Denial of Shipment: The importance of global transport

Each year, many millions of packages of radioactive material are transported globally. These shipments are vital because the producers and users of these materials are often located in different countries. Most of these shipments take place without any interruption. They are, quite literally, routine. However, on occasions these shipments are prevented from reaching their end user and this can have serious consequences for those that are relying on their delivery.

The radioactive materials transported have many uses. These can be divided into three main areas:

• Shipments for medical uses, such as radiopharmaceuticals
• Shipments for non-nuclear industry such as agriculture, mining, surveying, and food industry uses
• Shipments within the nuclear fuel cycle, that support the nuclear industry and power generation

When people think about the transport of radioactive material, they often imagine large packages of radioactive waste, or high security shipments of reprocessed fuel or even plutonium. Small numbers of these types of shipment do indeed take place, but most shipments of radioactive material involve far smaller quantities that are transported using more regular delivery methods, rather than specialised transportation means. In fact the majority of shipments of radioactive material are for non-nuclear industry and medical uses, with fuel cycle shipments making up only around 5% of these transports. Whatever transport method is used, all radioactive material must be packaged and transported in accordance with the very strict regulations and guidelines laid down by the International Atomic Energy Agency (IAEA). These regulations are further defined in the regulations agreed at other UN agencies for the various transport modes, such as the International Maritime Organization (IMO) and the International Civil Aviation Organization (ICAO). These rules are ultimately adopted into statute by each member state. These rules are designed to ensure the safety of the material and to provide all the necessary protection for the workers that handle these packages, as well as others in the vicinity and for safeguarding the environment.

Although all discussed applications of radioactive materials have beneficial impacts on our lives, it is particularly important to mention radiopharmaceuticals. Radiopharmaceuticals are specialised drugs that contain radioisotopes used in the diagnosis and treatment of many different medical conditions. Different types of isotopes are used to diagnose or treat different conditions, and these radiopharmaceuticals are designed such that they travel to the specific part of the body where the target organ or tissue is located. The radiopharmaceuticals can be administered by either injection or taken orally. In many cases, the radioisotope used has a very short half-life. This is to ensure that the radioisotope will decay away soon after the drug has been administered to a patient.

These medical procedures are widely accepted practices today. According to the World Nuclear Association (WNA), there are over 50 million nuclear medicine procedures performed each year, and demand for radioisotopes is increasing.

Radiopharmaceuticals are used in over 10,000 hospitals worldwide, but the necessary isotopes are not produced in many countries. This necessitates the transport of these radioactive materials. With a short half-life, the rapid transport of these drugs is vital to ensure that they are still useful when they reach the hospital and are used. Simply put, if a radiopharmaceutical does not reach a patient within its useful shelf life, the patient will go untreated.

When radiopharmaceuticals are transported, the producers will seek to send them by the most direct and rapid routes to maximise their useful life. Unfortunately, there are often barriers that can make route planning difficult. These barriers are referred to as Denials or Delays of Radioactive Materials.

Some shipping companies and airlines simply refuse to carry radioactive material as a policy decision. This may be because the carriage of radioactive material is seen as too troublesome, with a small return on investment when compared to other freight that is carried in much higher volumes. Cargo handlers and those responsible for the safety of these materials during transport often need to have additional training which introduces a cost consideration. Without a basic understanding of these materials some personnel are apprehensive about handling packages containing radioactive material.

There are also requirements that apply to the safe and secure storage of radioactive material when being transported, and when transiting ports and airports. This can put a strain on facilities that have limited space and resources. These are all factors that need to be considered by carriers and at transit points when deciding whether to support the transport of radioactive material. However, for those ports, airports, and carriers that do permit the carriage of radioactive material, the returns can often be very good for a cargo that is actually very easy and safe to handle.

Some governments have introduced legislation that prevents or restricts the transport of radioactive material into or through their ports. Not only does this affect those countries, but it will also impact shipments destined to other countries when it is being carried as part of a multiport voyage or requires transhipment to a regional or national carrier.

It is not always clear why these restrictions have been put in place, but it could include a response to public pressure. There is, unfortunately, a lot of misinformation that can generate undue concern among communities and other stakeholders when discussing the use and transport of radioactive materials. Coupled with a lack of awareness and understanding of both the benefits and the strict regulations that are in place when transporting radioactive materials, many individuals develop an exaggerated and unjustified level of fear.

Even when a government does not explicitly legislate against shipments of radioactive material, there may be a lack of political commitment to ensure that the necessary measures are in place to facilitate these transports. This would include the provision of a suitable regulatory framework for such shipments. Often governments add additional requirements over and above the IAEA regulations which increase complexity and result in unnecessary extra cost in compliance.

