Good afternoon. Thank you for this opportunity to appear before the committee this afternoon.
Used fuel arises as a byproduct of electricity generation. My remarks will focus on Canada's progress on the long-term management of this material.
Work on used fuel disposal in Canada was initiated in the early 1980s when the Governments of Ontario and Canada established the Canadian nuclear fuel waste management program, where AECL was assigned the responsibility for the development of geologic disposal. In 1989, in response to public concern about siting the repository, the concept of geologic disposal was referred to a federal environmental assessment panel, and a moratorium was placed on siting a disposal facility.
The federal panel conducted a comprehensive review of AECL’s disposal concept and in its 1998 report said that the technical safety of a geologic repository had been demonstrated at a conceptual level, but public support had not been demonstrated. The panel made recommendations that were largely translated into the 2002 Nuclear Fuel Waste Act, a new framework of responsibility and decision-making.
Canada now has 2 million fuel bundles or 30,000 tonnes of used fuel in safe interim storage, principally in the province of Ontario. Nuclear power plant operators have adequate future capacity for decades to come and, with care and maintenance, the storage structures can safely store used fuel for up to 100 years. However, this material will remain hazardous almost indefinitely and requires sound long-term management.
In accordance with the requirements of the Nuclear Fuel Waste Act, significant progress has been made since 2002. The NWMO was formed by Ontario Power Generation, Hydro-Québec, and New Brunswick Power Corporation with a mission to collaboratively develop and implement a socially acceptable, technically sound, environmentally responsible, and economically feasible plan for Canada’s used nuclear fuel. An advisory council was formed by the NWMO and trust funds have been established by the used fuel owners. Accumulated balances in these funds now exceed $5 billion.
NWMO completed a study of alternative methods of storage and disposal and submitted recommendations to the Government of Canada in 2005 in accordance with the Nuclear Fuel Waste Act. During the three-year study, significant efforts were made by the NWMO to address societal aspects of long-term nuclear fuel management.
Some 18,000 Canadians, including 2,500 aboriginal people, were engaged in and contributed to this study, and it received contributions from 500 experts. There were 120 information and discussion sessions held across all provinces and territories. Not surprisingly on a subject like this, there was a wide diversity of views.
However, there was common ground: safety and security is a top priority; this generation must take action now to manage the waste we have created; we must take advantage of best international practice; and the approach must be adaptable to allow for changes in technology and societal priorities.
NWMO’s recommendation for adaptive phased management emerged as the approach that would best meet the priorities and values of Canadians. This plan was approved by the Government of Canada in 2007. APM, or adaptive phased management, is both a technical method and management system.
The technical method is isolation in a deep geologic formation where used fuel can be monitored and can be retrieved if necessary. This method is aligned with international best practice, where almost all countries with major nuclear programs have made national decisions for a deep geologic repository.
Equally important is how we get there, and this is specifically tailored to Canadian values and priorities. It requires flexibility in the pace and the manner of implementation and responsiveness to new developments and traditional aboriginal knowledge, and openness, transparency, and staged decision-making, with the involvement of Canadians at every step of the way. It also requires the facility to be located in an informed and willing host community.
NWMO is now responsible for implementing a national infrastructure project that will involve an investment of $16 billion. It will be a high-technology project with skilled employment for hundreds, over many decades, and will operate a centre of expertise for international collaboration. It will involve a long-term partnership between NWMO and the host community and must foster community well-being. It will be highly regulated, with strict scientific and technical criteria to assure safety.
In 2008 NWMO published an implementation plan after two rounds of public consultations. We very much see ourselves as working on behalf of Canadians, and we can succeed only if we maintain a social licence to proceed.
We've established several mechanisms to achieve this in a systematic way: a forum of aboriginal elders from across Canada and projects with several aboriginal groups; a forum of municipal associations; a network of citizens' panels and multi-party dialogues where we bring together interested parties such as industry, aboriginal people, special interest groups, and labour; and ongoing briefings of provincial and federal governments. We use these mechanisms on a frequent basis to seek input to our implementation plans and, more recently, to our plans for site selection.
Probably the most challenging task is the selection of a site for the used-fuel repository. NWMO has held two rounds of public dialogues on siting, using the mechanisms I've just described. Provided we have sufficient consensus, we could start siting selection as early as next year. The draft siting document, which is available on our website, contains a nine-step process for social, safety, and environmental assessment. It embodies the concept that a community chooses to participate and has the right to withdraw. It commits to a partnership approach and provides for the inclusion of surrounding communities and aboriginal people.
Canadians have been very helpful in providing their views on our draft document, including the need for federal and provincial support to the siting process, and the recognition that the eventual host community will be making a major contribution to Canada.
Canada, together with our international partners, has the technology for the safe long-term isolation of used nuclear fuel in a geologic formation.
Canada has the benefit of a strong government policy and legislative framework to support progress.
Trust funds and mechanisms are in place to ensure that financial burdens will not be passed to future generations.
As a result of successive reviews, extensive dialogues, and government decision-making over the past 25 years, NWMO now has a mandate that is consistent with the expectations of Canadians.
Thank you.