3.1
The Australian Nuclear Science Technology Organisation (ANSTO) seeks approval from the Committee to proceed with the proposed project, Intermedia Level Solid Waste Storage Facility at Lucas Heights, New South Wales.
3.2
ANSTO scientists, researchers and collaborators use nuclear technology to ‘investigate public health issues, the environment, and the nuclear fuel cycle to identify solutions to some of the biggest questions in science for the benefit of all Australia’.
3.3
In addition, ANSTO has been responsible for the maintenance of Australia's sovereign nuclear medicine production capability since the 1970s, manufacturing ‘a range of radiopharmaceutical products, which are used in the diagnosis and the treatment of disease, including a range of cancers, as well as in medical research and clinical trials’. A by-product of nuclear medicine production and radioactive waste, ANSTO is responsible for approximately 40 per cent of Australia’s low level waste and most of Australia’s intermediate level waste.
3.4
ANSTO’s current property portfolio is comprised of its two main campuses. Lucas Heights in Sydney, and Clayton, on the outskirts of Melbourne.
3.5
The objective of the project is to construct a purpose-built intermediate level waste storage facility at ANSTO’s Lucas Heights which will expand ANSTO’s intermediate level waste storage capacity by at least 10 years to 2037.
3.6
The proposed interim facility will largely replicate the design and functionality of the current waste storage facility at Lucas Heights and will be located near the existing facility ‘to allow for operational efficiencies.’ It will accommodate wast on an interim basis (between 40 to 50 years), before the waste is required to be transferred to a longer term facility.
3.7
The estimated project cost is $59.8 million (excluding GST).
3.8
The project was referred to the Committee on 23 June 2021.
Conduct of the inquiry
3.9
Following referral, the inquiry was publicised on the Committee’s website and via media release.
3.10
The Committee received twenty submissions, four supplementary submissions, 326 emails which the committee characterised as being 'campaign' and one confidential submission. A list of submissions can be found at Appendix A.
3.11
On 13 September 2021, the Committee held a project briefing, in-camera and public hearings via teleconference. A transcript of the public hearing is available on the Committee’s website.
Need for the works
3.12
In making radiopharmaceutical products, ANSTO generates radioactive waste, which it is responsible for safely storing and managing prior to disposal.
3.13
ANSTO’s existing intermediate level solid radioactive waste storage facility at Lucas Heights is forecast to reach capacity from 2027 for certain waste streams.
3.14
While a National Radioactive Waste Management Facility (NRWMF) has been proposed as a long term storage solution, this facility is unlikely to commence receiving waste until after 2030. Furthermore, should ANSTO not have the ability to store further intermediate level solid radioactive waste prior to the completion of the NRWMF, it would be forced to cease nuclear medicine production, leading to major disruptions for the Australia’s healthcare system.
Options considered
3.15
ANSTO considered five key options when assessing the proposed interim storage solution:
Option 1 –Waste conditioning: carried too high a technical risk, due to a site needing to be acquired and the necessary licensing and approvals processes needing to be undertaken.
Option 2 - Interim Storage Only Facility: selected as the preferred option as it achieves a direct continuation of exiting operations, presents a low risk of design delays, and is achievable in a shorter period of time than the other options considered.
Option 3 - Above-Ground Storage in Shielded Casks: at an estimated cost of $162 million, this option was discounted as it was deemed cost prohibitive and poor value for money.
Option 4 - Extension of Capacity of the Existing Storage Facility: while estimated at $16 million, this option was discounted as it would have required relocation of the ANSTO fence line into the surrounding buffer zone (with significant practical and regulatory implications), leading to unnecessary site expansion and a high environmental impact.
Option 5 – Do Nothing: discounted as it was not considered feasible due to ANSTO’s licence conditions, community and worker safety, and consequential risk to nuclear medicine production.
3.16
ANSTO considered Option 2, development of an interim storage only facility at the current Lucas Heights campus, to be the best option with the highest benefit for the capital outlay, achieving the ‘required minimum 10 years of storage for close to a third of the price of the next option considered.’
3.17
In addition, ANSTO stated that Option 2:
…unlike others, requires no additional staffing for waste operations or maintenance within ANSTO as it presents a direct continuation of existing operations – i.e., it is a ‘business as usual’ solution.
3.18
At the public hearing the Committee asked ANSTO if the Lucas Heights campus had the required space to build an additional interim storage facility if required in the future. ANSTO stated that if required, there was capacity on site to accommodate additional storage space.
