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20.

BULGARIAN NUCLEAR PLANTS STRATEGY


AND ENVIRONMENTAL SECURITY ON THE BALKANS
PLAMEN GRAMATIKOV*
South-Western University Neofit Rilski, Ivan Mihailov 66,
2700 Blagoevgrad, Republic of Bulgaria

Abstract: The Bulgarian energy sector covers at the moment 45% of the total
energy deficit of the Balkan region. The policy of the Republic of Bulgaria in
the area of nuclear energy utilization, legislative, and regulatory framework,
and development of the regulatory basis for nuclear power plant (NPP) management and for environmental protection, assessment, and verification of safety
are presented in this paper.

Keywords: energy demand; nuclear energy; regional environmental security

1. Introduction
The expected exponential growth in demand for energy services, in particular in
developing regions, and the global, regional, and local environmental impacts
resulting from the supply and use of energy will pose in the future the question How can we supply energy for the inhabitants of the Earth, sufficient to
meet every ones needs, without causing serious, irreversible damage to the
environment?
This is timely as we face the global challenges of addressing climate change,
providing a secure and reliable supply of energy and the depletion of oil. Fossil
fuels provide cheap and convenient sources of energy and no single solution
can replace them. But unless we change course, developing alternatives to fossil
fuel sources of energy and address how we use it, the next generations could
face dangerous climate change and major restrictions to their lifestyles and
economic development with the potential for conflicts over energy supplies. Our

*
To whom correspondence should be addressed. Plamen S. Gramatikov, Physics Dept., South-Western
University Neofit Rilski, Ivan Mihailov 66, 2700 Blagoevgrad, Republic of Bulgaria; e-mail: psgramat@
yahoo.com

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R. N. Hull et al. (eds.), Strategies to Enhance Environmental Security in Transition Countries, 263277.
2007 Springer.

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generation rightly will be blamed for knowingly squandering the planets


resources. The input for the change will be from leading scientists and
engineers representing a whole spectrum of possible energy solutions.
The future prospect of all forms of energy depends most critically today on
two factors: (1) environmental policies, especially with respect to greenhouse
gas emissions and (2) future commercial fossil fuel prices, mainly oil and gas.
Secure nuclear energy utilization is one of the modern, ecological, and real
opportunities to satisfy the growth in energy needs of developing areas, such as
the Balkans, and to export electricity to neighboring regions.
2. Regional Demand and Supply of Energy in the Balkans, Outlook
20032012
2.1. ELECTRICITY SUPPLY AND DEMAND IN THE BALKAN COUNTRIES

Four different kinds of countries at different stages of development and transition to market economics exist on the Balkan Peninsula: European Union (EU)
members (Greece); two accession countries in the EU (Bulgaria and Romania);
EU applicant countries (Turkey and Croatia); and others. The total population
in the region is 55.7 million and the average value of gross domestic product
(GDP) per capita is $1765 (Figure 1).

Figure 1. Average population (million) and value of GDP per capita (US dollars) of Southeast
European countries.

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265

Basic principles of the Global scenarios of energy policy till 2050


investigation of the World Energy Council are:
Accessibility the extent to which people have access to modern energy
Availability the reliability and security of energy supply systems, once
access has been achieved
Acceptability the environmental sustainability of energy supply and use
All scenarios predict great economic development and, as a result, growth of
the regional GDP and power demand in the near future.
At the moment, total installed power capacity is about 49.5 gigawatts (GW).
A peak load increase of 2.2% per annum (p.a.) is expected for the period 2002
2012, from 31.4 to 38.2 GW. Regional public utilities expect their electricity
demand only to grow at a rate of 2.3% p.a. for the period 20022012, from 171
to 214 terawatt hours (TWh), hence the region plans to add about 4.5 GW
through 2012 to meet demand. Expectations are that this tendency will continue
beyond 2012 (Figure 2).
TWh
800

600

400

200

0
2005

2010

2015

2020

Figure 2. Forecast for total electricity consumption of the Balkan region for the period 2002
2020 in TWh (Anastassov, 2006).

