CASE STUDY OF VAALPUTS:South Africa’s National Low Level Waste Disposal Facility

DEEPENING AND STRENGTHENING

STAKEHOLDER CONFIDENCE INRADWASTE DISPOSAL

Alan CarolissenSenior Manager: Nuclear Liabilities Management

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Legal Framework for Radwaste in South Africa

• Approved by Cabinet in 2005

• Establishment of the National Committee on Radwaste (NCRWM)

• Radwaste Disposal Inst(NRWDI)

• Radwaste Fund

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Core Objectives of Policy and Strategy

• Public and Occupational Health and Safety

• Environmental Protection

• Cost Effectiveness

• Safeguards and Security

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Radwaste Framework

Radwaste FrameworkMinister of

Energy

National RWM Committee

(NNR, DOE, DPE, DOH, DEA etc.)

Waste Generator

On-site waste• collection• treatment• packaging• storage• transportation• plans

Disposal Institute

• WAC development• siting• R&D• storage• encapsulation• disposal• monitoring• execution of plans

Disposal Site

Consists of facilities for:• storage• encapsulation• disposal

WAC

delivers waste accepts waste

National RWM Fund

(National Treasury, DOE, Board of

Trustees)

evaluates, recommends plans

subm

its

consults

approves plans

allocates funds

requests for funds

pays user-charges

cont

ribut

es fu

nds

(levi

es)

plan

s

(c/k

Wh

/ R/m

3)

issues certificates

Oth

er S

ourc

es o

f Fun

ds(lo

ans,

don

atio

ns, s

ales

etc

.)

sites, constructs,operates, decoms

facilities

RADIOACTIVE WASTE

DISPOSAL IN SOUTH

AFRICA

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Low Level Waste Disposal Repository: Vaalputs

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Locality map of South Africa showing Vaalputs, Koeberg and Pelindaba.

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Vaalputs Commissioning

• Site selection completed in 1985

• Site operating license granted in 1986

• First waste shipment arrived in November 1986

• Only solidified or solid low level waste are disposed off.

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Red sand – 0,5 m

Red ‘clay’ – 10m

White ‘clay’ – 5m

Weathered granite – 3m

Fresh granite up to 100m

Aquifer9

Disposal Concept

Monitoring pipe

Natural Clay

5.2

m

8.0

m

Drainage layer – 200mm

Backfill

Compacted clay cap

Natural cover

Top soil

Waste packages

50 m

Shallow Land Disposal (SLD)

Near surface trenches for LLW

Typical near surface trench

6m

3m

1.5m

3m

X m

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VAALPUTS WASTE INVENTORY

• Design capacity- 500 000 metal waste packages- 50 000 concrete waste packages

• Metal waste packages- 14 699 disposed of (3% of capacity)

• Concrete waste packages- 3 769 disposed of (8% of total capacity)

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Types of Waste:Only Solid / Solidified Radioactive

WasteLLW in metal containers

LLW in concretecontainers

Spent fuel racks

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RECEIVING WASTE

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Building Stakeholder Confidence at Vaalputs:a Case Study

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Nuclear (waste) is an Emotional Issue…

• In nuclear (waste) business, people’s perceptions are driven by their fears.

• Fears caused by memories/perceptions of:– Nuclear bomb explosions– Nuclear reactor accidents– Health effects associated Cancer Genetic birth effects

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Meriting Trust & Stakeholder Participation

“The disposal strategy and concept is technically sound, however societal acceptance is at best non-existent”

Canadian Regulatory committee 1986

“The greatest single obstacle that a successful waste management programme must overcome is the severe erosion of public confidence”

US Office of Technology Assessment 1982

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Meriting Stakeholder Participation and Communication

“The disposal strategy and concept is technically sound, however societal acceptance is at best non-existent”

Canadian Regulatory committee 1986

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Communications Pre-1994

• The nuclear operating license was obtained with no or limited public participation

• No requirement by law for public participation

• Vaalputs Communication Forum (VCF) was originally created as a public forum for discussing community related issues.

• During the VCF’s earlier years most of the communication took place between Necsa and its immediate neighbours – the sheep farmers - who attended meetings on an intermittent basis.

• Farming related issues like control of vermin were the top Agenda items!!!

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Communications Post-1994

Landscape pertaining to public participation and communication have dramatically and drastically changed directly after the first democratic election was held

Public participation &Communications are now legal requirements!!!

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Communications Post-1994

• Legal requirements: Need to involve interested and affected parties in EIA and licensing processes.

