R 191136Z DEC 08
FM AMEMBASSY BERN
TO SECSTATE WASHDC 5543
USDOC WASHDC
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USMISSION UNVIE VIENNA

UNCLAS BERN 000650 
 
 
STATE FOR MARC HUMPHREY 
COMMERCE FOR SARAH LOPP 
 
FROM FCS AND POL/ECON 
 
E.O. 12958: N/A 
TAGS: ENRGTRGYETRDBEXPBTIOSZ
SUBJ: CIVIL NUCLEAR WORKING GROUP OF THE TRADE PROMOTION 
COORDINATING COMMITTEE (TPCC) REQUESTS INFORMATION SUPPORT ON 
COUNTRIES' PLANS TO EXPAND NUCLEAR ENERGY:  SWITZERLAND 
 
REFS: (A) STATE 127468 (B) UNVIE 576 
 
¶1. This cable is Embassy Bern's response to ref a regarding 
Switzerland's plans to expand nuclear energy and our responses to 
the questions in para 8 of ref a as an initial overview of 
Switzerland's Civil Nuclear Power program. FCS Bern has already 
reported on this topic in the past through the Commerce Market 
Research Library and post will continue to report on this topic in 
2009 as further information becomes available. 
 
¶2. Summary: 
 
Switzerland has plans to expand its Civil Nuclear Power Program, 
both in terms of reactor construction and spent fuel management 
(uranium mining is not in the picture at all and as far as we know 
Switzerland does not export fuel supplies). 
These plans are based on the Federal Council's revised policy of 
2005 to continue to rely on its five existing nuclear reactors and 
to replace them over time as needed. The underlying motivation is to 
ensure independent capability to meet anticipated power shortages 
and energy security. The federal government's role is however 
limited largely to approving new plants and ensuring disposal of 
nuclear waste; it has little or no role in financing and operating, 
as these functions are carried out by so-called private companies, 
which to some extent are owned and certainly influenced by the state 
(cantonal) governments but nonetheless operate like most commercial 
entities. The Swiss nuclear regulatory authority ask, which has been 
part of the Swiss Department of energy but will become independent 
in 2009, has broad inspection and enforcement powers. Switzerland's 
domestic nuclear liability law is being updated under a revised law 
of June 2008 and brought into line with international conventions 
(notably the Paris convention). The Swiss Manufacturing base is 
heavily involved in nuclear-related products or services (but not 
mining or reprocessing for export, rather in high-tech components 
and services), and there is a balance between locally sourced 
components and services and those from outside Switzerland, 
especially Germany and the united states. Switzerland should not 
experience any problems in terms of the nuclear-trained workforce, 
although again it often relies on foreign suppliers. Anticipated 
nuclear tenders for new plants are still years away, as they are 
subject to governmental approval and probably popular referendum as 
well, but tenders are issued by the commercial entities that own and 
operate Swiss nuclear facilities, not by the government at federal 
or state (cantonal) level. As U.U. suppliers already have a footing 
here, it can be presumed that they were successful in the 
procurement or tender process. There are numerous sectoral 
opportunities for U.S. industry across a broad spectrum of best 
prospects. The primary companies domestic and foreign in the 
industry are listed below. There are foreign competitors but we are 
not aware of any formal or potential agreements at this time, except 
in the research area. As a neutral country and staunch supporter of 
non-proliferation, Switzerland has no particular political 
considerations in terms of cooperating with competing nuclear 
supplier states. End summary. 
 
¶3. The following items a-l respond to questions 1-11 in para 8 of 
reftel a: 
 
¶A. Does Switzerland Plan to Expand its Civil Nuclear Power Program? 
 
Yes, Switzerland's energy policy as revised in 2005 BY THE FEDERAL 
COUNCIL calls for new and replacement nuclear power stations. 
 
