Nuclear Regulation
2024

Characteristics of aTrusted Nuclear Regulator

NE A

Nuclear Regulation

The Characteristics of a Trusted
Nuclear Regulator© OECD 2024
NEA No. 7618
NUCLEAR ENERGY AGENCY
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NUCLEAR ENERGY AGENCYThe OECD Nuclear Energy Agency (NEA) was established on 1 February 1958. Current NEA
membership consists of 34 countries: Argentina, Australia, Austria, Belgium, Bulgaria, Canada,
Czechia, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan,
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Energy Agency also take part in the work of the Agency.
The mission of the NEA is:•

to assist its member countries in maintaining and further developing, throughinternational co-operation, the scientific, technological and legal bases required for thesafe, environmentally sound and economical use of nuclear energy for peaceful purposes.

•

to provide authoritative assessments and to forge common understandings on key issues
as input to government decisions on nuclear energy policy and to broader OECD analyses
in areas such as energy and the sustainable development of low-carbon economies.

Specific areas of NEA competence include the safety and regulation of nuclear activities,
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Bank provides nuclear data and computer program services for participating countries.

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© OECD 2024
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Cover photos: Building trust (Kmpzzz/Shutterstock); roundtable discussion (Matej Kastelic/Shutterstock).

FOREWORD

Foreword

The Nuclear Energy Agency (NEA) Committee on Nuclear Regulatory
Activities (CNRA) is an international body made up of senior
representatives from nuclear regulatory authorities. The committee
guides the NEA programme concerning the regulation, licensing andinspection of nuclear installations to ensure safe operations. It acts as
a forum for the exchange of information and experience, and for thereview of developments that could affect regulatory requirements.
The CNRA has produced a series of regulatory guidance reports,
commonly known as “green booklets”, which are prepared andreviewed by senior regulators and provide a unique resource on key
nuclear regulatory matters. The booklets examine various regulatory challenges andaddress the major elements and contemporary issues of a nuclear safety regime. This
document is a companion piece to the green booklets The Characteristics of an Effective
Nuclear Regulator (NEA, 2014), and The Safety Culture of an Effective Nuclear Regulatory Body
(NEA, 2016).
At its June 2014 meeting, the CNRA reviewed and approved the green booklet The
Characteristics of an Effective Nuclear Regulator (NEA, 2014) noting that credibility, trust andrespect are universally seen to be desirable attributes that a regulator should possess.
The CNRA therefore agreed that the topic of building trust was an important area forfurther work.
At a first NEA workshop on “Stakeholder Involvement in Nuclear Decision Making”,
held in January 2017, trust was highlighted as an essential component for conducting
stakeholder dialogue and as a potential positive result of that dialogue. In advance of thesecond workshop, “Stakeholder Involvement: Risk Communication – Dialogue Towards a
Shared Understanding of Radiological Risks”, held in September 2019, a brief survey was
conducted among participants to solicit views on the topic of risk and risk communication.
Some 75% of the participants from 33 countries and regions responded that the“trustworthiness of the communicator” was the most important characteristic. At the third
event, which was entitled “Stakeholder Involvement Workshop: Optimisation in Decision
Making” and held in September 2023, trust was once again at the forefront of the
discussions between civil society, non-governmental organisations and governmental
representatives when it came to the fundamental tenets required for a more inclusive,
holistic and sustainable decision-making approach.
This report is intended to provide a practical guide to explain the organisational
characteristics, attributes and ways of thinking that can help a nuclear regulator build
and maintain trust with stakeholders and the public. It offers examples of actions andactivities that can be taken to demonstrate those characteristics in practice.

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FOREWORD

The NEA encourages and challenges all established regulatory bodies to use this reportas a benchmark, so that they might continually enhance their effectiveness in fulfilling
their mission to protect people and society. It is important that each regulatory bodydevelop its own frame of reference, using this report as a basis against which it can carryout its own self-assessment. While this guidance is primarily written to inform how
regulators interact with the public, the characteristics described are also relevant to how
the regulators work with licensees and nuclear operators. Regulators may therefore wish
to consider how these characteristics can be adopted more widely in their stakeholder
engagement approaches.
Although the audience for this report is primarily nuclear regulatory bodies, theinformation and ideas herein are also expected to be of interest to all stakeholders involvedin the nuclear industry. The NEA believes the report could be of special interest to countries
that are looking to begin a nuclear energy programme and have yet to develop wellestablished regulatory regimes, and to nuclear power plant operators to guide theircommunication and engagement activities with the communities they work with.
The conversations around trust and the characteristics outlined in this report areneither exhaustive nor culture-specific; rather, they are intended to complement otherwork being carried out by the NEA, for example through the Working Group on Human andOrganisational Factors (WGHOF) and the Working Group on Leadership and Safety Culture(WGLSC).
Moreover, because of the rising importance of building and maintaining trust, the NEA
established the High-Level Group on Stakeholder Engagement, Trust, Transparency, andSocial Sciences (HLG-SET) in March 2023. The formation of this group reflects the NEA’s
overarching objective of prioritising stakeholder and public engagement to advance trust
building. The HLG-SET will engage with political and social scientists, scholars in the fieldof humanities, non-governmental organisation representatives and practitioners of thenuclear sector as necessary. Looking ahead, the NEA aims to support and advance its
member countries’ efforts to improve the understanding and development of effective
policy-level initiatives that strengthen the relationship between the nuclear sector and civilsociety.

William D. Magwood, IV
Director-General
Nuclear Energy Agency

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ACKNOWLEDGEMENTS

Acknowledgements

The NEA thanks the NEA Expert Group on Public Communications of Nuclear Regulatory
Organisations (EGPC) task group co-leaders, Rhonda Walker-Sisttie (Canadian Nuclear
Safety Commission [CNSC]) and Katie Day (United Kingdom Office for Nuclear Regulation[ONR]) and all the task group members for their efforts and contribution to this report.
Their leadership and participation in task meetings, workshops and plenary meetings
made this report possible.
This report would not have been possible without the significant efforts of many
individuals. The contributions of Dan Dorman (United States Nuclear Regulatory
Commission [NRC]), Verena Ehold (Austrian Federal Ministry for Climate Action,
Environment, Energy, Mobility, Innovation and Technology [BMK]), Rumina Velshi and
Jackie Cunningham (CNSC), Adrienne Kelbie (ONR), Jussi Heinonen (Finnish Radiation
and Nuclear Safety authority [STUK]), Michael Knochenhauer (Swedish Radiation Safety
Authority [SSM]), and Jean-René Jubin, Irena Chatzis, Jeffrey Robert Donovan and Tina
Tingerstadt (International Atomic Energy Agency [IAEA]). Thanks are also extended to:members of the NEA Committee on Nuclear Regulatory Activities (CNRA); bureau
members of the NEA Working Group on Leadership and Safety Culture (WGLSC),
especially Commissioner Nobuhiko Ban (Nuclear Regulation Authority of Japan)- andMarc McBride (ONR’s Deputy Professional Lead on Leadership and Management for
Safety); bureau members of the NEA Working Group on Human and Organisational
Factors (WGHOF), especially Sean Peters, John Turner, and Suzanne Dolecki; and bureau
members of the NEA Forum on Stakeholder Confidence (FSC), in particular David Brazier
for sharing many good reports and providing advice.
In the NEA EGPC Secretariat, Lélia Rousselet helped get this project off the groundand Minori Kato guided the process to finish. Finally, the team would like to acknowledge
Chara Kaplani for her editorial support.
This report was approved by the CNRA on 1 September 2023 by the written procedureand prepared for publication by the NEA.

