Oral statement by David Miliband in response to the Committee on Radioactive Waste Management's report - Wednesday 25 October 2006
With your permission, Mr. Speaker, I would like to make a statement on the report of the Committee on Radioactive Waste Management—CoRWM—which was published on 31 July. Similar statements are being made in the Scottish Parliament and Welsh Assembly. On behalf of the whole House, I thank the chair of the committee, Gordon MacKerron, and its members, for the outstanding effort that they put in to arrive at their unanimous report.
The issue of nuclear waste disposal has dogged successive Governments. CoRWM was asked to recommend the best option, or combination of options, for the long-term management of the United Kingdom’s higher activity radioactive wastes, which provides protection for people and the environment. The Government believe that the CoRWM report provides a very strong basis for moving forward with clarity and consensus. We accept CoRWM’s recommendations that the UK’s higher activity waste should be managed in the long term through geological disposal, as well as the continuing need for safe and secure interim storage until geological disposal is available. We also agree with CoRWM that we must continue to build on the momentum that it has helped to establish.
As CoRWM’s report observes, geological disposal is the approach that is being adopted in many countries, including Belgium, France, Finland, Germany, Japan, Sweden, Switzerland and the United States. Nevertheless, securing geological disposal represents a major challenge that will require a commitment over many decades. We accept CoRWM’s recommendation that the process for developing a geological disposal option should be undertaken on a staged basis, with clear decision points. That will allow Government to review progress and to assess costs, value for money and environmental impact before decisions are taken to move to the next stage.
Planning and development of the geological disposal option must be based on four key pillars: a strong and effective implementing organisation, with clear responsibilities and accountabilities; strong independent regulation by the statutory regulators—the Health and Safety Executive, the environment agencies and the Office for Civil Nuclear Security; independent scrutiny and advice to Government on implementation; and a partnership with the host community.
The CoRWM report observes that the safe and secure storage of civil legacy radioactive wastes already falls within the remit of the Nuclear Decommissioning Authority, which was established under the Energy Act 2004. The NDA also has responsibility in its current remit for low-level radioactive waste. We have decided that responsibility for securing geological disposal of higher activity waste should also fall to the NDA, so as to create one organisation that is able to take a strategic view through all stages of the waste management chain, and that is clearly and transparently accountable to independent regulators and Government.
The NDA is already subject to statutory safety and environmental protection and security obligations under the Energy Act 2004, and its contractors are subject to regulation by the environment agencies, the HSE and the Office for Civil Nuclear Security. Its strategy and annual plans are subject to approval by Government. We will ensure that, in future, the longer-term radioactive waste management interests of Government are appropriately represented in the NDA’s strategy and that it has governance arrangements to reflect its increased responsibilities.
Nirex has played an important role in maintaining and developing the UK's knowledge on geological disposal, including the provision of advice to industry on waste conditioning and packaging, since the demise of its geological disposal development programme in 1997. My right hon. Friend the Secretary of State for Trade and Industry and I, as joint shareholders in Nirex, are grateful to the successive chairs and the board for their hard work, and, of course, to the expert staff involved. None the less, the Government believe that having two organisations on the same playing field with potentially overlapping responsibilities would confuse and blur accountability. Instead, we are determined to harness the skill and commitment of the staff involved within the NDA.
Following today’s statement, we shall allow Nirex a short period to comment on the proposed ownership transfer and how it could best be brought about. The independent environment and nuclear safety regulators believe that the proposal will provide a framework that they can regulate strongly and effectively. They are content that the NDA will be responsible for implementing the geological disposal programme, within the constitutional arrangements that I described earlier. The regulators’ support is critical, as strong independent regulation is key to ensuring the safety of people and the environment and securing confidence and trust in the delivery arrangements.
On the third key pillar of our approach, we remain committed to the independent advice that CoRWM has pioneered so well. Accordingly, a successor to the independent committee will be appointed to give continuing advice on the plans for long-term management of radioactive waste.
CoRWM has set the standards for open and transparent advice that takes into account not only the best available scientific and other expert input, but the views of the public and stakeholders. It has also built up support and—perhaps surprisingly, given a name that does not exactly trip off the tongue—brand recognition. The new committee will therefore maintain the current name, but its membership will be reconstituted to reflect its role in the next stage of the “Managing Radioactive Waste Safely” programme. The committee will be sponsored by the Department for Environment, Food and Rural Affairs, the DTI and the devolved Administrations.
The committee’s primary functions will be to advise on the implementation of a geological disposal programme, including considering the strategy and delivery plans and the site selection process. It will make its advice available to the UK Parliament, the Scottish Parliament and the National Assembly for Wales, as has been done by CoRWM.
The circumstances surrounding the long-term disposal of higher activity radioactive waste are unique. We have made it clear that we are not seeking to impose radioactive waste on any community. In that context, we strongly support exploring the concept of voluntarism and partnership, as described by CoRWM, with the local authorities serving communities that might be affected. As CoRWM recognises, there is a need to consider further how such arrangements will work in practice. Accordingly, we will look to develop further an approach that includes: the stages and decision points; how communities would be involved; the role of democratically elected bodies locally; and the potential for involvement and community packages as suggested by CoRWM.
Disposal facilities will be built only in a geologically suitable area, and we will also consider how geological and scientific considerations will be meshed with other societal considerations as, for a successful programme, all the criteria will need to be met. I invite any local authority—or group of local authorities—that wishes to be involved in those discussions to contact me, the Minister for Climate Change and the Environment, or my officials directly. Similar invitations are being extended by my colleagues in the devolved Administrations.
It must be stressed that any future facility-siting process will be a wholly new process, divorced from the historical Nirex process. Lessons have been learned from that. We are also determined that the new approach will be carried out from the beginning in an open and transparent way, with appropriate opportunity for public and stakeholder, as well as expert, involvement. In light of that further work, the Government will produce an implementation framework and publish it for consultation as soon as possible next year.
This announcement and the more detailed response that I am publishing today—copies of which have been placed in the Library—complete stage 2 of the “Managing Radioactive Waste Safely” programme. We are now entering stage 3: planning for implementation. We aim to be able to move to stage 4—the final implementation stage—in 2008, and we are confident that the sharing of information and viewpoints, and the transparency of the CoRWM process, will have been maintained.
The CoRWM report states:
“For over three decades, efforts to find solutions to the problem of long-term radioactive waste management in the UK have failed.”
Governments of all parties have struggled to develop a long-term approach to the problem that is founded on science and then driven by openness and transparency. I believe that the content of my statement today combines scientific rigour with clear accountability, and I commend it to the House.
Further information
Page published: 25 October 2006