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-0- TU Berlin - WIP Ben Wealer Organization Models for decommissioning and radioactive waste management IAEE 2017, 21st June 2017 Decommissioning of Nuclear Power Plants and Storage of Nuclear Waste in Western Europe and the US: Lessons Learned and Perspectives for Asian Nuclear Countries Ben Wealer, Simon Bauer, Jan Paul Seidel, and Christian von Hirschhausen Berlin Institute of Technology, Workgroup for Economic and Infrastructure Policy (WIP) 40th IAEE International Conference Singapore, 21st June 2017

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Page 1: Decommissioning of Nuclear Power Plants and Storage of ...€¦ · •Decommissioning is technologically challenging and completed projects are scarce. •High variance for future

- 0 -TU Berlin - WIP

Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Decommissioning of Nuclear Power Plants and Storage of

Nuclear Waste in Western Europe and the US: Lessons

Learned and Perspectives for Asian Nuclear Countries

Ben Wealer, Simon Bauer, Jan Paul Seidel, and Christian von Hirschhausen

Berlin Institute of Technology, Workgroup for Economic and Infrastructure Policy (WIP)

40th IAEE International Conference

Singapore, 21st June 2017

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- 1 -TU Berlin - WIP

Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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- 2 -TU Berlin - WIP

Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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- 3 -TU Berlin - WIP

Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Outlook – Global decommissioning

Global development of the Nuclear Power Plant FleetSource: Authors, based on IAEA (2016d)

• Increasing demand for decommissioning and waste management.

• About 440 commercial reactors are currently operating.

• Many reactors will reach their technical-lifetime very soon, which causes a growing

demand for decommissioning and dismantling services.

• The search for High Level waste disposal facilities is on-going. In Finland the

construction licence of the 1st DGF was granted in 2015.

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Grid connections in major Asian nuclear countries

Source: Authors, based on IAEA (2016d)

0

1

2

3

4

5

6

7

8

9

Nu

clea

r Po

wer

Pla

nts

Year

KOREA, REPUBLIC OF TAIWAN, CHINA JAPAN INDIA CHINA

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- 5 -TU Berlin - WIP

Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Typical stages of the decommissioning process

Typical choice of a decommissioning licensee: Immediate Dismantling or Long-

term Enclosure.

The five stages of decommissioning („from the outside to the inside“):

• Stage 1: Deconstruction of systems which are not needed for decommissioning, Installation

of the logistic in the hot zone.

• Stage 2: Deconstruction of higher contaminated system parts e.g. the steam generator or

parts of the primary coolant. Preparation of the deconstruction of the larger and highly

activated components.

• Stage 3: Deconstructions in the hot zone, e.g. deconstruction of the reactor pressure vessel

and its internals, and the biological shield.

• Stage 4: Deconstruction of contaminated system parts, removal of operating systems e.g.

cranes or filtration systems and decontamination of buildings. Goal is the release from

regulatory control.

• Stage 5: Demolition or other use of the buildings.

Source: Wealer et al. (2015)

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organizational models for decommissioning and radioactive

waste management (RAW)

Production

Financing

A) Public

enterprise

B) Private enterprise

(decentral or status quo)

C) Public tender

(centralized or

decentralized)

D) Further

Alternatives

1) Public budget

2) External

segregated fund

3) Internal

segregated fund

4) Internal non

segregated fund

5) Further

Alternatives

Source: Seidel and Wealer (2016), based on Klatt (2011)

Decommissioning NPPs

High-level waste management

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization Model for Germany after the reform

recommended by EK and KfK

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated fund

5) Further alternatives

Production:

• Decommissioning:

• Remains scope of the utilities until the waste is

conditioned, GDR fleet decommissioned by EWN

• Stage 3 mostly tendered to specialized companies or

deferred strategy applied

• Radioactive Waste Management:

• Deep Geological disposal of LLW and ILW (Konrad in

construction, 2022 expected)

• Over 300,000 m³ of LLW needs disposal solution

• Deep geological facility estimated to start operations

around 2080

Financing :

• Decommissioning

• Estimated costs for 23 NPPs 830€/kW (19.719 bn €)

• Cost increases between 2.9% and 6% (1,400-10,000 €/kW)

• Radioactive Waste Management:

• Installation of a new external fund (KfK) with a sum of

around 23 billion Euro including a risk premium

• All disposal related risks will be the in the responsibility of

the public fund – infringes the polluter pays principle

• Concerns: amount is not high enough to bear all future

costs

KF

K

E K

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization Model France

Production:

• Decommissioning:

• Scope of EDF (85% French state)

• Stage 3 of Chooz-A was executed by Westinghouse

• GCRs reach well into 22nd century

• EDF invested in Studsvik

• Radioactive Waste Management:

• ANDRA is responsible for RAW (LLW, ILW, HLW)

• Interim facilities are constructed and operated by EDF

• Deep geological facility: start of pilot phase set by law to

2025

Financing :

• Decommissioning

• Lowest estimated costs for decommissioning among the

observed countries (309€/kW)

• Estimated EDF costs: 26 bn €, EDF provisions in 2015: 15

bn €

• Radioactive Waste Management:

• Once the construction of the HLW facility begins, the

provisions will be transferred to ANDRA (*)

• Estimated cigéo costs: 29 bn €, EDF provisions in 2015:

8.3 bn

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives*

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization Model for the United States of America

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives

Production:

• Decommissioning:

• Remains scope of the utilities, transfer of the

decommissioning license to third party possible

(EnergySolutions for Zion 1 and 2)

• 13 NPPs fully decommissioned

• Radioactive Waste Management:

• LLW disposal facilities operated by private companies

• 79,000 MT SNF, 78% stored in pools

• HLW: scope of the DOE

• DOE Pilot Interim storage facility by 2021

• Interim storage facility operated by private company

around 2025

Financing :

• Decommissioning

• Actual decommissioning costs: 280-1,500 USD/kW

• Balance of decommissioning Nuclear decommissioning

trust fund: 53 bn USD (2014)

• Exelon reported shortfalls for three reactors 6-83 m USD

• Radioactive Waste Management:

• LLW: privately contracted fees

• Yucca Mountain (NV), approved by Congress in 2002,

federal funding stopped in 2011

• Fee for the nuclear waste fund abandoned after 2014

• DOE spent over 10 bn USD in legal penalties, could

amount to 20.8 bn USD by 2020

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization Model United Kingdom

Production

Financing

A) Public enterprise B) Private enterprise (central or

decentralized)

C) Public tender (centralized

or decentralized)

D) Further alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated fund

5) Further alternatives

Takeover option

by the NDA

Production:

• Decommissioning:

• Long-Term Enclosure, the reactors will be dismantled

after 85 years

• NDA tenders decommissioning work in long-term

contracts

• Radioactive Waste Management:

• RWM Limited (NDA subsidiary) plans and builds the

disposal facility until 2040

• LLW dipsosal facilities tendered to private companies

(Studsvik UK and Areva)

Financing :

• EDF Energy pays into the Nuclear Liability Funds, owned by the

Nuclear Trust (public)

• NDA acts as an agent

• Decommissioning:

• If EDF Energy wants to receive payments from the fund to

meet liabilities it can only be made by application

• NDA cost estimates: 150 billion Euros

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization models (HLW) in Western Europe and the US

Takeover option

by the NDA

Source: updated Seidel and Wealer (2016)

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Conclusions and Lessons-Learned for Western Europe and the

US

• Decommissioning is technologically challenging and completed projects are scarce.

• High variance for future cost estimations, cost increases in most projects.

• High market concentration for decommissioning and waste management services (slide

9), specialized nuclear companies in financial troubles.

• LLW Management and clear waste classifications important for decommissioning.

• Interim storage facilities were needed due to missing HLW disposal facility and high

inventory of SNF.

• Each funding system has (dis-) advantages. Internal: higher ROI, higher risk. External:

more transparency and control.

• Integral decommissioning and waste management plans and cost studies are needed

in respect to the long timeframe and the existing interdependences.

• Especially for HLW: all cost estimations are underlying uncertainties due to long-time

scales, cost increases and estimated interest and inflation rates.

• one external segregated fund under public control for both processes seems the most

suitable even if it also could not overcome the problem of too low cost estimations.

• Clear separation of regulator and operator important.

