Malaysia Aims to Complete Nuclear Energy Policy by 2009

UNCLAS KUALA LUMPUR 000005 SENSITIVE BUT UNCLASSIFIED DEPT FOR EAP/RSP, EAP/MTS, AND OES T FOR MHUMPHREY EAP/MTS FOR DBISCHOF OES FOR BHOWARD, TSCOTT, AND WBEHN STATE PASS TO DEPT OF COMMERCE FOR SLOPP STATE PASS TO DEPT OF ENERGY FOR EMCGINNIS AND CWELLING E.O. 12958: N/A TAGS: ENRG TRGY BEXP BTIO SUBJECT: Malaysia Aims to Complete Nuclear Energy Policy by 2009 REF: A. STATE 127423 ¶B. KUALA LUMPUR 702 (Malaysia Shows Interest in GNEP) ¶C. KUALA LUMPUR 615 (Scenesetter for DOE Visit) ¶1. (SBU) SUMMARY: The Government of Malaysia (GOM) plans to finalize a nuclear energy policy and enact legislation in 2009. The government also intends to establish a nuclear energy regulatory agency and increase public and political support for civilian nuclear energy as a renewable energy source over the next few years. GOM officials noted that Malaysia currently does not have the infrastructure to viably build a nuclear energy generator, but it is actively trying to build capacity to do so. According to representatives from Malaysia's government-owned electric company, Tenaga Nasional Berhad (TNB),the company's nuclear energy taskforce unit has already implemented basic measures to position the country to construct the nation's first nuclear energy generator by 2020. These steps include building capacity to create a nuclear engineering-specific workforce, meeting with foreign electric companies to learn more about existing nuclear technology, and regularly sending staff to International Atomic Energy Agency (IAEA) workshops. ¶2. (SBU) COMMENT: At present, given the absence of a national nuclear energy policy and issues related to the upcoming transition of the UMNO political leadership transition in March 2009, it is not clear that Malaysia actually has the political will to pursue nuclear energy. Nonetheless, Tenaga Nasional is actively pursuing measures--from capacity building to a conducting a pre-feasibility study--to position the country to begin construction on Malaysia's first nuclear power generator within five years' time. Tenaga Nasional's stated preference of working with nuclear energy contractors that have been approved by the Nuclear Regulatory Commission places the USG and US companies in a favorable position to build stronger relations with both TNB representatives and GOM officials. Furthermore, the existing relationship between the Department of Energy's Corporate and Global Partnership Development Division with the Malaysian Nuclear Agency and Tenaga Nasional provides another starting point for the USG to broaden its engagement with Malaysia in developing its civilian nuclear energy program. The GOM needs to ensure that AELB will have sufficient resources and organizational structure to ensure that it can meet both the civilian nuclear energy regulatory tasks as well as technical support for Export Control law enforcement as envisioned in the proposed export control legislation. END SUMMARY AND COMMENT. Malaysia Still Drafting Nuclear Energy Policy -------------- ¶3. (SBU) Malaysian Prime Minister Abdullah has publicly announced that Malaysia will construct its first nuclear power plant by 2020, a declaration that has been widely quoted in the Malaysian press. Tenaga Nasional Berhad has been assigned the task of building the nuclear power generator (reftel B). According to TNB Nuclear Energy Unit Executive Aznan Ezraie Ariffin, however, the company is hampered from actively pursuing this goal without a national nuclear energy development policy. Malaysia currently does not include nuclear energy within its national energy mix. Basic questions regarding whether Malaysia needs to pursue nuclear energy and if so, to what extent, still must be answered, stated Aznan, before the country can seriously embark on a civilian nuclear energy program. ¶4. (SBU) Despite the absence of formal policy guidance, Tenaga Nasional has initiated four activities that will place Malaysia in a strong position to begin constructing a nuclear power plant as soon as the nuclear energy policy is approved. These activities include capacity building, a site identification assessment, a pre-feasibility study, and a public relations campaign. By pursuing the above, Tenaga Nasional aims to position Malaysia's nuclear energy plans "at the starting point in five year's time" stated Aznan. If these pre-actions are not taken now, he explained, Malaysia would not have the capacity to even consider constructing a nuclear power generator by 2020. Capacity Building: From Knowledge to Workforce -------------- - ¶5. (SBU) Capacity building represents