Effective interaction between stakeholders to ensure ...
Transcript of Effective interaction between stakeholders to ensure ...
Effective interaction between stakeholders
to ensure highest level of nuclear safety
AFCONE Workshop
Jean-René JUBIN | Senior Nuclear Safety Officer
Division of Nuclear Installation Safety
Department of Nuclear Safety & Security
Content
1. IAEA Safety Standards
2. Establishing a safety infrastructure
3. National Nuclear Safety System
4. Transparency and openness
5. GSG-6
6. Conclusion
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Responsibility
for safety
1. IAEA Safety Standards
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Role of
government
Leadership
and
management
for safety
Justification
of facilities
and activities
Optimization
of protection
Limitation
of risks to
individuals
Protection of
present and
future
generations
Protective
actions to
reduce existing
or unregulated
radiation risks
Prevention
(and mitigation)
of accidents
Emergency
Preparedness
and Response
To protect peopleand the environmentfrom harmful effectsof ionizing radiation.
Responsibility
for safety
1. IAEA Safety Standards
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Role of
government
Leadership
and
management
for safety
Justification
of facilities
and activities
Optimization
of protection
Limitation
of risks to
individuals
Protection of
present and
future
generations
Protective
actions to
reduce existing
or unregulated
radiation risks
Prevention
(and mitigation)
of accidents
Emergency
Preparedness
and Response
To protect peopleand the environmentfrom harmful effectsof ionizing radiation.
An effective legal and governmental framework for
safety (…) must be established and sustained
3.10. The RegulatoryBody must:• Set up appropriate means of
informing parties in the vicinity,
the public and other interested
parties, and the information
media about the safety aspects
(including health and
environmental aspects) of
facilities and activities and about
regulatory processes
• Consult parties in the vicinity,
the public and other interested
parties, as appropriate, in an
open and inclusive process
1. IAEA Safety Standards
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Req. 5: Interaction with interested parties
Senior management shall ensure thatappropriate interactionwith interestedparties takes place.
Req. 36: Communication and consultation with interested parties
The regulatory body shall promote theestablishment of appropriate means ofinforming and consulting interested partiesand the public about the possible radiationrisks associated with facilities and activities,and about the processes and decisions ofthe regulatory body.
2. Establishing a Safety Infrastructure
Main phases in the lifetime of an NPP
A Nuclear Safety Infrastructure is defined as “the set of institutional, organizational and technical elements and conditions established in a State to
provide a sound foundation for ensuring a sustainable high level of nuclear safety” [INSAG-22]
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decisio
n
Bid
s / C
on
tract
com
missio
nin
g
2. Establishing a Safety Infrastructure
• Road map: Role of the main entities throughout the
establishment of the Infrastructure for safety
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Phase 1 Phase 2 Phase 3
Bids or
Contract
Ready to make a knowledgeable
commitment to a nuclear programme
M2M1
Ready to commission and
operate the first NPP
M3
Implementation of the Operating Organization
Implementation of the Regulatory Body
Role of the Government
2. Establishing a Safety Infrastructure
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Safety guide SSG-16 Establishing the Safety Infrastructure for a Nuclear
Power Programme constitutes a “Road-map” to apply the entire suite of
IAEA Safety Standards progressively during the early phases of the
implementation of a nuclear power programme.
