Gesellschaft für Anlagen-und Reaktorsicherheit(GRS) mbH

Nuclear Licensingand Supervisionin Germany

GRS - S - 42

Translation of the 4th revised edition of GRS-S-41 „Atomrechtliche Genehmi-gung und Aufsicht in Deutschland“. In cases of doubt,GRS-S-41 is the factually correct version. GRS would like to thank the FederalMinistry for the Environment, Nature Conservation and Nuclear Safety forproviding assistance with respect to the legal terminology.

All rights reserved.

This publication may not be reprinted in whole orin part without the prior permission of GRS.

Published by Gesellschaft für Anlagen- undReaktorsicherheit (GRS) mbHSchwertnergasse 1D-50667 Köln

Technical Editors: of the 3rd edition of February 1998G. Berberich, ErftstadtH. May, GRS, Cologne

Technical Editors: of the 4th edition of December 2002M. Fillbrandt, GRS, CologneH. May, GRS, Cologne

Translation: K. Böhlefeld, Mölln; G. Baki, Wuppertal

Translation Editor: F. Janowski-Hansen M.A., GRS, Cologne

Layout/Typesetting: G. Berberich, Erftstadt

Cover Illustration: M. Meyer, Cologne

Photography: Bayernwerk AGBrennelementlager Gorleben (BLG)Deutscher BundestagDBE GmbHBundesamt für Strahlenschutz (BfS)Forschungszentrum RossendorfGemeinschaftskernkraftwerk Neckar GmbHKernkraftwerk BiblisKernkraftwerk EmslandKernkraftwerk GundremmingenKernkraftwerk GrohndeKernkraftwerk ObrigheimKernkraftwerk PhilippsburgSiemens, KWU

Printed by Moeker Merkur Druck GmbH, Cologne

Gesellschaft für Anlagen-und Reaktorsicherheit(GRS) mbH

Nuclear Licensingand Supervisionin Germany

4th revised editionDecember 2002

GRS - S - 42ISBN 3-92875-73-8

S-Bericht - 42 2

3 S-Bericht - 42

Table of Contents

1 Introduction 5

2 Legal Basis 6

International Regulations 6

German Constitution 6

The Atomic Energy Act 7

Statutory Ordinances and Technical Rules 8

Responsibilities of the Authorities 10

3 Nuclear Licensing Procedure forNuclear Power Plants 11

Application 11

Examination of the Application 11

Federal Authorities

Land Authorities

Experts

General Public

Environmental Impact Assessment

Licensing Decision

4 Plan Approval Procedure for theFinal Storage of Radioactive Waste 17

Responsibilities 17

Procedure 18

Post-operational Phase 19

5 Supervision of Nuclear Facilities 20

6 Transport of Radioactive Substances 22

Appendix 24

Overview of the most important statutoryordinances relating to the Atomic Energy Act 24

Brief outlines of further important laws withrelevance to nuclear licensing 25

Extracts from the Nuclear Safety Convention 27

German-English Glossary 28

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1Introduction

With the amendment of theAtomic Energy Act (Atomgesetz,AtG) – which entered into force on22 April 2002 – essential parts ofGerman Nuclear Energy Law havebeen redesigned.

The new objective of the Act isto phase out the use of nuclearenergy for the commercial gener-ation of electricity in an orderlymanner. Still, the existing nuclearpower plants will have to be oper-ated at a high level of safety fortheir residual operating lives.

For the implementation of thisobjective, the AtG stipulates e. g.that no further licencesno further licencesno further licencesno further licencesno further licences shall begranted for the construction andoperation of new nuclear powerplants and facilities for the re-processing of irradiated nuclearfuels; operating licences for exist-ing commercial reactors will be-come extinct as soon as certainelectricity amounts have beengenerated which have been deter-mined separately for each nuclearpower plant.

Nevertheless, the current licens-ing procedure continues to beapplicable as both essential modi-fications of existing installationsand the construction of non-indus-trial new facilities (e. g. researchreactors) require licensing.

The fourth edition of this bro-chure takes into account thechanged general framework aswell as further developmentswhich have arisen from other fieldsof law relevant to Nuclear EnergyLaw since the third edition.

S-Bericht - 42 6

The purpose of the Atomic Energy Act is outlined in Section 1:The purpose of the Atomic Energy Act is outlined in Section 1:The purpose of the Atomic Energy Act is outlined in Section 1:The purpose of the Atomic Energy Act is outlined in Section 1:The purpose of the Atomic Energy Act is outlined in Section 1:

1. to phase out the use of nuclear energy for the commercial generation ofelectricity in a structured manner, and to ensure on-going operation upuntil the date of discontinuation,

2. to protect life, health and property against the hazards of nuclear energyand the detrimental effects of ionising radiation and to providecompensation for damage caused by nuclear energy or ionising radiation(the so-called protective purpose - editorial annotation),

3. to prevent danger to the internal or external security of the FederalRepublic of Germany arising from the application or release of nuclearenergy,

4. to enable the Federal Republic of Germany to meet its internationalobligations in the field of nuclear energy and radiation protection.

Nuclear power plants require a licenceaccording to Section 7 AtG: The photoshows the Emsland Nuclear Power Plantnear Lingen in Lower Saxony.

InternationalRegulations

There are various regulations oninternational level. Their relevanceand legal impact differs from coun-try to country, depending on therespective national rules and re-gulations.

For example, the InternationalAtomic Energy Association (IAEA)runs special programmes to har-monise the safety requirementsinternationally for nuclear facilities.These are to be understood as re-commendations and provide aframework for technical safety,especially for those countrieswhich are at the beginning of theirnuclear development.

As opposed to these recom-mendations, the "Nuclear SafetyConvention" – which came intoforce in 1996 – contains regu-

lations that are binding underinternational law for the more than50 states that have ratified theConvention in the meantime. The"Nuclear Safety Convention",which sets requirements for thesafety of civil nuclear power plants,originates from a German initiativeduring the IAEA Special Con-ference in Vienna in September1991. The signatory states areobliged to meet high technicalsafety standards as well as toensure independent and effectivestate supervision. The signatorystates have to subject themselvesto a verification procedure atregular intervals. The preparationof a Country Report is a part of theverification procedure in whicheach party to the Convention pro-vides information on compliancewith the duties arising from thisConvention. In addition, verifi-cation includes the submission ofwritten questions and comments onthe reports of the other countriesas well as the answering of such

questions within a certain time-limit. In 2002, the government ofthe Federal Republic of Germanysubmitted the report for the secondReview Conference.

The Treaty establishing theEuropean Atomic Energy Commu-nity, which entered into force on 1January 1958, is applied through-out the European Union. The Treatycovers i. a. competences for theEC institutions within the frame-work of nuclear research, healthprotection and the ensurance ofsafety during the transport of fissilematerials.

German Constitution

According to the German Con-German Con-German Con-German Con-German Con-ssssstitutiontitutiontitutiontitutiontitution, the Länder are responsiblefor the implementation of the AtomicEnergy Act on behalf of the FederalGovernment. To ensure a uniformimplementation of the Atomic EnergyAct, the Länder are subject to federalsupervision. The Federal Govern-

2 Legal Basis

7 S-Bericht - 42

ment has the right to issue instructionsconcerning the legality and ex-pediency of the implementation.

The Atomic Energy Act

In Germany the Atomic EnergyAtomic EnergyAtomic EnergyAtomic EnergyAtomic EnergyAct (AtG) Act (AtG) Act (AtG) Act (AtG) Act (AtG) provides the legal pre-requisites for the peaceful utilisationof nuclear energy. It was enactedin 1960 and in the meantime hasbeen amended several times dueto political and technical/scientificdevelopments.

The Atomic Energy Act primarilyserves the purpose of protectingthe population against the dangersof nuclear energy and to ensure theorderly phase-out of the use ofnuclear energy. The German parlia-ment, all the Federal Governmentsto date, the Länder bodies politi-cally responsible and the respon-sible courts of justice have alwaysemphasised that the protection ofthe population against the dangersof nuclear energy is granted firstpriority over economic interests.

The Atomic Energy Act regulatesin particular:

❒ import and export of nuclearfuel (Section 3 AtG),

❒ carriage of nuclear materials(Sections 4, 4a, 4b AtG),

❒ authorized possession andsafe custody of nuclear fuel(Section 5 AtG),

❒ storage of nuclear fuel outsidestate custody (Section 6 AtG),

❒ erection, operation, holding anddecommissioning of stationary

nuclear facilities for the pro-duction, treatment, fission orreconditioning of irradiatednuclear fuel (Section 7 AtG),

❒ treatment, processing or otherutilization of nuclear fuel out-side installations requiring alicence (Section 9 AtG), and

❒ utilization of residual radio-active material and the safedisposal of radioactive waste(Section 9a AtG).

If a licence pursuant to Section7 AtG, e.g. for a nuclear research

facility, is to be granted, the l i-l i-l i-l i-l i-censing requirementscensing requirementscensing requirementscensing requirementscensing requirements pursuant toSection 7, para. 2 AtG are to befulfilled in particular.

Pursuant to Section 7a AtG, anadvance noticeadvance noticeadvance noticeadvance noticeadvance notice can be issuedconcerning individual questions onwhich the granting of a licencepursuant to Section 7 AtG isdependent.