Switzerland has five operating reactors at four sites (Beznau I and 
II, Muehleberg, Leibstadt and Goesgen). With ageing nuclear power 
plants which have to be phased out over the next 10-20 years, the 
 
 
 
government decided new nuclear power plants (which provide clean, 
CO-2 free energy) are needed to prevent a power shortfall after 
¶2020. Of the power produced in Switzerland, 40 percent is generated 
from the five nuclear power plants, and the other 60 percent is 
mainly generated from hydropower with a small (approximately 5 
percent) but growing contribution from renewable energy sources. No 
fossil fuels (oil, coal, natural gas) are used in Swiss ELECTRICITY 
production. Electricity production represents roughly one-third of 
Swiss energy production, which is reliant on imported fossil fuels 
to a high degree. 
 
In June 2008, Atel (http://www.atel.eu/en/group/) submitted an 
application to the Federal Office of Energy 
(http://www.bfe.admin.ch/index.html?lang=en) for a general license 
to build a new nuclear power station in Niederamt, 
Solothurn(district of Goesgen/Olten). In December 2008, the Axpo 
Group (http://www.axpo.ch/internet/axpo/en/home.htm l) and BKW 
(http://www.bkw.ch/en/home/inhalte.html?chang eLang=en) established a 
joint company to develop plans for two new nuclear power plants to 
replace Beznau I/Beznau II and Muehleberg and submitted two 
framework applications to sFOE for the licenses. 
 
Hence, permits for three nuclear power plants may (or may not as 
SFOE told us) be sufficient to offset post-2020 power shortages. 
Atel may join forces with Axpo and BKW and, in any case, the Federal 
Council and Parliament must ultimately approve THEM. HENCE, permits 
for three nuclear power plants are now under review, although ANY 
NEW plants may be challenged as Swiss direct democracy entails 
almost certainly a popular referendum as early as 2012 or 2013.  A 
recent survey revealed that a narrow majority of Swiss people polled 
are in favor of nuclear energy for the production of electricity. 
For the first time, the survey revealed that in spite of big efforts 
to conserve energy, 46% of the public views the construction of 
additional nuclear power sites as essential, while 44% of the public 
deem additional nuclear power plants superfluous.  If a referendum 
were held today, the survey concluded that 47% would vote in favor 
of the erection of new sites, while 43% would vote against such 
plans.  This is a major shift from a survey conducted one year ago, 
wherein 44% of all the people polled were in favor, and 50% were 
against the construction of a new nuclear power plant. 
 
Detailed reports of October and December 2008 on the new plants by 
the Commercial Service/US Embassy Bern are available on the Commerce 
Market Research Library 
http://www.buyusainfo.net 
 
The national Cooperative for the Storage of Radioactive Waste 
(NAGRA) was established in 1972.  It was entrusted with the mandate 
of identifying a safe long-term solution for the disposal of all 
radioactive waste produced in Switzerland -- a mandate that has not 
yet been fulfilled.  At present, radioactive waste is being stored 
safely in special containers in well-secured halls at an interim 
storage site in Wuerenlingen, and at the nuclear plants themselves. 
Switzerland's Nuclear Waste Management Concept calls for two 
repositories: one for low and intermediate level waste and another 
for high level waste.  Alpha toxic waste may be stored in either of 
the sites.  However, this radioactive material needs to be safely 
stored for up to a million years, and for this purpose, storage 
above ground is not a suitable long-term solution.  Today, fully 
developed concepts exist for the permanent storage of radioactive 
waste in geological formations, but so far it has not been possible 
to find a site for a deep geological repository. 
 
With the new legislation that entered into effect in February 2005 
(Nuclear Energy Act and Nuclear Energy Ordinance), the Federal 
government adopted a new approach:  the search for a suitable site 
 
 
 
is now to be carried out within the scope of the sectoral planning 
procedure.  The objective of the Deep Geological Repository Sectoral 
Plan is to ensure that, as major projects of national importance; 
deep geological repositories can be decided upon and constructed on 
the basis of an independent, transparent and fair procedure.  This 
process is managed by the Swiss Federal Office of Energy (SFOE). 
 
¶B. Switzerland's Underlying Motivations 
 
Switzerland's underlying motivations include anticipated power 
shortages due to the eventual decommissioning of the five existing 
nuclear power plants, the fact that Switzerland is committed to 
non-fossil fuel energy sources with reliance on nuclear in addition 
to hydroelectric as clean, non-CO-2 emitting energy sources, and the 
expiration of the import contracts with France (which relate to 
energy security). Switzerland's energy posture is based on 
independence from foreign sources of electricity, especially when 
compared to most of Europe's reliance on Russian and other foreign 
sources of fossil fuels. 
 