Rehabilitation of about 4000 megawatts (MW) of existing capacity would


be required to meet this demand. Without investments in new generation, the
region may require the rehabilitation of up to 6500 MW.

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2.2. NUCLEAR ENERGY PLACE

Today, nuclear energy is planned for use all over the world. The USA plans to
create 110 new units in nuclear power plants (NPPs) and five of them are
already licensed. Russia intends to build in total 100 nuclear units by 2030 40
on its territory and 60 abroad. The projects for new NPP exist also in Finland,
China, India, Iran, France, Czech Republic, Slovakia, Hungary, Turkey, Vietnam,
and Australia. One of the reasons is that expenditures for electrical output by
nuclear energy are lower than other energy sources (Figure 3) (Tarjanne and
Luostarinen, 2004).

Figure 3. Electrical output expenditures without emissions trading: 1 fuel expenditures, 2


expenditures for operation and maintenance, 3 property expenditure.

According to the low scenario of the International Atomic Energy Agency


(IAEA), electricity generation by nuclear energy in 2030 will rise by 34%
compared with 2003. The highest scenario forecasts electricity generation by
nuclear energy for the same period to increase 86%. All scenarios forecast that
the largest increase of electricity production by nuclear energy for the same
period will be realized in the Far East and in Eastern Europe.
At the moment about 440 nuclear units are operating in 31 countries with
total installed electrical power of 365,560 megawatts electrical (MWe). Nuclear
energy forms 16% of the total electricity output in the world and 35% of the
total electricity output in Europe. At the end of 2004, 26 new nuclear units with
a total capacity of 21,276 MWe were in construction and 17 of them are in
China, Southern and Northern Korea, Japan, and India. The Balkan regional
primary energy balance is presented in Figure 4.

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Figure 4. Regional primary energy balance.

2.3. NUCLEAR SECURITY CULTURE

In 2001, IAEA identified security culture as one of the 12 principles underlying


fissile material security (IAEA, 2001). The IAEA provisionally defines nuclear
security culture as that assembly of characteristics, attitudes and behaviours
in individuals, organizations and institutions, which support the objectives of
nuclear security and ensures that it receives the attention warranted by its
significance. In July 2005, a series of amendments to the Convention on the
Physical Protection of Nuclear Material was approved elevating the status of
security culture to that of a treaty obligation. Yet, a common definition of this
concept has proven elusive. Unless the international community can reach a
common understanding of security culture, cross-national comparison and evaluation will prove difficult, if not impossible, and governments will find it
difficult to discharge their international obligations.
Ever changing environments impose new needs on the management of
NPPs. In order to achieve operational excellence and optimal safety under these
changing environments, the nuclear industry is adopting organizational learning
approaches. NPPs continuously undergo changes as dictated by the existing
political, social, economical, technological, regulatory, and other conditions
each time. Implementing these changes could potentially cause minor problems
that could lead to a chain reaction of events resulting in a deterioration of safety
and/or public trust in the safety standards.
An investigation of the European and Transport Forum on the European
citizens opinion about nuclear power (Eurobarometer, 2005) shows that:
60% of Europeans believe that nuclear energy gives opportunity for diversification of energy sources
61% of Europeans believe that nuclear energy helps decrease European
dependence on gas

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62% of Europeans agree that nuclear energy emits less CO2 into the
atmosphere compared with coal and oil
3. Present Condition and Future Development of the Bulgarian Nuclear
Energy Sector
The Bulgarian energy sector currently covers approximately 45% of the constant deficit in the total energy balance of the Balkan region, and in the 2003 hot
dry summer, up to 100%. Since 1993, Bulgaria has become a net electricity
exporter and plays a key role in regional stability (Gramatikov, 2005).
Six units having a total electrical capacity of 3760 MWe have been installed
in the Kozloduy NPP (Table 1) (Gramatikov, 2002). During the last several
years, the first Bulgarian NPP Kozloduy has provided more than 44% of the
total electricity generation in the country. After disconnection of units 1 and 2
from the national grid, the percentage decreased to 40.6 in 2003.
TABLE 1. Installed nuclear capacities in Bulgaria
Unit
Kozloduy 1
Kozloduy 2
Kozloduy 3
Kozloduy 4
Kozloduy 5
Kozloduy 6
Belene 1 and 2