Highlight the importance
of public acceptance for
the implementation of a
NPP programme which
can be gain through
transparent and open
communication and
dialogue
2. Establishing a Safety Infrastructure
Phased approach of the safety infrastructure development:
Deliverables expected from the regulatory Body
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Phase 1 Phase 2
Contract
Application for construction license
First concrete
Pre
para
tion o
f safe
ty docum
enta
tion
Assessm
ent b
y the
regula
tory b
ody
Constru
ctio
n
Esta
blish
ing
the b
asic
regula
tory
fra
mew
ork
Site
pre
para
tion
Fuel Delivery
Issuance of theconstruction licence
Phase 3
1~3 years 3~7 years 7~10 years
Initial site
survey
Environmental impact
assessment
Ready to commission
and operate the first NPP
NP
P O
pe
ratin
g L
ice
nse
Co
mm
issio
nin
g P
erm
it
Issu
an
ce
of S
ite P
erm
it
Issuance of
safety Requirements
needed for bid
specification
Issuance of
the Nuclear Law
Ready to make a decision on whether
or not to introduce nuclear power
Bids / Contract
2. Establishing a Safety Infrastructure
Phase 1
Decision
Phase 2 Phase 3
commissioning
Phase 2
• Keeping informing the
interested parties about the
safety implications and issues
on implementation of NPP
programme, including the
expected health and
environmental impacts
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Phase 1
• Communication on risks and
benefits of nuclear power to
facilitate stakeholders’
engagement in decision making
for possible NPP programme
• Transparent and inclusive
process to consult the public
and others
Bids / Contract
2. Establishing a Safety Infrastructure
Phase 1 Phase 2 Phase 3
commissioning
• Seeking to establish and maintain
confidence and trust
• Continuing explaining risks and benefits of
the introduction of NPP
• Communicating about licensing process,
safety requirements and regulatory
oversight
• Ensuring a transparent approach on safety
issues with interested parties, regarding
any problems and difficulties during
construction and commissioning
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Bids and/or Contract
3. National Nuclear Safety System
Fukushima Daiichi
Accident (March 2011)
14
• Earthquake magnitude 9
followed by Tsunami
• Total station blackout (SBO)
• 3 unit damaged
• Release of radioactive
material in environment
• About 150 000 people were
evacuated in
total, 40 km
evacuation zone
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Fukushima Daiichi Accident
Strong belief that NPP were sufficiently robust to withstand external events of low probability and high consequences: tendency not to challenge the level of safety and to introduce promptly safety improvements
Lack of transparency: Concern about worrying the public jeopardized the decision making on safety and emergency preparedness and impacted the licensee’s own perception of these risks
Stakeholders did not fully act as challengers against complacency or lack of vigilance of the operator and regulator
“The root causes identified… as being cultural and institutional” (Nuclear Accident Independent Investigation
Commission of the National Diet of Japan)
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3. National Nuclear Safety System
INSAG-27: Model of national nuclear system
Covers parties having in interest in nuclear (sub-systems) who can or should influence
the achievement of safety
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Framework to be established by the Government, each sub-system
– should have the authority and responsibility to fulfil its clear and distinct roles
– should links together in a way that each sub-system reinforces the others
Legal framework covering:
› Obligations of nuclear industry
› Responsibilities of regulatory body
› Measures (e.g., freedom of information) to ensure the openness and transparency that enables stakeholders to be effective
3. National Nuclear Safety System
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• Leaders (nuclear industry, regulatory body) should foster a
strong, vibrant safety culture. Cultures are interconnected:
– The way regulatory duties are discharged impacts licensees ’ safety
culture
– The way licensees respond to the regulatory body reflects its culture
and impacts the regulator body’s culture
• Effective communication within and between the various
sub-systems
– Enables to develop safety awareness among sub-systems thereby
promoting safety culture
• Each sub-system is independent but open and transparent
to the others
4. Transparency and Openness
Why the concepts of transparency and openness are important for safety
• Accountability– Transparency and openness promote accountability, a key contributor to
safety culture
– Accountability enhances confidence of interested parties in the nuclear system, and increases confidence that their views will be properly taken into account by the regulatory body
• Credibility and legitimacyTransparent and open communication and consultation
– Reinforces an awareness of the role and responsibilities and how duties are discharged, in seeking to maintain and continuously improve safety
– Helps to demonstrate and reinforce the distinction between the regulatory body and those organizations concerned with public acceptance of nuclear energy, including industry
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4. Transparency and Openness
• Quality in the performance of activities and regulatory
functions
– Participation in the regulatory decision can influence or even challenge the
regulatory body and information it used
– Knowledge of interested parties (e.g., Residents on local environment, and
social factors), can inform how issues are framed
– Allow the regulatory body (and others) to better understand and better
