9 Conclusion

A proposal by private-sector investors to build a nuclear facility in Alberta would likely lead to an active public discussion and debate. Such a debate would be most productive if it were conducted with a clear understanding of the nature of nuclear power generation, and its relative risks/benefits compared with alternatives. This report is based on current scientific information to help provide such an understanding.

In preparing this report the panel makes the fundamental assumption that Alberta’s economy and population will continue to grow and that additional electrical power will be needed to maintain and improve the standard of living of Albertans. The evidence to support this assumption is shown in Chapter 2.
Chapter 3 discusses the alternative means available to maintain a match of supply and demand for electricity and the associated cost of electricity and environmental impacts of each alternative. Options include more fossil-fuel burning power plants, more renewable sources and greater energy efficiency, as well as nuclear power.

While the focus of this report is on nuclear power generation, the panel deliberately did not take a position as to whether nuclear power is the only or the preferred means to meet any electricity supply-demand gap. There are attractive opportunities for Alberta to expand electricity generation through fossil fuel, renewable and nuclear generation technologies, and each technology has trade-offs associated with it.

We have attempted to elucidate, in a plain-language non-technical manner, the nuclear power plant technology that is available and/or is in use in various parts of the world and the issues that are associated with nuclear power.

9.1 Technical
The technology of nuclear power has evolved significantly over the past decades. New designs, based on learning from previous incidents and from long-term safe operation, are safer, and are being used worldwide. In comparison with the nuclear power plants first deployed some fifty years ago, the nuclear plants currently being developed are safer, more efficient and easier to control and operate. Within the industry, these newer designs are referred to as Generation III reactors and reflect improved engineering design, improved materials and the much better control systems made possible by modern technology. Canada, along with every other country with operating nuclear power plants, is a signatory to The Convention on Nuclear Safety, committed to maintaining the highest level of safety.

Nuclear power plants in Canada have triple redundancy with respect to safety. First, the design and controls provide for inherently safe operation. Second, should an accident or failure occur, there are fail-safe mechanisms to rapidly cool the reactor core. Third, the entire reactor system is encased to prevent leakage of radioactive material.

9.2 Environmental
Nuclear power does not release carbon dioxide. This is a significant difference (in environmental terms) between it and technologies using traditional coal and natural gas. Compared with hydroelectric and wind power, nuclear has a smaller physical footprint on the landscape.

The offsetting concern is related to plant operation and nuclear waste disposal. While the spent fuel removed from a reactor is radioactive, more than 99% of this material is made up of the heavy metals uranium and plutonium, which can be recycled into nuclear fuel. The remaining waste fission products decay comparatively quickly. Thus a program of separating the spent fuel and recycling heavy metals will dramatically reduce the amount of waste to be dealt with and the time period during which this material would be radioactive at levels above the natural background radiation.

If fossil fuel generation is fitted with carbon capture technology to eliminate carbon dioxide emissions, CO2 also presents concerns regarding long-term storage.

9.3 Regulation/jurisdiction
In Canada, the Federal Government has the authority and responsibility for approving and regulating all nuclear facilities and nuclear-related activities. This raises the question of whether this authority is sufficient to allow the construction of any new nuclear facility. Presumably, if there were a specific and important national interest at stake, nuclear facilities could be constructed solely on the authority of the Federal Government. It is doubtful that a nuclear power plant would fall into this category.

Therefore in the case of a nuclear power plant for the generation of electricity or for the production of process steam, the normal provincial approvals that are required for any major project would also be required. These required approvals flow from the Province’s constitutional responsibility for land and resources and cover the broad range of issues related to land use. Hence, in addition to federal approval, any nuclear power facility would also have to comply with provincial regulations. However, if a project did meet provincial regulations fully, it is doubtful it could be prevented from going ahead simply because it was a nuclear facility.