¶C. Government's Role in Financing, etc. 
 
The Swiss central (federal) government's role in the financing of 
the civil nuclear sector is certainly limited, especially in 
comparison with that of other market economy countries, including 
the United States. (SFOE noted that Federal funding is limited to 
research on waste disposal, safety, etc.) Under the Swiss confederal 
system, the cantons have historically played and continue to play a 
very large role in energy development (both hydroelectric and 
nuclear), and Canton Bern is in fact the majority owner of BKW. The 
Cantons generally have ownership and influence on the "private" 
utility companies that own and operate the nuclear facilities. These 
companies in turn have close relationships with larger European 
energy holding companies (e.g., BKW is 21 percent owned by the 
Munich energy holding E.ON Energie AG). 
 
¶D. Switzerland's Nuclear Regulatory Authority 
 
The Federal Nuclear Safety Inspectorate (HSK), which had been 
affiliated to the SFOE, is now becoming legally independent as of 
January 1, 2009. It inspects and evaluates nuclear safety and 
radiation protection at the Swiss nuclear power plants 
(http://www.hsk.ch/english/start.php). 
 
Acting as the regulatory body of the Swiss Federation, the 
Inspectorate assesses and monitors nuclear facilities in 
Switzerland. They include its five nuclear power plants, the 
plant-based interim storage facilities, the Central Interim Storage 
Facility at W|renlingen together with the nuclear facilities at the 
Paul Scherrer Institute (PSI) and the two Universities of Basel and 
Lausanne, as well as the Institutes of Technology in Lausanne and 
Zurich. The Inspectorate assesses the nuclear safety of these 
facilities and using a mixture of inspections, regulatory meetings, 
examinations and analyses as well as reports from individual plant 
licensees, it obtains the required overview of nuclear safety. The 
Inspectorate ensures that facilities observe the regulations and 
that operations comply with the legislative framework. In addition, 
its regulatory remit includes the transport of radioactive materials 
and preparations for a deep geological repository for radioactive 
waste. The Inspectorate maintains its own emergency organization, 
which is an integral part of the national emergency structure and 
would be activated if there were a serious incident in a Swiss 
nuclear facility. 
 
HSK has 106 employees and expects that number to go up by roughly 
10-20 percent in the near future. It currently has 4 open positions 
 
 
 
advertised on its website. 
 
¶E. Switzerland's Nuclear Liability Law Updating 
 
The Swiss Parliament approved the new Federal Nuclear Energy 
Liability Act on June 13, 2008, which is based upon the revised 
international nuclear liability regime, called the Paris Convention 
and the Brussels Supplementary Convention, and provides a compulsory 
liability coverage of Euro 1.2 billion (USD 1.6 billion). 
Switzerland's revised Federal Nuclear Energy Liability Act can only 
be enacted by the Federal Council once the revised Paris Convention 
has been ratified.   The amendments to the Paris Convention need to 
be ratified by two-thirds of the contracting parties e.g. ten 
countries, and by all contracting parties for the Brussels 
Amendments, e.g. twelve countries.  It is anticipated that 
Switzerland will ratify both amendments within the first six months 
of 2009, but final ratification by the required number of countries 
is expected to take 1-2 years. 
 
The Swiss Federal Office of Energy (SFOE) will concurrently work out 
the necessary details pertaining to the Nuclear Energy Ordinance. 
The Federal Nuclear Energy Liability Act and the Nuclear Energy 
Ordinance are slated to go into force in 2010 or thereabouts.  The 
existing Federal Nuclear Energy Liability Act, entered into effect 
on January 1, 1984, applies with a compulsory liability coverage of 
Sfr. 1 billion (USD 850 million) until implementation of the revised 
Federal Nuclear Energy Liability Act. 
 