Government supervisionGovernment supervisionGovernment supervisionGovernment supervisionGovernment supervision of nu-clear facilities is laid down inSection 19 AtG, stipulating that thesupervisory authority has to super-vise compliance with the Atomic

The licensing requirements pursuant to Section 7, para. 2The licensing requirements pursuant to Section 7, para. 2The licensing requirements pursuant to Section 7, para. 2The licensing requirements pursuant to Section 7, para. 2The licensing requirements pursuant to Section 7, para. 2of the Atomic Energy Act are as follows:of the Atomic Energy Act are as follows:of the Atomic Energy Act are as follows:of the Atomic Energy Act are as follows:of the Atomic Energy Act are as follows:

(2)(2)(2)(2)(2)

A licence may only be granted if

1. there are no known facts giving rise to doubts as to the reliability of theapplicant and of the persons responsible for the erection andmanagement of the installation and the supervision of its operation,and the persons responsible for the erection and management of theinstallation and the supervision of its operation have the requisitequalification,

2. it is assured that the persons who are otherwise engaged in the operationof the installation have the necessary knowledge concerning the safeoperation of the installation, the possible hazards and the protectivemeasures to be taken,

3. the necessary precautions have been taken in the light of the state ofthe art in science and technology to prevent damage resulting fromthe erection and operation of the installation,

4. the necessary financial security has been provided to comply with thelegal liability to pay compensation for damage,

5. the necessary protection has been provided against disruptive actionor other interference by third parties,

6. the choice of the site of the installation does not conflict with overridingpublic interests, in particular in view of its environmental impacts.

S-Bericht - 42 8

Legal basis ofthe peacefulutilisation of

nuclear energy

Energy Act and that it may orderto remove hazard states and mayissue directions upon violation.The supervisory authority further-more shall have access to anuclear facility at all times and shallbe authorized to carry out exami-nations there.

According to Section 9a, para.3 AtG, the Länder are to establishstatestatestatestatestate collecting facilitiescollecting facilitiescollecting facilitiescollecting facilitiescollecting facilities for theinterim storage of radioactivewaste originating in their territory,and the Federal Government shallestablish facilities for the safe-facilities for the safe-facilities for the safe-facilities for the safe-facilities for the safe-keeping and f inal storagekeeping and f inal storagekeeping and f inal storagekeeping and f inal storagekeeping and f inal storage ofradioactive waste. According toSection 9b AtG, a plan approvalplan approvalplan approvalplan approvalplan approvalprocedureprocedureprocedureprocedureprocedure comprising an environ-environ-environ-environ-environ-mental impact assessment mental impact assessment mental impact assessment mental impact assessment mental impact assessment is tobe carried out for these federalinstallations upon erection, oper-ation as well as any major alter-ations.

The Atomic Energy Act furthercomprises a series of regulations

which, in particular, refer to thefollowing areas:

❒ enabling provisions for theissue of ordinances by theFederal Government (Sections11 and 12 AtG),

❒ regulations on restrictions,conditions and the revocationof licences;

❒ distribution of responsibilities(Sec. 22 to 24 AtG) as well as

❒ liability (Sections 25, 26, 31AtG), compensation (Sections28, 29, 30 AtG), criminal andadministrative fine regulations(Sections 46, 49 AtG).

Statutory Ordinancesand Technical Rules

The provisions of the AtomicEnergy Act are supplemented or

specified by further laws andregulations including:

❒ Precautionary Radiation Pro-tection Act (Strahlenschutz-vorsorgegesetz (StrVG))

❒ Water Management Act(Wasserhaushaltsgesetz(WHG))

❒ Federal Immission Control Act(Bundesimmissionsschutz-gesetz (BlmSchG))

❒ Environmental Impact Assess-ment Act (Gesetz über dieUmweltverträglichkeitsprüfung(UVPG)).

The most important statutoryordinances include:

❒ Radiation Protection Ordi-nance (Strahlenschutzverord-nung (StrlSchV)),

❒ Nuclear Licensing ProcedureOrdinance (AtomrechtlicheVerfahrensverordnung (AtVfV)),

GermanGermanGermanGermanGermanConstitutionConstitutionConstitutionConstitutionConstitution

Responsibilities ofResponsibilities ofResponsibilities ofResponsibilities ofResponsibilities ofthe Federal Government andthe Federal Government andthe Federal Government andthe Federal Government andthe Federal Government and

the the the the the LänderLänderLänderLänderLänder

Fundamental RightFundamental RightFundamental RightFundamental RightFundamental Rightof Life andof Life andof Life andof Life andof Life and

Freedom from InjuryFreedom from InjuryFreedom from InjuryFreedom from InjuryFreedom from Injury

X-RayX-RayX-RayX-RayX-RayOrdinanceOrdinanceOrdinanceOrdinanceOrdinance

(RöV)(RöV)(RöV)(RöV)(RöV)

RadiationRadiationRadiationRadiationRadiationProtectionProtectionProtectionProtectionProtectionOrdinanceOrdinanceOrdinanceOrdinanceOrdinance(StrlSchV)(StrlSchV)(StrlSchV)(StrlSchV)(StrlSchV)

Atomic EnergyAtomic EnergyAtomic EnergyAtomic EnergyAtomic EnergyAct CostAct CostAct CostAct CostAct Cost

OrdinanceOrdinanceOrdinanceOrdinanceOrdinance(AtKostV)(AtKostV)(AtKostV)(AtKostV)(AtKostV)

OOOOOrdinrdinrdinrdinrdinance on theance on theance on theance on theance on theFinancial SecurityFinancial SecurityFinancial SecurityFinancial SecurityFinancial SecurityPursuant to thePursuant to thePursuant to thePursuant to thePursuant to the

Atomic Energy ActAtomic Energy ActAtomic Energy ActAtomic Energy ActAtomic Energy Act(At(At(At(At(AtDeckV)DeckV)DeckV)DeckV)DeckV)

Nuclear SafetyNuclear SafetyNuclear SafetyNuclear SafetyNuclear SafetyOfficer andOfficer andOfficer andOfficer andOfficer andReportingReportingReportingReportingReporting

OrdinanceOrdinanceOrdinanceOrdinanceOrdinance (AtSMV) (AtSMV) (AtSMV) (AtSMV) (AtSMV)

PrecautionaryPrecautionaryPrecautionaryPrecautionaryPrecautionaryRadiationRadiationRadiationRadiationRadiation

Protection ActProtection ActProtection ActProtection ActProtection Act(StrVG)(StrVG)(StrVG)(StrVG)(StrVG)

FederalFederalFederalFederalFederalImmissionImmissionImmissionImmissionImmission

Control ActControl ActControl ActControl ActControl Act(BImSchG)(BImSchG)(BImSchG)(BImSchG)(BImSchG)

InternationalInternationalInternationalInternationalInternationalAgreementsAgreementsAgreementsAgreementsAgreements

EnvironmentalEnvironmentalEnvironmentalEnvironmentalEnvironmentalImpactImpactImpactImpactImpact

Assessment ActAssessment ActAssessment ActAssessment ActAssessment Act(UVPG)(UVPG)(UVPG)(UVPG)(UVPG)

WaterWaterWaterWaterWaterManagement ActManagement ActManagement ActManagement ActManagement Act

(WHG)(WHG)(WHG)(WHG)(WHG)

Law of the EULaw of the EULaw of the EULaw of the EULaw of the EU

Nuclear LicensingNuclear LicensingNuclear LicensingNuclear LicensingNuclear LicensingProceduresProceduresProceduresProceduresProceduresOrdinanceOrdinanceOrdinanceOrdinanceOrdinance

(AtVfV)(AtVfV)(AtVfV)(AtVfV)(AtVfV)

AtomicAtomicAtomicAtomicAtomicEnergy ActEnergy ActEnergy ActEnergy ActEnergy Act

(AtG)(AtG)(AtG)(AtG)(AtG) Waste DisposalWaste DisposalWaste DisposalWaste DisposalWaste DisposalAdvance PaymentsAdvance PaymentsAdvance PaymentsAdvance PaymentsAdvance Payments

OrdinanceOrdinanceOrdinanceOrdinanceOrdinance(EndlagerVIV)(EndlagerVIV)(EndlagerVIV)(EndlagerVIV)(EndlagerVIV)

9 S-Bericht - 42

❒ Ordinance on the FinancialSecurity Pursuant to the Ato-mic Energy Act (Atomrecht-liche Deckungsvorsorge-Ver-ordnung (AtDeckV)),

❒ Atomic Energy Act Cost Ordi-nance (Atomrechtliche Kosten-verordnung (AtKostV))

❒ Nuclear Safety Officer andReporting Ordinance (Atom-rechtliche Sicherheitsbeauf-tragten- und Meldeverord-nung (AtSMV))

❒ Waste Disposal Advance Pay-ments Ordinance (Endlager-vorausleistungsverordnung(EndlagerVIV))

❒ X-Ray Ordinance (Röntgen-verordnung (RöV))

The sasasasasafety requirementsfety requirementsfety requirementsfety requirementsfety requirements havenot been specified in great detail.Thus, there is room for differenttechnical solutions, which, how-ever, all have to meet the same

protection objectiveprotection objectiveprotection objectiveprotection objectiveprotection objective. The licensingand supervisory authorities thenhave to examine whether thisobjective is actually met.

The Appendix comprises acomprehensive summary of themost important laws and statutoryordinances referring to the AtomicEnergy Act.

A variety of safety regulationssafety regulationssafety regulationssafety regulationssafety regulationswhich are to be considered withinthe framework of the nuclearlicensing procedure and nuclearsupervision are subordinate. Theyserve the purpose of demonstrat-ing adequate provisions againstdamages.