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METHODOLOGY

Methodology

This report draws from a range of research publications and sources. This includes
members of the NEA EGPC as well as the outcomes and bibliographies from the first andsecond NEA workshops on stakeholder involvement in nuclear decision making, and a
dedicated survey in 2020 on the views of stakeholders and the public about trust and thecharacteristics that should be demonstrated through actions to gain trust. The quotes
from regulators cited in the text are, for the most part, taken from interviews conducted
for this report. A full list of those interviewed is set out in Appendix 1. Key research thatformed a literature review was also taken from a wide array of international sources,
academia and documents produced by the NEA, its member countries and otherinternational organisations.

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TABLE OF CONTENTS

Table of contents

List of abbreviations and acronyms ..................................................................................... 11
Chapter 1. Context and definitions ....................................................................................... 13
Definitions of key terms ...................................................................................................... 14
Chapter 2. Why is trust important to a nuclear regulator? ............................................... 15
Trust is fundamental to public safety and is a requirement for successful nuclear
energy regulation ................................................................................................................. 15
Building trust can lower barriers to effective communication....................................... 16
Nuclear regulators need to be able to rely on an established, credible reputationin times of crisis ................................................................................................................... 16
Trust is necessary for robust international collaboration............................................... 17
A regulator’s safety culture is integral to fulfilling its mandate .................................... 17
Nuclear regulators rely on public engagement and feedback to build trust ................ 18
Chapter 3. Characteristics of a trusted regulator ................................................................ 19
Independent and objective ................................................................................................. 19
Competent and credible ...................................................................................................... 20
Open and transparent ......................................................................................................... 21
Honest and impartial........................................................................................................... 22
Fair and engaged .................................................................................................................. 22
Chapter 4. Trust in practice – tactics to build and maintain public trust ........................ 25
Chapter 5. Conclusions............................................................................................................ 31
References ................................................................................................................................. 33
Further reading ........................................................................................................................ 35
Appendix 1. List of interviews and correspondence .......................................................... 37
Appendix 2. Glossary of key terms ........................................................................................ 39
Appendix 3. Complete list of the NEA series of regulatory guidance reports ................ 41

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LIST OF ABBREVIATIONS AND ACRONYMS

List of abbreviations and acronyms

CNRA

Committee on Nuclear Regulatory Activities (NEA)CSSCFCountry-Specific Safety Culture Forum

EGPC

Expert Group on Public Communication of Nuclear Regulatory Organisations(NEA)

ENSREG

European Nuclear Safety Regulators GroupHLG-SET

High-Level Group on Stakeholder Engagement, Trust, Transparency, andSocial Sciences (NEA)

IAEA

International Atomic Energy Agency

INRA

International Nuclear Regulators’ Association

IRRS

Integrated Regulatory Review Service

NEA

Nuclear Energy Agency

WANO

World Association of Nuclear Operators

WENRA

Western European Nuclear Regulators’ Association

WGHOF

Working Group on Human and Organisational Factors (NEA)

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CONTEXT AND DEFINITIONS

Chapter 1. Context and definitions

The fundamental objective of all nuclear safety
regulatory bodies is to ensure that activities
related to the peaceful use of nuclear energy intheir countries are carried out in a safe manner, in
accordance with international safety principles
and with full respect of the environment. This isreflected in the mission statements of regulators
around the world, which generally promote theirroles in protecting workers, patients, the public
and the environment (NEA, 2014). It is also
important to emphasise that, although the mission of the regulatory body is to provide
oversight on nuclear safety, the prime responsibility for the safety of a nuclear
installation remains with the licensee or plant operator (NEA, 2016). Thus, the regulatory
body’s role is to ensure that the licensee or operator meets its primary safety
responsibilities, while it is the responsibility of national governments to set nuclear
energy policy.
In fulfilling their mandate, regulators mustprioritise efforts to establish and strengthen trust –both internally and with the public they serve.
A regulatory body with a healthy safety culture
provides a respectful, collaborative working
environment which is supportive of open, honest
and free dialogue, and where staff are able to raise
concerns – and are encouraged to do so. Such anenvironment enables the regulator to make betterinformed safety decisions by empowering its
employees to speak freely.
Effective communication with all stakeholders builds trust and confidence bothwithin and outside of an organisation. Clear, consistent and timely communications inplain language, along with engagement, ensure the necessary preconditions for a fruitful
two-way dialogue and help to mitigate the dangers associated with infodemics (i.e. “asituation in which a lot of false information is being spread in a way that is harmful”[Cambridge Dictionary, n.d.]). The regulator should have programmes to help staff andthe public understand that too much information or misinformation can obscure clarity
and transparency, as well as to recognise the value that diverse views and opinions bringto assessments and decisions about safety.
Regulators engage effectively by keeping the public informed of regulatory matters,
consulting widely, listening to concerns and explaining how the regulatory process works– including the scope of regulatory powers. Regulators must demonstrate how the inputs

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CONTEXT AND DEFINITIONS

from engagement and consultation activities are used to inform their work because therole of the regulator requires trust that they will act in the interests of workers, the public
and environmental safety, making risk-informed decisions.

Definitions of key terms“Trust” is conventionally defined as “a person’s belief that another person or institution
will act consistently with their expectations of positive behaviour” (OECD, 2017). It is abroad concept concerning the expectations between the trustor and trustee. There will
be culturally specific interpretations of trust which cannot be fully covered in this report.
Thus, the focus is on common points and general interpretation, but it is important toremember in applying the practices set out to consider the potential implications,cultural differences and cross-border impacts.
For the purposes of this report, the term “public trust” has been adopted to better
define the concept of trust with respect to the regulator. It is intended to be inclusive andcover not only the “general public”, but also the various stakeholders and interest groups
that need to have trust in the regulator, such as communities around nuclear power plantsites and non-governmental organisations. For certain countries, this also includes
Indigenous Nations and communities. The concept of “the public” can be adapted as
appropriate to the circumstances for each country and regulator.
The term “stakeholder” is used to refer to those with a specific or vested interest in
nuclear energy and the work of the regulator, whereas “general public” refers to the
public that regulators serve and work to protect regardless of their proximity to orinterest in nuclear energy. As noted, the idea of public trust includes both stakeholders
and the general public, but at times the idea of stakeholder trust (or in particular,
engagement) and how to build or maintain it, must be more specific or nuanced, in order
to distinguish it from that of the general public.
Definitions of other key terms can be found in the glossary in Appendix 2.

