The financial burden for the management of
radioactive waste shall be borne by the generator of that waste.
2. Transparency regarding all aspects of radioactive waste management:
All radioactive waste management activities shall be conducted in an open and
transparent manner and the public shall have access to information regarding
waste management where this does not infringe on the security of radioactive
material.
3. Sound decision-making based on scientific information, risk analysis and
optimisation of resources: Decision-making shall be based on proven
scientific information and recommendation of competent national and
international institutions dealing with radioactive waste management.
4. Precautionary principle: Where there are threats of serious
irreversible damage, lack of full scientific certainty shall not be used as a
reason for postponing cost-effective measures to prevent environmental
degradation (Rio Principle 15).
5. No Import nor Export of Radioactive waste: In principle South Africa
will neither import nor export radioactive waste.
6. Co-operative governance and efficient national co-ordination: Due to
their crosscutting nature all activities involving radioactive waste management
shall be managed in a manner that prevents duplication of effort and maximises
coordination.
7. International cooperation: The government recognises that it shares a
responsibility with other countries for global and regional radioactive waste
management issues. Its actions shall follow the principles in this policy and
in relevant regional and international agreements.
8. Public Participation: Radioactive waste management shall take into
account the interests and concerns of all interested and affected, when
decisions are being made.
9. Capacity building and education: The government shall create
opportunities to develop people's understanding, skills and general capacity
concerning radioactive waste management.
The government will use these principles to develop, test and apply its policy.
The government will also use the principles for decision-making and where
necessary amending laws and regulations
In implementing the national policy for radioactive waste management due
cognisance must be taken of the requirement to comply with the prescripts of
the "White Paper on integrated pollution and waste management for South
Africa".
4 APPLICABLE NATIONAL LEGISLATION
Radioactive waste shall be managed under such Authority as provided for in
the Nuclear Energy Act and in a co-operative manner as provided for in the
Constitution, the National Environmental Management Act and the National
Nuclear Regulator Act.
The governance and regulation of radioactive waste management shall be in
accordance with the provisions of international agreements to which South
Africa is a signatory and the following acts:
4.1 Nuclear Energy Act, 1999 (Act No. 46 of 1999)
·
Section 45: The authority over the management of radioactive
waste and the storage of irradiated nuclear fuel vests in the Minister of
Minerals and Energy. The Minister, in consultation with the Minister of
Environmental Affairs and Tourism and the Minister of Water Affairs and
Forestry, may make regulations prescribing the manner of management, storage
and discarding of radioactive waste and irradiated nuclear fuel. The Minister
must perform this function with due regard to the provisions of the National
Nuclear Regulator Act, 1999. The previous arrangements and responsibilities
regarding radioactive waste management related to the South African Nuclear
Energy Corporation (for example Vaalputs and Thabana) continue by virtue of
section 60 of Act 46 of 1999.
·
Section 46: Discarding of radioactive waste and storage of
irradiated nuclear fuel require the written permission of the Minister and are
subject to any conditions that the Minister, in concurrence with the Minister
of Environmental Affairs and Tourism and the Minister of Water Affairs and
Forestry, deems fit to impose. The conditions so imposed will be additional to
any conditions contained in a nuclear authorization as defined in the National
Nuclear Regulator Act, 1999.
·
Section 50: The responsibility for the Republic's
institutional nuclear obligations vests in the Minister. The management of
nuclear waste disposal on a national basis is one of these obligations as
defined in section 1 (xii) of the Act.
·
Section 34(1)(5): In terms of the
responsibilities of the Minister of Minerals and Energy regarding nuclear
non-proliferation, authorisation is required to dispose of, store or reprocess
any radioactive waste or irradiated fuel.
4.2 National Nuclear Regulator Act, 1999 (Act No. 47 of 1999)
·
Section 5: The responsibility of the National Nuclear
Regulator is to provide for the protection of persons, property and the
environment against nuclear damage through the establishment of safety
standards and regulatory practices and to exercise regulatory control related
to safety over the siting, design, construction, operation, manufacture of
component parts and decontamination, decommissioning and closure of nuclear
installations and other actions to which this Act applies. These would include
radioactive waste management facilities associated with nuclear power stations,
nuclear fuel cycle facilities and those facilities that mine and process
radioactive ores and minerals.