These safety regulations include:

❒ Nuclear Power Plant SafetyCriteria approved by theLänder Committee for NuclearEnergy,

❒ BMI and BMU guidelines,demanding e. g. proof of the

technical qualification of nu-clear power plant personnel,

❒ safety criteria for final storage,

❒ safety-related guidelines of theReactor Safety Commission(Reaktor-Sicherheitskommis-sion – RSK),

❒ safety standards of the Nu-clear Safety Standards Com-mission (Kerntechnischer Aus-schuß – KTA), comprisingsample solutions and repre-senting resources for the de-cision process of the authori-ties;

❒ standards of the German In-stitute for Standardisation(Deutsches Institut für Nor-mung – DIN),

❒ conventional guidelines andrecommendations, like provi-sions relating to accident pre-vention prepared by the Ger-

1Until June 1986 the Federal Ministry of the Interior represented the supreme federal atomic authority; since then the Federal Ministry for the Environment, NatureConservation and Nuclear Safety has been responsible

Institutionsconcernedwith nuclearsafety andradiationprotection

UniversityInstitutes

ResearchInstitutes

Large-scaleresearch facilities

ScientificScientificScientificScientificScientificinstitutionsinstitutionsinstitutionsinstitutionsinstitutions

RSK/SSKReactor Safety/

Radiation ProtectionCommission

TÜVTechnical

Inspectorates

GRSGesellschaft für

Anlagen- und Reaktor-sicherheit

Experts

Länder

Supreme authoritiesSupreme authoritiesSupreme authoritiesSupreme authoritiesSupreme authorities

BMUFederal Ministry for theEnvironment, Nature

Conservation andNuclear Safety11111

Administrative officesAdministrative officesAdministrative officesAdministrative officesAdministrative officesof the of the of the of the of the LänderLänderLänderLänderLänder

BfSFederal Office

for Radiation Protection

SubordinateSubordinateSubordinateSubordinateSubordinateauthoritiesauthoritiesauthoritiesauthoritiesauthorities

Nuclear power plant operatorNuclear power plant operatorNuclear power plant operatorNuclear power plant operatorNuclear power plant operator

S-Bericht - 42 10

man mutual indemnity asso-ciations,

❒ relevant international agree-ments, foreign rules and regu-lations, e.g. for the transport ofradioactive substances acrossnational borders.

Further implementing guide-lines, administrative regulationsand recommendations as well astechnical rules and guidelines aredocumented in the "Handbuch"Handbuch"Handbuch"Handbuch"HandbuchReaktorsicherheit und Strahlen-Reaktorsicherheit und Strahlen-Reaktorsicherheit und Strahlen-Reaktorsicherheit und Strahlen-Reaktorsicherheit und Strahlen-schutz"schutz"schutz"schutz"schutz" (Reactor Safety andRadiation Protection Manual)edited by the Federal Ministry forthe Environment, Nature Conser-vation and Nuclear Safety (Bundes-ministerium für Umwelt, Natur-schutz und Reaktorsicherheit(BMU) and published by theFederal Office for Radiation Pro-tection (Bundesamt für Strahlen-schutz (BfS).

Responsibilities of theAuthorities

There is no central nuclearlicensing and supervisory authorityin the Federal Republic of Ger-many. Pursuant to Section 24 AtG,the Atomic Energy Act is imple-mented by the Länder on behalfof the Federal Government (ad-(ad-(ad-(ad-(ad-ministration on behalf of theministration on behalf of theministration on behalf of theministration on behalf of theministration on behalf of theFederation)Federation)Federation)Federation)Federation). The Länder authori-ties are subject to the so-calledsupervision of lawfulness andexpediency, which the FederalGovernment can exercise e. g. bygiving instructions.

Only the so-called cococococompetencempetencempetencempetencempetenceto execute the duties to execute the duties to execute the duties to execute the duties to execute the duties belongs

indefeasibly to the Land within theframework of its authority to issueinstructions. This competenceextends to activities relating toactions and responsibilities to-wards third parties. For instance,it covers the conclusion of public-law contracts or the issue of alicence.

The factual competence factual competence factual competence factual competence factual competence con-sists of the components factualassessment and substantive decis-ion. First and foremost, this com-petence belongs to the Land aswell. But apposed to the com-petence to execute the duties, itmay be assumed by the FederalGovernment. In such a case, theFederal Government can examinethe documents submitted by theapplicant to the Land authorityresponsible and provide a com-ment. If federal and Länder authori-ties assess an individual casedifferently, the Federal Governmentcan issue instructions to the com-petent Land authority, if necessary.These instructions are binding forthe Länder authorities.

The federal supervision iscarried out by the Federal Ministryfor the Environment, Nature Con-servation and Nuclear Safety(BMU). It is assisted by the FederalOffice for Radiation Protection(BfS), the Reactor Safety Com-mission (RSK) and the RadiationProtection Commission (SSK) aswell as by Gesellschaft für Anlagen-und Reaktorsicherheit (GRS), anexpert nuclear safety organisation.

At the end of 1989 the FederalFederalFederalFederalFederalOffice for Radiation ProtectionOffice for Radiation ProtectionOffice for Radiation ProtectionOffice for Radiation ProtectionOffice for Radiation Protection(BfS)(BfS)(BfS)(BfS)(BfS) was established in the scopeof responsibility of the BMU. TheBfS supports the BMU on theexpert, scientific and adminis-

trative level, ensuring federalsupervision by making commentsand suggestions to improve thesafety of nuclear facilities. The BfSis furthermore responsible for thesafe custody of nuclear fuels bythe state, for the construction andoperation of final storage facilitiesas well as for licensing carriageand storage of nuclear fuels.

LicencesLicencesLicencesLicencesLicences for the constructionand operation of nuclear facilitiespursuant to Section 7 AtG aregranted by the supreme supreme supreme supreme supreme LänderLänderLänderLänderLänderauthoritiesauthoritiesauthoritiesauthoritiesauthorities, generally the Ministriesfor the Environment of the Länder.These are also responsible for thesupervision of the nuclear facilitiesin operation.

The Länder Länder Länder Länder Länder Committee forCommittee forCommittee forCommittee forCommittee forNuclearNuclearNuclearNuclearNuclear Energy Energy Energy Energy Energy and its technicalcommittees, which are presidedover by the BMU, serve for an ex-change of experience between theFederal Government and theLänder and co-ordination to en-sure a uniform procedure of allLänder in the field of nuclear safetyand radiation protection.

The chamber of the German Bundestag,where laws are passed by the Membersof Parliament

11 S-Bericht - 42

Application

As nuclear power plant opera-tors, the private power util itycompanies also assume the roleof applicant in the nuclear licens-ing procedure. They submit awritten application to the licensingauthority of the Land where theplant to be modified is located. Thedocuments which have to beattached to the application arespecified in Section 3 of theNuclear Licensing ProceduresOrdinance (AtVfV).

An important document is thesafety report with site plans andsurvey diagrams. This reportdescribes the plant and its operationas well as the connected effects –including the consequences ofdesign-basis accidents – andexplains the preventive measures.

Pursuant to Section 3 AtVfV,further documents have to besubmitted to fulfill the licensingprerequisites, i. e.:

❒ supplementary plans, draw-ings and descriptions of theplant,

as well as details on

❒ the protection against malev-olent disruptive acts,

❒ the applicant and the personsresponsible,

❒ the necessary know-how ofthe other persons involved inthe operation of the plant,

❒ the safety specification,

❒ financial security,

❒ the kind of radioactive residualmaterials arising as well as onthe measures provided foravoiding, using and/or remov-ing these residual materials orradioactive parts of the plant,

❒ the presumed storage of theradioactive residual materialsor radioactive plant compo-nents until final storage, and

❒ the protective measures pro-vided for the environment(keeping water, soil and airpure).

In addition, a brief descriptionof the planned modification and itspresumed effects on the generalpublic and the neighbourhood hasto be submitted together with theapplication (Section 3, para. 2AtVfV).

Examination of theApplication

On the basis of the submitteddocuments, the licensing authorityof the Land examines whether theprerequisites for granting a licencehave been fulfilled. In doing so it isadvised scientifically by experts,generally by a Technical Inspec-torate (Technischer Überwach-ungs-Verein, TÜV). At the sametime the Federal Environment Mi-nistry as well as the responsiblefederal, regional and local authori-ties are involved and the generalpublic is informed.

Federal AuthoritiesThe Federal Ministry for the En-

vironment, Nature Conservation

3Nuclear Licensing Procedure for

Nuclear Power Plants

View of the open reactor pressure vessel with refuelling machine.

S-Bericht - 42 12

During a hearing, objections are brought forward, explained and discussed with theapplicant.

and Nuclear Safety (BMU) involvesother Federal Ministries that areconcerned. In performing its roleas federal supervisor, the BMU isadvised in particular by its expertcommittees, the Reactor SafetyCommission (RSK) and the Com-mission on Radiological Protection(SSK). These expert committeesare composed of independentexperts of different scientific dis-ciplines.

After thorough examination ofthe planned project, RSK and SSKgive a recommendation to theBMU. The BMU analyses this rec-ommendation and then providesits comment to the responsiblelicensing authority. This commenthas to be considered in the deci-sion-making process of the Landauthority responsible.

In addition, Gesellschaft fürAnlagen- und Reaktorsicherheit(GRS) mbH, being the main expertadviser to the Federal Govern-ment, provides expert opinions tothe BMU.

Land Authorities

All the authorities of the Landconcerned, the communities sur-rounding the plant location, and allother expert authorities and institu-tions whose responsibility may beaffected (in particular building,water, fire prevention, disastercontrol and nature protection au-thorities) are involved in the exami-nation process.