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WHY IS TRUST IMPORTANT TO A NUCLEAR REGULATOR?

Chapter 2. Why is trust important to a nuclear regulator?

Nuclear regulators require the confidence of the public they serve. They do not need to seek
acceptance of nuclear activities per se but to build trust that the regulator is acting in thebest interests of safety for the public and the environment. Confidence among all
stakeholders and the general public is a prerequisite for successful nuclear regulation.

Trust is fundamental to public safety and is a requirement for successful
nuclear energy regulation
Seeking and maintaining public trust is a requirement and integral to the governance,
values and ways of working of a regulator, from the most senior leader(s) through to every
team and individual in the organisation.
For the public to give this trust, they need to see
and experience trustworthy regulatory practices
and engagement. Building trust in the regulator’s
independence, ability and processes needs to be apriority for the regulator and treated as such. This
will ensure nuclear workers and the public know
and believe that the regulator is acting in their bestinterest and is always prioritising safety above all
else. Regulators cannot expect trust to be
automatically granted simply because of theirauthority and role. Trust must be earned.
As the nuclear sector continues to evolve,
regulators must consider how they will engage withand inform both host and potential hostcommunities, as well as the public, on theregulation of new nuclear technologies and othertypes of nuclear installations such as waste storage
facilities or final repositories, as just two examples.
Rather than limit engagement and informationsharing with those directly impacted, it is importantthat regulators identify who is interested or affected
regardless of location, and ensure they are informed and engaged. This includes newcommunities that may not have had contact with nuclear technology before. Recognisinginterests enables the regulator to take deliberate action towards building trust.
Communication via mutually agreed channels to the public of neighbouring
countries (where there may be cross-boundary impacts) is also vital to fostering mutual
understanding and trust, while being aware of and respecting different cultures,
traditions and attitudes.

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WHY IS TRUST IMPORTANT TO A NUCLEAR REGULATOR?

Building trust can lower barriers to effective communication
The rapid spread of information and the challenges of misinformation have led to greater
mistrust in public authorities and, at times, the integrity of those in public office. As theworld experiences more frequent infodemics, it becomes even more challenging for
regulators to maintain and strengthen public trust. Few other industries attract the highlevel of public interest and media coverage that nuclear energy does due to the potential
for a severe impact on a global scale when something goes wrong.
Trust can help regulators lower or remove barriers to effective communication,
including efforts to manage dissenting and differing views, and addressing misinformation
when necessary. In this way, effective communication allows for effective regulation.

Nuclear regulators need to be able to rely on an established, credible
reputation in times of crisis
Building a reputation as a trusted regulator takes
time and requires action. This is work that needs tohappen during “normal” or “routine” times, and on
an ongoing basis. A strong reputation includes trust
and will allow the regulator to rely upon and use thetrust that they have earned in the event of an
accident or emergency. Confidence and trust arealso very easy to lose. Thus, regulatory bodies must
continuously earn and strengthen trust throughtheir conduct and everyday work, including when
making significant and/or potentially controversial
regulatory decisions.
During times of normal operation, regulators and licensees/operators must take timeand devote energy to sensitising their communities to existing risk mitigation measures.
It is essential that both regulators and operators are transparent with respect to hazard
analysis and mitigation measures as a lack of communication in this area can lead to
public distrust if viewed as a failure to acknowledge hazards appropriately. They mustacknowledge the nature of a spectrum of potential hazards and provide evidence that theappropriate efforts are being made and appropriate attention is being given to thesepotential hazards. In the event of an emergency, it is critical to communicate early,
continuously and effectively to all audiences. Regulators must also ensure that licensees
communicate effectively to help provide the public with credible, timely and reliable
information. This will help prevent a communications vacuum from occurring as any gap
in communications will quickly be filled and the risk of misinformation gaining traction
is real.
Earning and maintaining public trust will increase the likelihood that the public will
accept and will comply with protective actions and other response actions recommended
by the authorities in an emergency. The public needs to trust the information they arereceiving or have access to, so that they act on the advice and direction to keep them safeand keep society functioning whatever the crisis and in the face of any fear that they may
harbour.

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WHY IS TRUST IMPORTANT TO A NUCLEAR REGULATOR?

Trust is necessary for robust international collaboration
As nuclear activities can have international
implications, there is a shared interest in information
regarding nuclear activities in all countries. The
public and regulator need to trust that regulatorsfrom neighbouring countries are fulfilling their rolein an effective way – both in normal circumstancesand during emergencies. Transparency, openness
and sharing of information between countries, where
possible, help to mitigate mistrust stemming fromthe work of others or different thresholds forassessing and addressing common areas of concern.
International groups such as the International Nuclear Regulators’ Association (INRA),
the Western European Nuclear Regulators Association (WENRA), and the European
Nuclear Safety Regulators Group (ENSREG) as well as the NEA Committee on Nuclear
Regulatory Activities (CNRA) and others provide regulators with formalised engagement
and collaboration opportunities. Co-ordination to amplify messaging where applicable,
while respecting different governments, mandates and accountabilities, can also help
increase exposure to credible sources of information and help clarify responsibilities.
Moreover, bilateral and multilateral agreements between regulators are an important
tool to help establish and enhance trust by outlining terms for collaboration on issues ofcommon interest, such as nuclear safety and radiation protection, while being aware ofand respecting different traditions and attitudes. Such agreements and formalised
collaboration and communication help to strengthen trust among national stakeholders
and the public while enhancing international co-operation.
Regulators can also increase their credibility with the public by participating in peer
reviews or similar programmes offered by agencies such as the International Atomic
Energy Agency (IAEA) and the NEA. Conducting a peer review can help to identify gaps oropportunities in a regulator’s processes and to give confidence that “the regulator is being
regulated”. Participating in reviews or forums hosted by other countries also offers
regulators an opportunity to observe and learn. Sharing the results of these reviews early
and inviting public comment, when possible, can also aid in building trust.