9.4 Other social issues
Among other items, the panel was asked to consider a process to respond to social issues. It is the panel’s view that there are no separate social issues which fall within provincial jurisdiction that are uniquely associated with nuclear power generation plants. Any project of the magnitude under consideration will have social impacts in areas such as schools, hospitals, transportation infrastructure, aboriginal communities, the local economy, housing and so on. Significant though these issues might be, they are regularly dealt with by the Government of Alberta and its agencies and affected municipalities. As such, the panel feels it has neither the information nor the expertise to offer advice which the Government of Alberta does not already have.

The panel recognizes that there may be issues other than those featured in this report which could have a bearing upon any decision to approve a large nuclear plant. Resolution of these types of issues involves public policy and economics, as well as science and technology. As is the case in most areas of government responsibility, it can be a challenge to find the most appropriate consensus among competing interests. It is usually the case that finding the most timely and best resolution is aided if discussed within the context of current and scientifically factual information. It is the panel’s hope and expectation that this report will be a helpful contribution to a public discussion on nuclear power generation based on scientific evidence and empirical findings from experiences with nuclear power generation around the world.

Appendix A: Panel Mandate

Government of Alberta Department of Energy Ministerial Order 31/2008
I, MEL KNIGHT, Minister of Energy, pursuant to section 7 of the Government Organization Act, make the Order in the attached appendix, being the Nuclear Power Expert Panel Order.
Dated the fifth day of May, 2008
Original signed by
Mel Knight, Minister of Energy.

Schedule A: Duties and functions of the panel

The Panel shall prepare a balanced and objective Report for the Government of Alberta on factual issues pertinent to the use of nuclear power to supply electricity in Alberta.
The Report shall be submitted to the Minister of Energy
The Panel will identify in its Report the relevant facts underlying the following issues:
- Alberta’s projected future demand for electricity;
- Nuclear Power Generation Technologies;
- Comparison of nuclear with other base load generation technologies;
- Integration of nuclear power into the supply of electricity in Alberta;
- Current and Future Nuclear Power Generation – Canada, World;
- Risk and Benefi t Assessment – Environment, Health and Safety, Cost
- Waste Management and Liability;
- Social Issues; and
- Process to Respond to Social Issues.

Panel members

Honourable Dr. Harvie Andre, BSc, MSc, PhD, FEIC, PC. (Chair)
Dr. Andre is a chemical engineer, who after receiving his doctorate from the University of Alberta in 1966, became one of the founding professors of Chemical Engineering at the newly established University of Calgary, where in addition to helping to establish the full four year undergraduate program, he supervised several postgraduate students doing research in process dynamics, control and optimization.

From 1972 to 1993, Dr. Andre was a Member of Parliament and from 1984 to 1993 was a cabinet minister in the Government of Canada. Subsequent to retiring from Parliament he has been involved primarily in the oil and gas industry. He is and has been on the board of several private and public companies and currently is President & CEO of a company that designs, manufactures, leases and sells drilling tools used in the petroleum industry.

Dr. Joseph Doucet, B.Mgt.Sc., MSc, PhD.
Dr. Doucet holds the Enbridge Professorship in Energy Policy in the University of Alberta’s School of Business.

In the School of Business he directs a specialized MBA program in natural resources, energy and the environment as well as the Center for applied business research in energy and the environment (CABREE). Dr Doucet is also the Director of the University of Alberta’s School of Energy and the Environment (SEE).

His professional interests are in energy and regulatory economics and policy and he is a frequent commentator and analyst of energy market and policy issues in the media. He regularly provides policy advice and analysis to government departments, regulatory agencies and private sector entities in the energy sector. He is also active in academic and professional associations and is currently the President of the Canadian affiliate of the International Association for Energy Economics (IAEE). Dr. Doucet’s research has appeared in journals such as The Energy Journal, Energy Economics, the Journal of Regulatory Economics and the Canadian Journal of Economics. He is a member of the Editorial Board of the Journal of Regulatory Economics, and between 2000 and 2006 he was Editor of the journal Energy Studies Review.

Dr. Doucet received his MSc and PhD in Operations Research from the University of California, Berkeley, after taking his Bachelor’s degree in management science (Summa Cum Laude) from the University of Ottawa. Prior to joining the University of Alberta in 2000 Dr. Doucet was on the faculty of Université Laval. He has also been a visiting faculty member at the University of Florida and Université Montpellier in France.

