12 - Cantone -Stakeholders 20152015.radioactivewastemanagement.org/images... · technique will depend also on external factors : the phase of decision, the political and cultural

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Marie Claire CantoneUniversità degli Studi di Milano AIRP – Associazione Italiana Radioprotezione

Ispra, Italy 14-18 September 2015

th7 edition of the International Summer School

on Nuclear Decommissioning and Waste Management

Stakeholders’ Engagement

The social dimension plays an increasing role andthe technical field is now seen as responsive tosocietalconcern, morethanapure technical domain

scientific-technologicaldevelopment

Society

critical examination

enjoyable results

A great shift in societal expectation

M.C.Cantone, Int. Summer School, Ispra 14-18 Sept 2015

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Values enter into risk evaluation

What public is afraid of, reflects the commonvalues more than the real knowledge.

Personal behaviours and attitudes, with respectto a risk, are the response to societal, politicaland cultural factors.

The concept of risk involves a judgement on values.

“Risk is More than Just a Number”W.F.Passchier, W.C.Rey. Risk Health, Safety & Enviro nment ,1997 .


The perception and acceptability of theradiological risk from the public is contextrelated and different reactions result fromdifferent uses of ionizing radiations.

No universally agreed level of acceptabilityof a risk related to technological field, forexample “How clean is clean enough ?” inrelation to a contaminated area.

Values enter into risk evaluation


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Towards participatory forms of governance

DAD

Decide Announce Defend

New forms of governance, are characterised by the involvement of a potentially wide range of stakeholders and the consequently abandon of the top–down expert–led approaches.


DAD

Decide Announce Defend

Meet Understand Modify

MUM

Share Open Negoziate

SON

Towards participatory forms of governance


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First Villigen Workshop in 1998The Societal Aspects of Decision Making in

Complex Radiological Situations

“Radiological protection must adapt to meet the needs of society and not the reverse .”


They do not represent a threat to an expertdomain, but they are an opportunity for a betterrelationship between the field of RP and thewider society .

They allow decisions taken to be robust andsustainable and enjoying wider acceptance .

Public participation is a complex social process,often frustrating and time consuming, but apotent tool for good decisions and to overcomethe contentious.

Processes of stakeholder participation


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“It is hoped that this report willimprove awareness, amongstthose who are about to becomeresponsible for and involved indecommissioning projects, of therange of issues which may be ofconcern to stakeholders andapproaches that have been usedto reconcile them.“

A number of rights of the public arerecognised with regard to the environment(Aarhus Conventions 1998 )

Public authorities, at the national, regional orlocal level, must contribute to allow these rightsto become effective.


—The right of everyone to receive environmental information heldby public authorities, including information on the state of theenvironment, on policies or measures taken, or on the state o fhuman health and safety where this can be affected by the state ofthe environment. Public authorities are obliged to activelydisseminate environmental information in their possession.

—The right to participate from an early stage in environmentaldecision making. Arrangements need to be made by publicauthorities to enable citizens and environmental organizations tocomment on proposals for projects affecting the environment, orplans and programmes relating to the environment, with thesecomments taken into account in decisionmaking.

—The right to challenge, in a court of law, public decisions that havebeen made without respecting the two mentioned rights orenvironmental law in general.

Attention to the rights of the public (IAEA, 2009)


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Figure shows the complexity of stakeholder interact ion(BR-3 decommissioning project in Mol, Belgium )

IAEA, An overview of Stakeholder Involvement in Dec ommissioning, 2009


one who has a stake in something , an event, a concern, etc.who has something to gain or lose by , or to have an interest in.

individuals or organizations which may have an interest in theresults of an environmental decision or be affected by thatdecision.

IAEA Handbook on Nuclear Law 2003 - stakeholders typically included :● the regulated industry or professionals; ● scientific bodies;● governmental agencies, local, regional and national;● the media; ● the public (individuals, community groups and

interest groups); ● and other States.