Scope of the works
3.19
The proposed works seek to store two intermediate level solid waste streams within the facility. The first waste stream being filter cups, which are used to remove solids from the radiopharmaceutical production process, and a second waste stream comprised of aluminium bins filled with wastes, such as glass vials and one-use pharmaceutical tubing.
3.20
To support the storage of the above mentioned waste streams the facility will require the following elements:
Secure below-ground concrete vault with radiation shielding and environmental monitoring
Engineered structures for retrievable below-ground storage locations for the ILSW filter cup storage vessels and aluminium bins
Secure above-ground superstructure including:
electric overhead travelling crane
information and operational technology connected to ANSTO’s secure network
3.21
The above elements are proposed to be housed in a Class 7b storage facility approximately 15 metres wide by 50 metres long and 10 metres tall. The structure will be comprised of a steel portal frame with pre-cast concrete walls.
Consultation
3.22
In developing its plan for the works ANSTO engaged with a broad range of stakeholders, local representatives and community interest groups.
3.23
In addition, ANSTO state that the plans for the proposed facility have been developed though process of extensive internal stakeholder consultation with many ANSTO representatives having reviewed plans and arrangements prior to development of the current proposal.
Public comment
3.24
The proposal for the Intermediate Level Solid Waste Storage Facility at Lucas Heights has raised little objection from the public, with many submissions supporting the ongoing used of Lucas Heights to store radioactive waste. However, the current proposal has opened up a wider debate about the future of storing nuclear waste in Australia.
3.25
A majority of the submissions, including the campaign emails, made to this inquiry pertain to the separate proposal to site and construct the proposed National Radioactive Waste Management Facility (NRWMF) project currently being managed by the Australian Radioactive Waste Agency.
3.26
While a number of submissions to the inquiry suggest that ANSTO should be looking to permanently store radioactive waste at Lucas Heights, rather than the proposed temporary solution, ANSTO told the Committee that:
…international best practice also looks at having a waste agency responsible for the ongoing management of disposal facilities as being separate to the producers of that waste. As we all know, ANSTO is one of the producers. The other aspect of storage of nuclear waste is having a strong social licence to host this waste repository, and ANSTO does not have that mandate. It has been made very clear to us by the shire council that they do not see us as a suitable site for permanent storage of waste.
3.27
Although the Committee is aware of the NRWMF process and the current public debate around its location, and has considered the emails and submissions which contribute to this debate, this inquiry considers the referral from the House of Representatives, to consider an Intermediate Level Solid Waste Storage Facility at Lucas Heights.
Cost of the works
3.28
The project cost estimate for the proposed works is $59.8 million (excluding GST). This cost estimate includes the construction costs for the facility as well as regulatory, commissioning, and contingency costs.
3.29
The facility has been fully funded by the Australian Government in the 2020-21 and 2021-22 Budgets.
Revenue
The project will not directly deliver any revenue-generating assets or generate revenue because of its implementation. However, the works are required to sustain revenue-generating operations within ANSTO, such as the production and sale of radiopharmaceutical products.
Committee comment
3.31
Due to COVID-19 restrictions the Committee were unable to undertake an in-person inspection of the proposed site, however the Committee would like to thank ANSTO for their comprehensive submission, detailed presentation and video which was provided to the Committee in lieu of an in-person site inspection.
3.32
The Committee acknowledges that the proposal is an interim solution and that the stored waste would need to be moved to a longer term solution after 40 to 50 years of storage.
3.33
Furthermore, the Committee notes that the current proposal will extend the storage capacity at Lucas Heights for approximately 10 years, and additional storage solutions would need to be sought if a National Radioactive Waste Management Facility has not been opened within that time.
3.34
The Committee would like to extend its thanks to all that took the time to make a submission to the inquiry and notes the concerns raised regarding the separate proposal for the National Radioactive Waste Management Facility (NRWMF). The Committee encourages members of the public to make a future submission to the NRWMF inquiry once the proposal has been referred to the Committee for consideration.
3.35
The Committee did not identify any issues of concern with the proposal and is satisfied that the project has merit in terms of need, scope and cost.
3.36
Having regard to its role and responsibilities contained in the Public Works Committee Act 1969, the Committee is of the view that this project signifies value for money for the Commonwealth and constitutes a project which is fit for purpose, having regard to the established need.
3.37
The Committee recommends that the House of Representatives resolve, pursuant to Section 18(7) of the Public Works Committee Act 1969, that it is expedient to carry out the following proposed works: Australian Nuclear Science and Technology Organisation Intermediate Level Solid Waste Storage Facility Lucas Heights, NSW.