Type
VVER-440/230
VVER-440/230
VVER-440/230
VVER-440/230
VVER-1000
VVER-1000
VVER-1000

Year of start-up
1974 (stopped in 2003)
1975 (stopped in 2003)
1980
1982
1988
1993
Construction frozen in 1999

Bulgaria also agreed with the EU request to shut down units 3 and 4 as of 1
January 2007. The shutdown will result in no export of electricity for 2 years at
least. Therefore, the problem of the future existence and operation of the NPP
Kozloduy and creation of the second Bulgarian NPP in Belene is extremely
important not only for Bulgaria, but also for the entire Balkan region. Direct
losses to Bulgaria because of the prescheduled stop of the first four units of the
NPP Kozloduy are estimated at about 1.617 billion.
Possible scenarios for future development of the Bulgarian energy sector are
shown below (Figure 5):
1. Short-term low growth energy saving, decentralized sources
2. Long-term low growth renewable energy sources, energy efficiency

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269

Figure 5. Possible scenarios for future development of the Bulgarian energetics.

3. Long-term high growth nuclear energy, coal clean technologies, energy


efficiency, new technologies, renewable sources
4. Short-term high growth energy efficiency, research and development
(R&D) activities, coal technologies
4. Nuclear Environmental Security in Bulgaria
4.1. GENERAL SITUATION

Nuclear hazardous waste generated in Bulgaria in 2003 was 73% of that generated in 1999. The expenditure on protection and restoration of the environment
was 570 million Bulgarian Levs in 2003, which was 17% more than in 2002. The
relative share of the total expenditure on protection and restoration of the
environment was 1.7% of GDP in 2003 and it increased by 0.2 points compared
to the previous year (Catalogue of Statistical Publications, 2005).
The main areas with the highest relative share of expenditures in 2003 were:
protection of the water resources 31.2% (25.9% in 2002), air protection 22.8%
(17% in 2002), and detoxification of waste 20.1% (23.8% in 2002). The
relative share for protection of soil and forests was respectively 3.2% and 1.8%
of the total expenditure in 2003. At the end of 2003, the tangible fixed assets
were 1133 million Levs (926 million Levs in 2002), an increase of about 30%.

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The Kozloduy NPP contributes also to the air purity on the Balkan Peninsula.
If the electricity generated by Kozloduy NPP for 1 year was produced by thermal power plants, this would result in an additional emission of 27 million tons
of CO2, 1.2 million tons of SO2, 78 million tons of NOx, and about 52 t of dust
containing toxic mixtures and natural radionuclides.
In order to fulfill the obligations for preservation of the environment and
reduction of the emissions of CO2, SO2, NOx, and ash (Kyoto Protocol),
Bulgaria plans to continue to rely on nuclear energy and to develop it according
to the current requirements for nuclear safety, radiation protection, efficiency,
and reliability of operations. Nuclear safety in Bulgaria is evaluated according
to the EUs policy document Agenda 2000 and Western European Nuclear
Regulators Association (WENRA) requirements.
4.2. INSTITUTIONAL FRAMEWORK IN THE FIELD OF NUCLEAR ENERGY
AND SAFETY IN BULGARIA