• New organization models are needed:

• third party holds decommissioning (EnergySolutions in the US)

• possible synergy and scale effects in the bundling of reactor types

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Only a few and highly interconnected specialized

decommissioning and RAW companies

Source: updated Seidel and Wealer (2016)

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization model for Japan

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives

Production:

• Decommissioning:

• Decommissioning is the scope of the 10 utilities

• 18 in shut-down (11 licensed for decommissioning)

• JPDR completed (12 MW, GE BWR)

• Radioactive Waste Management:

• Interim storage of HLW (415 m³) and SNF stored at

Rokkasho (2,968 MT) and on-site (14,830 MT)

• LLW disposal facility operated by JNFL (utilities owned),

74% occupied (80,000 m³)

• HLW disposal facility will be built and operated by private

company NUMO, planned to start operations in 2040

Financing :

• Polluter pays principle applies

• Decommissioning:

• Internal funds (15.3 bn USD in 2011) fed by fixed

surcharge on electricity price

• Estimation 743 USD/kW, Total 10.5 bn USD

• Radioactive Waste Management:

• HLW and TRU: External fund managed by RWMC

• Estimated costs for HLW: 33.3 bn USD

• NUMO applies for budget approval by METI

• METI determines the amount the utilities have to

contribute to the fund

• annual fee around 0.0018 USD/kWh

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Shortage of funding capital for decommissioning led to 10

years of LTE and up to 20 years lifetime extension

Source: Japco/Kansai (2015)

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization model for the Republic of Korea

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives

Production:

• Decommissioning:

• First shutdowns in 2017/23/25/26

• Decommissioning is scope of the public utility KHNP

• Immediate Dismantling, minimum 13 years

• MTIE wants to foster decommissioning business

• Radioactive Waste Management:

• Open fuel cycle, interest in reprocessing SNF from PWR

• wet and dry storage of SNF at the sites, pool capacity

exhausted by 2021

• KORAD operates LILW disposal facility

• Interim storage facility for HLW (by 2035) and future

geological disposal facility (by 2051) will be built and

operated by KORAD

Financing :

• Polluter pays principle

• Decommissioning:

• Inhouse financing with reserves within the assets

• necessary provisions have to be provided by shutdown

• Radioactive Waste Management:

• 1st phase of disposal facility for ILW (costs: 1.53 USD),

• Fee (705 USD per kilogram used fuel), KRWM

supervises the fund

• The appropriate cost is determined every two years by

government, KORAD, KHNP and others by applying an

annual escalator to the costs for disposal of LILW

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization model for China

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives

Production:

• Decommissioning:

• Scope of the operators

• Radioactive Waste Management:

• Closed fuel cycle, construction start of reprocessing plant

and possibly MOX plant, pilot plant at Lanzhou

• MEP is responsible for the management of radioactive

waste nationwide

• Interim storage: SNF stored on-site in ponds, some

transported to centralized storage facility at Lanzhou

• HLW: Underground laboratory around 2020, construction

start around 2050

• Two LLW facilities; three future facilities are planned

Financing :

• Polluter pays principle

• Decommissioning, SNF management, and RAW management costs

have to be borne by the operators

• Funds are collected by a surcharge of 0.038 USD/kWh of generated

electricity, starts 5 years after commissioning

• Funds are managed on the part of the operators and subject to

oversight of special regulatory bodies

• Operators have to prepare detailed decommissioning plans, including

a cost estimation

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Organization model for India

Production

Financing

A) Public enterprise B) Private enterprise

(decentral or

decentralized)

C) Public tender

(centralized or

decentralized)

D) Further

alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated

fund

5) Further alternatives

Production:

• Decommissioning:

• Scope of the public operator NPCIL

• First NPP Tarapur (BWR-1 by GE, 1964) is likely to be

closed in the short term

• No decommissioning plans have been prepared

• Radioactive Waste Management:

• Closed fuel cycle, reprocessing site at Tarapur

• Decentralized near-surface disposal facilities for LLW and

ILW Interim storage facility in operation

• HLW: Construction of an underground research facility

which could be converted into a pilot repository, done by

BARC

Financing:

• Decommissioning activities include defueling, dismantling,

transportation, and disposal of the waste

• No specific arrangements in law with regard to funding

• Operators collect provisions through a levy per kWh, levy has not

changed since 1991

• Provisions are transferred to a separate decommissioning fund,

maintained by NPCIL on behalf of the government

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Agenda

1) Motivation

2) Technological System and Organization Matrix

3) Western Europe and the US: Lessons Learned

4) Organization models in Asia

5) Conclusion

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Production

Financing

A) Public enterprise C) Private enterprise

(central or

decentralized)

B) Public tender

(centralized or

decentralized)

D) Further alternatives

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated fund

5)Further alternatives

Conclusion

1) Public budget

2) External segregated fund

3) Internal segregated fund

4) Internal non segregated fund

5) Further alternatives

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

Thank you for your attention!

Contact:

[email protected]

40th IAEE International Conference, Singapore

21st June 2017

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Ben Wealer

Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

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Organization Models for decommissioning and radioactive waste management

IAEE 2017, 21st June 2017

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