Experts

The licensing authorities gener-ally entrust experts with the ex-amination of which requirementsare to be met by nuclear safety and

Nuclear licensing procedure

Applicant

Licensing authorityLicensing authorityLicensing authorityLicensing authorityLicensing authority

BfS

Länder andsubordinateauthorities

Experts onnon-nuclear

issues

RSK, SSK

GRS

TÜV

General public

further federalauthorities

BMU

13 S-Bericht - 42

Scheme illustrating an environmental impact assessment

radiation protection and whetherthe licensing prerequisites havebeen met.

Experts support the licensingauthority. They do not have theauthority to take decisions.

Because of the large scope ofthe examinations, expert organi-sations – such as the TechnicalInspectorates or Gesellschaft fürAnlagen- und Reaktorsicherheit(GRS) – are generally entrusted withthe assessment and the examinationof the application documents.

Further competent experts ex-amine the planned site with re-spect to its suitability from a geologi-cal, seismological and hydrologicalpoint of view.

General PublicAn important task of the licens-

ing authority is to involve thegeneral public. The basic rights ofthose citizens who might be af-fected by the effects of the modi-fied plant are thus protected.Compliance with the proceduralregulations as set out in Section 5of the Nuclear Licensing Pro-cedures Ordinance (AtVfV) is animportant prerequisite for thelegality of the decision. The follow-ing steps are mandatory:

❒ public announcement of theproject in the Federal Bulletinand in the local press,

❒ public display of the applica-tion documents at the licens-ing authority and at least onesuitable location near the sitefor a period of two months,

❒ a hearing to be carried outwhere objections can be dis-

cussed by the licensing authori-ty, the applicant and objectors,

❒ minutes comprising the objectof the licensing procedure, thecourse and the results of thehearing,

❒ serving of the licensing authori-ty’s decision concerning theobjections.

Objectors can take legal pro-ceedings before the administrativecourt against the licensing authori-ty’s decision.

Environmental ImpactAssessment

The environmental impactassessment (Umweltverträglich-keitsprüfung – UVP) which has tobe carried out pursuant to theprovisions of Section 1a AtVfVrepresents an important consti-tuent of the nuclear licensingprocedure.

The UVP procedure is laiddown in the Environmental ImpactAssessment Act (UVPG), whichsupplements the Nuclear Licens-

Before the assessmentBefore the assessmentBefore the assessmentBefore the assessmentBefore the assessment

Summary of technical tasksSummary of technical tasksSummary of technical tasksSummary of technical tasksSummary of technical tasks- technical goals- principal boundary conditions- problems associated with the

technical tasks

Summary ofSummary ofSummary ofSummary ofSummary oftechnical measurestechnical measurestechnical measurestechnical measurestechnical measures- possible solutions- selection of measures

Assessment of environmental significanceAssessment of environmental significanceAssessment of environmental significanceAssessment of environmental significanceAssessment of environmental significance

Examination as to whether harmful environmental impacts are excluded

Balancing against other aspectsBalancing against other aspectsBalancing against other aspectsBalancing against other aspectsBalancing against other aspects

Determination ofenvironmental impacts

- analysis of the status quo- prognosis relating to the

status quo withoutmeasures

- prognosis relating to thestatus quo with measures

- comparison of prognoses

Assessmentof environmental

impacts

Environmental impact assessmentEnvironmental impact assessmentEnvironmental impact assessmentEnvironmental impact assessmentEnvironmental impact assessment

Examination ofremedies and

alternatives in caseof harmful

environmental impacts

S-Bericht - 42 14

ing Procedures Ordinance. Accor-ding to the Appendix to Section 3UVPG, environmental impactassessments have to be carriedout in particular in connection with

❒ major alteration of the facilityor its operation which requirelicensing, with participation ofthe general public pursuant toSection 7 AtG and

❒ the construction and operationof a facility for the safe custodyand final storage of radioactivewaste as well as in connectionwith any essential modificationof such a facility or its operationwhich require plan approvalpursuant to Section 9b AtG.

The Land authority responsiblehas to inform the applicant aboutthe presumed extent of the assess-

ment as soon as the applicant hasinformed the authority about theproject, possibly even before theactual application. The respon-sible authority here has to

❒ determine, describe and assessthe impacts on the environ-ment at an early stage and ina comprehensive way as wellas to

❒ consider the result of the UVPat the earliest possible point intime in all decisions of theauthority on the permissibilityof the planned project.

For this purpose other authori-ties, experts and third parties (siteand neighbouring communities,recognised nature conservationassociations) can be called in. The

general public is also involved inthe environmental impact assess-ment.

The applicant has to submitdocuments on the environmentalimpacts of the project to theresponsible authority at the begin-ning of the procedure. In addition,the applicant has to disclose themost important procedural alter-natives he examined as well as theessential reasons for his choice.

The authority responsible thenprepares a comprehensive sum-mary of the project on the basis ofthe documents submitted by theapplicant, the comments made bythe other authorities as well as thestatements of the general publicand carries out a final assessment.This assessment represents the

Units A and B of the Biblis nuclear power plant have been in service since 1975 and 1977, respectively, and are among the oldestcommercial nuclear power plants in Europe.

15 S-Bericht - 42

basis for the decision on thepermissibility of the project withrespect to effective environmentalprovisions.

Licensing Decision

The licensing authority examineswhether the licensing prerequi-sites pursuant to Section 7 para.2 AtG are met for the applied-forfacility. The following criteria areconsidered in the assessment:

❒ the opinions of the authorisedexperts,

❒ the BMU comment,

❒ the comments of the otherauthorities involved,

❒ the objections brought forwardby the general public, and

❒ the results of the environmentalimpact assessment.

All these pieces of informationtogether with the application docu-ments represent the basis for thedecision process of the licensingauthority.

The licensing authority can

❒ reject the application if thelicensing prerequisites havenot been met (Section 15,para. 2 AtVfV) or

❒ grant the licence applied for(Sections 16, 18 AtVfV).

According to Section 16 AtVfV,the l icensing decision has tocontain i.a. the following details:

❒ the applicant’s name andplace of residence,

❒ the information that a licencewill be granted, indicating thelegal basis,

❒ an exact definition of theobject of the licence includingthe location of the facility,

❒ incidental provisions for thelicence as well as

❒ the reasons for the decision andthe treatment of objections.

The decision of the licensingauthority has to be served on theapplicant and the objectors inwriting. If a decision is to be servedon more than 300 objectors, theserving can be replaced by publicannouncement (Section 15, para.3 AtVfV). The directive part of thelicensing decision and the instruc-tion about legal remedies are to bemade public. The conditions areto be indicated. A copy of thedecision has to be laid out forinspection for two weeks (Section17 AtVfV).

After this, the objectors canorder the decision and the state-ments of its reasons in writing fromthe licensing authority until the endof the term for legal remedy(period for initiating legal action).

Installation of new blade ringsin order to increase the

efficiency of the turbines.

S-Bericht - 42 16

Fuel element storage halls at Gorleben:The transport cask storage hall (large hall at the centre of the picture) was licensed in accordance with Section 6 AtG, the radwastestorage hall (small hall on the right) in accordance with Section 3 StrlSchV. Furthermore, the construction site of the pilot conditio-ning plant, which is being licensed pursuant to Section 7 AtG, can be seen on the left.

The nuclear licence is normallygranted in several partial steps(partial erection, partial operatinglicences). Because of the scopeand the construction time of nu-clear power plant projects itmakes sense to examine andlicence the technical details stepby step. The advantage of such aprocedure is that the individuallicensing steps can thus be basedon the latest state of the art.

For example, the location, safe-ty concept and erection of theessential buildings are licensed inthe first partial construction licence.Further licensing steps are:

❒ the erection of the safety-related systems and com-ponents of machinery andelectrical systems,

❒ handling and storage of fuelelements as well as loading ofthe reactor with fuel elementsincluding pre-operational tests,

❒ final construction, first nuclearstart-up and operation of thefacility.

It has to be noted in this con-nection that the nuclear licencedoes not comprise all areas af-fected by the modified plant. Thismeans that the nuclear licencedoes not cover all the necessarylicences and permissions or otherdecisions made by different au-thorities.

As a result, a series of furtherlicensing procedures is carried outby the Länder, e. g. pursuant to thewater, immission control or energy

sector laws, which vary from Landto Land.

After the nuclear licence hasbeen granted, later requirementscan be made under certain con-ditions by the authority respon-sible. If a nuclear facility representsa considerable danger for theemployees or the population andif this danger cannot be removedby appropriate measures within areasonable time, the licensingauthority has to revoke the licence(Section 17 para. 3 AtG).

17 S-Bericht - 42

❒ Other TOther TOther TOther TOther Technical Regulationsechnical Regulationsechnical Regulationsechnical Regulationsechnical Regulations

– DIN standards,

– geotechnicalrecommendations of theGerman GeotechnicalSociety.

Responsibilities

Pursuant to Section 9a AtG, theFederal Government has to pro-vide installations for the safe-keeping and final storage ofradioactive waste.

This task falls into the area of re-sponsibility of the Federal Ministryfor the Environment, Nature Con-servation and Nuclear Safety(BMU) which takes care of thistask through the Federal Office forRadiation Protection (BfS), whichwas set up in accordance withSection 2, para. 1 of the law on theestablishment of such an authority.The BfS has to ensure that neitherpresent nor future generations areendangered by a release of radio-active substances. To fulfil thesefunctions, it can make use of thirdparties.

