The development of nuclear power in Southeast
Asia faces hurdles to collectively ensure nuclear security, safety and
safeguards (3S). However regional cooperation remains key to achieving it. Can
ASEAN live up to expectations?
Vietnam,
Malaysia and Indonesia plan to diversify their energy mix, reduce
over-dependence on fossil fuel, and gradually integrate nuclear power into
their long-term energy plans. Earlier this year, Vietnam announced a delay of
its first Nuclear Power Plant (NPP) until 2020. Its government wanted to take a
calibrated step-by-step approach while developing the necessary infrastructure,
including training future NPP operating engineers and strengthening relevant
laws and regulations.
Indonesia’s
NPP programme has stalled because of strong public opposition. President Joko
Widodo will make or break the decision for Indonesia to go nuclear, and as
public acceptance is a key factor, he is unlikely to make an unpopular
decision. Nevertheless, to demonstrate Indonesia’s commitment to nuclear
security and safety, the country’s nuclear regulatory body BAPETEN established
the Indonesian Centre of Excellence on Nuclear Security and Emergency
Preparedness (I-CoNSEP) in August 2014 to coordinate relevant government
agencies.
Skills shortage
In
neighbouring Malaysia nuclear energy has also received strong public
opposition. The Malaysian government does not rule out the nuclear option,
however. Minister in the Prime Minister’s Department Mah Siew Keong stated in
early July that the government will conduct a feasibility study, including a
public opinion survey and comparative energy analysis.
While the
three countries have maintained their nuclear energy plans, there are still
significant challenges to developing human resources and regulatory frameworks
to pursue sustainable nuclear energy development in the region.
Vietnam
continues to develop and expand its pool of nuclear engineers by sending
hundreds of students to Russia and Japan, offering nuclear energy scholarships
in five local universities, and allocating a US$150 million capacity-building
budget between 2013 and 2020. However, critics argue that HR training
emphasises theory rather than practice.
According
to a consultant to the NPP project in Ninh Thuan province, Vietnam’s strategy
of sending its nuclear scientists and professors for short training courses
overseas (average six weeks) has so far failed to provide sufficient knowledge
because the courses are too short for anything other than basic knowledge.
Indonesia
does not have comprehensive educational plans to produce sufficient numbers of
engineers for its future NPPs. Some programmes are in place to boost the
country’s human resources in nuclear energy, but specific competencies still
need to be developed in cooperation with future NPP investors.
Meanwhile,
Malaysia does not yet have a dedicated human development programme for NPPs,
and it remains unclear whether Malaysia will have the necessary human resources
by the time it constructs its first NPP. At present the focus of nuclear
knowledge and expertise is primarily on non-power applications such as medical,
health, agriculture, industry and manufacturing.
Safety and regulatory loopholes
One key
takeaway from the Fukushima accident is the importance of an effective and
independent nuclear regulatory body. The Japanese parliament’s investigation
concluded that collusive relationships between Fukushima plant operators and
government regulators compromised safety.
Nuclear
regulatory bodies in Vietnam and Malaysia do not have effective independence
from government ministries which promote nuclear energy. If this arrangement
remains by the time they start operating their NPPs, nuclear safety may be
compromised. Vietnam’s emergency protocol still does not conform with the
International Atomic Energy Agency’s (IAEA) emergency preparedness and response
standards.
In
addition, Vietnam has yet to come up with a comprehensive NPP security and
management plan for spent fuel or high-end radioactive waste. Vietnam’s Atomic
Energy Law is currently being revised to address these significant regulatory
issues.
In
Indonesia, contrary to what the IAEA prescribes, there is no Nuclear Energy
Implementing Organisation (NEPIO) to lead and manage the effort to consider and
develop a NPP programme. Instead, several institutions such as the National
Nuclear Energy Agency (BATAN), BAPETEN, Ministry of Energy and Mineral
Resources, Ministry of Environment, and Ministry of Research and Technology
carry out separate functions in preparing for the establishment of NPPs. This
arrangement may compromise the regulatory impartiality of BAPETEN.
Regional cooperation
Although
not all ASEAN member states currently have plans to build NPPs, the
transboundary implications of radioactive waste leaks and nuclear accidents on
public health, environment, food security, and economic well-being should
compel the region to collectively ensure nuclear security, safety and
safeguards (3S). It is imperative for ASEAN member states to work together to
ensure effective governance of nuclear facilities, materials, and waste and to
adopt a regional disaster preparedness mechanism.
ASEAN
member states need to review existing domestic laws and regulations on nuclear
energy and bring them into line with the international legal instruments that
they have already acceded to.
Learning
from the rich experience of the European Atomic Energy Community (EURATOM),
ASEAN can facilitate regional cooperation on human resources training,
information dissemination, and joint emergency preparedness and response
exercises in case of nuclear accidents.
As ASEAN
member states work to establish an ASEAN Community, the fostering of an ASEAN
consensus on nuclear energy-related issues is possible. Key to its success is
for member states to work around concerns about non-interference in domestic
affairs for a shared concern and interest in a nuclear-safe ASEAN.
Mely
Caballero-Anthony, Alistair D.B. Cook, Julius Cesar I. Trajano and Margareth
Sembiring RSIS
This
commentary is part of the NTS Report No. 1 entitled “The Sustainability of
Nuclear Energy in Southeast Asia: Opportunities and Challenges,” available at http://www.rsis.edu.sg/wp-content/uploads/2014/10/NTS-Report-October-2014.pdf.
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