OECD/NEA Forum on Stakeholder Confidence (FSC) - “stakeholder” as aconvenient label for any actor – institution, group or individual– with an interest or a role to play in the societal decisionmaking process.

Which definition of a STAKEHOLDER ?


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Stakeholder risk perception

Different stakeholders have different interestswith regard to nuclear activities (ND, RWM) butall stakeholders share an interest in protectingman and nature.

The great concern in the general public againstnuclear installations, especially disposalfacilities, seems to be based on mistrust injudgements of the authorities and only in part ofthe scientists.


Experiences in learning about perceptions haveshown that risk perception of the layman is quiteoften dominated by:

NEA, Public Information, Consultation and Involvement in Radioactive Waste Management, 2003

little knowledge about nuclear energy;severe accidents such as Chernobyl;nuclear weapons;the imperceptible nature of radioactivity: it cannot be seen, smelt or touched.

Stakeholder risk perception


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Different levels of stakeholder participationinvolvement are offered by different techniques.

From simply transmit information to a passiveaudience , to an empowerment of stakeholderswithin the decision making process.

FSC confirms the need to clarify the level ofinvolvement. It is important to be clear on whatissues reasonably can be influenced.

NEA, Stakeholder Involvement Techniques, 2004

The basis for the decision must be clearlyunderstood from the beginning of the process.

Which level of stakeholder involvement ?


Bottom-up, inclusive approaches for informationare likely to enhance the credibility of thedecision-making processes.

Among the effects of this approaches:substantive - concrete decision outcomes;procedural - modifications to the process.

In any case for appropriate stakeholdersinvolvement, a process is needed and not a“one-off” or “add-on” approach.

Which potential effects of stakeholders ?

NEA, Stakeholder Involvement Techniques, 2004


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No single method can attain a perfect score.

A number of different methods may be utilised as part ofone decision-making procedure(OECD/NEA 2002, Society and Nuclear Energy: Towards a Better Understanding )

Commonly used techniques include:● Public hearings ● Focus groups● Consultative groups ● Multi-actor policy workshops● Round tables ● Citizen task● Scenario workshop ● Consensus conferences● Citizens’ panels ● Local monitoring

Experience shows that the success of a particulartechnique will depend also on external factors : thephase of decision, the political and cultural context.

Is the choice of a technique for stakeholder involvement an art ?


Goals in stakeholder participation

Main societal goals are recognized :

incorporating public values into decision processes

increasing the quality of decisions

contributing to resolve conflicts among competing interests

building trust in institutions

educating and informing the public


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To promote open, transparent,timely, informative and easyunderstandable communicationswith society .

To suggest stakeholder com-munications as a contribution tothe safe operation of nuclearfacilities.

It is recommended that authorities establish procedures for interaction with stakeholders.

Internat. Nuclear SAfety Group


Debate on the incorporation of nuclear energy in the national energy plan .

Decision to install a new NPP, or a waste repository .

Definition of the emergency plan .

Transport of radioactive material .

Dismantling and closure of nuclear installations.

Management of radioactive waste .

Opportunities for stakeholder participation(IAEA INSAG 20, 2006)


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“The expectation that significantnumbers of nuclear power plantswill reach the end of theiroperating lives in the comingdecade or so, or will be shutdown for economic or otherreasons, is resulting in increasingemphasis being given in membercountries to the involvement ofstakeholders in the associateddecision procedures.”

Decommissioning


The need for public involvement during the sitingprocess for a new nuclear facility is well known ,while the role of stakeholders during theshutdown and decommissioning phases is lesswell understood.

Stakeholders have the right to be involved in theconsequential decision about the strategy fordecommissioning the shutdown plant typicallythrough participation in an environmental impactassessment process.

Stakeholder involvement in D&D


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For successful D&D projects the suggestion is toimplement the 3 Pillars of Trust :

safety, participation, local development

Confidence in the D&D activities can be buit throughdirectly involvement.Local and regional authorities are in charge of publicinformation, facing local communities and media, andthus their participation is important .