When radioactive material is prevented from using a particular transport route due to an explicit or implicit refusal to carry a shipment of radioactive material (also referred to as Class 7 dangerous goods), even though it conforms to all the applicable regulations, we refer to this as either a Delay or Denial of Shipment. According to the IAEA Denial of Shipment Working Group, these are defined as:

• Delay, when an intentional delay adds journey time, which reduces the effectiveness of the material or renders the material unusable when delivered. A typical example could be radiopharmaceuticals, which have a very short half-life and achieving the scheduled delivery programme is essential, being slowed solely because they are Class 7 material
• Denial, when a consignment is not accepted at a point during the journey, even though the consignment complies with all regulatory requirements, including documentation. An example of this type of denial could be a pilot or ship captain refusing to take a consignment of Class 7 material on board
• Denial, when there is a policy decision not to accept Class 7 by one of the parties involved in a route, rendering the route unavailable. An example of this type of denial could be an airline carrier, airport authority, sea vessel carrier or seaport authorities deciding not to accept any Class 7 materials while accepting other dangerous goods

The IAEA Denial of Shipment Working Group (IAEA DoS WG) has been established for a four-year period (2023-2026) with the objective to consider the options for addressing denials of and delays in shipment of radioactive materials. This Working Group also builds on the outcomes from previous, similar, IAEA initiatives. The group is evaluating the root causes and extent of such denial and delays. This information is then used to consider and develop potential solutions. This includes measures aimed specifically at industry, Member States, and other stakeholders, such as the public.

As identified by the IAEA DoS WG, Member States are encouraged to appoint a National Focal Point (NFP) on Denials of Shipment of Radioactive Material. These NFPs are experts in the transport of radioactive material and have an important role when it comes to facilitating the safe transport of radioactive material.

The World Nuclear Transport Institute (WNTI) has identified that engaging with stakeholders to raise awareness and understanding of the transport of radioactive materials, and the end use of these materials, is critical if we want these shipments to be able to occur freely and unhindered. WNTI member organisations have successfully conducted outreach and awareness efforts directly with their stakeholders, helping shift mindsets from negative to positive. Providing an unbiased, fact based, narrative is crucial if people are to form their own considered opinion. All too often in the past, people have been exposed to misleading and highly biased rhetoric. While sceptics will always exist, having access to accurate information helps dispel emotional biases.

It is often a challenge for people to list the ways in which the nuclear industry and radioactive materials have benefitted their lives, and the various parts of this industry need to do their part in raising the profile. This is particularly important as we envision a future where nuclear technologies will be used in closer proximity to communities.

Some people view radioactive materials as too risky to handle, but this is simply not the case when the regulatory framework is adhered to. This is particularly true during transport, where there is a requirement for compliance with some of the most stringent regulations of all the dangerous goods classes. It is these rules that should provide the reassurance that is needed for acceptance.

WNTI is in the process of establishing a new Working Group that will focus on outreach, awareness, and stakeholder engagement across all areas of the nuclear transport industry. This will include future deployments of nuclear technology, storage solutions, as well as efforts to reduce cases of Denial and Delays of Shipment.

When looking at DoS, the WNTI Working Group will focus on specific cases of DoS that most affects our members as well as the transport of radioactive materials in general.

This will include drafting information papers that will help the reader better understand the need for these transports and how nuclear science and radioactive materials positively impact our everyday lives in so many ways.

When we look at solutions for DoS, there are ways that the transport of radioactive material can be expedited without additional cost being incurred. For example, in some countries aircraft that are carrying radioactive material are given priority over other aircraft when being assigned a landing slot. This reduces the time that an aircraft is being held in a landing pattern and saves the aircraft operator fuel.

As some WNTI members have already demonstrated through their own initiatives, a programme of outreach to stakeholders can result in greater understanding and acceptance of radioactive material transports. The transport of radioactive material is tightly controlled by international and national regulations, and an appreciation of this regulatory framework can go a long way to reassuring the public and other stakeholders.

The pressing global climate emergency has focused people’s minds on changing the way that we produce energy. Nuclear power will undoubtedly play an important part in decarbonising our homes, offices, industry, and transport. More countries are including nuclear power in their energy mix as the most reliable and sustainable power generation solution available. This will necessitate an increase in the numbers of shipments of radioactive material that supports this industry. As already mentioned, there is a growing demand for medical procedures that use radiopharmaceuticals, and as countries develop their industrial and agricultural sectors there will be a need for the radioactive materials that support these. With our continued growth in reliance on radioactive materials there is even more need to ensure that the transport industry that supports these shipments can operate freely and competitively. WNTI’s purpose is do all that it can to promote the facilitation of these transports through engagement with the regulatory bodies, policy makers, operators, the public, and other stakeholders.

The safe and secure transport of radioactive material should not be viewed as an unacceptable risk but rather as an important part of our society. It saves lives.