Pacific Island nations have for decades been grappling with the environmental and health consequences of Cold War-era nuclear testing in the region by the likes of the U.S. and France. Now, they worry about another kind of nuclear danger from neighbors much closer to home.
As concerns over energy security and the desire to transition away from fossil fuels pushes several Asian nations to reconsider once-scrapped nuclear power programs, there is increasing anxiety over how the waste from those facilities—depending on the methods of disposal—might impact the lives of Pacific Islanders.
Notably, in the region, Philippines President Ferdinand “Bongbong” Marcos said in his first address to Congress in mid-2022 that he was open to adding nuclear energy to the country’s energy mix, the Indonesian government said in December it plans to build a nuclear power plant by 2039, and weeks later Japan announced that it plans to ramp up the use of nuclear energy.
Nuclear plants have long been touted as a reliable source of carbon-free energy, though many plants across the world had been shuttered in past decades over worries about the safety of nuclear waste disposal. In this new era of nuclear revival, similar uncertainties abound.
In Japan, one plant that isn’t even operational has become the frontline for the fight between activists seeking safety assurances for waste disposal and operators who are running out of space in on-site tanks to store the wastewater accumulating from keeping damaged reactors cool. Currently, Japan plans to release wastewater from the Fukushima Daiichi nuclear power plant into the Pacific Ocean later this year.
“It’s just horrendous to think what it might mean,” says Henry Puna, the secretary general of the Pacific Islands Forum (PIF), a regional intergovernmental organization that has more than a dozen member countries, including, for example, the Cook Islands, Fiji, Tonga, and Vanuatu. “The people of the Pacific are people of the ocean. The ocean is very much central to our lives, to our culture, to our livelihoods. Anything that prejudices the health of the ocean is a matter of serious concern.”
When a magnitude 9.1 earthquake and tsunami hit off the coast of Japan in 2011, it caused a meltdown at the Fukushima nuclear power plant. Since then, water is being used to cool the damaged reactors and prevent further catastrophe. Now, more than 1.3 million metric tons of radionuclide-contaminated water has been collected on site, and it continues to accumulate, as rain and groundwater seep in. Tokyo Electric Power Company (TEPCO), the operator of the plant, says that the storage tanks take up too much space and hinder decommissioning the plant. Japan initially said that it would begin releasing the water into the ocean in the spring of 2023. Chief Cabinet Secretary Hirokazu Matsuno told the media in January that the release target date is now around spring or summer, which appears to be a postponement, according to the Associated Press, due to construction delays on a pipeline and the apparent need to gain greater public support.
The plan has faced widespread opposition. Japanese fishermen, international environmentalists, and other governments in the region, including China, South Korea, and Taiwan, have all expressed concern. Some of the strongest pushback has come from Pacific Island countries, including from lawmakers, former leaders, regional fisheries management groups, and other organizations. Among those voices is the PIF, which is advocating for more time to deal with questions and concerns. Earlier this year, the PIF appointed a panel of independent global nuclear experts to help inform its members in their consultations with Japan and TEPCO. The experts have stressed that more data are needed to determine the safety of the water for disposal.
“We think that there is not enough scientific evidence to prove that the release is safe, environmentally, healthwise, and also for our economy in the Pacific,” says Puna, who is also the former Prime Minister of the Cook Islands. Until more information is shared and evaluated, he asks that Japan “please defer the discharge of the water.”
Doubts and divisions over the data
TEPCO says the water will be purified so that the concentration of radioactive substances—with the exception of a hydrogen isotope called tritium, which it says has “little impact on the human body”—falls below regulatory standards. The tritium will be diluted with a large volume of seawater. The government of Japan told TIME in an emailed statement that the measures it is taking are fully in line with international law and the safety standards of the International Atomic Energy Agency (IAEA). An IAEA task force, set up to review the safety of Japan’s plan, says that it completed a second review in Japan in January, and that it will release a report on its findings in about three months, as well as a comprehensive report before the discharge.
But there appears to be a major disconnect between TEPCO and others, including the PIF panel of experts—who say that they’re concerned with the adequacy, accuracy, and reliability of the data backing up the decision to release the water. Robert H. Richmond, a research professor and the director of the Kewalo Marine Laboratory at the University of Hawaii at Manoa, who is one of the panel experts, tells TIME that “the critical, foundational data upon which a sound decision could be made was either absent or, when we started getting more data,” he says, “extremely concerning.” He also casts doubt on if the IAEA is in the best position to assess the risks. “They’re an agency that has a mandate to promote the use of nuclear energy,” says Richmond, “and our mandate is to look after the people, the ocean, and the people who depend on the ocean. And our unanimous conclusion … is that this is a bad idea that is not defended properly at this point, and that there are alternatives that Japan should really be looking at.”
