Since 1955, the domestic laws of Japan require that nuclear activities, including commercial activities, be conducted only for peaceful purposes. Additionally, since 1968, Japan has embraced the "Three Non-Nuclear Principles." These emphatic principles are:
- Japan will not possess nuclear weapons.
- Japan will not produce nuclear weapons.
- Japan will not permit the entry of nuclear weapons into its territory.
In 1976, the Government of Japan ratified the Treaty on the Non-proliferation of Nuclear Weapons (NPT) and thereby obligated itself to a national policy not to produce or acquire nuclear weapons. In order to ensure more extensive safeguards, Japan signed the IAEA Additional Protocol in 1998, and it came into effect the following year. The Additional Protocol allows the IAEA to carry out a range of additional measure to make sure there are no undeclared facilities and activities, conferring very important additional rights of inspection on this international agency in verifying the use of nuclear energy solely for peaceful purposes.
Thus, Japan's pursuit of all nuclear technology is limited to peaceful purposes by its participation in international regimes, such as the NPT, as well as strict domestic laws.
The Atomic Energy Basic Law, promulgated in 1955, expressly declares that Japan shall use nuclear energy only for peaceful purposes. In order to demonstrate the peaceful nature of Japan's nuclear energy to the international community, we have accepted an inspection system involving the application of comprehensive safeguards (see graphic below). The technical objective of these safeguards, which are applicable under the NPT, is to detect in a timely manner any diversions of significant amounts of nuclear material from peaceful nuclear activities to the production of nuclear weaponry or nuclear devices, or to some unknown purposes.
In 1970, the NPT came into force, and Japan joined the treaty in 1976. Article 3 of the NPT requires non-nuclear weapon states to accept IAEA safeguards. In accordance with this provision, NPT non-nuclear weapon member countries, including Japan, have entered into full-scope safeguards agreements with the IAEA. Within this framework, all nuclear materials at all nuclear installations in Japan, including nuclear power plants, uranium enrichment plants and reprocessing facilities, are subject to international safeguards.
In order to ensure the application of more extensive safeguards, Japan signed the IAEA Additional Protocol in 1998. The Additional Protocol allows the IAEA to carry out a range of additional measures to ensure there are no undeclared facilities and activities, thus conferring very important additional rights of inspection on this international agency in verifying the use of nuclear energy solely for peaceful purposes.
In accordance with national laws, Japanese nuclear utilities and research institutions submit safeguards reports, including data on material accountancy and activities, to the Minister of Education, Culture, Sports, Science and Technology. The IAEA and the Japanese government conduct joint safeguards inspections that serve to verify the accuracy of these reports. In the process, the IAEA has the right to independently verify the accuracy of the information it receives. Japan is estimated to be the subject of about 20 percent to 30 percent of the IAEA's inspection activities.
Moreover, Japan also has bilateral cooperative agreements on peaceful uses of nuclear energy with the U.S., the U.K., France, China, Canada and Australia. Under these agreements, Japan has agreed to accept various additional non-proliferation conditions and controls. Additionally, Japan has been a long-time participant in the Nuclear Suppliers Group that has adopted guidelines designed to ensure the application of common and effective non-proliferation conditions to nuclear exports.
Japan not only complies with the IAEA's safeguards system, but also strives to persuade as many parties to the NPT as possible to sign the Additional Protocol. Last December, in cooperation with the IAEA, Japan hosted in Tokyo the International Conference on Wider Adherence to Strengthened IAEA Safeguards. Attended by 82 participants representing 36 countries, the conference achieved good results. The international gathering offered excellent opportunities to encourage other countries to sign the Additional Protocol through sharing the results of regional seminars held in five countries since June 2001. In addition, the conference sent the message to nuclear weapons nations and EU member countries that they were expected to ratify the Additional Protocol as soon as possible.
While consistently ensuring the peaceful use of nuclear energy, Japan has forged ahead with its nuclear power development. As a result, a total of 52 commercial nuclear reactors are currently in operation. Nuclear power generation accounts for 35 percent of the total power production in Japan.
Japan is poor in natural resources. From the perspective of a long-term energy policy, we consider it of the utmost importance to establish a domestic nuclear fuel cycle and create an independent fuel supply structure. Therefore, we will continue to promote the peaceful use of nuclear energy by employing nuclear power generation and a nuclear fuel cycle that complies with both international and domestic safeguards systems.
