Public Information, Consultation and Involvement in Radioactive Waste Management A review of history, issues, and approaches from an NEA perspective. Claudio Pescatore, Claire Mays [email protected] PIME, Barcelona, 10 February, 2004. Outline of the presentation. - PowerPoint PPT Presentation
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Public Information, Consultation Public Information, Consultation and Involvement in Radioactive and Involvement in Radioactive Waste Management Waste Management A review of history, issues, and approaches A review of history, issues, and approaches from an NEA perspective from an NEA perspective Claudio Pescatore, Claire Mays Claudio Pescatore, Claire Mays [email protected][email protected]PIME, Barcelona, 10 February, 2004 PIME, Barcelona, 10 February, 2004
Transcript
Public Information, Consultation and Public Information, Consultation and
Involvement in Radioactive Waste Involvement in Radioactive Waste Management Management
A review of history, issues, and approaches A review of history, issues, and approaches from an NEA perspectivefrom an NEA perspective
Outline of the presentationOutline of the presentation
Stakeholder activities have been ongoing at the NEA at least since the early 90’s.
Pre-FSC work at the NEA (1990-1999) First phase 1990-1995 Second phase 1995-2000
FSC work (2000 - ongoing)
FSC = Forum on Stakeholder Confidence
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1990-1995 activities
… responded to a wish to increase the
understanding by decision-makers regarding issues of public information and public participation.
Four major workshops: Public information on Nuclear Energy (1991) Public Participation in Nuclear Decision-Making
(1992) Informing Parliamentarians on Nuclear Energy (1994) Informing the Public About RWM (1995)
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Informing the Public About RWM (1995)
“Social and ethical issues are at least as important as technical issues” There is a difficult balancing problem to be resolved between local ethical desirables and national ethical imperatives.
“We must include the economic dimension in our communication programmes, including setting out the funding methods that will ensure that costs will be met when they are incurred, which may well be far in the future.”
“Public involvement, at the earliest possible stage, is perhaps the most vital requirement, although it will not necessarily be enough. The public deserves and should have our respect. We cannot expect their trust if we do not trust them. Without them we are lost.”
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Collective Opinion of 1995Collective Opinion of 1995
The RWM community had been taking up the issue of ethics
The C.O. of 1995 concluded that:
geologic disposal meets the ethical imperatives
“stepwise implementation of plans for geologic disposal leaves open the possibility of adaptation, in the light of scientific progress and social acceptability, over several decades, and does not exclude the possibility that other options could be developed at a later stage”
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Through 1995 ...Through 1995 ...
Public relations and communication folks had raised the non-technical issues to the technical decision makers
... the RWM community started by taking up the ethical aspects but not the social aspects, although these were understood to be pivotal.
The need to take up social issues re-enforced in 1996 and 1997 by the demise of the Canadian programme - one of the major
findings was that “social safety” had not been demonstrated –
plus difficulties in other national programmes
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(1988-2000)(1988-2000)10-YEAR STUDY10-YEAR STUDY
Most organisations saw it as their duty to reach out
Even where there was no strong constraint on institutions to consult with the public, the tendency was seen to be seeking a dialogue
The means that had been used to build a dialogue had not been successful, which argued “for increased attention to be devoted by the (RWM) community to the issues involved, even if these issues do not strictly fall with traditional areas of science and engineering”
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(1988-2000)(1988-2000)10-YEAR STUDY10-YEAR STUDY
“Where respondents to the NEA questionnaire did cite national requirements for progressing repository programmes, the emphasis was on policy and organisational aspects, and the mechanisms for public acceptance of current technical solutions, rather than development of improved technical solutions”.
Major needed development:– Clear procedures for staged siting studies and repository
development, and methods for communicating effectively and for gaining public acceptance in the stepwise development of appropriate national solutions
Stakeholder issues become part of the RWMC strategic areas
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Over 5 years ...Over 5 years ...
