Government of Canada Policy on Radioactive Waste and Legacy

Uranium MinesTom Calvert

Uranium and Radioactive Waste DivisionNatural Resources Canada

May 1, 2014

1: HISTORICAL CONTEXT

Port Radium ~1957

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Responsibility for Mineral Resources in Canada Since 1930, all ten Canadian provinces

responsible for mineral resources within their boundaries.

Prior to 2003, federal government responsible for mineral resources in the three territories.

Responsibilities for resources have been transferred to the territorial governments in the Yukon Territory (2003) and Northwest Territories (2014) and will be transferred in Nunavut.

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Second World War

1942: the federal government requested Eldorado Gold Mines Limited to re-open its radium mine on Great Bear Lake, Northwest Territories and its refinery in Port Hope, Ontario to supply uranium for the US-UK-Canada Manhattan Project (world’s first nuclear bomb).

1943: The federal government and most provincial governments banned uranium exploration and mining by private companies. (uranium is a strategic commodity).

1944: The federal government purchased Eldorado Gold Mines Limited to create the federal Crown corporation (publically-owned company) Eldorado Mining and Refining Limited .

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Post War Period 1946 -1948

1946: The federal government created the Atomic Energy Control Board (AECB).

1948: Private exploration and mining was allowed but subject to AECB regulations: Permits were required for advanced exploration and for

the production of uranium. The permits required companies to report resources

and production only to the government (kept secret). All uranium had to be sold through Eldorado. The provincial governments remained responsible for

regulating uranium mining within the provinces.

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Cold War Uranium Mining Boom, 1948-1965 1948-1953: Private companies discover many

low-grade uranium deposits, though most are not economic due to high cost / low prices.

1953-1956: The US government offered special-price five-year contracts for uranium, creating an incentive for private companies to develop low-grade uranium deposits. Eldorado supplied the uranium from the private

companies to the US government at cost and did not profit from these contracts.

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Cold War Uranium Mining Boom, 1948-1965 1953: Eldorado’s Beaverlodge mine opens. 1954-1958: 23 privately-owned mines open. 1956: US demand met - no additional contracts. 1956: Restrictions on publishing uranium

resources and production were removed. 1957: Contract to supply UK government. 1958: Requirement to market all uranium through

Eldorado was relaxed. Limited quantities of uranium could be sold to friendly countries for research purposes.

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Cold War Uranium Mining Boom, 1948-1965 1961: With no new US contracts, only 8 uranium

mines remain operating compared to 25 in 1958. 1962: Requirement to market uranium

production through Eldorado ends. 1963: An additional contract with the UK

government and a federal government stockpile program allows 4 of the remaining mines to operate beyond 1965. All other mines closed.

1965: All future uranium sales must be for peaceful purposes only (federal policy).

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Second Uranium Mining Boom, 1974-1983 1974: Formation of the Saskatchewan provincial

Crown corporation Saskatchewan Mining Development Corporation (SMDC) which was involved in uranium exploration and mining.

1975 - 1983: New mines open in Ontario and Saskatchewan (nuclear power contracts).

1977: AECB developed regulations for uranium mining activities, including tailings management.

1981: Eldorado purchased Rabbit Lake mine. 1982: Eldorado’s Beaverlodge mine is closed.

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1988 to Present

1988: Eldorado and SMDC were privatized and merged to form Cameco Corporation.

1988: AECB requires companies to provide decommissioning plans for uranium mines.

1996: AECB requires companies to provide financial assurances for the costs of decommissioning.

1996: Last operating uranium mine in Ontario closes. Saskatchewan becomes sole producer.

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2: FEDERAL POLICYEldorado Refinery

Port Hope, Ontario, 1955

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Federal PolicyRadioactive Waste Policy Framework (1996)

Waste owners: responsible for managing their waste responsible for developing and implementing

long-term solutions Federal role:

ensure long-term waste management carried out in a safe, environmentally-sound, comprehensive, cost-effective manner

develop policy, regulate, and oversee waste owners’ compliance with legal, financial, and operational requirements

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Federal Policy

Nuclear Safety and Control Act (2000) Waste producers/owners must be

licensed Established the Canadian Nuclear Safety

Commission (CNSC) to replace the Atomic Energy Control Board (AECB)

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Federal Policy: Application Under the terms of the 1988 privatization of

Eldorado, the federal government has accepted financial responsibility for legacy sites at Beaverlodge, Saskatchewan and Port Hope, Ontario.

The federal government also has responsibility for abandoned mines in the three territories. (i.e. Port Radium and Rayrock mines, Northwest Territories).

All other uranium mine sites in Canada are the responsibility of the current owners (private company or the province).

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3: POLICY INITIATIVES FOR NON-FEDERAL SITES

Gunnar Mine, 1959

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Federal – Provincial Agreements

Policy initiatives allow the federal government to voluntarily take action that is not required by federal legislation or is not strictly within federal jurisdiction.

