Rodolfo C. Severino, Straits Times 24 Nov 07;
It must always be kept in mind that nuclear energy has implications for, and impacts on, the entire region and should thus be treated as a regional concern.
ON WEDNESDAY, the East Asia Summit (EAS), which gathered the leaders of Asean countries as well as those of Australia, China, India, Japan, South Korea and New Zealand, issued the Singapore Declaration on Climate Change, Energy and the Environment.
They pledged to work together on energy efficiency and the use of cleaner energy by, among other measures, 'cooperating for the development and use of civilian nuclear power, in a manner ensuring nuclear safety, security and non-proliferation, in particular its safeguards, within the framework of the International Atomic Energy Agency (IAEA), for those EAS participating countries which are interested'.
In January, in Cebu, the Asean Summit and the EAS made similar statements. Singling out 'civilian nuclear power' in these documents evidently resulted at least partly from the plans of several Asean countries to harness nuclear energy for electricity generation.
Last year, nuclear power was included in Indonesia's National Energy Policy 2005-2025. Years earlier, Vietnam had announced its intention to build a nuclear power plant by 2020, and one or two more by 2025.
More recently, Malaysia indicated its intention to operate a plant by 2020. Thailand has been reported to have plans to operate nuclear power plants starting in 2020-2021. The Philippines is reportedly taking steps aimed at operating the Bataan nuclear power plant, which was idled in 1986.
At a conference at the Institute of Southeast Asian Studies this month on nuclear power, three conclusions emerged. First, several Southeast Asian governments seem determined to put up nuclear power plants for electricity generation. Next, these governments are worried enough to address concerns about the safety of the plants and the materials that they use, as well as issues like the disposal of nuclear waste. Lastly, the operation of nuclear power plants in the region is not just a national concern but a regional one that Asean should deal with now rather than later.
South-east Asian governments cite a number of reasons for building nuclear power plants. Among them, a cleaner source of power than oil or coal is needed to meet the growing energy demand.
On the other hand, opponents, mainly environmental pressure groups, cite the cost and uncertain economic viability of constructing and operating such plants.
More importantly, they invite attention to the possible catastrophic impact of damage to them from natural disasters, accidents or sabotage, or from the diversion of nuclear materials to unauthorised uses.
In response, governments have pointed out that recent technology has significantly reduced the risk of damage. They have also enacted legislation and entered into international agreements to enhance the security of the proposed plants. And they have gone into detailed public justifications for harnessing nuclear power for civilian use.
In any case, the use of nuclear power for electricity generation poses problems for the region that call for Asean's attention. One is to make sure that nuclear materials are not diverted to military or other illicit uses. Another is how the spent fuel is to be temporarily stored, and where and how to dispose of nuclear waste eventually. Finally, there is the matter of safeguards against the effects of natural disasters, accidents or sabotage.
These problems are not insurmountable, but they have to be dealt with by the region and not just by the state concerned - even in collaboration with the IAEA.
In August this year, Asean ministers of energy agreed 'in principle' to set up an Asean Nuclear Energy Safety Sub-sector Network. Their senior officials are to work out its details. However, nuclear energy is an issue too overarching and political to be left to the energy ministries alone.
Indeed, unknown even to many officials, the 1995 treaty on the South-east Asia Nuclear Weapon-Free Zone (SEANWFZ) not only outlaws nuclear weapons in the region, but also embodies commitments pertaining to the peaceful and safe use of nuclear energy and to the disposal of radioactive material or waste.
In July, the commission set up by the SEANWFZ treaty reviewed compliance with its provisions and adopted a plan to ensure continued compliance. Among the measures specified is the accession to IAEA safeguards agreements. The plan also contains commitments to cooperate with the IAEA and others in putting together legal frameworks for nuclear safety, forming regional networks for the early notification of nuclear accidents, drawing up a regional emergency preparedness response plan, and building capacity.
One thing Asean countries can do immediately is to accede to the relevant UN conventions. The Philippines signed the Convention on the Physical Protection of Nuclear Materials shortly after it opened for signature in 1980. Indonesia did so in 1986, Cambodia in 2006.
Vietnam acceded to the Convention on Early Notification of a Nuclear Accident in 1987. Thailand and Indonesia ratified it in 1989 and 1993, respectively. The Philippines, Myanmar and Singapore acceded to it in 1997. Indonesia and the Philippines signed the Joint Convention on the Safety of Spent Fuel Management and on the Safety of Radioactive Waste Management soon after its conclusion in 1997.
Asean should ensure that its other members accede at least to these conventions and ratify them. National laws and regulations on the peaceful uses of nuclear energy, particularly those on safety, should be open to Asean scrutiny. A regional early warning system and the formation of emergency response teams have been proposed. Asean should constantly and intensively monitor compliance with the SEANWFZ treaty and the plan of action adopted in July.
In the 1990s, the Philippines proposed the establishment of 'Asiatom', which would deal cooperatively with all aspects of nuclear energy use. The idea did not gain much attention. Perhaps it should be revived. It could be an Asean endeavour, or it could be a matter for Asean Plus 3 or the East Asia Summit.
In any case, it must always be kept in mind that nuclear energy has implications for, and impacts on, the entire region and should thus be treated as a regional concern.
The writer is a visiting senior research fellow at the Institute of Southeast Asian Studies. The views expressed here are his own.
