A. ALONSO, Universidad Politecnica de Madrid, Spain

Abstract: This chapter outlines the justification principle and how it could be applied to taking decisions about the development of nuclear power. The justification principle compares the economic, social and environmental benefits derived from a given development against the risks and detriments associated with it. When the benefits outweigh the associated risks and detriments, the intended development is considered to be justified. The benefits from using nuclear power for the generation of electricity arise from its reliability, independence, costs and freedom from carbon emissions, while its risks and detriments are associated with the generation of toxic radioactive products and strategic nuclear materials that need to be kept under control. The justification principle could be used to consider the establishment or continuation of a nuclear development plan, to select an individual design and the corresponding fuel cycle, or to help decide the longer-term operation of an already operating plant.

Key words: benefits of nuclear power, detriments from nuclear power, ethics of justification, justification equation, justification process.

8.1 Introduction

The justification of facilities and activities is the fourth principle of the 10 ‘Fundamental Safety Principles’ introduced by the International Atomic Energy Agency (IAEA) in 2006. The principle states that ‘facilities and activities that give rise to radiation risks must yield an overall benefit’ (IAEA, 2006). This principle was first introduced by the International Commission on Radiological Protection (ICRP) as a basic principle in the protection against ionizing radiation (ICRP, 1990) and has mainly been applied in medical and other uses of radiation.

Many countries have introduced the justification principle into national legislation, although limiting its application to radiation protection in radia­tion uses. The definition of justification given by the IAEA extends the application of the principle to facilities and activities where radiation risks are present; nuclear power plants and related fuel cycle installations and activities lie within this class. Although such installations and activities are clear candidates for application of the principles, many countries have not included such requirements in their general regulatory practices, with the notable exception of the United Kingdom for general applications (UK, 2004) and specifically for nuclear power designs (UK, 2008), as explained in Appendix 1.

Supporters of the application of the principle to the development of nuclear power believe that it serves to balance the benefits and detriments, providing insights into high-level decision processes and aiding the social acceptance of nuclear energy. When solving the justification equation, all possible benefits should be assessed as well as all risks and detriments coming from the construction and operation of nuclear power plants, fuel cycle installations and related activities. Benefits, risks and detriments can be economic, social or environmental. All these elements will be described in this chapter.

The International Nuclear Safety Group (INSAG) advises that the 10 IAEA Fundamental Safety Principles be applied to all the different phases in the life of a nuclear power plant (INSAG, 2008). The application of jus­tification to all phases in the life of a nuclear power plant could be very effective for the early phases, and it should be considered as part of the decision to launch a nuclear power programme and in the selection of acceptable technologies. During plant operation, it could also help when taking decisions such as enlarging the capacity and long-term operation of a nuclear power plant, as well as assisting in extraordinary circumstances, such as when recovering from relevant incidents, and equally could also be used in selecting the decommissioning level and the technology used for it.

INSAG recommends that the justification principle should be applied by new entrants and by those countries interested in expanding their nuclear power programmes (INSAG, 2008). Nevertheless, neither INSAG nor the IAEA have developed detailed technical guidance on how to develop a justification document. The purpose of this chapter is to give such guidance on how to develop the terms included in the justification equation.

The application of the justification principle needs a process and a justi­fication authority. A country’s government is responsible for establishing the regulatory requirements and corresponding guidance, and for selecting the justification authority. Relevant decisions, such as the decision by a state to embark on a nuclear power programme, are generally taken at the highest levels of government. For other decisions, such as for those concern­ing the longer-term operation of existing nuclear power plants, the regula­tory body may determine whether the decision is justified.