the starting point of Malaysia's nuclear energy ambitions. According to MEWC Deputy Secretary General II Ms. Loo Took Gee, the GOM is actively seeking avenues for policymakers, energy regulators, and industrial players to learn about nuclear generator licensing regulations, human resources needs as well as educational requirements for nuclear engineers. For instance, the Malaysia Nuclear Agency (MNA) regularly sends staff to attend IAEA workshops every month, with some staying six months at a time. Aznan stated that Tenaga Nasional intends to send more employees for IAEA training on a regular basis as part of the company's capacity building efforts as well as to gain the attend of IAEA officials to demonstrate that Malaysia is serious in pursuing nuclear energy. (Note: IAEA officials will visit Malaysia in early 2009 to review the GOM's nuclear energy plans. End note.) He added that other agencies such as MEWC, Ministry of Science, Technology and Innovation (MOSTI), Ministry of Natural Resources and Environment (MNRE) and the Energy Commission should be sending more of their staff for IAEA training as well. ¶6. (SBU) Sending TNB employees to earn nuclear engineering degrees and conduct post-doctoral studies represents another capacity building measure the electric company has pursued, and hopes to expand. TNB currently has three employees studying at the University of Michigan at Ann Arbor, the Korea Advance Institute for Science and Technology (KAIST) and Manchester University. Aznan stated that while Tenaga Nasional would like to send more students for overseas study, it could not do so without additional funding, which Malaysia's nuclear energy policy will hopefully provide. TNB would also like to develop "twinning programs" between the company and U.S. universities that have world class nuclear engineering programs such as the Massachusetts Institute of Technology (MIT), the University of California at Berkeley, and the University of Michigan at Ann Arbor. (Note: Aznan studied nuclear engineering at UC Berkeley for one year. End note.) ¶7. (SBU) Malaysia also is working to build its nuclear energy labor force from the policy planners to the regulators. Aznan estimates that the GOM currently needs to dedicate 30 to 50 fulltime staff to conduct nuclear energy planning to regulatory policy-making. MEWC Undersecretary for the Electricity Supply Division Mr. Soma Ramasamy added that constructing the nuclear power plant alone will require approximately 1000 laborers. Meanwhile, running the generator will take 600 to 800 engineers of which 100 to 200 would need nuclear-related training (20% of the plant's workforce),while 400 to 600 would be conventional engineers. This workforce demand does not include the additional hiring of regulatory staff for Malaysia's Energy Commission and the Atomic Energy Licensing Board (AELB),the country's atomic regulatory body. In addition, the Malaysian Nuclear Agency (MNA),the agency charged with promoting nuclear science and technology for national sustainable development, will also face additional staffing demands. Site Identification Assessment -------------- ¶8. (SBU) Tenaga Nasional has already contracted a subsidiary company to conduct a site identification assessment to identify possible locations for a nuclear power plant. TNB established the criterial and guildelines for the site identification assessment in collaboration with MEWC, MNRE, the public works department and several local agencies. The guidelines adhere to international standards. The site assessment will include a rank ordering of several locations for the Ministry of Energy, Water and Communications to review, which TNB executives will not share with MEWC officials until the national nuclear energy policy has been approved. Pre-feasibility Study -------------- ¶9. (SBU) Tenaga Nasional intends to appoint a foreign energy company to conduct a pre-feasibility study to review Malaysia's nuclear energy capabilities and needs. The study will also include the information on the latest nuclear technology, justification for developing nuclear energy in the face of Malaysia's national energy plans and projected energy demand, manpower needs and capacity and a gap analysis. Potential contractors include the Tokyo Electric Power Company (TEPCO) and the Korea Electric Power Corporation (KEPCO),companies with whom TNB already has memorandums of understanding for energy-related projects. Aznan stated that Tenaga Nasional's long-standing relations with both companies and their strong records in constructing nuclear power plants in their own countries led TNB officials to approach