¶F. Swiss Manufacturing Base versus imports 
 
Yes, the Swiss manufacturing base, which is oriented already to 
high-precision, high value-added and advanced technology in general, 
is particularly well-suited to supplying its own energy companies 
products and services both in the nuclear and the hydroelectric 
fields. However, as reported by Commercial Service Bern, U.S. 
companies like General Electric are very active in supplying and 
maintaining Swiss power plants, both nuclear and conventional hydro, 
especially in turbine technology, and German and other foreign 
companies are also competitive in many subsectors. 
 
It is very likely that many of the components or contracting 
services for new plants could be sourced locally, but imports would 
certainly be involved. We have not yet developed detailed product 
and service information by HS code or other categories nor 
determined the relative weight of imported versus domestic sources, 
which would vary widely by subsector. Various trade statistics are 
readily available; domestic production figures less so. 
 
The market research reports referred to above indicate that the 
"best prospects" for U.S. exports can be described as follows: 
 
All of the nuclear power plants in operation today in Switzerland 
are based on light water reactor (LWR) technolgy, which includes 
both boiling water reactors and pressurized water reactors. General 
Electric has made significant inroads on the Swiss market with its 
boiling water reactors. GE is in charge of maintenance and overhaul 
services at nuclear power plants using GE technology, also providing 
(spare) parts, components, and software technology in support of the 
upkeep of the plants. Operators of nuclear power plants frequently 
turn to U.S. suppliers for projects that require highly skilled 
labor and have entire teams on site to carry out these specialized 
projects. U.S. technology to encompass generators, reactors, cooling 
pumps, parts and components as well as software is highly regarded 
among Swiss operators of nuclear power plants. These are the product 
sectors that are deemed to have an above-average growth potential. 
 
 
 
¶G. Nuclear-trained Workforce 
 
Switzerland's approach to training is similar to that of Germany, 
with a strong emphasis on technical training, on apprenticeships, 
etc. In general, the orientation of the labor force is highly 
planned during the educational period, and the provision of 
engineering specialists, technicians, and construction for the 
nuclear workforce would be no exception. The maintenance and 
expansion of civil nuclear power, given that Switzerland already has 
5 maturing facilities should not pose any significant requirement 
for a foreign workforce. As already noted, Switzerland relies on 
General Electric and other foreign suppliers for several 
requirements in its nuclear and non-nuclear power facilities. 
Specifics on programs in place or being developed have not yet been 
fully researched, but as indicated above in the material on the HSK 
the Universities of Basel and Lausanne (as well as the Institutes of 
Technology in Lausanne and Zurich) are involved in nuclear 
training. 
 
¶H. Nuclear-related Tenders/Procurements 
 
CS Switzerland is not aware of any nuclear-related tenders at the 
present time.  As a general rule, nuclear power plant operators 
exercise discretion in inviting bids, and selective, discretionary 
tenders are quite common.  In general, quality and technical 
criteria are more important than price in bid decisions.  Foreign 
firms may be required to provide a Swiss bank guarantee if they have 
no local office or representation.  Notices of tenders are published 
in the official trade journal Handelsamtsblatt.  While there is no 
requirement to have a local agent to bid, it is advantageous when 
equipment needs training, service or parts.  CS Switzerland 
endeavors to list tenders on its website and has a direct link to 
the CS EU website with a comprehensive listing of tenders. 
 
¶I. nuclear opportunities for u.s. industry 
 
U.S. suppliers have solidified their position in the Swiss market 
over the years.  Operators of nuclear power plants frequently turn 
to U.S. suppliers for projects that require highly skilled labor and 
have entire teams on site to carry out these specialized projects. 
U.S. technology to encompass generators, reactors, cooling pumps, 
valves, parts and components as well as software technology is 
highly regarded among these nuclear power plant operators. 
Opportunities for U.S. suppliers lie in the areas of plant design, 
equipment for the commercial nuclear electric power industry, 
reactor sales, waste management, engineering services, fuel 
management services, radioactive waste conditioning/disposal as well 
as emergency training.  These are the areas that are deemed to have 
above-average growth potential.  The overall Swiss nuclear power 
plant market is highly competitive with an abundance of suppliers 
and strong price competition.  Procurement decisions are based upon 
price and performance.  Operational and technical aspects, 
maintenance and life-cycle costs and risk are also taken onto 
account when contracts are awarded to both domestic and foreign 
suppliers. 
 