The Republic of Bulgaria is amongst the contracting parties that ratified the
Convention on Nuclear Safety (in force for Bulgaria since 24 October 1996).
With this Act the country confirmed the national policy for maintaining a high
level of nuclear safety, assurance of necessary transparency, and the application
of the highest standards.
With the enforcement of the new Act on Safe Use of Nuclear Energy (2002)
and the set of Regulations for applying it (in force since September 2002) the
regulatory basis is established for communicating to the public in the area of
safe use of nuclear energy. Further development of the regulatory basis in
the area is connected with the legislation of the EU as far as Bulgaria took the
obligation to incorporate the European Directives. The improvement of the
documents issued by international organizations like IAEA and WENRA is also
used as a basis for both updating the existing and development of new regulatory documents.
According to the old Act, the body with the executive power was a collective body known as the Committee on Use of Atomic Energy in Peaceful
Purposes. Included in the Committee were representatives of other bodies and
organizations, some of them having direct responsibilities for utilization of
nuclear energy and NPP operation.
In the new Act, the independence of the regulatory authority is supported by
the fact that the function of development support for nuclear energy utilization
is not included in its functions, as it was in the old Act. According to Article 4
of the new Act, the state regulation of the safe use of nuclear energy and
ionizing radiation and the safety of radioactive waste management and spent
fuel management is implemented by the Chairman of the Nuclear Regulatory

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Agency (NRA). In the Act the idea for independence of the regulatory authority
is systematically introduced in several areas:
Political
Financial
Organizational
This represents a significant change in the status of the regulatory authority in
regard to the superseded old Act. The decree for approval regulates the transfer
of responsibilities, rights, and obligations from the former Committee on Use of
Atomic Energy in Peaceful Purposes to the new Agency.
The Organizational Statute of the Agency rules the total number of administered staff, the functions of the administrative departments of the Agency
and appoints the chairman of the Agency as a primary administrator of budget
loans. In his work for fulfillment of the authorities under the Act, the NRA
Chairman is assisted by an administrative organization in the NRA. The administration of the NRA is organized in one main directorate and four departments,
split into general and specialized administrations. The overall management of
the administration is performed by the Chief Secretary. The organizational and
managerial flow chart of the Agency is shown in Figure 6.
The deputies of the NRA shall be designated by a decision of the Council of
Ministers on a motion by the NRA Chairman. This is an additional element of
the independence of the regulatory body and gives the chairman a possibility
for recruitment of an effective team of well-qualified experts. The total number
of administered staff is 102, including 37 inspectors of safety on nuclear
facilities. Six of them are located permanently on Kozloduy NPP site. 95% of
the inspectors have a university degree and 60% of them have over 15 years
experience in the field of nuclear energy utilization.
As an independent regulatory body in the system of executive power, the
Chairman of NRA reports directly to the Chairman of the Council of Ministers
(the Prime Minister). In addition, the Chairman of the NRA informs the
National Assembly about the matters of nuclear safety and radiation protection
by participating at the sessions of the National Assembly and its commissions,
when it is appropriate. An important aspect of the political independence of the
regulatory body is the appointment of its Chairman for a 5-year mandate. This is
a guarantee for its independence against the specific composition of the Council
of Ministers, which appoints him and ensures continuity of the policy of the NRA.
The new Act sets specific requirements for the person who may be appointed as
NRA in regard to the education, experience in the nuclear field, etc.
The new Act creates conditions for financial independence of the regulatory
authority. In accordance with the Act, the Agency operations are financed by
the national budget and by income from the fees collected under the Act

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Figure 6. Organizational statute of the Nuclear Regulatory Agency (NRA).

provisions. The order of priority for expenditures of Agency financial resources


is the following:
Financing of studies, analyses, and expertise connected with the assessment
of nuclear safety and radiation protection and financing of regulatory activities under the Act
Capital expenditures on development of the Agency infrastructure
Training and qualification of Agency staff
Additional financial motivation of the Agency personnel
Figure 7 presents the increase of the regulatory authority budget for the last
several years.
The new Act mandates the establishment of the Advisory Council on Nuclear
Safety and the Advisory Council on Radiation Protection. The NRA Chairman
approves the composition of the Advisory Councils. Included in the Advisory
Councils are prominent scientists and experts in the field of nuclear energy and
ionizing radiation, radioactive waste management, and spent fuel management.

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273

Figure 7. The regulatory authority budget for 20002003.