·
Section 6: The Regulator must conclude co-operative
governance agreements with every relevant organ of state, as defined in section
239 of the Constitution, on which functions in respect of the monitoring and
control of radioactive material or exposure to ionising radiation are
conferred.
·
Section 7(1)(h): For the purposes of Act 47 of
1999, the National Nuclear Regulator acts as the national competent authority
in connection with the International Atomic Energy Agency's Regulations for the
Safe Transport of Radioactive Material.
4.3 Hazardous Substances Act, 1973 (Act No. 15 of 1973)
·
The Hazardous Substances Act provides for the control of Group IV
hazardous substances (radioactive material not at nuclear installations or not
part of the nuclear fuel cycle, for example fabricated radioactive sources,
medical isotopes) and Group III hazardous substances (involving exposure to
ionising radiation emitted from equipment). Radioactive waste arising from
activities authorized under this Act falls under the regulation of the
Department of Health's Directorate of Radiation Control. In practice, the
Department of Health does not regulate naturally occurring radioactive material.
·
For the purposes of Act 15 of 1973, the Department of Health's
Directorate of Radiation Control acts as the national competent authority in
connection with the International Atomic Energy Agency's Regulations for the
Safe Transport of Radioactive Materials.
4.4 Mine Health and Safety Act, 1996 (Act
No. 29 of 1996)
·
Act 29 of 1996 makes provision for the protection of the health and
safety of employees and other persons at mines. Any hazardous materials,
including waste that is radioactive, therefore also fall under the inspection
and enforcement tasks of the Mine Health and Safety Inspectorate.
4.5 Mineral and Petroleum Resources Development Act, 2002 (Act No. 28 of
2002)
·
The holder of a prospecting or mining right is required to manage all
environmental impacts in accordance with an approved environmental management
programme/plan, must as far as it is reasonably practicable rehabilitate the
affected environment, describe the manner of compliance with prescribed waste
standards and make the prescribed financial provision for rehabilitation.
4.6 National Environmental Management Act, 1998 (Act No. 107 of 1998) (NEMA)
·
NEMA makes provision for co-operative environmental governance.
4.7 National Water Act, 1998 (Act No. 36 of 1998)
·
Section 19 provides for measures to prevent any pollution of a water
resource from occurring, continuing or recurring. This includes activities on
land, which may pollute groundwater. Section 27 provides for the issuing of
licences.
4.8.Dumping at Sea Control Act, 1980 (Act No. 73 of 1980)
·
The Dumping at Sea Act falls under the administration of the Minister of
Environmental Affairs and Tourism. This Act prohibits the dumping at sea of
"high-level radioactive waste or other high-level radioactive matter
prescribed by regulation with the concurrence of the Minister of Minerals and
Energy.”
5 RESPONSIBILITIES
5.1 Government is responsible for:
·
Policy making
·
Establishing and implementing a legal framework . Establishing regulatory
bodies.
·
Ensuring co-operative governance.
·
Radioactive waste management where the generator no longer exists
(Ownerless radioactive waste).
·
The provision of institutional control over closed disposal facilities
and the funding thereof
·
Ensuring a nationally co-ordinated approach to radioactive waste
management.
·
Fulfilling national obligations in terms of international agreements
where applicable
·
Reviewing and updating of the national policy and strategy for
radioactive waste management . Ensuring adequate national competence and
capacity
·
Ensuring compliance with this policy
·
Ensuring the implementation of the strategy
The responsibilities for radioactive waste management are clearly
provided for in the national legislation as set out in the "Status of
radioactive waste management in South Africa". The Minister of Minerals
and Energy is the responsible line Minister with the authority over radioactive
waste in terms of the Nuclear Energy Act, 1999, which is administered by the
Department of Minerals and Energy. The Minister must exercise these
responsibilities in consultation with the Minister of Environmental Affairs and
Tourism and the Minister of Water Affairs and Forestry. The Minister of
Minerals and Energy will also exercise these responsibilities after
consultation with the Minister of Health, as appropriate.