A regulator’s safety culture is integral to fulfilling its mandate
To ensure and promote nuclear safety externally, the regulatory body must foster effective
co-operation, internal engagement and transparency within its own organisation. Withouta healthy safety culture, there cannot be internal trust, which is critical for organisational
success in building and maintaining trust with stakeholders and the public. Successfulorganisations are open and transparent, working to ensure inclusive, two-way
communications both internally and externally. A healthy safety culture is supported bystaff who are aligned and engaged towards the same safety objectives. Such awareness
contributes to the development of a respectful environment that supports open, honest
and free dialogue and leaves room for fearless advice when required. As a result, safety
remains the priority. An organisation that has trust within can respond quickly whenneeded. What happens inside the regulator is projected outside in how it works with the
public and stakeholders and supports sound safety decisions.

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WHY IS TRUST IMPORTANT TO A NUCLEAR REGULATOR?

To build trust and confidence, the regulatory body should communicate and consult
in an open and transparent manner. The scope and nature of these activities should besuch that it is clear how the regulatory body’s mandate is being discharged, and why andin what manner decisions are made. Regulators must act outside their organisations in
the way same way that they behave inside (Dorman, 2022). If a regulator does not havestrong internal trust, or, in other words, integrity, it will not be able to successfully
establish external trust.

Nuclear regulators rely on public engagement and feedback to build trust
A regulator that works to build trust will have access to information through effective
engagement. Consultation can help the regulator be more effective, but such engagement
must be authentic and requires the regulator to take the time to actively listen. Open andtransparent engagement enables two-way communication and information-sharing
between the regulator and those it consults. Deliberate engagement and exchanges of
information with stakeholders and the public can provide greater diversity of perspective
and opinion. In an overview of key stakeholder engagement activities Marcia DiStaso
maintains that it is essential to “…engage with more than who you know” (DiStaso, 2015).
It also allows the regulator to clarify what is or is not within the regulator’s power to changeor address. By establishing a consistent exchange of information, the regulator can moreeasily demonstrate its integrity and how the feedback from engagement is used to inform
decisions. At a 2021 event on youth engagement, then-PhD student John Lindberg also
advocated for embracing more diversity in the industry, noting that “…diversity makes theentire nuclear sector more flexible and dynamic, and, at the end of the day, more successful.
It helps us to avoid the well-known dangers of groupthink and of getting stuck in ‘echo
chambers’, where groups only hear the same perspectives and opinions repeatedly.” He
added, “Public engagement is one area, where additional diversity of thought is crucial, as
it would encourage new and innovative methods for engaging with the public on thebenefits of nuclear energy” (Harvey, 2021).
When necessary, it is also important that the regulator explain why it disagrees witha point of view. Increasing understanding among stakeholders and the public helps theregulator to increase trust and acceptance of its regulatory decisions.
While the regulator may not always be able to gain the support of all stakeholders or
the public for its decisions, trust can help with the acceptance of regulatory decisions.
Feedback can also come through research efforts. Public opinion research that focuseson one specific topic or covers a range of issues, can provide the regulator with informationand data leading to a better understanding of how different audiences perceive the subject
at hand and where there may be information gaps. Research methods can include surveys
targeted to specific audiences or of the general population, surveys following engagement
activities, or focus groups, etc. Regulators should also periodically survey internally and/or
perform self-assessments to identify where there may be employee knowledge gaps tocreate opportunities to address these. Regardless of the feedback mechanism a regulator
employs, it is important to identify opportunities to seek input regularly, use theinformation gathered to assess priorities and programmes and share the feedback received
publicly and with its staff while outlining how it will be addressed.

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CHARACTERISTICS OF A TRUSTED REGULATOR

Chapter 3. Characteristics of a trusted regulator

Trusted regulators possess specific sets ofcharacteristics that contribute to building publictrust. Regulators who work in an open andtransparent manner and engage early to ensure
inclusive, two-way communications encourage
diversity of thought and insight. This diversity ofthinking can help identify risks and opportunities
that may inform regulatory decision making in theinterest of public safety. The regulator should beseen by the public as a competent, professional,
engaged, impartial and independent body thatmakes timely decisions, communicates in an open
and honest way, and ensures the required level ofsafety and protection of the environment.
The following five sets of characteristics form the basis upon which a regulator canbuild trust. Together, they constitute a framework for establishing and enhancing
confidence and trust in the nuclear regulatory body. While each characteristic is deemednecessary, no one is sufficient on its own. It is the combination of these attributes that
supports trust in the regulator. These characteristics have been identified throughextensive research, including a literature review, a survey of regulators and stakeholders
followed by interviews and consultation. The aim is to ensure alignment despite
differences in culture, language or regulatory responsibilities.

Independent and objective
Being independent is staying free from external control or influence of any kind, including frompressure groups, government or industry. It means not being subject to another's authority andmust be clearly established in law and demonstrated by visible actions and decisions.
Being objective is ensuring that decisions are not unduly influenced, for example by personal
feelings, political views or other opinions in considering and representing facts.

Regulators need to be independent from undue influence in decision making, which
includes political independence, financial independence and technical independence.
Independence is fundamental to ensuring that the regulatory body is able to perform its
functions to ensure safety and that it has sufficient authority to avoid any conflicts ofinterest regardless of the regulator’s functional separation from government or parts of the

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government. Such independence enables a regulator to take, when appropriate, strong
decisions, such as requiring the closing of an unsafe facility (NEA, 2014).
To build and strengthen public trust, regulators must also demonstrate – in law, actions,accountabilities, governance and decisions – how they perform their role objectively andcarefully balance risks, without undue bias or favouritism in their judgements.
Independence does not mean working in isolation – the regulator must have frequentand open discussions with stakeholders and remain accountable to the public. Regulators
must be committed to understanding societal concerns and responding to them asappropriate, and must manage the public’s concerns by bringing solid risk communication
principles into their regulatory work. Regulators must balance such engagement by
ensuring their decisions are based on the best available science and an understanding of
the risks involved. While all perspectives should be heard as a part of the regulatory process,the regulator must remain objective throughout the process and demonstrate
independence from those interested in nuclear energy, including the industry, government,
energy policy makers and non-governmental organisations.

Competent and credible
Being competent is demonstrating the necessary abilities, knowledge and skills to carry out theassigned work.
Being credible is demonstrating the knowledge, experience, qualifications and expertise in
relevant areas while also communicating in a way to earn trust.