The Advisory Councils shall assist the Chairman by giving expert advice on the
scientific aspects of nuclear safety and radiation protection.
The established regulatory system was highly evaluated by the IAEA
International Regulatory Review Team (IRRT) mission held in June 2003
(IRRT, 2003). It was also positively assessed in the conclusions of the peer
review, held in November 2003 by an expert team of Atomic Questions Group
of the European Commission (Peer Review on Nuclear Safety in Bulgaria,
2003). They found that all recommendations related to the regulatory regime in
Bulgaria were adequately addressed and no further monitoring on the regulatory
system of Bulgaria by the EC was necessary.
4.3. ORGANIZATION OF RADIATION PROTECTION AND RADIATION
MONITORING IN THE REPUBLIC OF BULGARIA

Article 37 states that doses from ionizing radiation to the personnel and the
population must be kept As Low As Reasonably Achievable (ALARA) principle. The regulation for basic standards in radiation protection (BNRP-2000) is
based on international safety standards (IAEA, 1996) and EU Directive 96/29.
The gamma background in the 3 km zone around Kozloduy NPP is measured continuously with an automated system for external radiation control
(Berthold). The system has ten monitoring stations for measuring the gamma
background and the activity of 131I in the ground level of the atmosphere, five
water stations, and three meteorological stations. The radiation monitoring
system in Kozloduy NPP is integrated with a similar system of the Ministry of
Environment and Waters. Information is exchanged online.

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Radiological monitoring in the country is carried out according to a program


which is part of the National Automated System for Ecological Monitoring
(NASEM), which provides a network of surveillance points, periodicity of
sampling, and a suite of radiological indicators being monitored. Radioactive
contamination of the atmosphere, soils, surface waters, ground waters, and
other objects of the environment is being monitored.
Continuous surveillance of the equivalent dose rate across the territory of
the Republic of Bulgaria is carried out as part of the National Automated System for continuous monitoring of the gamma background. It consists of 26 local
monitoring stations, covering the whole country, and regional monitoring
stations in the regional inspectorates of Varna and Vratza, and a central monitoring station in the Executive agency of environment, where the centralized
database is kept. The information is gathered in real time and is transmitted to
the emergency center of the NRA and the national reaction center in the State
Agency for Civil Protection.
Radiological results from analyses of the main components of the environment like air, water, soil, and vegetation, as well as foods typical for the
region of Kozloduy NPP, are within natural limits for the geographical latitude.
Measured concentrations are many times below legal norms and are comparable
to data from previous years and the period before the commissioning of the
plant, 19721974. As in previous years, in 2005 there was no registered deviation in the radioecological parameters caused by the operation of the NPP. The
radiation situation in the 100 km zone around the plant is stable and favorable.
The policy for management of radioactive waste and spent nuclear fuel, information for quantities and facilities for processing and storage are presented
circumstantially in the National Report on Joint Convention for safe management of radioactive waste and spent nuclear fuel (Nuclear Regulatory Agency,
2003).
The disposal of toxic waste remains a major problem for EU countries. The
practice of burying the waste underground has long been found to be unsatisfactory since the wastes can leach into ground water, resulting in a significant
pollution problem. Disposal of radioactive waste takes place in geological formations, for which performance assessments are carried out.
On the Kozloduy NPP site a complex for treatment, processing and storage
of radioactive waste operates. The complex includes a line for supercompaction
of solid radioactive waste, a line for treatment and processing of liquid radioactive waste, and interim storage for processed radioactive waste. Currently, the
activities on radioactive waste in Kozloduy NPP include collection, handling,
processing, and storage of liquid and solid radioactive waste on the plant site.
The gaseous radioactive substances, generated during operation of the nuclear

