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SAFEGUARDS PERSPECTIVES
James A. CastertonCanadian Nuclear Safety Commission
WNU Summer InstituteAugust, 2008
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OverviewOverview
Safeguards in Canada: Past, Present & Future
Safeguards Challenges
Conclusions
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Safeguards in CanadaSafeguards in Canada
The Policy Framework
Longstanding commitment to peaceful useStrong support for effective nuclear non-proliferation regimeEmphasis on cooperation & transparency
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Safeguards in CanadaSafeguards in Canada
The Legal Framework
Atomic Energy Control Act, 1946Nuclear Safety and Control Act, 2000
Health, Safety, Security, Environment
InternationalCommitments
Nuclear Regulation
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Safeguards in CanadaSafeguards in Canada
Fuel Cycle Characteristics
Uranium Mining & MillingRefining & ConversionFuel FabricationNuclear Power ReactorsResearch ReactorsSpent Fuel StorageR&D
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The Canadian Fuel Cycle
Uranium Miningand Milling
U3O8
Uranium Refining
UO3
Uranium Conversion UraniumFuel Fabrication
Power Reactors
UO2
UFuel
Research and Development
DSCs
Wet Storage
Spent Fuel in Wet Storage
Spent Fuel In Dry Storage
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Safeguards: Where in Canada?
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The Early YearsThe Early Years
Focus on Effective Safeguards Approaches
C/S system for powerreactors
Closed-circuit TVSealsYes/No monitorsBundle counters
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The Early YearsThe Early Years
Promote Safeguards Efficiency
AECB/IAEA pursuit of alternative safeguards approaches
1980’s: Developed, tested & implemented the zone approach for natural uranium1990’s: Development & testing of
unannounced inspections (ATAP)real-time reporting conceptremote monitoring capability
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Current ExperienceCurrent Experience
Implementing strengthened safeguards
Additional Protocol signed in 1998, in force in 2000Broad conclusion attained in 2005
Moving towards State-level integrated safeguards
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Current ExperienceCurrent Experience
Implementing Strengthened SafeguardsObjectives:
Attain/Maintain broad safeguards conclusionHigh level of confidence in Canada’s compliance with peaceful use commitments
Optimize safeguards implementation through State-level integrated safeguards approach
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Current ExperienceCurrent Experience
Attaining Broad ConclusionChallenges
Activities pre-dating safeguards agreementPolicy change on starting point of safeguards
Required close IAEA/CNSC/Industry cooperation
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Current ExperienceCurrent Experience
Moving towards State-level ISConsultations mechanisms
IAEA
CNSC
INDUSTRY
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Current ExperienceCurrent Experience
Phasing-in approachAgreed prioritiesAvailable resources
Transfers of spent fuel to dry storage
Moving towards State-level IS384 bundles
4 modules70 tonnes full
60 tonnes empty
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Into the FutureInto the Future
Implementation of State-level IS approachCurrent Implementation
Research reactors, static dry storages, LOFsDry storage transfers of spent fuel at multi-unit stations
Under DevelopmentProcedures for natural uranium processing facilities (refining, conversion, fuel fabrication, fresh fuel storageProcedures for multi-unit power reactors, transfers of spent fuel to dry storage at single-unit power reactorsChalk River Nuclear Laboratories
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Into the FutureInto the Future
Maintaining the broad conclusion
Successful implementation of Canada/IAEA Safeguards Agreements
Meeting reporting requirementsFacilitating inspector access
Ensuring appropriate regulatory oversightEffectiveness of the SSAC
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Into the FutureInto the Future
Addressing industry developments
Refurbishment of power reactors
Nuclear renaissanceNew power reactorsNew supporting infrastructure (e.g. new mines)
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Safeguards in Canada: ConclusionSafeguards in Canada: Conclusion
Canada and the IAEA have had a long history of working together to facilitate effective safeguards in Canada, efficiently implementedEffective interactions between industry, SSAC and the IAEA are keyOpenness, transparency are required for the IAEA to do its job – provide credible conclusions
Commitment, Communication & Cooperation
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Safeguards Challenges