Until 1 November 1989, thePhysikalisch-Technische Bundes-anstalt (PTB) was responsible forthe erection and operation ofinstallations for safekeeping andfinal storage of radioactive waste.In 1989 these functions wereassumed by the Federal Office forRadiation Protection (BfS) (Section23 AtG).

To fulfil these tasks, the BfSmakes use of third parties, e.g. the

In Germany, radioactive wasteis to be finally disposed of in deepgeological formations.

The issue of final disposal hasgained importance again due tothe amendment of the AtomicEnergy Act. The current option tosend irradiated nuclear fuel origi-nating from the operation of Ger-man nuclear power plants to a re-processing plant will cease on1 July 2005. This disposal path-way will be replaced by the dutyof the operator of the power plantto set up an on-site interim storagefacility and to store irradiatednuclear fuels there until their ship-ment to a repository.

In 2002, the plan approvalprocedure was concluded for theKonrad repository in Germany.Until its closure in 1976, ore andiron deposits were mined at thesite. In the following years, exten-sive and long lasting research wascarried out to examine the suit-ability of the rock formation with aview to the final storage of radio-active waste with negligible heatgeneration.

This disposal pathway is regu-lated by the following laws andregulations:

❒ Legal RegulationsLegal RegulationsLegal RegulationsLegal RegulationsLegal Regulations

– Atomic Energy Act (AtG)

– Federal Mining Act(Bundesberggesetz –BBergG),

– Environmental ImpactAssessment Act (Gesetzüber dieUmweltverträglich-keitsprüfung – UVPG),

4 Plan Approval Procedure for the Final

Storage of Radioactive Waste

– Water Management Act(Wasserhaushaltsgesetz –WHG),

– Radiation ProtectionOrdinance(Strahlenschutzverordnung– StrlSchV),

❒ Implementing ProvisionsImplementing ProvisionsImplementing ProvisionsImplementing ProvisionsImplementing Provisions

– mining regulations,

– safety criteria for the finalstorage of radioactivewaste in a mine,

– technical regulations, e.g.of the Nuclear SafetyStandards Commission(KTA),

The Konrad mine is intended for the finalstorage of radioactive waste withnegligible heat generation.

S-Bericht - 42 18

Plan approval procedurePlan approval procedurePlan approval procedurePlan approval procedurePlan approval procedure

Deutsche Gesellschaft zum Bauund Betrieb von Endlagern fürAbfallstoffe mbH (DBE), a com-pany for the construction andoperation of waste repositories. Animportant partner is the FederalInstitute for Geosciences andNatural Resources (Bundesanstaltfür Geowissenschaften und Roh-stoffe – BGR), dealing with geo-

technical and scientific issuesassociated with the design, con-struction and decommissioning ofrepositories. In addition, universityinstitutes, large research centresand the industry provide solutionsfor the final storage of radioactivewaste within the framework ofresearch and development pro-jects.

Procedure

The erection and operation ofa repository for radioactive wasterequires plan approval. Section 9bAtG determines how the plan ap-proval procedure is to be carriedout. At the same time, the environ-mental impact assessment of theplanned final storage facility hasto be examined.

The bearer of the project hasto submit the so-called plan, i.e.

Gorleben Exploration Mine:

On 1 October 2000, exploration was stopped against the background of the morato-rium. Currently, activities are largely restricted to maintenance and repair operationsas well as to measuring and documentation.

Examination by the authorityand its experts

Public displayof the plan

Objections of the membersof the general public

Hearing to discuss theobjections

Plan approval decision

Submission of a planby the applicant

Assessment andexamination by the authorities

19 S-Bericht - 42

the desdesdesdesdescription of the repositorycription of the repositorycription of the repositorycription of the repositorycription of the repositoryconceptconceptconceptconceptconcept, to the licensing authority.The licensing authority responsibleaccording to the respective Landlaw examines the documentssubmitted and, pursuant to the Nu-clear Licensing Procedures andSections 72 to 78 of the Admin-istrative Procedures Act, holds ahearing which comprises thefollowing steps:

❒ the project and the date of thehearing are announced,

❒ the plan is displayed for publicinspection,

❒ the objections raised by themembers of the public arecollected and evaluated,

❒ the hearing is held and

❒ the decisions taken are servedon the applicant.

The procedure ends with the planplanplanplanplanapproval decisionapproval decisionapproval decisionapproval decisionapproval decision which comprisesall licences in accordance with therespective relevant acts. Partiallicences which are customary for thelicensing procedure for nuclearfacilities are not provided for by theplan approval procedure.

Section 9b AtG contains a spe-cial regulation relating to mininglaw. Plan approval does not extendto the permissibility of a repositoryaccording to mining and deepstorage law. It is the competentmining authority which decides onthis issue.

In contrast to plan approval, themining law proceduremining law proceduremining law proceduremining law proceduremining law procedure is a con-tinuous procedure which is carriedout parallel to the operation of themine. It ends with the decommis-sioning of a mine and a possibly

required recultivation of the pre-mises.

Post-operational Phase

According to the Atomic EnergyAct and the Radiological Pro-tection Ordinance, radioactivewaste is to be handled and storedin a way which ensures the pro-tection of man and the environ-ment against damage by radio-active radiation.

The safety criteria for the finalstorage of radioactive waste in a

mine prescribe a limit of 0.3 mSv/aas the radiological protectionradiological protectionradiological protectionradiological protectionradiological protectiontargettargettargettargettarget for the population in thepost-operational phase of a re-pository. This value reflects thevariation of natural radiation expo-sure in Germany and ensures thatfuture generations also do not haveto expect higher radiation expo-sure rates than those currentlypermitted.

Long-term safety analysesLong-term safety analysesLong-term safety analysesLong-term safety analysesLong-term safety analysesserve to prove quantitatively thatthe predetermined radiologicalprotection targets are kept in thepost-operational phase of a re-pository.

Morsleben repository for radioactive waste (ERAM) in Saxony-Anhalt:

In 1971, the first radioactive waste was emplaced. In 1978, the trial operation ofERAM started. A provisional operating licence was granted in 1981 and an unlimitedoperating licence in 1986. In the course of German Unification, Morsleben became afederal property. About 37,000 m³ of low and intermediate-active waste are emplacedat ERAM with a total activity of 1.7 x 10¹4Bq. Due to a court ruling, emplacement wasstopped by the BfS on 25 September 1998. In a press release of May 2001, the BfSstresses that there will be no further disposal and that operation of the repository willbe restricted to keeping it open until the beginning of decommissioning. The decom-missioning procedure has been initiated.

S-Bericht - 42 20

After the licence for the erectionand operation of a nuclear facilityhas been granted, the plant issubject to continuous state super-vision. Section 19 of the AtomicEnergy Act (AtG) and the ordi-nances specifying this act, inparticular the Radiation ProtectionOrdinance (StrlSchV) and theNuclear Safety Officer and Re-porting Ordinance (AtSMV) re-present the legal basis.

In the supervisory procedure,In the supervisory procedure,In the supervisory procedure,In the supervisory procedure,In the supervisory procedure,the the the the the Länder Länder Länder Länder Länder also act on behalf ofalso act on behalf ofalso act on behalf ofalso act on behalf ofalso act on behalf ofthe Federal Governmentthe Federal Governmentthe Federal Governmentthe Federal Governmentthe Federal Government. Similarto the licensing procedure, theLänder are supported by experts,generally the Technical Inspec-torates (TÜV), and the BMU isadvised by the Reactor SafetyCommission (RSK), the Com-mission on Radiological Protection(SSK) as well as by the nuclear

safety expert organisation Gesell-schaft für Anlagen- und Reaktor-sicherheit (GRS) mbH.

The federal and Länder authori-ties responsible are bound to theprinciple of the best possibleaccident and risk prevention. Theoverriding objectiveoverriding objectiveoverriding objectiveoverriding objectiveoverriding objective of the statesupervision of nuclear facilities isto protect the population and theto protect the population and theto protect the population and theto protect the population and theto protect the population and thepeople employed in thesepeople employed in thesepeople employed in thesepeople employed in thesepeople employed in thesefac i l i t iesfac i l i t iesfac i l i t iesfac i l i t iesfac i l i t ies against the hazardsassociated with the operation ofsuch facilities. Pursuant to Section19, para. 1 AtG, the supervisoryauthorities examine in particular:

❒ compliance with the regu-lations of the Atomic EnergyAct, the statutory ordinancesissued because of this act,and other safety rules andguidelines,

❒ compliance with the regula-tions and decrees issued bythe supervisory authorities,

❒ fulfilment and compliance withthe requirements and regu-lations prescribed in the licen-sing decision,

❒ implementation of the additionalrequirements ordered by thesupervisory authority at a laterstage.

As one part of the authorities’supervisory activities, the safety ofthe plants is checked continuously.

The supervisory authority, withthe help of its experts or sub-ordinate authorities, supervisesand checks, e. g. by plant inspec-tions and the review of reports,

❒ compliance with the operatinginstructions,

❒ in-service inspections of safety-relevant plant components,

❒ the radiological protection ofthe nuclear plant personneland the environment,

❒ the observance of limits uponthe controlled release of radio-active substances and

❒ the technical qualification ofpersons responsible for theoperation of the plant.

The supervisory authority canorder special safety measures andsafety inspections as well as aninterruption of operation if devia-tions from legal provisions or thelicensing conditions or risks to thelife, health and ownership of thirdparties are detected.