¶J. Primary Companies Domestic and Foreign 
 
The U.S. suppliers Westinghouse and GE as well as German supplier 
Siemens have made major inroads in the Swiss market, garnering a 
substantial share of the overall civil nuclear sector.  The 
country's first commercial units were Beznau-1 - a Westinghouse 
pressurized water reactor ordered by NOK (Nordostschweizerische 
Kraftwerke AG), and M|hleberg - a General Electric boiling water 
reactor ordered by BKW (Bernische Kraftwerke AG).  Following these 
three units, a consortium of utilities - Kernkraftwerk Gsgen (KKG), 
 
 
 
ordered a large PWR from Siemens KWU for Gsgen and another utility 
consortium (KKL) ordered a similar-sized General Electric BWR for 
Leibstadt.  These companies provide maintenance and overhaul 
services, also supplying spare parts, components, and software 
technology in support of the upkeep of the plants. 
Furthermore, the world-renowned leader in power and automation 
technologies ABB is a major player on the Swiss energy market, 
providing nuclear waste facilities, LWR fuel, BWR rods, fuel 
management services, etc.   Colenco Power provides services that 
include contractual advice, procurement of nuclear systems, 
radioactive waste conditioning/disposal and emergency training.  ICT 
Inter Control Technology AG is a major player in Switzerland 
involved in the installations and equipment for the examination of 
spent fuel elements and fuel rods, remote handling systems, and 
nuclear robots.    Pedi AG provides protection systems for people 
involved in the production, supervision, maintenance and emergencies 
and remote handling tools. 
 
¶K. Are there other nuclear supplier countries engaging Switzerland 
on its civil nuclear power program? 
 
There is an agreement between Switzerland and the European Atomic 
Energy Community (Euratom), which provides for Switzerland's 
involvement in EU-sanctioned research programs in the peaceful uses 
of nuclear energy.  However, there are no agreements whereby Swiss 
enterprises are involved in any activities in foreign civil nuclear 
power programs. 
 
¶L. political considerations 
 
It is difficult to assess "political considerations" absent a 
concrete context involving one or more particular countries, and 
without regard to whether we are viewing Switzerland as a receiver 
of nuclear materials and equipment or as a sender.  It should be 
noted that Switzerland has maintained both strong neutrality and 
anti-proliferation stances in its international relations, and also 
has laws against the export of items that can be used in warfare. 
 
In general, Switzerland combines its domestic energy policy with 
international aspects via its representation in international 
organizations, including the International Energy Agency, the 
International Atomic Energy Agency, as well as multilateral and 
bilateral negotiations on energy policy, non-proliferation of 
nuclear weapons, and monitoring nuclear exports. 
 
Switzerland is involved with several bilateral committees dealing 
with the safety of nuclear installations, including bilateral 
committees with France and Germany.  Relating to the U.S. alone, 
Switzerland maintains the following agreements: US atomic energy 
commission and the Swiss Division of Science and Research to 
exchange information in the field of fast reactor physics;  US 
Department of Energy and the Swiss Federal Institute for Reactor 
Research in the area of carbide fuel development; Swiss Federal 
Council and the U.S. Government on the peaceful uses of nuclear 
energy; Swiss Federal Office of Energy and the US Nuclear Regulatory 
Commission on severe accident research, probabilistic risk 
assessment research, safety research on deregulation, and related 
aging research; Swiss Federal Office of Energy and the US NRC for 
the exchange of technical information and cooperation in nuclear 
safety matters; and most recently, Swiss Federal Nuclear Safety 
Inspectorate and the US NRC for the exchange of technical 
information and cooperation in nuclear safety matters. 
 
¶4. Note:  SCO Donald Businger and Senior Commercial Specialist 
Sandor Galambos of FCS Bern met on December 12, 2008 with the Swiss 
Federal Office of Energy (SFOE) Deputy Director Werner Buehlmann and 
 
 
 
Energy Supply Specialist Christian Schaffner to collect input for 
this cable. 
 
(FCS: DBUSINGER/SGALAMBOS; ECON: LFRERIKSEN/RDELALANDE) 
 
CARTER 
 
 
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