5.2 Regulatory bodies
Regulatory bodies shall work in a co-operative manner and be responsible to
enforce compliance with legal requirements and advising government as
appropriate. The responsible regulators are:
·
Minister of Minerals and Energy in concurrence with the Minister of
Environmental Affairs and Tourism and the Minister of Water Affairs and
Forestry (Nuclear Energy Act, 1999).
·
National Nuclear Regulator (National Nuclear Regulator Act,1999).
·
Department of Health, Directorate Radiation Control (Hazardous Substances
Act, 1973)
·
Department of Minerals and Energy (Mineral and Petroleum Resources
Development Act, 2002).
·
Mine Health and Safety Inspectorate (Mine Health and Safety Act, 1996)
·
The Department of Water Affairs and Forestry (National Water Act, 1998)
·
5.3 Generators and operators
Generators of radioactive waste, or operators of radioactive waste disposal
facilities, as the case may be, shall be responsible for:
·
The technical, financial and administrative management of such wastes
within the national regulatory framework and within any applicable co-operative
governance arrangements
·
Development and ongoing review of site/ industry specific Waste Management
Plans which are to be based on the national radioactive waste management policy
& strategy. Execution of Waste Management Plans by the establishment of
appropriate waste management facilities and processes and the development of
site I industry specific waste management systems.·
·
Site / industry waste management in accordance with waste management
systems to reflect sustainable development and principles such as continued
improvement and Best Available Technology Not Entailing Excessive Cost (BATNEEC)
and other elements of the national strategy.
·
It should be noted that all importers of ores, which are processed in
South Africa, are deemed to be generators of radioactive waste and shall comply
with all the provisions of this policy and specifically the submission of Waste
Management Plans. In considering such plans the NCRWM shall determine if any of
the relevant management options (paragraph 10) would be acceptable or if the
radioactive waste must be returned to the country of origin.
The responsibility of the generators of radioactive waste, or operators of
radioactive waste disposal facilities, as the case may be, will be terminated
upon closure of the disposal facility at which time institutional control
(where required) will commence.
6 DEFINITION AND CLASSIFICATION OF RADIOACTIVE WASTE
For the purposes of implementing a national policy and establishing a
national strategy for radioactive waste management, South Africa shall follow
the guidelines of the International Atomic Energy Agency regarding the
definition and classification of radioactive waste, unless deviations there
from can be justified.
Consistent with internationally acceptable practice "radioactive waste for
legal and regulatory purposes may be defined as material that contains or is
contaminated with radio-nuclides at concentrations or activities greater than
clearance levels as established by the regulatory body, and for which no use is
foreseen. (It should be recognized that this definition is purely for
regulatory purposes, and that material with activity concentrations equal to or
less than clearance levels is radioactive from a physical viewpoint, although
the associated radiological hazards are negligible)."
Radioactive material which could satisfy requirements for clearance, reuse,
reprocessing or recycling is considered as Potential Radioactive Waste, for
example contaminated metal and used nuclear fuel.
Ownerless radioactive waste is radioactive waste where the generator no longer
exists or cannot be identified through reasonable means or does not have the
resources to manage such waste.
B. NATIONAL RADIOACTIVE WASTE MANAGEMENT STRATEGIC FRAMEWORK
7 PRINCIPLES APPLICABLE TO RADIOACTIVE WASTE MANAGEMENT STRATEGY
The following principles apply and render the strategic point of reference
(not in the order of priority).
1. It is regarded as essential by formulation of recommendations to the
relevant decision makers to legitimise a decision to proceed with a particular
primary course of action (e.g. deep geological disposal) on the basis of the
principle of reasonable consensus.
2. The guiding principles for the development of a new course of action:
·
Openness;
·
Involvement of stakeholders;
·
A deliberative and accessible process;
·
Commitment to participative peer review of the technical basis;and
·
Provision of adequate time for the resolution of issues
·
3. Final disposal is regarded as the ultimate step in the radioactive
waste management process although a step-wise waste management approach is
acceptable. Long-term storage of certain types of wastes e.g. HLW, LLW and
spent sources may be regarded as one of the steps in the management process.