Many important conclusions: Societal aspects are pivotal; adaptation; stepwise development; involve public at early stage; communication beyond technical aspects
… shift to active role of RWM institutions, but still a lot had to be learnt
… learning needs to be done “in the field” besides from closed-access workshops
Launching of the FSC initiative (2000 - ongoing)
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FORUM ON STAKEHOLDER FORUM ON STAKEHOLDER CONFIDENCE (FSC)CONFIDENCE (FSC)
Initiative to improve understanding of the principles Initiative to improve understanding of the principles of stakeholder interaction and public participation in of stakeholder interaction and public participation in decision-making related to radioactive waste decision-making related to radioactive waste managementmanagement
A wider representation of civil society is obtained A wider representation of civil society is obtained through workshops held in national contexts, through workshops held in national contexts, including national and local stakeholders.including national and local stakeholders.
Not everybody can be invited all the time as we move Not everybody can be invited all the time as we move from nation to nation, but a relationship can be from nation to nation, but a relationship can be maintained with all participants and with other maintained with all participants and with other organisations/individuals that wish to be kept abreastorganisations/individuals that wish to be kept abreast
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MAIN EXPECTATIONS OF PHASE - 1MAIN EXPECTATIONS OF PHASE - 1MAIN EXPECTATIONS OF PHASE - 1MAIN EXPECTATIONS OF PHASE - 1
To improve ourselvesTo improve ourselves
Create an atmosphere of trust for the discussion of Create an atmosphere of trust for the discussion of issues. Document these discussionsissues. Document these discussions
Create a working environment conducive to tangible Create a working environment conducive to tangible results, e,g., to produce advice that strengthens results, e,g., to produce advice that strengthens confidence in decision-making processesconfidence in decision-making processes
Produce, in later stage, a widely agreed upon Produce, in later stage, a widely agreed upon document on the principles, implications, practices, and document on the principles, implications, practices, and issues in involving technical and non-technical issues in involving technical and non-technical stakeholders in long-term waste-management projectsstakeholders in long-term waste-management projects
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AUGUST 2000 FSC WORKSHOP; AUGUST 2000 FSC WORKSHOP; INTERNATIONAL SURVEYINTERNATIONAL SURVEY
Two parallel initiatives to scope the workTwo parallel initiatives to scope the work Two publications available todayTwo publications available today
TR U ST
AND I NST I T U T I O NAL FRAM EW O RKS
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1 4 5
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STAKEH O LD ER S AN D PU B LI C
D I ALO G U E D YN AM I CS
CH AN G I N G EN V I R O N M EN T
H O W C AN I N STI TU TI O N S
AD APT? N EW N EW
SO LU T I O N S SO LU T I O N S
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WORKSHOP THEMES AND LEARNING - 1WORKSHOP THEMES AND LEARNING - 1
Changing environmentChanging environment Technology is no longer perceived as the bright futureTechnology is no longer perceived as the bright future
Stronger involvement of local authoritiesStronger involvement of local authorities
Projects not trusted and possibly rejected when stakeholders Projects not trusted and possibly rejected when stakeholders have not been actively involved have not been actively involved
Dynamics of dialogueDynamics of dialogue The technical side is no longer of unique importance : ability The technical side is no longer of unique importance : ability
to communicate, to negotiate and to adapt is necessaryto communicate, to negotiate and to adapt is necessary
Need to "engage, interact and co-operate” rather than Need to "engage, interact and co-operate” rather than "decide, announce, defend""decide, announce, defend"
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WORKSHOP THEMES AND LEARNING - 2WORKSHOP THEMES AND LEARNING - 2
Institutions must adaptInstitutions must adapt. . A list of relevant features :A list of relevant features :
Organisational features : clarity of role position, Organisational features : clarity of role position, dedicated sufficient funding, learning capacity, ethical dedicated sufficient funding, learning capacity, ethical behaviour …behaviour …
Mission features : clear mandate and goals, a grounded Mission features : clear mandate and goals, a grounded identity…identity…
Behavioural features : openness, willingness to be Behavioural features : openness, willingness to be "stretched", freedom from arrogance, recognition of "stretched", freedom from arrogance, recognition of limits, proactive practices...limits, proactive practices...
