ESTONIA: RESPONSE TO CIVIL-NUCLEAR WORKING

UNCLAS SECTION 01 OF 03 TALLINN 000431 SIPDIS SENSITIVE STATE FOR EUR/NB AND T (MARC HUMPHREY) COMMERCE FOR SARAH LOPP AND ITA LEAH MARKOWITZ ENERGY FOR MICHAEL APPICELLI E.O. 12958: N/A TAGS: ENRG TRGY BEXP BTIO KGHG PREL PGOV EN SUBJECT: ESTONIA: RESPONSE TO CIVIL-NUCLEAR WORKING GROUP QUESTIONS REF: STATE 127423 ¶1. (SBU) Embassy Tallinn's responses below are keyed to questions in reftel. Questions are repeated below for ease of reading. POC for follow-up questions is Economic Officer Rob Hollister, Jr. at hollisterrm@state.gov, tel. +372 668 8107. -- Describe any plans for the development of nuclear power in your country. Also, describe any existing or planned nuclear power related facilities in your country, such as uranium mining, if any. Do you foresee an expansion of these facilities? The Prime Ministers of Estonia, Latvia and Lithuania agreed in 2006 (the Trakai Communique) to partner on building a new nuclear power plant (NPP) to replace the Ignalina plant at Visaginas, Lithuania. The NPP was supposed to be in operation by 2015, but little progress has been made in implementing the project (which now also includes Poland). Recently, in public discussions, GOE officials and other opinion leaders have advocated in favor of Estonia building its own NPP. However, there has been no government decision on this yet. The company Silmet was established in 1946 for the production of uranium oxides. Silmet developed a process for extracting uranium from black shale, which is widely available in Estonia. It became the largest phosphate-uranium operation in the former Soviet Union and the site where uranium for the Soviet Union's first nuclear weapon was refined. In 1990, Silmet stopped refining uranium and there have been no discussions on restarting the refining. -- If your country is considering the pursuit of nuclear power, describe the underlying motivations (e.g., current or anticipated power shortages, energy security, or other industrial uses, such as desalination) Estonia has a large domestic supply of oil shale. This fuel is used in two power plants in eastern Estonia which produce enough electricity to meet domestic demand and for export. Production of electricity using oil shale will become more expensive as Estonian's allocation of "free" CO2 emission quotas from the EU diminishes to zero by 2020. In preparation for this, the GOE is actively assessing alternate energy sources, including nuclear power. An �0A;alternative to nuclear power would be gas, but Estonia wants to avoid importing more gas for reasons of energy security. (Note: Estonia imports of all the gas it currently uses from Russia.) -- If there are plans to pursue nuclear power, describe the anticipated government role in the financing of its civil nuclear sector. For example, does the government plan to provide subsidies, tax breaks, loan guarantees, or other financial incentives? Would some or all nuclear power plants be state-owned and operated? Would you seek financing from international investment banks and organizations or consortium arrangements? In 2009, the GOE is scheduled to formally approve its draft energy strategy for the period 2008-2018. The plan includes several scenarios for nuclear electricity production, including through participation in a regionally-based power plant (e.g. in Lithuania) or building a plant in Estonia. No decisions on financing have been made. In 2009, the GOE is also slated to begin drafting legislation that will govern the use and control of nuclear power in Estonia. -- What are the names and titles of the key nuclear decision making government bodies and top officials? Einari Kisel, Deputy Secretary General of Energy, Ministry of Economy and Communication Andres Tropp, Head of the Nuclear Energy Department, Eesti Energia (state-owned energy company) TALLINN 00000431 002 OF 003 -- Does your country have an existing nuclear regulatory authority? What are its inspection/enforcement powers? If so, how large is it (i.e., how many people does it employ)? If not, are there plans to establish such an authority? Estonia does not have a nuclear regulatory authority. However, the GOE has acknowledged the need to establish one in the future (if/when the GOE decides to build a nuclear power plant in Estonia.) -- Does your country have a domestic nuclear liability law? If so, please summarize its major elements. In particular, is there a minimum level of required liability coverage required for operation? If your country is not party to an international liability regime, is there any consideration being given to joining one? If so, which international liability regime (Vienna Convention, Paris Convention, Convention on Supplementary Compensation for Nuclear Damage) is being considered. Estonia does not have a domestic nuclear liability law. -- Is the manufacturing base in your country (including high- tech components and heavy industry) involved in nuclear- related products or services? Does it seem likely that any components or contracting services for new plants could be sourced locally, or would the majority of these need to be imported? Currently the manufacturing base is not involved in nuclear-related products but there are companies which were involved in nuclear related products and services during the Soviet era. Estonia's manufacturing base has some experience in nuclear- related services, having recent success cleaning up Soviet-era radioactive waste storage. -- How extensive is your country's nuclear-trained workforce? Does your country have a significant engineering, technician and construction base that could be readily converted into a nuclear workforce (e.g., engineers, high precision manufacturing, robust quality assurance programs, high-quality construction)? Will the development of civil nuclear power require a significant foreign workforce? Are programs in place, or being developed, for training of domestic personnel (e.g., in skilled trades and nuclear regulation)? It is unlikely that development of civil nuclear power in Estonia will require a significant foreign workforce. There is already a limited (less than 100) nuclear-trained workforce, with experience primarily in the area of managing nuclear waste. Estonia would need approximately 250 skilled workers if the GOE moves to build a local NPP. Estonia's energy strategy identifies the need to establish training and retraining programs for domestic personnel. Opportunities for U.S. Industry -------------- -- Does your country have any current or anticipated nuclear- related tenders? If so, please describe the tender/selection process for new contracts, its timing, and indicate any U.S. firms considering bidding. At present, there are no nuclear-related tenders. However, in November 2008, Eesti Energia joined the reactor development program called IRIS, led by Westinghouse Electric Company. Eesti Energia did this to signal to Westinghouse that there is a potential interest in IRIS reactors for Estonia. -- What nuclear sector opportunities do you foresee for U.S. industry (e.g., feasibility studies or other consulting services, plant construction management, reactor sales, fuel cycle service provision, plant operations, waste management, or logistics)? TALLINN 00000431 003 OF 003 Feasibility studies or other consulting services related to the building and operation of a nuclear power plant, reactor sales, and waste management are areas of opportunity for U.S. industry. In January 2009, officials from the Estonian Ministry of Environment will meet with the U.S. Department of Energy to discuss nuclear waste management safety. -- If applicable, what are the primary companies (domestic and foreign) involved in (or considering involvement in) your country's civil nuclear sector? Please include utilities, plant operators, fuel cycle service providers, technology vendors, and major construction or consulting firms. Estonia does not have a civil nuclear sector. Eesti Energia (the state-owned energy company) has currently the best outlook for developing this capacity. Foreign Competitors -------------- -- Are there other nuclear supplier countries engaging your country? Please describe any available details on formal agreements including existing or potential (1) MOUs on nuclear cooperation; (2) legal frameworks for nuclear commerce; or (3) arrangements for technical or information exchanges. The Prime Ministers of Estonia, Latvia and Lithuania agreed in 2006 (the Trakai Communique) to partner on building a new Power Plant to replace the Ignalina plant at Visaginas, Lithuania. The plant was supposed to be in operation by 2015, but little progress has been made in implementing the project. Lithuania later invited Poland to join the project. -- Are there any political considerations your country may take into account when choosing to cooperate with competing nuclear supplier states? Estonian energy plans are driven by the goals of ensuring a diverse energy supply in the long term. For legal, regulatory and political reasons, the GOE prioritizes cooperate with other European Union member states. DECKER