SKB license application show serious shortcomings
In March 2011, the Swedish Nuclear Fuel and Waste Management Company, SKB, submitted an application to build a repository for spent nuclear fuel near the nuclear power plant at Forsmark, about 160 km up the coast from Stockholm. In accordance with Swedish law the application was circulated for comment among all the institutions and organizations that have participated in the Environmental Impact Assessment consultations. Comments were to focus on perceived gaps in SKB’s environmental impact statement. The deadline for comment was 1 June 2012.
Several parties to the consultations note serious shortcomings in the application and the environmental impact statement (EIS). They include the two national level environmental groups who have taken part in the consultations, namely, the Swedish Society for Nature Conservation, SSNC, with its sister organization The Swedish NGO Office for Nuclear Waste Review, MKG, and Milkas, representing the Swedish Anti-Nuclear Movement and Friends of the Earth Sweden.
SKB's license application will now be processed through two parallel reviews in the Swedish legal system: one performed by the Swedish Radiation Safety Authority (SSM), who will check the application’s compliance with current legislation in the radiation safety area, and the other performed by the Environmental Court, who will examine its compliance with the Environmental Code. SSM plays two parts in the pro-cess: it is a reviewing body in its own right, and it acts as a consultative body to the Environmental Court.
The initial phase, in which the need for amendments to the application is to be analysed, is common to both SSM‘s and the Court’s review. This first step of the licensing process is important, since it represents an opportunity for input of a broad range of opinions on the application through a national consultation process. When the present consultation process is ended, the Environmental Court and the SSM will proceed to review the application for as long as they find necessary and then determine what amendments are necessary. Only when the application is complete will the authority and the court start the main review process. If the court decides that the amendments are not satisfactory, the application may be rejected.
In the main review there will be a new consultation on the issues and there will be a hearing; thereafter the court and the regulator will submit their assessments of the application to the Swedish Government. The Government will then decide the final repository’s fate, either granting a license to SKB or rejecting the company’s application, taking due account of the recommendations of SSM and the Environmental Court.
Issues concerning longterm safety
SKB’s proposed method for final disposal of spent nuclear fuel is a KBS-3 repository, the longterm safety of which relies on artificial barriers of copper and clay. The 5 meter long fuel rods are to be put in a total of 6,000 canisters made out of copper, which are to be depo-sited in shallow boreholes about 500 m down in the Forsmark bedrock. The boreholes and access tunnels are to be filled out with bentonite clay with the intention to keep the spent nuclear fuel encapsulated and separated from the biosphere for as long as the contents pose a hazard – in essence, for all time to come. The bentonite clay is supposed to protect the copper canisters from contact with groundwaterleading fissures in the surrounding bedrock. The main function of the clay is for it to swell when in contact with water, pretty much like cat litter does. Once saturated, it is expected to keep the canisters and the spent fuel shielded from their surroundings. SKB assures us that everything will be fine.
However, the organizations who participated in the EIA consultation process are of a different opinion. Particularly critical are, besides environmental organizations, the Swedish Environmental Agency, the municipalities of Östhammar and Oskarshamn, the Royal Institute of Technology, and Lund University.
The main critique presented in the SSNC’s and MKG’s consultation document is that the company’s application does not contain scientific evidence to support the claims for longterm safety of the repository. Copper corrosion, for example, is a problem that has not been sufficiently investigated by the company. In order for the bentonite clay to function as the intended isolator in the repository, a specific amount of water – not too much, not too little – needs to be present in the bedrock so that the bentonite will start swelling. If the clay does not get activated, which is a possible scenario in the relatively dry Forsmark bedrock, there is an imminent risk that the clay will be affected by the heat and radioactivity coming from the canisters and possibly erode. Given an eroded buffer, the canisters would be exposed to water seeping into the repository, which may corrode the copper canisters. The interplay between the copper and clay in a repository environment is another area that requires further investigation. In sum: It is not acceptable to build a repository that is supposed to be safe and protect humans and the environment from radioactive waste/pollution/toxicity for over 100,000 years, when so much research on such key issues is still lacking.
Milkas seconds the criticisms put forward by the SSNC and MKG. In addition, Milkas raises issues relating to the geological characteristics of the chosen site. A coastal site like that at Forsmark implies the risk that ground-water will readily spread any leakage from the repository into the Baltic Sea. In the longer term there is the problem of coming ice ages. The repository is to be installed in a tectonic lens – a body of crystalline granite in the midst of a shearing zone. Whereas the zone is stable at present, it may very likely be reactivated under the strains associated with glaciation. On the whole, SKB tends consistently to underestimate the seismic effects of glaciation. The installation of the repository in the lens, in itself, may impair the integrity of the lens, in which case the whole repository is at risk – perhaps even a good deal earlier than the next ice age.
Other concerns include an apparent inability on the part of the applicant to elaborate scenarios that challenge the success of the repository project. Both the Government and the regulatory body have pointed to this bias and called for such scenarios. None has been forthcoming. As a result, we are left to rely on assurances.
A good share of Milkas comments, addressed specifically to the Environmental Court, concerns procedural as well as substantive shortcomings in the EIA process and the EIS in relation to the requirements of the Environmental Code. In Milkas’ view, the applicant has effectively subverted the dialogic method that the Code envisages to ensure allround evaluation of major projects’ environmental consequences.
SSM's comments on the need for amendments are to be handed in to the Environmental Court by November 1. At the same time the Swedish Council for Nuclear Waste, a consultatory scientific board to the Swedish Government, will give their view. After that, correspondence between SKB and the various organizations who participated in the consultation process will take place in order to discuss the additional work to be required of the company. The Court’s determination on the issue of amendments is expected at the end of 2013, at the earliest. The story continues…
Source and contact: Joanna Widstrand, former project assistant at MKG, the Swedish NGO Office for Nuclear Waste Review.
Tel: +4631-711 00 92