8. NUCLEAR

Communication to stakeholders

Sweden has a tradition of open and transparent communication to stakeholders at the local level as well as inside and outside the country. This is critical for building trust in nuclear institutions in Sweden and may explain the overall positive attitude towards nuclear power among the general public.

In particular, local safety boards are established in the municipalities that host major nuclear infrastructure. They gather information on the safety and radiation protection measures at the facility to inform the residents and interested parties further in a timely and reliable manner. The licence holder of a nuclear facility must provide this information and relevant documents, and must grant access to the site upon the request of the board members.

Several government entities have a proactive role in disseminating information to the public. In particular, the SSM is responsible for informing the society about radiation protection issues within and outside the Swedish borders. The SSM has a policy to provide proactive and fast information to the media and to the public, and its management and experts have overall responsibility for communication. The SSM periodically informs the public on major activities and issues reports on the main R&D results and regulatory assessments. In addition, the media and the general public have open access to SSM’s reports. SSM also runs (from 2004) an education centre to teach radiation protection.

Openness, transparency and trust are also key factors in the success of the Swedish nuclear waste management programme. The SKF has systematically engaged in a formal consultation process with the SSM, non-governmental organisations and the representatives and population of the municipalities that host or will host the infrastructures needed to manage nuclear waste.

Assessment

Nuclear power has a long tradition in Sweden, with 12 nuclear units commissioned in a relatively short time, between 1975 and 1985. Currently, there are eight units in operation with a total capacity of 8.9 GW, around 1.5 GW less than the peak nuclear capacity in 1999. The units are located at three sites, near the capital and in southern Sweden, where most electricity demand is concentrated. However, nuclear capacity will decrease to 7.1 GW by 2020, when the two oldest units at the Ringhals site will be permanently shut down.

Nuclear power has operated efficiently in Sweden, at high availability and load factors, in line with those of OECD member countries. In the past decade, nuclear power has averaged 40% of the electricity generated in Sweden. Together with hydropower, it has contributed to the low-carbon intensity of the Swedish electricity generation, as well as to the cost-effectiveness of electricity provision and stability of electricity prices. Currently, NPPs provide a large array of system services and guarantee the majority of the inertia of the electricity grid, which helps to maintain grid stability. With the planned reductions in nuclear capacity, the share of nuclear power in electricity generation is expected to diminish in the coming years.

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8. NUCLEAR

The 2016 Framework Agreement on Energy Policy presents some important clarifications to nuclear energy policy. First, there is no ban on existing reactors, which can be operated provided they meet the safety and regulatory requirements. Second, new reactors can be built on existing sites, provided the government does not directly or indirectly subsidise this. Third, beginning in 2018, the “nuclear tax” is to be phased out. This tax on nuclear thermal capacity was first introduced in the late 1990s, and then increased over time to equal around SEK 70/MWh (or EUR 8/MWh) in 2015. These measures provide more certainty to operators of the existing nuclear facilities. Specifically, the nuclear tax and the property tax on hydropower capacity (Chapter 7) hampered the competitiveness of these low-carbon electricity sources and placed them at a disadvantage with respect to other generating options. The IEA applauds the decision to abolish these measures.

Six of the eight nuclear units will make large investments in the refurbishment and safety upgrades required to continue their operations beyond 2020. However, wholesale electricity prices in the Nordic market have been very low and might remain in a low range, as existing support schemes will progressively add renewable capacity in a system with uncertain potential for demand growth.

The existing nuclear capacity may not stay on line in the medium term, such as in the case of a severe decline in wholesale electricity prices and if system services provided by nuclear power are not properly rewarded. New investment in nuclear power is extremely unlikely in the medium term. However, if new dispatchable low-carbon sources are needed after the closure of existing nuclear plants, appropriate steps should be taken in a timely manner to ensure a level playing field for all the available low-carbon technologies, including nuclear power.

Sweden has a well-established legal and regulatory framework for nuclear energy, an independent and effective nuclear regulator and clear and advanced policies on spent fuel and nuclear waste management. Since the 2013 IDR, significant progress has been made on the development of the final repository for spent nuclear fuel. In March 2011, SKB applied for the licensing of the final repository for the spent nuclear fuel to be built at the Forsmark site as well as for a new encapsulating plant. The SSM recommends the approval of the application, while the Court of Land and Environment has required further documentation on the strength of copper capsules in the long-term before deciding. The final decision will be made by the government, after a consultation with the concerned municipalities that could veto the application. Currently this decision is not expected before 2019. Local support appears high, mainly thanks to an open and transparent policy in engaging with the municipalities. SKB expects that, if the government grants the construction licence, work could be started by 2020 and all facilities, the final repository and a new encapsulating plant could be operational in 2030.

The spent nuclear fuel is currently stored at Oskarshamn in the Clab interim facility, which has a total licensed capacity of 8 000 t of uranium. The storage capacity limit is expected be reached in 2024. SKB has already started the administrative procedure to increase the total capacity of the repository to 11 000 t to allow for disposal of spent fuel until 2034. The government and SKB should ensure that sufficient capacity in the Clab facility is available, if the licensing or construction of the final repository are delayed.

In Sweden, the cost for nuclear waste management and decommissioning is borne by the operator, according to the polluter pays principle. Nuclear operators pay a yearly fee

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