consider interested parties’ concerns as it performs its regulatory functions
• IndependenceA high level of transparency and openness
– allows the regulatory body to demonstrate its independence
– contributes to ensuring its freedom from undue influences that might
adversely affect safety
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5. GSG-6
IAEA safety standards address
• Government responsibility
• Regulatory body overall
responsibility
• Information
• Documentation
• Confidential of information
• Consultation
• Authorized party duties
But Requirements & Guidance
• Scattered between several
standards
• Insufficient to provide Member
States with clear and
comprehensive guidelines to
develop a strategy relevant to
transparency, openness and
interested parties’ involvement in
regulatory activities
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Decision taken in 2012 to establish
a guide on Communication
5. GSG-6
Communication and Consultation with Interested Parties
by the Regulatory Body
– General guidance and recommendations for regulatory bodies
concerning communication and consultation
– 5 sections• INTRODUCTION: background, objective, scope and structure
• Overarching recommendations
• Provisions of the REGULATORY FRAMEWORK
• IMPLEMENTATION BY THE REGULATORY BODY: Leadership, process, relevant
provisions to develop and implement a communications strategy
• METHODS OF effective COMMUNICATION AND CONSULTATION
– Examples (Strategy, Plan)
– Use of terms: Communication, plan, transparency and openness
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5. GSG-6
2. OVERARCHING RECOMMENDATIONS• INDEPENDENCE
– In any interaction with interested parties, no undue influence
• TRANSPARENCY AND OPENNESS– Information proactively available and Promotion of an active participation
• EARNING TRUST– Perception: Demonstration that the regulatory body is independent, competent,
objective, reliable, transparent, responsive…
• KEY PROVISIONS– Resource, processes for information and consultation
• AVAILABILITY OF INFORMATION– Appropriate access to information, Sensitive information not to be disclosed on legal
basis
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“The regulatory body is responsible for
the regulatory oversight of safety and
should not be biased for or against the
use of nuclear or radiation technologies”
5. GSG-6
3. REGULATORY FRAMEWORK• IDENTIFICATION OF MEANS AND (LEGAL) PROVISIONS
• REQUIREMENTS PLACED ON THE LICENSEES (REGULATIONS,
LICENSE CONDITIONS, OTHERS)
– to inform and, when appropriate, consult interested parties about the
possible radiation risks associated with facility or activities, including the
results from the safety assessment
– to make available to relevant interested parties, through their representatives
where appropriate, decisions with regard to measures for protection and
safety
• SPECIFIC CARE TO RESTRICTED-ACCESS INFORMATION FOR
LEGAL REASONS
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5. GSG-6
4. IMPLEMENTATION BY REGULATORY BODY • LEADERSHIP, STRATEGY, CLEAR RESPONSIBILITIES
• MANAGEMENT SYSTEM PROVISIONS AND COMPETENCE
– Processes in place, External supports, importance of information and
knowledge management
• INTERESTED PARTIES– Public, News and social media… Staff
• COMMUNICATION AND CONSULTATION
PROCESS
– To clearly understand who is the regulatory
body and its characteristics
To know the legal and regulatory provisions,
including on information-access restriction
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5. GSG-6
5. COMMUNICATION AND CONSULTATION
METHODS • INFORMATION
– How to deliver information (format, tools, channels…)
• GENERAL PROVISIONS FOR (EFFECTIVE) PARTICIPATION– Clarity, step-by-step, timing, experts
• DIALOGUE (to increase the effectiveness of communication )
• CONSULTATION
– When, stages…
• COLLABORATION
– May be necessary with some parties for exploring potential solutions
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6. Conclusion
Communication and consultation, effective interaction
with Stakeholders are important for Safety, to have a
strong national nuclear safety system
Effective communication within and between: Regulatory
Bodies; Governmental organizations; Industry; and Others
– Both licensees and regulatory bodies have to effectively
communicate and interact with the other stakeholders
– Based on a deep-rooted value of openness and transparency
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6. Conclusion
Communication and consultation are strategic
instruments that support regulatory body (and others)
in performing their functions,
• Enabling the regulatory body to:– make informed decisions
– develop the awareness of safety amongst interested parties, thereby
promoting safety culture
• Regular communication and consultation with interested
parties contribute to more effective communication in a
possible nuclear or radiological emergency
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6. Conclusion
Importance of transparency and openness as
highlighted in SSG-16– Dedicated Actions on Communication in Transparency and
Openness Safety Element
– Communication is a never-ending activity and should be based on
clear objectives, strategy based on transparency and openness
approach, plan implementation and monitoring
– Communication are critical for societal acceptance therefore the
long-term sustainability of a nuclear power programme
– Communication should be transparent and open to support trust in
nuclear power programme, particularly in Regulator and Operator• Benefits and risks of a nuclear power, licensing process, safety requirements,
regulatory activities, events
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