Since the oversight of the regulatory body covers many subjects, it is critical that theregulatory body develop and maintain its technical independence by ensuring that its
staff are fully competent in all relevant technical areas (NEA, 2016) and articulate how
this informs its decision making, including where external research and expert advice
has been utilised. As outlined in The Characteristics of an Effective Nuclear Regulator (2014),
core technical competence and experience are the basis of an effective regulatory body,and thus directly impact the trust of the public they serve. Competence and expertise are
the foundation of many of the other characteristics of an effective and trusted regulator,
supporting attributes such as independence, transparency and credibility. Credibility,
much like the trust it supports, can quickly be damaged and is reliant on the regulator
demonstrating its effectiveness through actions and decision making.
The public’s trust in the regulator is dependent on its confidence that the regulator
is competent and able to fulfil the role it is required to perform, and that it is viewed as acredible source of information. The regulator must demonstrate it possesses or hasaccess to the knowledge and expertise in relevant areas so that the public knows that the
information it shares – be it during times of normal operation or during a crisis – is bothcredible and can be trusted. Such credibility is dependent on the regulator being able toexplain its requirements and expectations to licensees and stakeholders in a clear andconcise manner, while also ensuring appropriate stakeholder involvement within
decision-making processes. Such involvement provides the opportunity to bring abroader perspective and understanding to decision-making, which can also in turncontribute to improved credibility.

20

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CHARACTERISTICS OF A TRUSTED REGULATOR

The regulator must be able to independently justify or verify technical, regulatory andlegal information when there is a need in order to be viewed as both competent and credible.
Thus, it is important to highlight the competence and technical expertise of staff. The
regulator should demonstrate their expertise, qualifications and experience, and be readyto draw from other knowledgeable staff and external experts, such as academia andprofessional bodies, across the range of disciplines necessary to regulate the nuclear
industry effectively.
Formal peer review programmes, such as the IAEA Integrated Regulatory Review
Service (IRRS) missions, for example, can provide a forum for accountability wheretrained experts can help regulators assess their performance against international
standards, which in turn can help build trust both nationally and on the international
stage. Reviews offer regulators an opportunity to benchmark and learn frominternational counterparts, while helping to build credibility with the public they serve
when such reviews confirm sound regulatory practices are in place.

Open and transparent
Being open is operating in a way which does not conceal thoughts or information and supports
ongoing communication. It means being receptive to a free exchange of information,communications, change and new ideas and ensuring access through stakeholder engagement.
Being transparent is proactively disclosing relevant, accessible and accurate information about
the regulatory process and decisions.

Regulators must establish, and show through actions, a culture of openness andtransparency. The nuclear regulatory body must be open and transparent by adopting a
policy of disclosure of information and of stakeholder involvement to ensure that the
public is informed about the regulatory process. The regulator should share clear andcoherent information promptly with the public it serves, communicating about its role,
responsibilities, activities and decisions in a way that can be readily understood andaccessed. This also means calling attention to issues and concerns identified bystakeholders when they arise, and being open and responsive to questions, criticism andfeedback.
Openness and transparency must be integrated in all aspects of the regulator’s
programmes, policies, services and enabling technologies. From inception, consideration
should be given to what information will be publicly released and how. Regulators must
be clear with the public on what information can be shared and what cannot. Given thehighly sensitive nature of some information, it is recognised that regulators cannot
release everything to the public. However, the regulatory body must be open andtransparent with the public on where there are restrictions to the dissemination of
information, so as to ensure that questions do not arise due to assumptions or
speculation that the regulator is ‘protecting’ a licensee.
To ensure transparency, it is important for the regulator to consider accessibility andtake a user-centric approach to disseminating information. The regulator needs to provide
context to increase understanding and ensure information that is relevant, accessible andaccurate is shared proactively. However, overwhelming the public with too much

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CHARACTERISTICS OF A TRUSTED REGULATOR

information and not enough context is not being transparent. Regulators must take astrategic approach to the dissemination of information to best serve transparency efforts.
Availability of information, the transparency of regulatory activities and providing clear,plain language reasons for regulatory decisions can lead to increased public confidence that
regulatory activities are underpinned by robust criteria and processes.

Honest and impartial
Being honest is presenting information in a truthful and sincere way, free of deception.
Being impartial is treating all information, participants and actions within the regulatory
process in a balanced and unbiased manner.

Regulators should strive to present all information, such as facts, evidence and processes,
in an unbiased and factual manner. They should look to be honest and upfront by clarifying
where there is uncertainty or gaps in knowledge and explain why it matters and what theregulator is doing to address such uncertainty or gaps. More specifically, the regulator
should be open about potential weaknesses in the regulatory programmes or shortcomings
in knowledge and be clear that incidents and accidents cannot be absolutely eliminated –it is vital that the regulator is honest and clear when communicating about risk to the public.
Information should be balanced and accurate and provided in a clear and impartial way sothat it reliably informs the public.
It is important that the regulator behave and communicate in a way that assures the
public that its focus is safety. The regulatory body should not be biased or appear to be infavour of, or against, the use of nuclear energy, radiation technologies or any other interests.
Regulators should keep adequate distance from stakeholders involved in energy policy –government, industry and pressure groups. While engagement, including consultation,
where appropriate, with various groups, is necessary as a part of the regulatory process, it
should be conducted in a manner that is consistent and does not call into question theregulator’s independence. It is incumbent on the regulator to treat all participants in theregulatory process in a balanced manner to ensure they can contribute in a meaningful andeffective way. Regulatory bodies should be upfront about such engagement to ensure they
are being honest about how they conduct their affairs and mitigate accusations ofimpartiality due to lack of information or transparency.

Fair and engaged
Being fair is operating in a manner that is in accordance with the rules or standards and isbalanced in approach to avoid providing an unjust advantage.
Being engaged is being open to and encouraging two-way dialogue and conversation withstakeholders and the public and establishing structures and processes to engage.

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CHARACTERISTICS OF A TRUSTED REGULATOR

In order to earn and maintain the trust of the public they serve, regulators must be
proactive and seek diverse views and input. They must demonstrate an understanding thatthey are making decisions that affect the public and society, and that they are committed
to integrating societal concerns into their risk assessments. An engaged regulator helps toensure that the public has confidence that it is actively listening and duly considering all
inputs. Co-operation and dialogue with other regulators, government departments,
international organisations and non-governmental organisations also helps to ensure thatthe regulator is engaged and knowledgeable. A regulator’s ability to engage is key tocreating and strengthening trust as it takes emotional and social intelligence to understandstakeholders and how best to work with them. Regulators need to be compassionate andauthentic in order to build a rapport with the public and enable a psychologically safe
environment to share views. When engaging with stakeholders and the public, theregulator must demonstrate active listening and empathy towards their concerns, even if
there is no consensus in thinking or view.
Stakeholder involvement in decision making provides the opportunity to increase
public awareness, understanding and acceptance of decisions in the nuclear domain.
Incorporating societal input into decisions in a fair and balanced way can help achieve
better-informed and more sustainable choices. It is an important part of building publicconfidence, not least because citizens expect to voice their concerns and preferences, andto be able to influence decisions of significance to their communities and the environment.
Making sound regulatory decisions requires listening to and considering the input
from those affected by the decisions. Nevertheless, without a certain degree of trust in
the regulator and the process, there is a risk that individuals and groups may notparticipate fully. This, in turn, could weaken and call into question the legitimacy of theregulatory process. Engagement with stakeholders and the general public is essential,
and regulators must take action – in line with the suggested tactics in the next chapter –to ensure it is secured effectively. At the same time, engagement should not impose
unnecessary burdens on the regulatory process and should be managed in such a way as
to avoid consultation fatigue.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST

Chapter 4. Trust in practice – tactics to build
and maintain public trust

Availability of information, effective communication and two-way dialogue can help tobuild and maintain trust with stakeholders and the public. To be effective, it is imperativethat the regulator demonstrate leadership and ownership in this area. While the focus of
this report is on providing the regulatory body with the necessary tools and informationto actively build trust, the regulator must also consider how to assess its effectiveness bymonitoring performance as a part of its trust-building programme.
The following ten tactics constitute guidance for regulators to establish and maintainthe characteristics set out earlier to strengthen and build public trust in a nuclear
regulatory body.
1. Ensure building public trust is a fundamental part of the regulatory programme•

Allocate budgeted resources, dedicated staff (public engagement and trained
communication officers) and outline relevant frameworks and strategies tosupport effective engagement as a part of the regulatory programme.

•

Establish trust building as one of the regulator’s strategic priorities and a common
goal for every employee. This includes establishing the right organisational
values, such as acting with integrity and operating independently, which drive
such behaviours. These must be modelled and enabled by senior leadership.

•

Inform the public on the role of the regulator and what is within the regulator’s
control. Informing the public on the role of the regulator versus the role of otherstakeholders (e.g. licensees) can help instil trust in the regulator’s actions.

•

Ensure communications are timely, even if they cannot be complete. It is betterto communicate partial information immediately and commit to providing
regular updates rather than wait for confirmation of all details and risk acommunications vacuum occurring.

•

Have and implement a strong policy on conflict of interest to ensure that theregulator remains truly independent despite the small community that is thenuclear sector. This will support public perception when expertise moves fromone area of the sector to another.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST

2. Establish and maintain a trustworthy decision-making process•

Actively inform the public on the decision-making process so that they
understand what is involved. While some will disagree with outcomes, they are
more likely to understand and accept decisions if they understand the process
and accept it as credible, timely, independent and objective.

•

Acknowledge and explain in plain language that regulatory decisions areevidence-based and will include risk-informed judgements. Clear explanations
and discussions about how those judgements were made (the evidence andfactors considered, and the guidance/regulations applied) can help build trust andunderstanding between people and the organisations that serve them.

•

Actively consider how to ensure parity between industry, stakeholders and the
public wherever possible, including interactions, and access to regulatory staff.
Clarify roles, responsibilities and rules for engagement to ensure that everyone
can be heard and feels that they can speak up.

•

Hold discussions about shared or common values as they can help build trust andunderstanding between the public and regulators acting on their behalf, and canform an agreed way to work together with mutual respect.

3. Continuously strengthen safety culture•

Maintain “safety first” as the guiding principle of the regulatory body anddemonstrate leadership for safety at all levels. The prioritisation of safety overother competing requirements should be ingrained in the culture of the regulator.

•

Foster co-operation within the organisation.

•

Provide a respectful, collaborative and inclusive working environment which
supports open, honest and free dialogue that welcomes diversity of thought andviews – because what happens inside an organisation will set the precedent for
how it engages with those outside of it.

•

Encourage staff and stakeholders to freely raise concerns through the various
mechanisms available.

•

Outline expectations with respect to safety culture for all stakeholders so thatthey too operate in a manner that builds internal trust within their organisation.

•

Operate in an open and transparent manner that is inclusive and relies on twoway communications both internally and externally.

•

Externally, ensure that this two-way communication facilitates the creation of ashared safety culture where stakeholders feel psychologically safe to speak up.

•

Operate with integrity. The regulator’s external actions should reflect internal
behaviours and values, and vice versa.

4. Establish a known identity•

26

Develop an identity that reflects organisational values and that will be recognised
through communication channels and in how regulatory body staff engage. If donein a consistent manner, it can build recognition and understanding, which will havea direct impact on a regulator’s reputation. During a crisis it will ensure the public
turns to the regulator as a trusted and credible source of information.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST•

Establish a consistent visual identity and voice on communication channels,
including an official website, social media channels and other publications. Thisshould carry through to active participation in exhibitions and conferences
through booths and materials.

•

Underpin the identity with effective stakeholder engagement activities. This
engagement, done correctly, can help a regulator move from simply being
recognised to being trusted.

•

Build an identity through proactive and accessible information and visibility; thisshould be implemented through a long-term strategy for public communicationand engagement and requires efficient and effective communication through avariety of channels.

•

Foster a sound relationship with the media by, for example, leveraging news
releases/conferences, collaborative articles, and providing regulatory experts as
spokespeople. For most, traditional and social media are important channels for
information to reach the public; and establishing strong relationships withdifferent outlets and across different channels will help to increase awarenessand build the regulator’s identity.

•

Use contacts and partnerships, especially with people and organisations thathave credibility with the public, to advocate or at least share information on
behalf of the regulator. Partnerships with authorities working in other domainsof public safety or environmental protection may help increase awareness of theregulator and its role. Working with institutions providing public education, andin particular the scientific community, as well as the media, non-governmentalorganisations and other stakeholders, can also help.

5. Make information available•

Make information on regulatory activities and decisions readily available throughappropriate regulator and/or governmental channels, including official websites
and social media. Traditional media should also be considered and used as
appropriate. More detail should be provided through correspondence or face-toface meetings, as required.

•

Know the audience. Identify what they need to know, what they are interested in
knowing, and tailor communications and information to reach them.

•

Ensure details of public hearings, citizen panels and other open forums areannounced well in advance and communicated about in a manner that ensures
stakeholders can participate.

•

Ensure information on regulations, regulatory guidance and related consultation
efforts, is clear and readily available to the public. Where appropriate, makesimplified guides available.

•

Consider having a public registry or other central repository that includes
information on regulatory activities, decisions, interactions and meetings so the
public can easily see the breadth and nature of the regulator’s work.

•

Be clear in explaining why some information cannot be made available in the
public domain and actively communicate this.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST•

Be mindful that posting everything without a strategic purpose may have theeffect of obscuring transparency. Share relevant information in an accessible,
clear and well-organised manner that provides enough context for understanding
and is presented with the end-user or audience in mind.

•

Be proactive in addressing misinformation and inaccuracies. Dealing effectively
with questions and uncertainty as well as employing a strategy of “detect andcorrect” will ensure that accurate information is available to the public in a timely
manner. Without this, trust and credibility will erode.