The Government of Canada has entered into agreements with the provincial governments of Ontario and Saskatchewan to assist in the remediation of legacy uranium mines located on non-federal lands.

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1995 Canada – Ontario Memorandum of Agreement

1955-1996: 17 uranium mines operated in Ontario, producing 176 million tonnes of tailings, 85% of Canada’s total.

Both the provincial government (since 1955) and the federal government (since 1977) had a role in regulating the operation of these mines.

1988: The federal government began requiring decommissioning plans for uranium mines.

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1995 Canada – Ontario Memorandum of Agreement

1991: The Ontario government began requiring mining companies to provide financial assurances for the costs of decommissioning mines (including uranium mines).

Some companies had difficulty providing these financial assurances.

1995: The governments of Canada and Ontario entered into a “safety net” agreement to share costs if an owner was unable to finance the decommissioning of a uranium mine.

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1995 Canada – Ontario Memorandum of Agreement All sites in Ontario have now been

decommissioned by the owners without government funding.

Since 1996, the federal government has also required that companies provide a financial assurance for decommissioning.

As a result, it is unlikely that there will be a need to implement the shared-cost funding provisions provided in the agreement.

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Shared Responsibility Contaminated Sites Framework Federal funds have been allocated for the

years 2005 to 2020 to contribute to the cost of remediating contaminated sites located on non-federal land.

To qualify for funding, the contamination must be partly a result of federal government activities or security efforts.

The Framework is not specific to uranium mines. Industrial sites (i.e. Sydney Tar Ponds) have received most of the funds.

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Shared Responsibility Contaminated Sites Framework Proposals for funding require an analysis

of the potential remediation options, a remediation plan, and the total cost.

A Memorandum of Agreement is negotiated with the proponent if the proposal is accepted.

2006: Canada – Saskatchewan Memorandum of Agreement was signed to provide funding to remediate Cold War legacy uranium mines in Saskatchewan.

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2006 Canada – Saskatchewan Memorandum of Agreement

The Gunnar uranium mine was closed in 1964 in accordance with the provincial regulatory requirements of the time.

The company that operated the Gunnar mine no longer exists and the province of Saskatchewan is now the custodian of the site.

Under the agreement, the federal government is providing $12.3 million to assist with the remediation of the Gunnar mine site.

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4: SCIENCE AND TECHNOLOGY

Bicroft Uranium Mine, Ontario

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Natural Resources Canada: Science and Technology Expertise

Environmental hydrogeochemistry Acid rock/mine drainage, metals leaching Geology and mineralogy Surface and groundwater hydrology Mine site assessment, rehabilitation and

decommissioning Effluent treatment and monitoring Environmental toxicity and risk assessment Cold-climate research

.

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Natural Resources Canada: Uranium Mine Rehabilitation Research

Mine environmental research since the late 1960s, including uranium mining.

Establishment of the National Uranium Tailings Program (NUTP) in the early 1980s.

Establishment of the Mine Environmental Neutral Drainage (MEND) Program in the late 1980s.

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National Uranium Tailings Program (NUTP) 1981-1986

Detailed characterization of inactive uranium mine tailings in Ontario (Elliot Lake) and Saskatchewan (Gunnar mine).

Development of site characterization and reclamation techniques.

Development of contaminants migration models which have been widely adopted

Results of NUTP were incorporated into the MEND program.

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Mine Environmental Neutral Drainage (MEND) Program Established in the late 1980s by Natural

Resources Canada in partnership with industry.

Research on acid rock/mine drainage and metal leaching from mines, waste rock and tailings.

Included extensive research of uranium tailings at Elliot Lake.

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Mine Environmental Neutral Drainage (MEND) Program Development of technologies for mine site

assessment, rehabilitation, and decommissioning in: Prediction and modelling Prevention and control Waste disposal Effluent treatment and monitoring Verification

.

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Mine Environmental Neutral Drainage (MEND) Program The mining industry has widely adopted

the MEND Program’s mine site assessment, mine decommissioning and mine management technologies.

Over 200 mine environmental related research reports and documents available at http://mend-nedem.org/

.

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5. Conclusions

Direct federal participation in uranium mining ended in 1988 with the privatization of Eldorado.

Federal regulation was originally focussed on the security issues regarding uranium as a strategic military commodity. The provinces and territories were responsible for regulating uranium mining before 1977.

Federal regulation now includes all aspects of uranium mining from advanced exploration to mine decommissioning.

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Conclusions

Federal Radioactive Waste Policy Framework stipulates that waste owners are to be responsible for their wastes.

The federal government has financial responsibility for legacy sites that were operated by Eldorado, as well as for abandoned mine sites located in the three territories.

The federal government provides scientific research and expertise to support environmentally-sound and cost-effective mine decommissioning.

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THANK YOU

Questions?

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Eldorado Mine and Mill Beaverlodge, Saskatchewan