D&D could result as a test on which the nuclear sectorcould be judged, not only on the technical quality butalso on how well it is respected the participation andlocal development with stakeholders.

Stakeholder involvement in D&D


A central concern of many stakeholders is toavoid irreversible decisions and actions, andthey ask for an active control of a disposalfacility.

Increasing attention is given to the conceptof retrievability in recent years, which isconsidered important for public acceptanceof a repository .

Stakeholder involvement in RWM


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The experiences and perceptions on re-trievability differ between countries.

In order to promote confidence in geologicdisposal to a wide audience, it is necessary toopenly discuss the pros and cons of longer-term monitoring, reversibility and retrievability.See for example: IGD-TP European Technology Platforms – provide aframework for stakeholders to define research and developm ent prioritiesand action plans. – a scientific and technical forum on geolo gicalrepositories for high-level nuclear waste in Europe. http://www.igdtp.eu/InSOTEC - Identify and clarify socio-technical challenges related togeological disposal, within their national contexts and wi thin theinternational perspective - related to IGD-TP. http://www.insotec.eu/

Stakeholder involvement in RWM


favourable conditions of issuing RWM policy,

design of the decision-making process,

social and ethical dimension,

local dimension of radioactive waste

management,

stakeholder involvement,

trust in the actors.

The discussion includes :NEA report 5296 , 2004


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Ethical principles in fundingin case of relatively long timehorizons.

Safety of current and future generations is the main concern of funding.

Avoiding imposition of undue burdens on future generations

Obligation to assemble and to preserve financial, technical and scientific resources.

NEA report 5996 , 2006


The principle of intergenerational continuity:the present generation must transfer resourcesand reasonable obligations to the succeedinggeneration, on the basis of equity and justice.

In an inflationary economy the management offunds over long timescales and the uncertaintiesassociated with are also of concern.

A chain of responsabilities


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How long does such obligation last with the same level of responsibility ?

The National Council for Nuclear Waste, an Advisory Body to Government, Sweden 2004.

The strong principle of justice(we behave considering that future generations areexpected to have an equivalent quality of life asthe present one)

The weak principle of justice(we behave considering that future generations areexpected to satisfy their basic needs)

The minimal principle of justice(we don’t jeopardise future generations possibilitiesfor life)


DG ENER and JRC launched aninitiative Energy-TransparencyCentre of Knowledge E-TRACKfor the promotion of publicparticipation in the implementa-tion of energy policies.

.. an overview on the main actorsin RWM systems in the EU 28countries as well as the availablefacilities for radioactive wastemanagement in each country.

“It is noted that categories ofstakeholders and their rolesand lines of responsibilitiesdiffer across countries. “


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“For many decades, RWM hascommonly been addressed onthe basis of a strong divisionbetween its technical and socialdimension, with predominanceof a technical focus . Onlyrecently, the social dimensionhas been acknowledged bypolicy makers and otherpractitioners from governmentagencies and nuclear industry.

Recognising the sociotechnicalnature of RWM might be astarting point for understandingthe challenges ahead“


Final remarks

The impact of D&D and RWM clearlyimplies scientific risk analysis, but contextconsiderations of societal, economical,juridical, and ethical nature are equallyimportant.

Trust is crucial to loyalty and thus to thelong-term safety of the projects.


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Final remarks

New approaches are continuously experiencedin decision making when choices implies valuejudgements.

As experience in stakeholder engagementgrows, processes and tools are becomingestablished , can be generally applied, and theyare instrumental in improving the quality ofprotection.


Thank you for your attention

Engaging with Stakeholders is an opportunity

Engaging with Engaging with Engaging with Engaging with

Stakeholders is Stakeholders is Stakeholders is Stakeholders is

an opportunity !an opportunity !an opportunity !an opportunity !

Engaging withStakeholders isan opportunity



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12 - Cantone -Stakeholders 20152015.radioactivewastemanagement.org/images... · technique will depend also on external factors : the phase of decision, the political and cultural