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Japan’s New Guidelines for the Nuclear Fuel Cycle and the Use of Plutonium
On August 5, 2003, the Atomic Energy Commission of Japan (AEC) released a report entitled On the Nuclear Fuel Cycle. This report presents a broad overview of the nuclear fuel cycle and was compiled based on several policy discussions at various review meetings that were held beginning in November 2002 (“Panel to Discuss the Future of the Nuclear Fuel Cycle”). At that time, public trust in nuclear power had been shaken resulting from disclosures of the inappropriate handling of voluntary inspection records at a number of nuclear power plants.
AEC Report Principles
The AEC report emphasizes that the proper management of the nuclear fuel cycle will be instrumental in enhancing the efficiency of resource utilization and in reducing radiation effects from high-level radioactive waste. Moreover, it points out that a closed nuclear fuel cycle and nuclear power generation program is an attractive and effective path that Japan can justifiably follow in order to enhance energy security for the country and help mitigate global warming.
The AEC report concludes that because considerable amounts of time and money are required to implement a nuclear fuel recycling program and to establish a technological foundation for its proper management, decisions on desirable policy and program options should not be postponed. Additionally, the report concludes that a closed nuclear fuel cycle should be promoted as the central tenet of the country’s basic nuclear energy policy.
The government is now in the process of formulating a Basic Energy Plan that will provide guidelines for the nation’s energy supply and demand in the years ahead. This plan is expected to emphasize the promotion of nuclear power generation and nuclear fuel recycling.
Transparency in Plutonium Utilization
Meanwhile, Japan Nuclear Fuel Limited’s (JNFL’s) Rokkasho spent fuel reprocessing plant is preparing for commercial operation. This plant will be Japan’s first commercial nuclear reprocessing facility and it will be responsible for separating and recovering significant amounts of plutonium. Therefore, the industry must aim to attain further transparency in the utilization of this sensitive substance.
Accordingly, accompanying the report, the Commission has also decided on Basic Principles for the Utilization of Plutonium, which requires Japanese electric power companies to annually announce their plans for the utilization of plutonium -- before its reprocessing --by setting forth the names of the plutonium’s owners, the amount of plutonium in their possession and the purposes of its utilization. Explanations of plutonium use purposes must also include information about quantities for utilization, as well as where, when and for how long the plutonium will be used. If plans for the utilization of plutonium are likely to be affected by the progress of the electric utilities’ projects for the consumption of mixed plutonium-uranium oxide (MOX) fuel in thermal reactors, as well as by the operation of the JNFL’s reprocessing plant and other facilities, Japan’s electric utilities and JNFL will be expected to revise their plans as circumstances demand.
The AEC has adhered to the principle that Japan should not possess “unneeded or surplus plutonium,” and the national government has been encouraging the disclosure of information about the uses of plutonium by making public the inventory of managed plutonium every year. Thus, these recently formulated basic principles represent the Commission’s intention to boost the transparency of plutonium use and provide further security in the utilization of this material.
Japan’s Safeguards System
From the very first, Japan has utilized nuclear energy only for peaceful purposes, in accordance with the Atomic Energy Basic Law of 1955. As a pledge to the international community that Japan will only use plutonium for solely peaceful purposes, it has been a signatory country to the Treaty on the Non-proliferation of Nuclear Weapons (NPT) since 1976. Under that treaty, all nuclear materials in Japan are subject to the International Atomic Energy Agency’s (IAEA’s) safeguards and all nuclear facilities in Japan receive IAEA as well as domestic inspections. In addition, Japan signed the IAEA Additional Protocol in 1998. These numerous assurances should allay any concerns about Japan’s peaceful utilization of plutonium from the perspective of nuclear non-proliferation.
With the publication of the AEC guidelines, the Japanese government thus reaffirms its policy commitment to promote nuclear power generation and the nuclear fuel cycle. Naturally, gaining the understanding of local citizens is also essential for assuring steady nuclear power development. All of the Tokyo Electric Power Company’s seventeen nuclear power units were suspended for safety checks, but seven of them have resumed operations with the understanding of local communities.
We in the Japanese electric power industry will continue our efforts to promote nuclear power generation and to establish an effective nuclear fuel cycle, based on the important principles of safety and nuclear non-proliferation.