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WORKSHOP THEMES AND LEARNING - 3WORKSHOP THEMES AND LEARNING - 3
The stakeholderThe stakeholder : : anybody with an interest or role to playanybody with an interest or role to play
Major issues : Major issues : the interactions amongst groups and their respective the interactions amongst groups and their respective
rolesroles
stakeholders change with timestakeholders change with time
TrustTrust : : implies that an individual is willing to give up a implies that an individual is willing to give up a certain measure of control to another person. Trust must be certain measure of control to another person. Trust must be given in order to make it possible to receive it.given in order to make it possible to receive it.
Oversight and an active role of governments and regulators Oversight and an active role of governments and regulators contribute to keep up trust.contribute to keep up trust.
Waste retrievability and programme reversibility alleviate Waste retrievability and programme reversibility alleviate mistrust of technology, and help in decision making.mistrust of technology, and help in decision making...
Factual reports on the situations in which RWM institutions engaged with the public
The methods and efforts invested The results: successes and failures A selection of outstanding observations on which
the FSC will reflect further…– There is legislation for involving stakeholders– Environmental Impact Assessment: a decision and
planning tool becomes a vehicle for public participation– Engaging with the public has profound impacts on the
image and role of RWM players [and produces insight on changes needed inside and outside their institutions]
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Legislation is in place to support engagement with stakeholders in RWM
Requirements on national and international level reflect growing awareness of the need to involve public in environmental and long-term decision making
These frameworks furnish legitimacy but cannot furnish methods and guidance for every situation. To some extent these are still experimental tools (e.g., the EIA in Europe...)
Forms of participatory democracy are something recent in our societies.
Engaging with stakeholders implies not only new procedures but also:– More clarity in roles across the board– Change in mentality– New skills and resources– Partnership arrangements
RWM institutions need to encounter their public Needed: multi-partner forums for examining and
deciding on complex topics with technical and societal, national and local dimensions
Such arrangements are being created or realised with or without – a legislative frame – financial provisions and assistance to communities
A challenge to traditional, representative democracy and expert delegation
Stretches traditional, typical public relations or community relations approaches
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EIA: MECHANISM AND OPPORTUNITY EIA: MECHANISM AND OPPORTUNITY FOR PUBLIC PARTICIPATIONFOR PUBLIC PARTICIPATION
Difficult to mobilise persons when RWM issues remain general; only when issues become local (siting) does public participation kick in– in a positive or negative manner
People want to talk of more than just technical aspects. EIA is originally a “technical” assessment: – It may not be a good vehicle when pressed into service to
evaluate social or ethical aspects. – Current developments in the areas of Strategic EIA, Social
Impact Assessments, and Ethical Assessments. Need to explain, distinguish the role and function of EIA. Traditional “written comment” format does not always
allow the public to become engaged. New formats, new bodies, invented to fill in the gaps.
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EVOLVING ROLE AND IMAGE of EVOLVING ROLE AND IMAGE of REGULATORREGULATOR
Some players, like the regulator, are emerging in a new light and pressed into new role
Higher visibility – by societal demand and by choice
“Peoples’ Expert” , Guarantor of Safety Educational and confidence-building role Need for neutrality and transparency
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ON-SITE LEARNINGON-SITE LEARNING Finland Workshop (2001) Finland Workshop (2001)
Strong example and inspiration for use of Environmental Impact Strong example and inspiration for use of Environmental Impact Assessment tool and for Stepwise Approach to Decision Making Assessment tool and for Stepwise Approach to Decision Making
Role of the regulator as “defender” of people’s healthRole of the regulator as “defender” of people’s health
The municipality right of veto is a confidence factor The municipality right of veto is a confidence factor
Confirmation that important commonalities exist across diverse Confirmation that important commonalities exist across diverse cultural settings.cultural settings.