5 Supervision of Nuclear Facilities

Experts regularly examine the surroundings of nuclearpower plants for radioactive substances e.g. with adevice for measuring the local dose rate (shown in anenlarged image on the left).

21 S-Bericht - 42

Upon non-compliance with thelegal requirements, ordinances orprovisions of the licensing deci-sion, the supervisory authority canorder pursuant to Section 19,para. 3 AtG that

❒ protective measures be taken,

❒ radioactive material be kept incustody at a location deter-mined by the authority, and

❒ the handling of radioactivematerial, the construction andthe operation of facilities betemporarily or finally given up.

The supervisory authority usuallyentrusts the Technical Inspec-torates (TÜV) with inspections andinspections andinspections andinspections andinspections andsuperv isory and contro l l ingsuperv isory and contro l l ingsuperv isory and contro l l ingsuperv isory and contro l l ingsuperv isory and contro l l ingfunctionsfunctionsfunctionsfunctionsfunctions. The examiners andexperts authorised by the super-visory authority have access access access access access to the

Reinstallation of an overhauled reactor coolant pump.

Ultrasonic testing of welds in thereactor pressure vessel with the help

of a test manipulator.

nuclear facilities at all timesat all timesat all timesat all timesat all times, andthey are entitled to carry out thenecessary inspections and ask theoperator for relevant information.In addition, the operator of a planthas to present operating reportsoperating reportsoperating reportsoperating reportsoperating reportsto the supervisory authority on aregular basis and report anysafety-relevant incidents safety-relevant incidents safety-relevant incidents safety-relevant incidents safety-relevant incidents to theauthority immediately.

Within the framework of theamendment of the AtG, the currentpractice of performing a periodicperiodicperiodicperiodicperiodicsafety review every 10 years safety review every 10 years safety review every 10 years safety review every 10 years safety review every 10 years forevery nuclear power plant inoperation has been turned into alegal obligation (Section 19a AtG).This review is a comprehensiveoverall safety assessment to com-plement state supervision. Theobligation to perform the safetyreview is void if the l icenseedeclares bindingly that he is goingto close down the plant for good.

Apart from this, it is commonpractice that safety technology andoperating modes are further de-veloped in accordance with theprogressing state of the art.

S-Bericht - 42 22

Transport of Radioactive Substances6According to the Atomic Energy

Act (AtG), most transports of radio-active substances are subject toapproval. Section 4 AtG regulatesthe carriage of fuel elements.Section 16 of the Radiation Pro-tection Ordinance applies to otherradioactive substances. Pursuantto Section 4 AtG, nuclear licencesare only granted if the respectiveconditions under traffic law conditions under traffic law conditions under traffic law conditions under traffic law conditions under traffic law havebeen fulfilled. These are specifiedin Section 4, para. 2 AtG:

❒ ReliabilityReliabilityReliabilityReliabilityReliability

Pursuant to Section 12b AtG,the applicant and the personscarrying out the transport areexamined by the licensing

authority, in particular withrespect to their reliability.

❒ The necessary knowledgeThe necessary knowledgeThe necessary knowledgeThe necessary knowledgeThe necessary knowledge

The applicant has to demon-strate the necessary know-ledge relating to possibleirradiation hazards and pro-tective measures to be ap-plied to the carriage of nu-clear fuel by participating incourses, special training ordemonstrating practical ex-perience.

❒ Compliance with transportCompliance with transportCompliance with transportCompliance with transportCompliance with transportregulationsregulationsregulationsregulationsregulations

The carrier must guaranteethat the nuclear fuels are

carried in compliance with alllegal provisions.

❒ Liability provisionsLiability provisionsLiability provisionsLiability provisionsLiability provisions

The carrier has to make surethat the legal liability for damagescan be fulfilled.

❒ PrPrPrPrProtection against interferotection against interferotection against interferotection against interferotection against interfer-----encesencesencesencesences

The applicant has to demon-strate sufficient protectionagainst possible interfer-ences, e.g. theft, arson, orsabotage. This protection canbe achieved by using specialarmoured vehicles, escorts orby applying administrativemeasures.

Radioactive waste and fuel element casks approved for the shipment to and emplacement in the Storage Facility for RadioactiveWaste Materials and the Transport Cask Store at Gorleben.

TTTTTop: Waste drums prepared for dispatch by road (left) and a CASTOR V/19 cask (right). Bottom (from left to right):MOSAIK cast-iron containers, Konrad waste containers, and reinforced-concrete shields (VBA) for waste containers.

23 S-Bericht - 42

❒ ConsideratConsideratConsideratConsideratConsideration of pre-ion of pre-ion of pre-ion of pre-ion of pre-dominantly public interestsdominantly public interestsdominantly public interestsdominantly public interestsdominantly public interestsA transport licence may berefused if the kind of carriage,the time and the route ofcarriage counteract public in-terests.

❒ Proof relating to on-siteProof relating to on-siteProof relating to on-siteProof relating to on-siteProof relating to on-siteinterim storage facilitiesinterim storage facilitiesinterim storage facilitiesinterim storage facilitiesinterim storage facilitiesAs a result of the amendment ofthe AtG, the licensee of a facilityfor the fission of nuclear fuels forthe commercial generation ofelectricity is obliged to set up anearnearnearnearnear-site -site -site -site -site interim storage facility(Section 9a, para. 2, no. 3 AtG).Until the development of arepository is completed, theirradiated nuclear fuels are to bestored there. As no on-siteinterim storage facilities wereavailable when the amendmententered into force, the nuclearfuels still have to be carried tocentral interim storage facilitiesfor the time being (Section 6,para. 1 AtG). In order to bind thelicensee to his obligation to builda near-site interim storagefacility, he shall only be entitledto carry his nuclear fuels to acentral interim storage facility ifhe can demonstrate to thelegislator the non-availability ofa near-site interim storagefacility.

A permission is granted forevery individual carriagecarriagecarriagecarriagecarriage. Pursuantto Section 4, para. 4 AtG it cangenerally only be granted to anapplicant upon fulfilment of alllicensing conditions for three yearsat the most. During carriage of nu-clear fuels a copy of the licensingdecision as well as a certificatemeeting the requirements of theParis Nuclear Liability ConventionParis Nuclear Liability ConventionParis Nuclear Liability ConventionParis Nuclear Liability ConventionParis Nuclear Liability Convention

has to be taken along. Duringinspections, these documents haveto be shown upon request to thesupervisory authority in charge.

Pursuant to Section 23 AtG theFederal Off ice for Radiat ionFederal Off ice for Radiat ionFederal Off ice for Radiat ionFederal Off ice for Radiat ionFederal Off ice for Radiat ionProtection Protection Protection Protection Protection is responsible for licen-sing carriages of nuclear fuels andlarge radiation sources.

To monitor compliance withrules and regulations, there is asteady exchange of informationbetween the authorities respon-sible and the parties participatingin the transport operation.

On 25 April 1995,external interim

storage began at theTransport Cask Store

Gorleben; the imageshows a CASTORHAW 20/28-type

transport and storagecask for canisters

holding vitrified wastein the maintenance

room.

With the restructuring of theGerman nuclear industry in 1988,responsibility for the transportresponsibility for the transportresponsibility for the transportresponsibility for the transportresponsibility for the transportof radioactive substancesof radioactive substancesof radioactive substancesof radioactive substancesof radioactive substances fell tofell tofell tofell tofell tothe German Federal Railwaysthe German Federal Railwaysthe German Federal Railwaysthe German Federal Railwaysthe German Federal Railways(((((Deutsche Bundesbahn)Deutsche Bundesbahn)Deutsche Bundesbahn)Deutsche Bundesbahn)Deutsche Bundesbahn). Trans-ports are supervised by the Landauthorities (e.g. police, tradesupervisory authority) and theBundesbahn central office. Sincethe privatisation of the railwaysand the creation of the Bahn AG,the "Eisenbahn Bundesamt" hasassumed the functions of theBundesbahn central office.

S-Bericht - 42 24

Appendix

Overview of the most important statutory ordinances relatingOverview of the most important statutory ordinances relatingOverview of the most important statutory ordinances relatingOverview of the most important statutory ordinances relatingOverview of the most important statutory ordinances relatingto the Atomic Energy Actto the Atomic Energy Actto the Atomic Energy Actto the Atomic Energy Actto the Atomic Energy Act

Verordnung über denkerntechnischen

Sicherheitsbeauftragten und überdie Meldung von Störfällen und

sonstigen Ereignissen(Atomrechtliche

Sicherheitsbeauftragten- undMeldeverordnung (AtSMV) –Nuclear Safety Officer and

Reporting Ordinance) of 14 October1992(Federal Law Gazette I, 1766)

last amended on 20 July 2001(Federal Law Gazette I, no. 38)

This statutory ordinance obliges theoperator to appoint a safety officerwhose main task is the analysis ofsafety-relevant events. The safetyofficer has to be employed for the entireoperating time of a facility. This regu-lation also specifies the kind of pro-cedure during events which have to bereported and the content and the termsfor reporting these incidents.

The Nuclear Licensing Procedures Ordi-nance (AtVfV) determines the details of thenuclear licensing procedure. It comprisesin particular detailed regulations on:

❒ form and content of the application,

❒ kind and scope of application docu-ments,

❒ participation of third parties in thelicensing procedure, including publicannouncement of the project, publicdisplay of the application documents,

Verordnung über den Schutz vor Schäden durch ionisierende Strahlung(Strahlenschutzverordnung (StrlSchV) – Radiation Protection Ordinance)

in the version of 1 August 2001(Federal Law Gazette I, p. 1714), last amended on 18 June 2002

(Federal Law Gazette I, p. 1869)

acknowledgement and discussion ofobjections,

❒ examination of the application by thelicensing authority,

❒ decision on the application and thecontent of the licensing decision,

❒ announcement of the application.