4. The aim shall be to achieve a maximum degree of passive safety in storage
and disposal.
5. The establishment, operation, decommissioning and closure of waste
generating and disposal
facilities shall be in accordance with all applicable regulatory requirements.
6. The following hierarchy of waste management options shall be followed where
practicable.
·
Waste Avoidance and Minimisation
·
Re-use, Reprocessing and Recycling
·
Storage
·
Conditioning and Disposal
7. The national radioactive waste management strategy shall cover the total
life cycle of waste management, from generation to institutional control over
closed radioactive waste disposal facilities.
8. Although some measure of institutional control in respect of some facilities
may be required for an indefinite period, the relevant regulatory body must
specify the period for which an active institutional control should be assumed
for purposes of safety assessments.
9. To provide future generations with freedom of choice and to build
confidence, all radioactive waste disposal options shall provide for a defined
period during which retrievability will be possible. The Minister of Minerals
and Energy shall determine such a period on the recommendation of the National
Committee on Radioactive Waste Management (NCRWM).
10. Measures aimed at enhancing retrievability should not compromise the
operational and long term safety of a disposal option.
11. The transfer of waste among generators shall be considered provided all
issues pertaining to ownership and liability and safety are addressed.
12. To minimise the burden on future generations, decommissioning and closure
of facilities should be implemented as soon as practicable.
13. The deliberate dilution of radioactive waste is not acceptable,
however in the case of NORM waste the dilution of higher concentration material
with lower concentration material will be considered provided that all relevant
regulatory concerns are addressed.
8 MANAGEMENT STRUCTURES FOR RADIOACTIVE WASTE
8.1 National Committee on Radioactive Waste Management (NCRWM)
Government shall establish a National Committee on Radioactive waste
Management which will oversee the implementation of this policy and strategy
and which shall be independent from the generators of radioactive waste.
To ensure that this policy and strategy is translated into practice, the
Department of Minerals and Energy, as the government's lead agent for nuclear
matters, will consult with other government departments and regulatory bodies
to develop and maintain a national action plan.
To give effect to the responsibilities of the Minister of Minerals and Energy
in terms of the Nuclear Energy Act, the Committee shall be chaired by a
representative from the Department of Minerals and Energy who shall report to
the Minister via the DME line management.
To give effect to Cooperative Governance as per the constitution of the
Republic, the following Government Departments shall be represented: The
Department of Environmental Affairs and Tourism, The Department of Health
(Directorate Radiation Control), the Department of Water Affairs and Forestry.
The National Nuclear Regulator shall also be a member of the NCRWM.
8.1.1 The Main Objectives of NCRWM
The Objectives of NCRWM will be as follows:
·
Co-ordination of radioactive waste management on a national level.
·
Review and recommendation to the Minister of Minerals and Energy for
approval of site/industry specific Radioactive Waste Management Plans required
in terms of this document
·
Monitor the implementation of Radioactive Waste Management Plans
·
Recommend to the Minister of Minerals and Energy the issuing of
management directives to NRWMA as appropriate
·
Coordinate radioactive waste management research and development activities
of national interest.
·
The NCRWM shall, as and when appropriate, publish a report in respect of
radioactive waste management on the basis of information received, validated
and processed by the various NCRWM members.
Waste management plans required to be submitted through other legal
mechanisms (DEAT, DWAF) in the areas of mining, minerals processing and the
combustion of coal may be reviewed and commented on by the NCRWM, where
considered appropriate.
8.2 National Radioactive Waste Management Agency (NRWMA)
Government shall within 5 years establish an independent Radioactive Waste
Management Agency by statute.
Under the provision of section 55(2) of the Nuclear Energy Act, 1999, the
Minister assigns the management of radioactive waste disposal on a national
basis (institutional obligation) to the NRWMA. The NRWMA will not be a
regulatory body.