6. Put in place regular engagement and consultation activities•

Keep people informed about regulatory matters, listen to their concerns, andexplain how regulatory processes work, including the boundaries of regulatory
powers and what issues are the responsibility of others.

•

Actively encourage public involvement in regulatory activities – use a range ofcommunications and engagement channels to support the needs of different
audiences and ensure accessibility is front of mind (including digital and face-toface).

•

Engage and exchange information with policymakers and legislators, whereappropriate, to facilitate alignment and support ongoing engagement activities.
Independent regulators must still be collaborative to ensure they are informed
and to in turn gain trust.

•

Identify ways to make it easier for stakeholders to provide their input while also
ensuring it does not impose unnecessary burdens or barriers to effective regulation.

•Show how the inputs from engagement are used – stakeholders need to know
their views, concerns and opinions matter and can make a difference.

•

Explain that reasoned arguments carry more weight with regulators than simple
statements of objections.

•Exchange information and communication with other regulators, as well as
stakeholders and the public of neighbouring countries (where there may be crossboundary impacts), to foster mutual understanding and trust, while being awareof and respecting different traditions and attitudes – remember trust has noboundaries.

•

Consider how to keep engagement interesting and relevant to the targeted
audience. Take note of digital trends, for example, and adapt to keep engagement
efforts current.

7. Communicate in plain language

28•

Communicate in clear, succinct and plain language. Avoid technical jargon – use
simple explanations for complex issues so that the public understands whatregulators are saying and what their decisions mean for them. When providing
information in plain language, avoid oversimplification that could lead toinaccuracies or misunderstanding.

•

Be consistent in the language used and recognise where terms change over time
and why.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST•Consider the impact of using nuclear sector expressions when communicating withthe public about safety. Some expressions, such as “passive systems” and “ageing
management”, may require further explanation. If a member of the public is notfamiliar with these expressions, it is possible they could interpret them negatively.

•

Identify and address knowledge gaps with the public. Acknowledge what theregulator does not know (when applicable) but outline what actions it is taking toseek the relevant information.

•

Use alternative methods of communication when appropriate and feasible. For
example, visuals such as diagrams, infographics, photos and video help increase
understanding and enhance the written word, making information moreaccessible. However, these should be used strategically so as not to impact theirsuccess through overuse.

•

Use language that aligns with the regulator’s independent role. For example,
when referring to the nuclear industry avoid using “we”. When speaking about
nuclear energy in the broader sense, use “sector” to encompass all aspects andprovide separation from “industry”.

•

Consider using comparisons to help explain and increase understanding.
Comparisons that are intended to put radiological health hazards and radiation
exposure in perspective should be as clear and comprehensible as possible.
Comparisons should be appropriate to the national and social context and should
be relevant to the audience (e.g. compare to background radiation levels, or thoseused in medical procedures).

8. Encourage staff training in risk communication, engagement and consultation•

Build internal expertise on effective engagement with stakeholders and the publicand how it can be carried out effectively.

•

Ensure subject matter experts are equipped to provide information in a clear andconcise way. They need to speak and answer questions in plain language, avoiding
technical jargon, without diminishing their expertise on the subject. Media training
should be provided as appropriate.

•

Help staff to understand the importance of active listening and how it can be
carried out effectively.

•

Help staff build and maintain direct contact with key stakeholders because people
tend to trust individuals more than organisations. If they can put a face or nameto the regulator, it will help build trust and common understanding.

•

Ensure staff are aware of the various relationships and collaborative partnerships
the organisation has. Provide relevant details on how to operate within that
context, including specific nuances or sensitivities in order to avoid inadvertent
damage to existing or new relationships.

9. Seek and enable feedback and welcome peer review•

Ask people what they think of the regulator through various mechanisms(e.g. feedback forms during outreach activities and surveys) and consider moreformal mechanisms for feedback such as public opinion research. This includes
the public and any other groups or organisations the regulator works with, suchas government departments and licensees.

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TRUST IN PRACTICE – TACTICS TO BUILD AND MAINTAIN PUBLIC TRUST•

Seek input regularly on what the regulator does well and how it can improve –this will help inform the targeting of stakeholder engagement priorities andprogrammes.

•

Share the feedback the regulator receives publicly and outline how it will act on it.

•

Use formal peer review programmes, such as the IAEA’s Integrated Regulatory
Review Service (IRRS) missions to improve and benchmark communications andstakeholder engagement against international standards and best practices. The
Country-Specific Safety Culture Forum (CSSCF) is another programme offered by
the NEA and the World Association of Nuclear Operators (WANO) that helps
expand a regulator’s understanding of the country and culture in which it
operates and helps to inform how it works and makes safety decisions.

•

Look internally and conduct self-assessments to identify gaps and opportunities
to address.

•

Be sensitive to differences in not just professional expertise, but capacity,
availability and potential constraints. Regulators are funded and staffed incontrast to some stakeholder groups whose members engage on their personal
time and often have limited resources.

•

Be open to new or unexpected information. Remember that communities canhave unique local knowledge and experience to contribute.

•

If possible, consider providing participant funding (such as expenses to attend) tothose who wish to engage with the regulator, as a way to seek and enable feedback.

10. Establish and maintain sound crisis communication practices

30•

During a crisis, event or radiological emergency, information should be readily
available through appropriate channels, including official websites and social
media and as it aligns with national protocols. Traditional media should also be
considered and used as appropriate. It is essential to communicate early andoften to gain public trust at the outset of a crisis.

•

Recognise that a crisis includes a threat to public trust, but is an opportunity as
well. A good communication strategy that is clear, honest and educational, andwhich includes regular and consistent messages, contributes to improving
trustworthiness.

•

Be ready to act quickly. As the regulator, communicate what is known, when it is
known. Strive to communicate quickly and provide frequent updates. It is notnecessary to wait until an incident is fully understood to start communicating
and providing updates.

•

Carry out preparatory work. This should include developing pre-approved
messaging and language to draw on, creating templates and shared resources,
processes and protocols, and identifying roles and responsibilities.

•

Build good relationships with stakeholders and the media to facilitate accessduring a crisis. This can serve as an advocacy network and help to avoid
misinformation circulating.

•

Following a crisis, consider an open and transparent review of the managementof the situation and success of communication during the event. Consider
surveying the public on how they perceived communications during the event inorder to identify gaps and opportunities to improve.