Dr. John Luxat, BSc, MSc, PhD
Dr. Luxat is a Professor in the Department of Engineering Physics at McMaster University where he holds the NSERC/UNENE Industrial Research Chair in Nuclear Safety Analysis. He teaches nuclear engineering and nuclear safety to graduate and undergraduate students and conducts research in nuclear safety, nuclear reactor physics and nuclear fuel cycles.

Prior to joining McMaster University in 2004, he had 32 years experience working in many areas of nuclear safety and nuclear engineering in the Canadian nuclear industry, most recently as Vice President, Technical Methods at Nuclear Safety Solutions Limited and, prior to that, as Manager of Nuclear Safety Technology at Ontario Power Generation. He has represented Canada on many international projects and has advised international organizations such as the International Atomic Energy Agency (IAEA) and the Nuclear Energy Agency of the Organization for Economic Development (OECD). He has consulted to numerous Canadian companies on nuclear safety and nuclear engineering issues and provided advice to government organizations at the national and provincial level.

He is a member of the Board of Atomic Energy of Canada Limited, the Advisory Board of the International Association for Structural Mechanics in Reactor Technology, the Canadian Nuclear Society and the American Nuclear Society. He served as the 2005/06 President of the Canadian Nuclear Society and was the Treasurer of the Society.

In 2004 he was awarded the Canadian Nuclear Society/Canadian Nuclear Association Outstanding Contribution Award for his significant contributions to safety analysis and licensing of CANDU reactors. He has authored more than 140 conference and journal papers and numerous technical reports on nuclear safety issues and has been invited to lecture at academic and technical institutions around the world.

Dr. Luxat obtained his BSc and MSc degrees in Electrical Engineering from the University of Cape Town, South Africa in 1967 and 1969, respectively. In 1972 he obtained his PhD degree in Electrical Engineering from the University of Windsor, Ontario.

Dr. Harrie Vredenburg, BA, MBA, PhD, ICD.D
Dr. Vredenburg is Professor of Strategy at the University of Calgary’s Haskayne School of Business where he holds the Suncor Energy Chair in Competitive Strategy and Sustainable Development, a research chair affiliated with the University’s Institute for Sustainable Energy, Environment and Economy (ISEEE). He teaches in MBA, MSc, Executive MBA, and PhD programs as well as in executive development and directors’ education programs. He is also Adjunct Professor of Environmental Science in the Faculty of Environmental Design.

He served for 10 years as founding Academic Chair of the University’s MSc program in sustainable energy development and for 13 years as founding Director of IRIS, the Haskayne School’s International Resource Industries and Sustainability Studies Centre. He has authored or co-authored more than 50 research articles, book chapters and case studies on business strategy, energy, environment and sustainable development in journals such as Organization Science, Journal of Applied Behavioral Science, Ecology & Society, American Journal of Public Health, Strategic Management Journal, Journal of Business Ethics, Harvard Business Review, MIT Sloan Management Review and Journal of Petroleum Technology.

He has served as a member of the Alberta Environmental Appeals Board, a member of the board of directors of the Pembina Institute, a member of a federal expert panel advising the Minister of Health on tobacco industry regulation, and a member of a specialist group advisory board of the International Union for the Conservation of Nature. He currently serves on the board of directors of Petrobank Energy, a public company, and the Van Horne Institute for International Transportation and Regulatory Affairs. Prior to joining the University of Calgary he was a professor at McGill University in Montreal. Dr. Vredenburg earned a PhD in strategic management from the University of Western Ontario, an MBA in international business and finance from McMaster University and an honours BA in history from the University of Toronto. He earned the ICD.D designation of the Institute of Corporate Directors as a certified corporate director.