The important role of local communities and municipalities; the The important role of local communities and municipalities; the special place of nuclear municipalitiesspecial place of nuclear municipalities
The importance of at least an informal right of vetoThe importance of at least an informal right of veto
A different optimum may be reached when local aspirations are A different optimum may be reached when local aspirations are taken into account when considering technical solutionstaken into account when considering technical solutions
The importance to have a legal framework for negotiation and The importance to have a legal framework for negotiation and reaching decisions reaching decisions
The importance to have a (government) body that is active in The importance to have a (government) body that is active in driving the process of dialogue towards taking a decisiondriving the process of dialogue towards taking a decision
The large, positive experience of performing EIAs and SIAs in The large, positive experience of performing EIAs and SIAs in CanadaCanada
Innovation of ethical assessmentInnovation of ethical assessment
A working model for multi-actor, long-lasting study group A working model for multi-actor, long-lasting study group partnerships – set up informallypartnerships – set up informally
High determination and mobilisation of local persons who High determination and mobilisation of local persons who deliberate on aspects of facility safety, method, design, and deliberate on aspects of facility safety, method, design, and integration into an economic and social contextintegration into an economic and social context
Implementer is a peer member of the study groupsImplementer is a peer member of the study groups
Impact on implementer’s own organisation and mentalityImpact on implementer’s own organisation and mentality
Will to follow up the facility project through subsequent phasesWill to follow up the facility project through subsequent phases
Need for regulator to take its place in national constellationNeed for regulator to take its place in national constellation
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MAKING LEARNING SYSTEMATICMAKING LEARNING SYSTEMATIC
The FSC notices that all issues and situations encountered raise questions about POLICY – PROCESS – STAKEHOLDER INVOLVEMENT – ORGANISATIONAL ADAPTATION
Reflection on how to integrate these levels in – A context of mutual learning within the FSC– An orderly forward progression towards safe and
secure management of wastes in the societal context
Stepwise Decision Making project
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Why Stepwise Why Stepwise Decision Making ?Decision Making ?
A decision is made of many sub-decisions In long-term radioactive waste management:
there will many decisions, progress will be made in steps, and there will be many opportunities for stakeholders to
influence the path of development.
““What are the steps?” What are the steps?” seems to be the wrong seems to be the wrong questionquestion
““How do we approach decision making ? On what How do we approach decision making ? On what basis?” basis?” seem better-posed questionsseem better-posed questions
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Three general principles ...Three general principles ...
Decision-making should be performed through iterative processes, providing the flexibility to adapt to contextual changes, e.g., by implementing stepwise approach that assures sufficient time for developing a competent and fair discourse
Social learning should be facilitated, e.g., by promoting interaction between the various stakeholders and the experts
Public involvement in decision-making processes should be facilitated, e.g., promote constructive and high-quality communication between individuals with different knowledge, beliefs, interests, values, and worldviews
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… … the aim being the aim being
To increase familiarity and control by the stakeholders
Trust and confidence in the institutional actors
Increased legitimacy and supportability of the decision
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Ideally, for RWM, these principles ought to be Ideally, for RWM, these principles ought to be applied in 4 governance areas: the national applied in 4 governance areas: the national
systems ofsystems of
Energy production responsible for decisions on nuclear power/industry
Radioactive waste management responsible for the strategic directions on how waste is to be
managed Waste facility siting
responsible for identifying a site, as well as benefits/compensation packages and oversight schemes for communities
Implementation of decisions responsible for keeping to the process that was entered into,
including decisions on facility construction, operation, monitoring, and potential closure
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Action GoalsAction Goals
Energy production Openly debating of national policy on energy production, the future of nuclear energy, and the impact of RWM;
Radioactive waste management. Change to status quo is needed; define scope and end-points; define technically and societally acceptable WM approach;
Waste facility siting. Identifying one or more technically suitable sites where acceptability is possible; tailor-made community benefit packages and community oversight schemes;
Implementation of decisions. Keep to the process that was entered into, including decisions on facility construction, operation, monitoring, and potential closure.
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Conclusions… Conclusions…
A more complex interaction is now taking place at national, regional, and especially at local levels
A more realistic understanding of decision making, in steps, involving a range of actors is emerging
Positive outputs of the FSC : a forum for mutual exchanges, mutual respect and learning
a unique standing forum where technicians, civil servants, social scientists and other stakeholders can interact
promote cultural changes in, and stimulate new approaches by, participating organisations
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Publications Publications for download or purchasefor download or purchase
August 2000 Workshop Inform, Consult, Involve Stakeholders (E & F) Evolving Role and Image of Regulator (E & F) Proceedings: Finland, Canada Workshops Stepwise Decision Making (conference