• Regulatory requirements: NNR Act requires establishment of Public Safety Information Forum

• Policy requirements: Government policies & strategies.

• Ethical requirements: Need for transparency, openness, accountable actions & decisions and respect for values & beliefs

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Stakeholder Confidence Post-1994

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Heighten levels of community opposition against the disposal of radwaste at Vaalputs

Not in my backyard syndromePublic demanded shutdown of facility

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Paradigm Shift

Pre 1994

Post 1994

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Strategic Objective

Transforming the Vaalputs Communication Forum (VCF) into a Multi-Stakeholder Public Communication and Information Forum to strengthen and deepen stakeholder confidence and acceptance.

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Stakeholder Philosophy

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• Acknowledges that each Stakeholder grouping has it own set of values, beliefs, needs, goals and objectives, which may differ from those of the organization.

• Ensure open, transparent two-way Stakeholder communication

• Ensure the diversity and inclusivity of stakeholder base

• Building stakeholder leverage through Corporate Social Investments programs

• Investments in research surveys, media monitoring & environmental scanning to ensure the organisation remains attuned to its Stakeholder needs, perceptions and misconceptions.

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Multi-stakeholder Forum• Department of Energy, Dept of Environmental Affairs, Dept of

Water Affairs• Northern Cape Provincial Government• Mayors of the Local Municipalities (Richtersveld, Kamiesberg &

Namakhio)• Local Councilors• Eskom, Koeberg, iThemba Labs• National Nuclear Regulator• Media• Namaqualand Action Group for Environmental Justice• EarthLife Africa (ELA)• Vaalputs Employees• Namaqualand Communities• Agricultural Association (Kliprand Agricultural Union)• Trade Unions (NUM)

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Multi-stakeholder Forum Meetings

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Communication – Yeas

• Listen to view points and objections• Put yourself in their position – understand

their concerns• Answer questions directly and concisely• Talk in layman’s terms• Provide a way to follow up on issues that

cannot be resolved immediately• Bring in the expertise needed to develop a

communications program• Minimize formal presentations & speeches

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Communication – Neas

• Don’t be judgmental• Attack those with higher credibility• Repeat negative statements• Say “I know how you feel”• Overreact to emotional outbursts• Use acronyms or jargon• Speculate about what you do not know• Try to turn everyone into an expert in your

subject

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Communication Tools

• Word of mouth

• Word of mouse

• Printed Media

• Electronic media

• Social Networks

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Communications…

…Can Help Dispel Myths

CONFIDENCE BUILDING

INITIATIVES

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Demonstrate Technical Competence

• Full disclosure of facility operational compliance• Disseminate information on Nuclear safety,

Radiation & nuclear related matters, including but not limited to nuclear incidents and accidents

• Conduct regular third party verification audits• Invite stakeholders to third party verification

audits as observers• Investment in R&D activities

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EMBRACING BEST PRACTICES

ISO 9001 ACCREDITATION ISO 14001 ACCREDITATION

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BUILDING STAKEHOLDER CAPACITY

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BUILDING STAKEHOLDER CAPACITY

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NUCLEAR SCIENCE &TECHNOLOGY EDUCATION PROGRAMME

Outreach Programs

• National Science Week

• Brochures & Posters

• Tours & Visit• Science and Math

Educator

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CSI Programme

Embraces issues of “Social Development” in terms of empowerment in:

• Developing SMME’s

• Localization of employment opportunities

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Key Learnings

• Demonstrating technical competence and regulatory compliance are not enough to instill stakeholder confidence

• Accommodate divergent values and beliefs equally, considering them all when making decisions

• Empower your stakeholders with the necessary knowledge to enable them to participate in decision making process in an informed manner

• You can successfully addressed negative public perceptions by creating a multi-stakeholder platform for dialogue and collaborative problem-solving.

• These platforms catalyzed innovation, built trust, reduced conflict and created the conditions necessary for building sustainable, mutually beneficial long term stakeholder relationships

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Concluding Remarks

• Biggest challenge of any radwaste management related activity is to ensure societal and political acceptance

• Advancement of enhanced stakeholder participation and corporate transparency goes hand in glove

• Demonstrating technical competence and safe operations are key parts of building stakeholder confidence, however its not enough to ensure stakeholder acceptability.

• Stakeholder confidence building strategies and policies must take into account cultural diversities.

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To Ensure Societal and Political Acceptance…

Make communication, public participation and stakeholder engagement

Part of your Radwaste Management DNA !!!

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Thank You!!!

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