Appendix B: Glossary of terms

Actinides - A series of 15 elements starting at actinium (atomic number 89), ending at lawrencium(atomic number 103) and including uranium (atomic number 92) and plutonium (atomic number 94) with large, heavy nuclei made up of large numbers of protons and neutrons. They are unstable elements that decay by emitting radioactivity.
Atomic number - The number of protons in the nucleus of an element. The atomic number distinguishes the chemical properties of the element.
AECB - Atomic Energy Control Board, the former Canadian federal nuclear regulator (now replaced by the CNSC).
AECL - Atomic Energy of Canada Limited, the Crown Corporation that designs and sells CANDU reactors.
AESO - Alberta Electric System Operator, responsible for planning and operating Alberta’s transmission system.
Alpha particles - Nuclei of the helium atom (i.e., two protons and two neutrons bound together).
ARC - Alberta Research Council.
Beta particles - High-energy, high-speed electrons.
BWR - Boiling Water Reactor, a design that uses a single coolant loop in which water reaches
boiling temperature to produce steam.
CANDU - Canada deuterium uranium, a reactor design based on natural uranium fuel with heavy water (deuterium) as a moderator.
Capacity factor - The percentage of time that a generating unit is available to produce energy.
CERI - Canadian Energy Research Institute.
CNS - Canadian Nuclear Society.
CNSC - Canadian Nuclear Safety Commission, the federal nuclear regulator.
CO2 - Carbon dioxide.
Depleted uranium - Uranium from which U-235 has been removed, usually as part of the process of making nuclear fuel.
Deuterium - An isotope of hydrogen that includes one proton and one neutron (compared with the more usual form of hydrogen that has no neutron.)
EPRI - Electric Power Research Institute.
ERCB - Energy Resources Conservation Board.
Fission - The splitting of a heavy atom into smaller fragments when it is hit by a neutron.
Fission products - Unstable isotopes of lighter elements created when the nucleus of a heavier element is split.
Gamma radiation - Electromagnetic radiation similar to X-rays.
GDP - Gross Domestic Product, a measure of total economic activity in a region or country.
GW - Gigawatt, one billion watts.
GWh, GWd - G igawatt-hour and gigawatt-day, respectively. The energy equal to one 57 gigawatt of generating capacity operating over one hour or one full day.
Heavy water - Water containing a higher-than-usual percentage of molecules made up of deuterium rather than typical hydrogen.
IAEA - International Atomic Energy Agency.
IEA - International Energy Agency.
IGCC - Integrated Gasifi cation Combined Cycle, a technology for creating synthetic gas from coal or other sources and burning it to produce energy.
INL - Idaho National Laboratory.
Life-cycle analysis - Considers the environmental impacts of all the components throughout the life of a facility, from manufacturing equipment, through construction, installation, and operations to eventual decommissioning.
LLRWMO - Low-Level Radioactive Waste Management Offi ce.
m2 - Square meters.
m3 - Cubic meters.
MW - Megawatts, a million watts.
MWh - Megawatt hours.
Neutron - A subatomic particle with no electric charge. The nucleus of any atom is made up of protons and neutrons.
NEI - US Nuclear Energy Institute.
NGCC - Natural gas combined cycle.
NOx - Nitrogen oxides.
NWMO - Nuclear Waste Management Organization, an organization created by the owners of used nuclear fuel to manage Canada’s nuclear waste.
person-years - A person-year represents the amount of work done by one person employed for a full year.
PBMR - Pebble bed modular reactor.
PWR - Pressurized Water Reactor.
PHWR - Pressurized Heavy Water Reactor.
RBMK - Reaktor bolshoy moshchnosti kanalniy (a high-power channel-type reactor).
SCO - Synthetic crude oil.
SO2 - Sulphur dioxide.
Sievert - A unit for expressing dosages of radiation. It refl ects the biological effects of radiation received. A milli-Sievert is one one-thousandth of a Sievert.
U-235 - Uranium-235, an isotope of uranium made up of 92 protons and 143 neutrons. It is naturally fissile and releases neutrons.
U-238 - Uranium-238, the most common isotope of uranium, made up of 92 protons and 146 neutrons.
V - Volts.
W - Watts.
WANO - World Association of Nuclear Operators.
Wh - Watt hours.
WNA - World Nuclear Association.

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