8.2.1 Terms of reference of NRWMA:
·
Reports to the Minister of Minerals and Energy.
·
Ring-fenced budget allocated by DME (The funds shall be sourced from the
Radioactive Waste Management Fund and/or other DME allocations as appropriate)
·
The Minister of Minerals and Energy will appoint the Board and CEO of the
Agency
8.2.2 Functions of NRWMA:
·
Operation of the Vaalputs site.
·
Site, design, construct and operate new national radioactive waste
disposal facilities.
·
Implement any radioactive waste management directives from the Minister.
·
Management of ownerless waste on behalf of the Government, including the
development of radioactive waste management plans for such waste.
·
Establish waste acceptance criteria.
·
Define and conduct Research and Development programs for long-term waste
management with regard to long-term storage and disposal.
·
Assist generators of small quantities of radioactive waste in all aspects
related to management of such waste. The cost of providing such assistance
shall be borne by the generator.
·
Implementation of institutional control, including radiological
monitoring and maintenance as appropriate on behalf of Government.
·
Maintain a national radioactive waste database and publish on an annual
basis the inventory and location of all radioactive waste in South Africa.
·
Advise nationally on radioactive waste management.
9 NATIONAL PROCESS FOR IMPLEMENTING THE RADIOACTIVE WASTE MANAGEMENT
STRATEGY
9.1 Radioactive
waste stream/category specific waste management plans per site/ industry shall
be based on an evaluation process and authorization as described in this
document. The elements for the process are:
·
Identification and nature of site specific radioactive waste
stream/categories and associated waste management issues.
·
Consideration and listing of realistic options for the long-term
management of specific radioactive waste management streams/categories.
·
Systematic evaluation of the merits and disadvantages of each option
(Multi-attribute analysis or any other suitable methodology covering
cost-effectiveness, technological status, operational safety, social and
environmental factors.
·
Identification of the Best Available Technology Not Entailing Excessive
Cost (BATNEEC)
·
Acceptance of BATNEEC as waste stream/category specific strategy.
·
Review mechanisms of industry/site specific waste management plans.
9.2 Site / industry specific radioactive waste management plans (action
plans) shall be developed in accordance with the process described in this
document and submitted to the NCRWM for acceptance and approval or comment as
appropriate (where covered by other legal mechanisms).
9.3 Framework for the development of site / industry specific
radioactive waste management plans
·
The development and submission of plans shall be scheduled with the
NCRWM. Separate plans and proposals may be submitted for specific waste
streams/categories and scheduled according to the anticipated time required for
the development of plans.
·
Plans shall cover all radioactive waste streams / categories on a site or
in a specific industry.
·
Plans shall identify all radioactive waste management options as well as
the applicable pre-disposal management steps required for a specific option,
and the details thereof.
·
The merits and disadvantages of each of the listed options shall be
evaluated in a balanced and systematic way using a multi-attribute analysis
approach. The methodology for evaluation and selection of an option (SATNEEC)
shall be described and justified per site I industry. This should be submitted
to the NCRWM prior to the submission of waste management plans for concurrence
on methodology. It should be noted that all regulatory requirements must be
met.
·
Approved waste management plans shall be reviewed and re-submitted at a
frequency determined by the institutional organisation.
·
The development process and associated considerations of the radioactive
waste management plan are indicated in Figure 1.
11 FINANCIAL PROVISION FOR RADIOACTIVE WASTE
Government shall within five years following approval of this policy, establish
a Radioactive Waste Management Fund (RWMF) by statute. The funds paid into the
RWMF shall not be subject to tax. In keeping with the polluter pays principle,
the contributions to the fund will be from the generators of radioactive waste.
The contributions shall be managed in an equitable manner, without
cross-subsidization and amongst others be based on classification of the waste
as well as the volumes.