This statutory ordinance contains precisestandards for all actions of participants inthe licensing procedure, i. e. the applicant,the licensing authority and third parties.

Verordnung über das Verfahren bei der Genehmigung von Anlagen nach § 7des Atomgesetzes (Atomrechtliche Verfahrensordnung (AtVfV) –

Nuclear Licensing Procedures Ordinance)in the version of 3 February 1995 (Federal Law Gazette I, p. 180)

last amended on 25 March 2002(Federal Law Gazette I, p. 1193)

The Radiation Protection Ordinancecontains supervisory and protectiveprovisions, i. a. for

❒ the handling and carriage of radio-active substances,

❒ the protection of the population, theenvironment and the employeesagainst the hazards of ionisingradiation.

Sections 6, 46 to 49 of the RadiationProtection Ordinance comprise the mostimportant radiation protection principlesrelating to environmental protection inconnection with nuclear facilities. TheseSections state that every unnecessaryradiation exposure or contamination ofindividuals, goods or the environment hasto be avoided and, even below thespecified limits, has to be kept as low aspossible.

Section 47 StrlSchV stipulates that duringnormal operation the following limits must

not be exceeded within the period of onecalendar year:

❒ 0.3 mSv (30 mrem)/year effectivedose and organ dose for gonads,uterus and red bone marrow,

❒ 0.9 mSv (30 mrem)/year for organsand tissue such as colon, lung,stomach, liver, chest, etc.

❒ 1.8 mSv (180 mrem)/year organdose for bone surface and skin.

Pursuant to Section 49, para. 1 nos. 1, 2Radiation Protection Ordinance it has tobe demonstrated that the limit of 50 mSv(5 rem)/incident effective dose or 150 mSv(15 rem) thyroid dose is not exceededduring possible accidents in a nuclear facility.

The proof that the radiation exposure inthe environment of nuclear facilities evenoutside these limits is kept as low aspossible represents the main emphasis ofthe examinations in the nuclear licensingprocedure.

Verordnung über dieDeckungsvorsorge nach dem

Atomgesetz(Atomrechtliche

Deckungsvorsorge-Verordnung(AtDeckV) – Ordinance on the

Financial Security Pursuant to theAtomic Energy Act)of 25 January 1977

(Federal Law Gazette I, p. 220),last amended on 18 April 2002(Federal Law Gazette I, p. 1869)

The kind, scope and amount of thefinancial security to be demonstratedfor nuclear facilities are laid down in thisstatutory ordinance. In most cases ithas to be provided for by a liabilityinsurance. In the nuclear licensingprocedure the licensing authorityexamines whether there is sufficientfinancial security.

As part of the amendment of the AtG,the upper limit of financial security to beprovided by the holder of a nuclearlicence has been fixed to an amount of2.5 billion euros, which is ten times theprevious amount.

25 S-Bericht - 42

Brief outlines of further important laws with relevance to nuclearBrief outlines of further important laws with relevance to nuclearBrief outlines of further important laws with relevance to nuclearBrief outlines of further important laws with relevance to nuclearBrief outlines of further important laws with relevance to nuclearlicensinglicensinglicensinglicensinglicensing

these data to the federal environmentalradioactivity monitoring centre.

At present, the Precautionary Radio-logical Protection Act is specified by twostatutory ordinances:

❒ The ordinance concerning theassignment of measuring andanalysing functions according tothe Precautionary RadiologicalProtection Act sets down theresponsibilities for the determi-nation of radioactivity in the air. TheGerman Meteorological Service(Deutscher Wetterdienst) and theFederal Environmental Agency(Umweltbundesamt) are respon-sible for the determination of theoverall beta and iodine 131 activityconcentration. The trace analysis ofaerosol or gaseous artificial radio-nuclides is carried out by theInstitute for Atmospheric Radio-activity (Institut für AtmosphärischeRadioaktivität), the German Meteoro-logical Service and the Physikalisch-Technische Bundesanstalt.

❒ In the second ordinance on thesupervision of measuring andanalysing functions according tothe Precautionary RadiologicalProtection Act, the Federal ResearchCentre for Fisheries (Bundesfor-schungsanstalt für Fischerei) isentrusted with the determination ofradioactivity in marine organisms ofthe North Sea and the Baltic Sea,including coastal waters.

To protect the population, the Pre-cautionary Radiation Protection Actstipulates that the radioactivity of theenvironment is to be monitored con-tinuously and that the radiation exposureof the population during a possibleradioactive contamination of the environ-ment is to be kept as low as possible.The Federal Government is responsiblefor the large-scale measurement ofradioactivity in the air and in water aswell as for the determination of sampling,analysis, measuring and calculation pro-cedures, the evaluation of data relatingto the radioactivity in the environment,and the transfer of data and the resultsof the evaluations to the Länder. For thispurpose the Federal Government usesthe federal information system „Radio-aktivität in der Umwelt“ (Radioactivity inthe Environment) which is directly avail-able to the respective Land authoritiesresponsible.

To protect the environment, the FederalGovernment is entitled to set down dosevalues, contamination values and calcu-lation procedures by way of statutoryordinances. On the basis of these con-tamination values the Federal Govern-ment can prohibit or restrict food, fodder,medicine and other substances if thesevalues are exceeded. Upon violation ofthe statutory ordinances, imprisonmentof up to one year or monetary fines canbe imposed. It is the responsibility of theLänder to measure the radioactivity infood, drinking water and groundwater,residual materials and waste as well asin the soil and in plants, and to transmit

Gesetz zum vorsorgenden Schutz der Bevölkerung gegen Strahlenbelastung(Strahlenschutzvorsorgegesetz (StrVG) – Precautionary Radiation Protection Act)

of 19 December 1986(Federal Law Gazette I, p. 2610), last amended on 14 December 2001

(Federal Law Gazette I, p. 3714)

Verordnung über Vorausleistungenfür die Einrichtung von Anlagen

des Bundes zur Sicherstellung undzur Endlagerung radioaktiver

Abfälle(Endlagervorausleistungsverordnung

(EndlagerVIV) – Waste DisposalAdvance Payments Ordinance)of 28 April 1982 (Federal Law

Gazette I, p. 562),last amended on 20 July 2002

(Federal Law Gazette I, p. 1714)

This statutory ordinance specifies theamount of the fees for the constructionof a repository to be paid to the FederalGovernment by the nuclear facilityoperators.

Verordnung über den Schutz vorSchäden durch Röntgenstrahlen

(Röntgenverordnung (RöV) –X-Ray Ordinance)of 8 January 1987

(Federal Law Gazette I, p. 114), lastamended on 18 June 2002 (Federal

Law Gazette I, p. 1869)

The licensing and protective regulationsto be met by X-ray facilities and strayradiation emitters are specified in thisstatutory ordinance.

In June 2002, the RöV was compre-hensively amended to meet guidelinesunder European Law.

Kostenverordnung zum Atomgesetz(Atomrechtliche Kostenverordnung

(AtKostV) – Atomic Energy Act CostOrdinance)

of 17 December 1981(Federal Law Gazette I, p. 1457),last amended on 22 April 2002(Federal Law Gazette I, p. 1359)

The fees to be paid by the applicant orthe licensee for the activities of thelicensing and supervisory authorities arelaid down in the cost ordinance.

S-Bericht - 42 26

Gesetz zur Ordnung des Wasserhaushalts(Wasserhaushaltsgesetz (WHG) – Water Management Act),

last amended on 19 August 2002(Federal Law Gazette I, p. 3245)

The Water Management Act regulates the permission or grant of the use of water. Theconditions of use and the requirements and criteria for tapping and discharging waterare laid down in this act. Several water permissions which are granted in particularpursuant to Section 2 WHG are required for the operation of nuclear facilities accordingto the progress of the construction. The permission is granted taking Section 3 WHG(tapping and discharge of water) into account. The water authorities of the Länder areresponsible for the permissions.

It is the purpose of this act to deter-mine, describe and assess the impactson the environment at an early stageand in a comprehensive way. For thispurpose, environmental impact assess-ments are carried out with participationof the general public. The assessmentsexamine the impacts of planned pro-jects on humans, animals and plants,the soil, water, air, climate and land-scape, including the respective corre-lations, as well as on cultural andmaterial goods.

Projects which may have significanteffects on the environment are subjectto the environmental impact assess-ments. These are in particular:

❒ essential changes of the location,the nature and the operation of aplant subject to licensing in a publicprocedure pursuant to Section 4Federal Immission Control Act andwhich is mentioned in the Appendixof the relevant ordinance relatingto such plants,

❒ essential changes to a plant or itsoperation requiring a licence pur-suant to Section 7 AtG,

❒ construction and operation of aplant for safe custody and finalstorage of radioactive waste aswell as essential changes to sucha plant or its operation requiringplan-approval pursuant to Section9b AtG.

The result of the environmental impactassessment is to be considered as earlyas possible in all decisions on thepermissibility made by the authorities.