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275

facilities on the site are released into the environment after purification, as
permitted by the regulatory authority.
Financing of the radioactive waste management activities comes from the
Radioactive Waste Fund. The contributions to the Radioactive Waste Fund
are operational expenses of the nuclear facility operators and are included in the
price of electricity. After 2001, financing of all Kozloduy NPP activities in the
area of radioactive waste management is done with funds provided solely from
the Bulgarian country, with the exception of the projects financed by the IAEA
programs for technical cooperation. Long-term prognoses show that the resources
available at the moment and estimated future payments to the fund will provide
the necessary financing of the activities for radioactive waste management for the
entire period of operation of the Kozloduy NPP.
The financial resources for conducting radioactive waste management are planned annually and in midterm (3-year) plans. Now the regulations for the amount of
the payments, collection, spending, and control of the money in the Decommissioning of nuclear facilities and Radioactive waste funds have been
actualized. There is control over the expenses financial resources are spent only
for reasonable purposes and according to the payments in the funds. At this
moment the Kozloduy NPP is depositing to the two funds around 18% of the
income from electricity sold, which is an exceptionally high percentage
compared with other operators. According to the evaluation of foreign experts,
the Bulgarian policy on this matter leads to a very high rate of accumulation of
resources in the funds, and the percentage of payments is higher than all
European countries.
4.4. EVALUATION OF THE SAFETY OF EXISTING NUCLEAR FACILITIES

All activities on the evaluation and justification of the safety of existing nuclear
facilities were carried out in accordance with the plans presented and keeping
in mind the requirements of the new Safe Use of Nuclear Energy Act7. In
compliance with these requirements, an evaluation and licensing of all the
operating units was carried out. Actualization of the existing safety analysis
reports (SARs) for units 5 and 6 is being done in parallel with the implementation of measures of the modernization program and will be completed in
the middle of 2006. The SAR being developed will include a completely
actualized list of postulated initiating events. It is being developed in accordance with the requirements of the national regulatory basis, the applicable
Russian and American contemporary standards, as well as the IAEA guidelines.
Regarding the probabilistic safety evaluation, at the moment the level 1
probabilistic safety assessment (PSA) for full power is being actualized,
including analysis of internal initiating events; analysis of flooding risks; and,

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fire hazards analysis. Another project concerning low power PSA development
is being carried out in the framework of the modernization program.
In the modernization process of units 5 and 6, each individual package of
documents for changes in the design is presented to the NRA to grant permission for implementation together with the specific parts of the SAR concerning the affected equipment, systems, and components.
In accordance with the aforementioned, preparation of the safety evaluation
is assured as an element of the whole design process by the designer of the
modernization program measure. In the process of reviewing these documents,
the operator is supported by an independent team of engineering consultants
and the NRA by Technical and Scientific Support Organizations (TSOs) experts
of West European regulatory bodies by a special program financed under
Poland and Hungary: assistance for restructuring their economies (PHARE) a
preaccession program of the EU to assist the applicant countries of Central and
Eastern Europe.
The approach for carrying out the aforementioned activities, the individual
steps and the organization, including the intense dialog between the regulator
and the operator, were found adequate by a peer review of the EU Atomic
Question Group9. It was ascertained that all necessary conditions for completion of these activities within the planned deadlines are present and no
monitoring on the implementation is required by the EU.
5. Conclusions
The following basic conclusions could be made as a result of this work:
1. In the Kozloduy NPP the main issues are solved in accordance with
Bulgarian Legislation and international standards and the main goals are
achieved to assure nuclear safety and radiation protection.
2. The radiation impact of Kozloduy NPP on the atmosphere, water, soil, plant,
and animal world and protected territories, as well as the risk to the
environment and the health of the population in the controlled zone are
insignificant.
3. All recommendations related to the regulatory regime in Bulgaria were
adequately addressed and no further monitoring of the regulatory system of
Bulgaria by the EC is necessary.
4. There is no agreement on how the nuclear safety situation in the applicant
countries should be assessed in connection with the EU enlargement. Therefore, operators and regulators of the applicant countries are now concerned
that the new planned assessments will be a heavy burden to them.

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277

5. Continuous interaction between researches and managers is important for


addressing issues related to nuclear safety and efficiency.
6. Nuclear energy can be used to ensure energy security, without compromising environmental security.

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