The purpose of the fund shall be to ensure that there are sufficient provisions
for the long-term management options of the various waste forms. These shall
include:
·
Fees for disposal activities
·
Research and Development activities including investigations into waste
management/disposal options
·
Capacity building initiatives for radioactive waste management/disposal
·
Fees for other activities related to radioactive waste
management/disposal
The manner of the management of the fund shall be determined by
Government and shall be reported upon annually. The fund shall be managed and
administered by National Treasury (and DME) on behalf of Government. The funds
shall be managed in accordance with accepted investment and accounting
principles. The reports of the fund shall be subject to the Auditor General's
examination.
Each of the generators shall enter into an agreement with the RWMF for managing
long-term provisions for institutional control measures.
The Government (responsible line Departments) shall set aside funds through the
RWMF for the management of radioactive waste from its institutions.
12 NATIONAL RADIOACTIVE WASTE MANAGEMENT MODEL
The model, as schematically presented in Figure 2, indicates the
radioactive waste management process from radioactive waste generation to the
main waste management end-points and institutional control. Although not all
the steps may apply to all the waste streams /categories, the listed
predisposal management steps should be considered.
12.1 Radioactive Waste Generation
Radioactive waste, used nuclear fuel and materials that are potential
radioactive waste are continuously generated during the execution of regulated
activities. Radioactive waste may also exist due to previous activities and I
or historic processing of radioactive materials.
12.2 Pre-disposal Management of Radioactive Waste
Pre-disposal management of radioactive waste is required to ensure:
·
Waste prevention and waste minimization.
·
The selection of suitable waste management options.
·
A waste package that meets acceptance criteria for handling,
transportation, storage and disposal.
·
Waste or material that is suitable for authorized disposal / discharge,
authorized re-use / recycling and clearance from regulatory control.
During the generation of radioactive waste the emphasis shall be on the
control of waste generation and minimization. Unavoidable radioactive waste
shall be classified to enable category specific waste management.
The options for disposal of each waste category shall be evaluated in a
systematic way as a multi attribute analysis. The outcome of the multi
attribute analysis is regarded as the Best Available Technology Not Entailing
Excessive Cost (BATNEEC
The extent of the waste processing (the remainder of the pre-disposal
management steps) shall depend on the waste acceptance criteria for regulated
disposal and the anticipated acceptance criteria and storage period in the case
of regulated storage. Category specific waste processing namely pre-treatment,
treatment and conditioning shall be performed to obtain waste packages, that
are suitable for storage and I or disposal.
Waste characterization shall be conducted throughout the pre-disposal
management steps. Waste category specific characterization requirements shall
be specified and shall cover the establishment of physical. chemical,
biological and radiological properties to determine waste processing needs and
the ultimate suitability of a waste package for storage and disposal. Waste
characterization data and records shall be used for verification and quality
assurance purposes
Transportation of waste may be required in between the various pre-disposal
management steps and may include on and off-site transportation.
In the case of regulated disposal, radioactive waste packages shall be stored
temporarily and transported to a radioactive waste repository. In the case of
regulated storage the radioactive waste and / or waste packages shall be stored
for an authorized period for future processing and / or disposal.
12.3 Radioactive Waste management options
The main radioactive waste management options are:
·
Regulated disposal;
·
Authorized disposal / discharge;
·
Authorized re-use / recycling;
·
Regulated reprocessing (used nuclear fuel)
·
Regulated storage and
·
Clearance.
(The above terms are defined in the waste management glossary.)
In the case of authorized disposal / discharge, re-use / recycling and
clearance, the following category specific factors are specified:
·
Pre-treatment and treatment requirements;
·
Conditions and criteria for disposal / discharge / re-use / recycle and
clearance; and
·
Criteria and condition verification methodology.
12.4 Radioactive Waste management end-points
The main radioactive waste management end-points correspond with the waste
management options and may be regarded as the outcome of a specific waste
management option. Regulated disposal requires continued regulation of the
disposal site for a predetermined duration where after the site shall be placed
under institutional control.
13. LONG-TERM RADIOACTIVE WASTE MANAGEMENT ISSUES
There are two long-term radioactive waste management options employed in
South Africa at present
1. Above ground disposal in engineered facilities for the bulk of the mining
waste.
2. Near surface disposal for Low and Intermediate Level Waste at Vaalputs in
the Northern Cape.