TEPCO and KEPCO for the task. TEPCO officials met with TNB officials in early November, Aznan noted, while KEPCO representatives recently visited Malaysia in mid-December. Public Relations Campaign -------------- ¶10. (SBU) MEWC Deputy SecGen Loo admitted that without political and public support, Malaysia could not move forward with its nuclear energy ambitions. Tenega Nasional is considering hiring local consultants, in a joint venture with international consultants (most likely from Japan or Korea),to help the GOM to promote nuclear power as a "safe, next generation" form of energy. During a Department of Energy (DOE) visit in July 2008, TNB Nuclear Energy Taskforce Director Dr. Mohd Zam Zam bin Jaafar admitted that Malaysia's goal of developing nuclear energy depends more on "national will" than economic or technological resources. MEWC Deputy SecGen Loo confirmed Dr. Zam Zam's assessment by stating that the country will have a better indication of its nuclear energy plans by "early next year," after the transition of power in March 2009 from PM Abdullah to Deputy Prime Minister Najib Tun Razak. She added that the focal point for deciding Malaysia's nuclear energy future lies with the cabinet and that the country will have to wait and see. Establishing A Regulatory Framework -------------- ¶11. (SBU) Malaysia currently lacks a legal framework for assigning a regulatory authority to oversee nuclear power generating facilities. The Atomic Energy Licensing Act of 1984, or Act 304, represents the closest legal guidance for nuclear material (reftel C). According to TNB's Aznan, the Atomic Energy Licensing Board is considering repealing Act 304 in its entirety to draft a more comprehensive law that would clearly delineate regulatory guidelines for nuclear energy materials and nuclear power generators. While both the Malaysian Nuclear Agency and Tenaga Nasional would like to participate in the revision process, the separation of authority between the regulatory (AELB and the Energy Comission) and implementing agencies (MNA and TNB) prevents them from doing so. MEWC Undersecretary Soma admitted the many hurdles Malaysia faces in revising the Act, including clearly demarcating areas of responsibility between agencies that have conflicting roles. For instance, the Energy Commission has staff that performs both regulatory functions through the Atomic Energy Licensing Board and implementing activities through Tenaga Nasional. ¶12. (SBU) Given Malaysia's British-based legal system, Aznan explained, the GOM will most likely adopt regulatory standards used in other commonwealth countries such as Canada and South Africa. The GOM has also consulted with other ASEAN countries at nuclear energy subcommittee meetings regarding establishing a regional platform to jointly develop nuclear energy. Malaysia also participates in other regional platforms such as the Forum for Nuclear Cooperation in Asia (FNCA) and the Asian Nuclear Safety Network (ANSN). Malaysia as a Potential Nuclear Energy Market -------------- ¶13. (SBU) Various foreign governments have already approached the GOM and Tenaga Nasional to secure nuclear energy contracts for their countries' companies. According to Aznan, the Italian Ambassador has personally spoken with TNB executives regarding Italian nuclear energy technology. Similarly, Deputy SecGen Loo revealed that Finnish officials have contacted MEWC with similar proposals. Russian and Korean government representatives have also offered their country's nuclear energy assistance capabilities to ASEAN member states. On the commercial side, a torium-producing Norwegian company and a French electricity transport network firm, Ariba, have extended sales pitches to the GOM and Tenaga Nasional. Malaysia's "Benchmark": Nuclear Regulatory Commission -------------- -------------- ¶14. (SBU) Tenaga Nasional regards the U.S. Nuclear Regulatory Commission's (NRC) rigorous licensing process as the "benchmark" that it plans to follow for its nuclear energy contracts. Aznan specifically cited the NRC's approval of Westinghouse's AP 1000 pressurized water reactor, the only Generation III+ reactor to receive this certification, as the standard TNB intends to seek for Malaysia's first nuclear power generator. He added that TNB would also like to see Malaysia's Energy Commission eventually emulating the NRC's regulatory guidelines as well. The GOM consequently has invited NRC experts to meet with officials from the Energy Commission, MEWC, AELB, MNA, and Tenaga Nasional to consult on how to restructure Malaysia's energy agencies and regulatory guidelines. KEITH NNNN End Cable Text