Gesetz über dieUmweltverträglichkeitsprüfung

(Gesetz über dieUmweltverträglichkeitsprüfung(UVPG) – Environmental Impact

Assessment Act) of 12 February 1990(Federal Law Gazette I, p. 205), lastamended on 18 June 2002 (Federal

Law Gazette I, p. 1914)

Gesetz zum Schutz vor schädlichen Umwelteinwirkungen durchLuftverunreinigungen,

Geräusche, Erschütterungen und ähnliche Vorgänge(Bundes-Immissionsschutzgesetz (BImSchG) – Federal Immission Control Act)

in the version of 14 May 1990(Federal Law Gazette I, p. 880), last amended on 11 September 2002

(Federal Law Gazette I, p. 3622)

It is the purpose of this law to protecthumans, animals and plants, the soil,water, the atmosphere as well as culturaland other goods against damagingenvironmental effects, i.e. immissions (airpollution, noise, vibration, light, heat,radiation, etc.) and to prevent theiremergence. In addition to the generalprovisions of the first part of this Act,regulations on the construction, oper-ation and closedown of facilities which,because of their nature or of their oper-ation, can create damaging environmentaleffects (facilities requiring a licence) arespecified in the second part. The legalrequirements to be met by facilities whichdo not need to be licensed are alsodescribed here. In addition, the licensingprocedure to be carried out, the measuresfor determining emissions and immiss-ions and for performing safety checksare laid down. In the third part the natureof installations, substances, products,fuels and lubricants is specified.

Part 5 of this act provides for measuresfor monitoring air pollution in the FederalRepublic, e.g. with the help of clean airplans and noise abatement measures.Parts 6 and 7 BImSchG contain pro-

visions i.a. on the supervision by theauthorities responsible, the duties andthe rights of the operator, appointmentof a hazardous incident officer, etc. Inaddition, the BImSchG is currently furtherspecified by 26 statutory ordinances.Particularly important for the nuclearlicensing procedure are:

❒ Facil it ies Licensing OrdinanceFacil it ies Licensing OrdinanceFacil it ies Licensing OrdinanceFacil it ies Licensing OrdinanceFacil it ies Licensing Ordinance((((( An lagenve ro rdnung – 4 thAn l agenve ro rdnung – 4 thAn l agenve ro rdnung – 4 thAn l agenve ro rdnung – 4 thAn l agenve ro rdnung – 4 thBImSchVBImSchVBImSchVBImSchVBImSchV,,,,, Ordinance on FacilitiesSubject to Licensing) which classifiesin its Appendix stationary plantswhich require a special licensingprocedure for their construction andoperation

❒ Hazardous Incident OrdinanceHazardous Incident OrdinanceHazardous Incident OrdinanceHazardous Incident OrdinanceHazardous Incident Ordinance(((((Stör fa l l -Verordnung – 12thStör fa l l -Verordnung – 12thStör fa l l -Verordnung – 12thStör fa l l -Verordnung – 12thStör fa l l -Verordnung – 12thBImSchVBImSchVBImSchVBImSchVBImSchV))))) which contains measuresand requirements to be met byaccident prevention and defenceand the mitigation of accidentconsequences. This ordinancefurther specifies the kind and thescope of safety analyses and theoperator’s duty to report theoccurrence of an accident.

27 S-Bericht - 42

Article 1.Article 1.Article 1.Article 1.Article 1. ObjectivesObjectivesObjectivesObjectivesObjectives

The objectives of this Convention are:

(i) to achieve and maintain a high level of nuclear safety worldwide through the enhancement of national measures and internationalco-operation including, where appropriate, safety-related technical co-operation;

(ii) to establish and maintain effective defences in nuclear installations against potential radiological hazards in order to protectindividuals, society and the environment from harmful effects of ionising radiation from such installations;

(iii) to prevent accidents with radiological consequences and to mitigate such consequences should they occur.

Article 7.Article 7.Article 7.Article 7.Article 7. Legislative and Regulatory FrameworkLegislative and Regulatory FrameworkLegislative and Regulatory FrameworkLegislative and Regulatory FrameworkLegislative and Regulatory Framework

1. Each Contracting Party shall establish and maintain a legislative and regulatory framework to govern the safety of nuclearinstallations.

2. The legislative and regulatory framework shall provide for:

(i) the establishment of applicable national safety requirements and regulations;(ii) a system of licensing with regard to nuclear installations and the prohibition of the operation of a nuclear installation

without a licence;(iii) a system of regulatory inspection and assessment of nuclear installations to ascertain compliance with applicable

regulations and the terms of licences;(iv) the enforcement of applicable regulations and of the terms of licences, including suspension, modification or

revocation.

Article 10.Article 10.Article 10.Article 10.Article 10. Priority to SafetyPriority to SafetyPriority to SafetyPriority to SafetyPriority to Safety

Each Contracting Party shall take the appropriate steps to ensure that all organisations engaged in activities directly related tonuclear installations shall establish policies that give due priority to nuclear safety.

Extracts from the Nuclear Safety ConventionExtracts from the Nuclear Safety ConventionExtracts from the Nuclear Safety ConventionExtracts from the Nuclear Safety ConventionExtracts from the Nuclear Safety Convention

S-Bericht - 42 28

German-English Glossary

4. BImSchV – Verordnung über genehmigungsbedürftige Ordinance on Facilities Subject toAnlagen (Anlagenverordnung) Licensing (Facilities Licensing Ordinance)

AtDeckV – Verordnung über die Deckungsvorsorge Ordinance on the Financial Security Pursuant tonach dem Atomgesetz (Atomrechtliche Deckungsvorsorge-Verordnung) the Atomic Energy Act (Nuclear Financial Security Ordinance)

AtG – Gesetz über die friedliche Verwendung der Kernenergie Act on the Peaceful Utilisation of Atomic Energy andund den Schutz gegen ihre Gefahren (Atomgesetz) the Protection Against its Hazards (Atomic Energy Act)

AtKostV – Kostenverordnung zum Atomgesetz Cost Ordinance under the Atomic Energy Act(Atomrechtliche Kostenverordnung) (Atomic Energy Act Cost Ordinance)

AtSMV – Verordnung über den kerntechnischen Sicherheits- Ordinance on the Nuclear Safety Officer and on thebeauftragten und über die Meldung von Störfällen und Notification about Accidents and Other Eventssonstigen Ereignissen (Atomrechtliche (Nuclear Safety Officer and Notification Ordinance)Sicherheitsbeauftragten- und Meldeverordnung)

AtVfV – Verordnung über das Verfahren bei der Genehmigung von Ordinance on the Procedure for Licensing FacilitiesAnlagen nach § 7 des Atomgesetzes pursuant to Section 7 of the Atomic Energy Act(Atomrechtliche Verfahrensordnung) (Nuclear Licensing Procedures Ordinance)

BBergG – Bundesberggesetz Federal Mining Act

BfS – Bundesamt für Strahlenschutz Federal Office for Radiation Protection

BGR – Bundesanstalt für Geowissenschaften und Rohstoffe Federal Institute for Geosciences and Natural Resources

BImSchG – Gesetz zum Schutz vor schädlichen Umweltein- Act on the Prevention of Harmful Effects on thewirkungen durch Luftverunreinigung, Geräusche, Erschütterungen Environment Caused by Air Pollution, Noise, Vibrationund ähnliche Vorgänge (Bundes-Immssionsschutzgesetz) and Similar Phenomena (Federal Immission Control Act)

BMU – Bundesministerium für Umwelt, Naturschutz und Federal Ministry for the Environment, NatureReaktorsicherheit Conservation and Nuclear Safety

Bundesanzeiger Federal Gazette

Bundesforschungsanstalt für Fischerei Federal Research Centre for Fisheries

Bundesgesetzblatt Federal Law Gazette

Deutsche Gesellschaft für Geotechnik e.V. German Geotechnical Society

EndlagerVlV – Verordnung über Vorausleistungen für die Ordinance on Advance Payments for the EstablishmentEinrichtung von Anlagen des Bundes zur Sicherstellung und zur of Federal Facilities for Safe Custody and FinalEndlagerung radioaktiver Abfälle Storage of Radioactive Waste (Waste Disposal Advance(Endlagervorausleistungsverordnung) Payments Ordinance)

Institut für Atmosphärische Radioaktivität Institute for Atmospheric Radioactivity

KTA – Kerntechnischer Ausschuß Nuclear Safety Standards Commission

RöV – Verordnung über den Schutz vor Schäden durch Ordinance on the Protection against Injuries andRöntgenstrahlen (Röntgenverordnung) Damage caused by X-Rays (X-ray Ordinance)

RSK – Reaktor-Sicherheitskommission Reactor Safety Commission

SSK – Strahlenschutzkommission Radiation Protection Commission

StörfallV – Störfall-Verordnung Hazardous Incident Ordinance

StrlSchV – Verordnung über den Schutz vor Schäden Ordinance on the Protection against Damage anddurch ionisierende Strahlung Injuries Caused by Ionising Radiation (Radiation(Strahlenschutzverordnung) Protection Ordinance)

StrVG – Gesetz zum vorsorgenden Schutz der Bevölkerung Act on the Precautionary Protection of the Population againstgegen Strahlenbelastung (Strahlenschutzvorsorgegesetz) Radiation Exposure (Precautionary Radiation Protection Act)

TÜV – Technischer Überwachungs-Verein (Regional) Technical Inspectorate

Umweltbundesamt Federal Environmental Agency

UVPG – Gesetz über die Umweltverträglichkeitsprüfung Act on the Assessment of Environmental Impacts(Umweltverträglichkeitsprüfungsgesetz) (Environmental Impact Assessment Act)

WHG – Gesetz zur Ordnung des Wasserhaushalts Act on the Regulation of Matters Relating to Water(Wasserhaushaltsgesetz) (Water Management Act)

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