The Nuclear Regulation Authority (NRA) has requested the government to terminate the Japan Atomic Energy Agency (JAEA) as operator of the trouble-prone “Monju” prototype fast-breeder reactor, and find an able replacement “within the next six months.” The rare request was made on November 13 by NRA chairman Shunichi Tanaka to Minister of Science and Technology Hiroshi Hase.

　　　　　The five-member NRA is an independent commission launched in 2012 to unify the administration of nuclear safety matters under Article 3 of the National Government Organization Law. Although lacking power of enforcement, the NRA has strong authority to affect national energy policy independent of the cabinet or the prime minister. The ministry has an obligation to reply to the NRA’s request. Tanaka’s statement was blunt in its criticism of JAEA:

　　　　　“The situation has passed the stage where simply correcting the numerous individual defects in safety measures could ensure the safe operation of Monju. I cannot help but say that JAEA completely lacks the organizational ability to reliably implement the safety measures that are mandatory. I can only conclude JAEA completely lacks the qualifications required to run the reactor safely.”

　　　　　Tanaka also criticized the ministry, which oversees JNEA, for having for years “failed to work out effective countermeasures,” stating: “Within the next six months, we want the ministry to come up with a specific replacement for JAEA it deems capable of conducting the full operation of Monju safely. If you are not able to find a capable replacement, we feel strongly that the future operation of this facility must be called into question.”

　　　　　Monju, located at JAEA’s Tsuruga Nuclear Power Plant in Fukui Prefecture, has developed a succession of serious problems since being commissioned 20 years ago, failing to produce almost any power over that period.

　　　　　Tanaka handed to Hase a letter containing NRA’s stern evaluation, saying “I am aware that our recommendations will not be very easy to comply with.” Hase reportedly replied: “As to what to do with Monju, we would appreciate your kind guidance.” But Tanaka did not respond.

　　　　　Meanwhile, Tanaka was quoted as saying, “We won’t allow JAEA to simply hang up a new shingle and get on with business as usual.” (The Asahi Shimbun, November 14) The NRA was in effect saying that Monju should be closed down for good if a new operator is not found.

“Dream Reactor”

　　　　　The recommendations by NRA could result in a major shift in Japan’s nuclear policy. The Ministry of Science and Technology has only six months to take action. However, in view of Japan’s overall energy policy and the fresh drive on the part of the international community towards utilization of nuclear energy, one must wonder if the NRA’s actions were appropriate.

　　　　　A fast-breeder reactor like Monju, which would extract and reuse uranium and plutonium from spent nuclear fuel, was to have been central to Japan’s nuclear fuel cycle. In this role, it was expected to guarantee the smooth long-term development of atomic power generation, and to do so in ways acceptable to the international community. Basically, three reasons can be cited for this expectation:

　　　　　1) Japan can clearly demonstrate its “honest” posture towards the peaceful uses of plutonium recycled at its nuclear power plants. At present, Japan has approximately 47 tons of plutonium on hand—enough to make some 5,900 atomic bombs. If we continue to maintain plutonium at this level, we may be misconstrued as planning on manufacturing nuclear weapons. By getting Monju up and running, the international community will understand Japan is only interested in plutonium as a precious source of energy.

　　　　　2) Designed to produce more plutonium fuel than it consumes, enabling power generation without relying on imported nuclear fuel for at least the next 2,500 years, Monju is viewed as a “dream reactor” for resources-short Japan.

　　　　　3) If left unused, spent nuclear fuel requires 100,000 years before being reduced, through natural decay, to the same level of radioactivity as natural uranium that is harmless to human health. If burned in a fast-breeder reactor, this process would be reduced to 300 years, its volume dropping to one-seventh the original amount. This means a fast-breeder reactor is very useful for processing spent nuclear fuel.

　　　　　Anticipating such merits, Japan has so far invested approximately \1 trillion (US$8.3 billion) in Monju. Following a leakage 20 years ago of a massive amount of sodium, however, Monju has remained largely idle, with \20 billion (US$160 million) spent annually just for its maintenance. The NRA has apparently judged its operator as incapable and unqualified to run the “dream reactor.”

　　　　　Judging from the press reports in 2012 that JAEA had failed to conduct the required inspection of nearly 10,000 devices within Monju, it is easy to consider the JRA criticism as well justified. There is another side to the story, however, as Professor Tadashi Narabayashi, explains:

　　　　　“JAEA now has a minimum number of staff assigned to run Monju after the government slashed its budget and personnel on the assumption that Monju would not be put into operation. In point of fact, some of its personnel have been seconded to help in the recovery of the Fukushima No. 1 Nuclear Power Plant. So, I believe it isn’t quite fair to render a negative judgment on JAEA’s performance, as it has been handicapped in complying with the NRA’s request.”

　　　　　Without question, strict standards are mandatory in securing the safe operation of any nuclear reactor. However, one wonders if the NRA’s actions have in fact contributed to the increased safety of the nation’s nuclear reactors, including Monju. As far as the nuclear plants I have covered so far are concerned, I have come to realize that the paperwork that each of them must submit for safety requirements as they seek permission to restart operations comes close to 100,000 pages—the equivalent of 150 books, each measuring 10 centimeters (4 inches) thick. An abominable number of pages for JAEA to just produce—and for the NRA to examine. No wonder the NRA’s inspection of applications for a restart of operations of various nuclear power plants across Japan has been greatly delayed.

Japan Has Nothing to Hide

　　　　　In other words, both the inspector and the inspected are unable to fully cope with the situation, driven into a corner where neither is allowed to make full use of their capabilities.

　　　　　There is no question that many members of the international community attach a great deal of importance to nuclear power generation as part of a well-conceived energy policy. It is also important for Japan to continue experimenting with fast-breeder reactors that would enable smooth and relatively inexpensive operation of its more than 50 nuclear power plants, most of which have been shut down since the 2001 Fukushima incident. The world is witnessing a rapid development of fast-breeder reactors centering around China, India, and Russia; France is also now working on the next generation fast-breeder reactor after suspending nuclear power generation for a period. The world is expected to develop new technology while enhancing safety in nuclear power generation, even if Japan drops out. It is time for Japan to treasure the precious nuclear technology it has accumulated over the decades.

　　　　　Japan has managed to win the trust of the international community by implementing a thorough system of information disclosure as regards nuclear matters. As a result, we have become the only non-nuclear nation in the world permitted to reprocess plutonium from spent nuclear fuel. If the road to the fast-breeder reactor is to be closed now, our entire nuclear fuel cycle system program founded on this trust could be seriously ruined.

　　　　　What then can specifically be done in the face of the NRA recommendations? Japan Nuclear Fuel, Ltd. (JNFL), a privately owned company backed by utilities across Japan, appears to be the only entity that can possibly replace JAEA. The government must definitely make a full commitment to JFNL. I strongly believe the government should position nuclear fuel recycling as a national undertaking and hammer out a solid policy to invest, and maintain, necessary funds and personnel in the new operator of Monju in order to help ensure the safety of its operations.

　　　　　Simultaneously, we must consider if the present situation, in which both the regulator and the regulated are swamped by paperwork, is really contributing to increased safety in nuclear power generation. We need to demand that the five members of the NRA—this powerful regulatory body protected by Article 3 of the National Government Organization Law—also address this unnecessary and distressing state of affairs.
(Translated from “Renaissance Japan” column no. 681 in the November 26, 2015 issue of The Weekly Shincho)