“This global challenge (viz. the proliferation of weapons of mass destruction and their means of delivery) requires a multifaceted solution….We have a range of tools available to tackle this threat…While all of these instruments are necessary, none is sufficient by itself. Not all proliferation challenges require the same remedies. We need to deploy the tools which are most effective in each case…”
G8 Declaration, Evian Summit
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Safeguards ChallengesSafeguards Challenges
The Global ContextRecognition/Relevance ChallengesImplementation Challenges
20/20 and Beyond
Conclusions
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Safeguards ChallengesSafeguards Challenges
The Global ContextRecognition/Relevance Challenges
Current EnvironmentThreats to the Nuclear Non-proliferation Regime (DPRK, Iraq, Iran)Debate on Multilateral Institutions as appropriate mechanisms for prevention or responseCriticism of the Agency’s Safeguards System
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Safeguards Challenges
VerificationCommitment
NON-PROLIFERATION REGIME
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Safeguards ChallengesSafeguards Challenges
The Global ContextChallengesTo continue to foster an enhanced understanding of the IAEA’s mandate
Role and value of Agency’s safeguardsReporting on Safeguards Implementation (SIR)
To promote maximum commitmentAP as the norm
To deal appropriately with non-complianceCurrent Iranian situation
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Safeguards ChallengesSafeguards Challenges
The Global ContextImplementation Challenges
To ensure that safeguards efforts are appropriately focused To maximize the potential of the APTo develop and implement State-level IS approaches
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SAFEGUARDS CHALLENGES
Focused Safeguards Effort
Focus verification activities where they are needed most (materials, situations)
DifferentiationAdaptability
Appropriate balance betweenQuantitative and Qualitative
The Global Context
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IAEA Verification Effort
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IAEA Verification Effort
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Safeguards ChallengesSafeguards Challenges
The Global ContextImplementation Challenges
Maximizing the potential of the Additional Protocol
Increased commitment + increased access + increased information = basis for credible assuranceValue of credible assurance?Effectiveness/efficiency
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Safeguards ChallengesSafeguards Challenges
The Global ContextImplementation Issues
Develop & implement State-level IS approachesGreatest potential for optimizationElaboration of State-level considerations and incorporation into IS approachesAppropriate balance between quantitative analysis and qualitative considerations
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Safeguards ChallengesSafeguards Challenges
The Global ContextImplementation Issues
Expert judgment
State EvaluationInformation gatheringInformation analysis
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Safeguards ChallengesSafeguards Challenges
20/20 and BeyondVision 20/20
IAEA Secretariat ExerciseWhat kind of IAEA will the world need?How can the IAEA fulfill that need?
Comprised of 3 elementsEnvironmental scanPrioritization of key areas of workConsideration of resource requirements
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Safeguards ChallengesSafeguards Challenges
20/20 and BeyondReport of Commission of Eminent PersonsEstablished by the IAEA DG
Examined the future role of the IAEASecretariat’s report provided some backgroundReviewed all areas of the IAEA’s Mandate
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Safeguards ChallengesSafeguards Challenges
20/20 and BeyondSafeguards Considerations
States should provide access to information, sites and people required to provide the necessary level of confidence in the IAEA’s safeguards conclusionsStates should provide the financial, technological and human resources necessary for the IAEA to carry out its missionThe IAEA should strengthen its safeguards culture and adopt new approaches to recruiting, training and retaining highly qualified personnel
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Safeguards ChallengesSafeguards Challenges
20/20 and BeyondSafeguards Areas of Interest
Fostering greater transparency by States – Additional Protocol PlusSearch for indicators of weaponisationAlignment of safeguards, nonproliferation and physical protection measures – Generation IV, Global Nuclear Energy PartnershipEnhanced role for IAEA in disarmament field – verification of fissile materials cutoff, monitoring excess nuclear materials
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Safeguards ChallengesSafeguards Challenges
CONCLUSIONS• There are many challenges to address on
several levels• There is recognition of the challenges and
considerable groundwork has been laid• There is a history of working together (IAEA
Secretariat, SAGSI, Member States)
Technical leadership, vision, political commitment and a cooperative spirit will transform challenges into opportunities