Disposal of high level waste presents the most challenges and it is an area
where coordination is of utmost importance.
One site shall be developed for each of the waste classes (excluding NORM
waste, which is disposed of on site in bulk). This is to maximise benefits from
economies of scale for all activities associated with disposal waste
management.
Vaalputs shall continue to be used as a National Disposal Site for Low and
Intermediate Level Waste.
The Government shall initiate investigations into the best long-term option for
the management of Used Fuel. The process of selecting a site for long-term
(HLW) waste management shall involve a public participation process.
13.1 USED NUCLEAR FUEL AND HIGH LEVEL WASTE MANAGEMENT
Two mechanisms (Dry and Wet storage) are currently in use in South Africa.
Koeberg Used Fuel is currently stored in authorised used fuel pools on the site
as well as in Casks designed and constructed for storage of used fuel. There is
enough storage capacity for the current operational lifetime of Koeberg. The
Used Fuel from SAFARI Research Reactor is currently stored at an authorised dry
storage facility on the Pelindaba site as well as in the Reactor pool.
In the interim Used Nuclear Fuel is and shall continue to be stored in
authorised facilities within the generator's sites.
The storage on these sites is finite and the practice of storing used fuel on a
reactor site is not sustainable indefinitely. Government shall ensure that
investigations are conducted within set timeframes to consider the various
options for safe management of used fuel and high level radioactive wastes in
South Africa. Included in the options for investigation shall be the following:
A. LONG-TERM ABOVE GROUND STORAGE ON AN OFF-SITE FACILITY LICENSED FOR THIS
PURPOSE
The size of the industry dictates that this be a consideration although it
may not be in line with some of the principles for Radioactive Waste
Management.
The strength of this option is that if more appropriate technologies are
developed in future, then the waste can be dealt with using those technologies.
Storing above ground indefinitely may result in an undue burden on future
generations.
B. REPROCESSING, CONDITIONING AND RECYCLING
An investigation commissioned by the Department of Minerals and Energy has
concluded that it would not be advisable to exclude the reprocessing,
conditioning and recycling of used fuel. This option is sometimes associated
with proliferation concerns however as South Africa has concluded the IAEA
Safeguards Agreements and the Additional Protocol, this should not be an issue
for South Africa.
In South Africa
This option will require dedicated specialised facilities and the cost
implication of building facilities could mitigate against reprocessing in South
Africa. This option will however be amongst the options to be investigated
In a Foreign Country
There are available reprocessing facilities in some countries and the option of
sending South Africa's Used Fuel for reprocessing shall be investigated and
compared to the other options.
C. DEEP GEOLOGICAL DISPOSAL
Deep geological disposal is currently the most internationally pursued option
and as such will require very careful consideration. Internationally this option has been under
investigation for the best part of a decade and as such investigations in South
Africa should commence as soon as possible. If chosen as a preferred option in
South Africa, geological disposal of radioactive waste shall take place with an
option for retrieving the waste. (The reason for this is not to rule out the
possibility of the use of future technology for better management options)
D. TRANSMUTATION
A fourth option (Transmutation) has been - and continues to be - investigated
in a number of countries, however it has not been proven to be a workable
solution and also requires major investment in technology. The Government shall
continue to monitor developments internationally. However this option will not
be investigated in South Africa.
The choice of the most suitable option shall take due cognisance of the policy
principles and shall clearly demonstrate how the option satisfies the national
policy objectives. All conclusions on investigations shall be subject to public
scrutiny.
END
14 REFERENCES
[1] White Paper on Energy Policy for the Republic of South Africa, Pretoria,
1998.
[2] White Paper on Integrated Pollution and Waste Management for South Africa,
Pretoria, 17 March 2000.
[3] The Principles of radioactive waste management, Safety Series 111-F,
International Atomic Energy Agency, Vienna, 1995.
[4] Classification of Radioactive Waste, Safety Series 111-G-1.1, International
Atomic Energy Agency, Vienna, 1994.
[5] Status of Radioactive Waste Management in South Africa, Department of
Minerals and Energy, December, 2001.