“One of the biggest surprises to me was the fact that the data was so sparse,” says Ferenc Dalnoki-Veress, scientist-in-residence and adjunct professor at the James Martin Center for Nonproliferation Studies at the Middlebury Institute of International Studies at Monterey, who is also on the PIF panel of experts. “There were prolonged gaps in data collection, which suggests that the matter may not have been given the level of attention and importance it deserved.” He adds that only a fraction of the tanks had been sampled, and only a handful of some 60 isotopes were typically measured in the samples—fewer than he would expect for this kind of assessment. (TEPCO says that the analysis done on a sample of tanks so far is just to assess the water’s condition in storage but that, after the purification process, further measurements will be taken on all the treated water before discharge to ensure that only that which meets sufficient standards of safety is released into the ocean).
Some still fear the safety of the treated water, and the far-reaching implications if it’s dumped into the ocean. Puna points out, for example, that the waters of the Western and Central Pacific Ocean produce much of the world’s tuna. If the tuna were to be impacted, it would cause major problems for Pacific nations, for which fisheries are a significant source of income, as well as for consumers globally.
In December, the U.S.-based National Association of Marine Laboratories also announced its opposition to TEPCO’s plans, publishing a position paper that says “there is a lack of adequate and accurate scientific data supporting Japan’s assertion of safety” while “there is an abundance of data demonstrating serious concerns about releasing radioactively contaminated water.”
Japan’s government told TIME in an emailed statement that it has provided detailed explanations, answered questions in a sincere manner, and that it stands ready to receive further questions. Puna says that the PIF panel of experts has been invited to Japan this year, but unless more data are offered, such a meeting would be “meaningless.” Richmond, similarly, says that requests for more data have not produced sufficient responses and that the panel of experts hasn’t been able to get the information they wanted via Zoom calls or emails, so he isn’t confident that a trip would produce enough information to make the panel of experts comfortable with the plan. “We asked ABC, and you answered with DEF,” he says.
When asked by TIME if it would indefinitely delay the discharge owing to the concerns of Pacific nations, TEPCO said in an emailed statement that it would “make every effort to foster understanding prior to the commencement of discharge.” The government of Japan also said that it “attaches great importance” to its relationship with the Pacific Island nations and that it “takes the PIF’s concerns sincerely,” but it stopped short of saying it wouldn’t go ahead with the discharge plan.
That approach may damage relations with the Pacific region. “We’ve been friends for a long time,” says Puna. “In the Pacific, we believe that if you are friends that you are always open to sharing information.”
A scarring past and a new path forward
Other nuclear plants across the globe have released treated wastewater containing tritium. Rafael Mariano Grossi, the IAEA’s director general, said in 2021 that Japan’s plan is “in line with practice globally, even though the large amount of water at the Fukushima plant makes it a unique and complex case.”
But Pacific Island nations have particular reason to be anxious. There is a noxious legacy of nuclear testing in the region, and other countries have historically treated the Pacific as a dumping ground for their waste. The U.S. conducted 67 nuclear tests in the Marshall Islands between 1946 and 1957—and disposed of atomic waste in Runit Dome, where it’s still stored. That testing led not only to forced relocations, but also to increased rates of cancers. Today there is concern that the dome is leaking and that rising sea levels might impact its structural integrity. France also conducted 193 nuclear tests from 1966 to 1996 at Moruroa and Fangataufa atolls in French Polynesia.
“To have this on top of that creates a feeling of fear and apprehension in the hearts and minds of our leaders and our people in the Pacific,” says Puna.
In the wake of Russia’s invasion of Ukraine and the ensuing energy crisis, many countries seem to be embracing nuclear power anew. Japan, for example, wound-down the use of nuclear energy in the wake of the Fukushima disaster. But in December it announced a major reversal of that policy and said that it plans to use more nuclear energy by restarting as many reactors as possible and prolonging the operating life of older reactors. (By late 2022, 10 of 50 nuclear reactors that were shut after the disaster had been restarted, according to the Economist Intelligence Unit.)
Rather than let dumping wastewater into the ocean become the norm, at this juncture for nuclear energy, some say it’s an opportunity to explore different ways of doing things. The panel of PIF experts has proposed several alternative solutions, including treating the water and storing it in more secure tanks to allow the tritium time to decay, or using the treated water to make concrete for use in projects that won’t have high contact with humans.
“This is not the first nuclear disaster and by no means is it going to be the last,” says Richmond. “This is an opportunity for Japan,” he says, “to do the right thing and to invest time, effort, and money into determining and coming up with new ways of handling radioactive waste and setting a new trajectory.”
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