Conceptualisation in the IAEA Safeguards System and the Formation of Safeguards Culture

The following is an excerpt from a paper written by VCDNP Non-Resident Senior Fellow John Carlson and co-author Valeri Bytchkov.

"This paper discusses the role of conceptualisation in International Atomic Energy Agency (IAEA) safeguards in the formation of safeguards culture. The object of this study is the IAEA safeguards system. This system was created in the mid-1960s on the basis of the IAEA Statute. In the 1970s the safeguards system was adapted for the purposes of the Nuclear Non-Proliferation Treaty (NPT). The safeguards system was strengthened during the post-1991 period, and its evolution remains ongoing.

The paper comprises two parts: a main part and an Annex. The main part contains major outcomes of the study: the three implementation concepts inherent in the safeguards system, the mechanism of safeguards culture formation, and the evolution of safeguards terms and notions. The Annex contains five parts, each describing an important milestone in the evolution of the IAEA safeguards system: (1) Conceptual development of the IAEA safeguards system in the pre-NPT period; (2) Adaptation of the IAEA safeguards system for the NPT; (3) Further development of the safeguards system; (4) Introduction of the additional protocol and development of the concept of integrated safeguards; and (5) Development of the State-level concept.

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The paper concludes that safeguards culture should not be organisation-based (that is, a separate culture for each organisation or entity), but rather, should be approached as a shared endeavour involving collaboration at all levels – multilateral, national, industry and individuals. After all, the underlying principle, the peaceful (or non-explosive) use of nuclear energy, does not depend primarily on IAEA safeguards (the IAEA is only the verifying agency) but on the commitment of each State. Safeguards culture, therefore, should emphasise international collaboration. Formally recognising the role of safeguards culture would not only lead to better performance in conceptualisation and implementation, but would also help strengthen safeguards as a global discipline."

_{The views expressed in the paper are those of the authors and do not necessarily reflect those of the VCDNP.}