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CONCLUSIONS

Chapter 5. Conclusions

Trust is essential for a regulatory body to succeed in fulfilling its mission. As the Edelman
Trust Barometer, a global online survey that “seeks to understand why the general
population holds the views they do”, underlines: “Trust remains the most importantcurrency in lasting relationships […] and their various stakeholders” (Edelman, 2021). The
fundamental objective of nuclear regulators is to ensure the safety of people and theenvironment. Regulators cannot achieve this without the trust of the people they serve.
The role of the regulator to protect society requires trust that the regulator will always
act in the interests of worker, public and environmental safety, using its expertise toappropriately assess and balance risk.
Some may question how much trust isenough, or how to gauge success in attaining trust.
Regulators who invest in trust, and possess theattributes necessary to gain, strengthen andmaintain it, will be successful in fulfilling theirmandate. Each of the characteristics outlined inthis report are a necessary feature of a trusted
nuclear regulatory body, but no one characteristic
is sufficient on its own. It is the combination ofthese attributes, and how they complement andinteract with each other that leads to trust in theregulator. It is also how they are demonstrated
through the culture, behaviour and activities of
the regulatory body during times of normal operations that will create trust. To be
successful, these efforts must be led by the most senior leaders in the regulatory body,and then reflected and reinforced at all levels.
The global nuclear energy sector continues to change and evolve. It is facing newchallenges, new entrants and new technologies. The sector continues to prepare for the
global deployment of small modular reactors and to consider how they will impact existingand new host communities, even national borders. Other technological developments andmajor disruptive global events, including armed conflicts and global pandemics, allcontinue to create new challenges. With evolution and change, regulators’ stakeholder
activities and relationships with the public become exponentially more important.
Embodying the combination of characteristics described in this report, and applying thesuggested tactics, can help regulatory bodies build and maintain trust in the regulatory
process. Different contexts and cultures will determine the level of investment in trust
building and regulators need to recognise that their national context, as well as the global
context, will continue to evolve. Whether because of major disruptive global events orchanging domestic needs, it will be critical to embrace a continuous focus on trust building
and maintenance. The regulatory body should, through its internal safety culture and ways
of working, demonstrate these characteristics on an ongoing basis.

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31CONCLUSIONS

Figure 1. Characteristics of a trusted nuclear regulator

32•

Independent and objective – Regulators need to be independent from undue
influence in decision making and must also demonstrate how they perform theirrole objectively without undue bias or favouritism in their judgements, while
carefully balancing risk.

•

Competent and credible – Public trust in the regulator depends on the public
viewing the regulator as competent and a credible source of information.

•

Open and transparent – Regulators must establish, and show through actions, aculture of openness and transparency. They must adopt a policy of disclosure of
information and of stakeholder involvement and ensure that the public are
informed about the regulatory process.

•Honest and impartial – Regulators should present information including
evidence and processes, in a balanced, unbiased and factual manner so that it isshared in an impartial way. They must also be honest and upfront when there is
uncertainty or gaps in knowledge.

•

Fair and engaged – An engaged regulator helps to ensure that the public has
confidence that the regulator is listening with intent and duly considering all
inputs. Incorporating societal input into decisions in a fair and balanced fashion
helps achieve better-informed and more sustainable choices.

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REFERENCES

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Harvey, S. (2021), “International Youth Day: Spurring interest in nuclear”, in A Decade ofProgress after Fukushima-Daiichi, Vol. 62/1, IAEA Bulletin, Vienna.
Natural Resources Canada (n.d.), “The Canadian Nuclear Industry and its Economic
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NEA (2022), Stakeholder Confidence in Radioactive Waste Management: An Annotated Glossaryof Key Terms – 2022 Update, OECD Publishing, Paris, www.oecd-nea.org/jcms/pl_63851.
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NEA (2016), The Safety Culture of an Effective Nuclear Regulatory Body, OECD Publishing, Paris,
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NEA (2014), The Characteristics of an Effective Nuclear Regulator, OECD Publishing, Paris,
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NEA (2001), Investing in Trust: Nuclear Regulators and the Public, OECD Publishing, Paris,
www.oecd-nea.org/jcms/pl_13504.
OECD (2017), OECD Guidelines on Measuring Trust, OECD Publishing, Paris, https://doi.org/
10.1787/9789264278219-en.

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FURTHER READING

Further reading

Lovering, J.R., S.H. Baker and T.R. Allen (2021), “Social license in the deployment ofadvanced nuclear technology”, Energies, Vol. 14/14, p. 4304, https://doi.org/10.3390/
en14144304.
NEA (2021a), Optimisation: Rethinking the Art of Reasonable: Workshop Summary Report, OECD
Publishing, Paris, www.oecd-nea.org/jcms/pl_60901.
NEA (2021b), Towards a Shared Understanding of Radiological Risks, OECD Publishing, Paris,
www.oecd-nea.org/jcms/pl_56307.
NEA (2020), Road Map for Crisis Communication of Nuclear Regulatory Organisations – National
Aspects, OECD Publishing, Paris, www.oecd-nea.org/jcms/pl_28661.
NEA (2006), Building, Measuring and Improving Public Confidence in the Nuclear Regulator, OECD
Publishing, Paris, www.oecd-nea.org/jcms/pl_14020.
NEA (2001), Investing in Trust: Nuclear Regulators and the Public, OECD Publishing, Paris,
www.oecd-nea.org/jcms/pl_13504.
OECD (2017), OECD Guidelines on Measuring Trust, OECD Publishing, Paris, https://doi.org/
10.1787/9789264278219-en.
Oxford English Dictionary (2023), “infodemic (n.)”, website, https://doi.org/10.1093/OED/
6664836666 (accessed on 01/06/2022).
Qi, W., M. Qi and Y. Ji (2020), “The effect path of public communication on public
acceptance of nuclear energy”, Energy Policy, Vol. 144, 111655, https://doi.org/10.1016/j.enpol.2020.111655.
WHO (2021), “Fighting misinformation in the time of COVID-19, one click at a time”,
www.who.int/news-room/feature-stories/detail/fighting-misinformation-in-thetime-of-covid-19-one-click-at-a-time (accessed on 01/06/2022).

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LIST OF INTERVIEWS AND CORRESPONDENCE

Appendix 1. List of interviews and correspondence

The following are formal interviews conducted by Katie Day and Rhonda Walker-Sisttie,
facilitated by the NEA:
1. Rumina Velshi, President and CEO, Canadian Nuclear Safety Commission (CNSC)
and Adrienne Kelbie, Chief Executive, UK Office for Nuclear Regulation (ONR),
31 March 2021.
2. Rumina Velshi, President and CEO, Canadian Nuclear Safety Commission,
13 December 2021.
3. Verena Ehold, Director, Division of Radiation Protection – V/8, Federal Ministry for
Climate Action, Environment, Energy, Mobility, Innovation and Technology (BMK),
Austria, 21 December 2021.
4. Jean-Rene Jubin, Irena Chatzis, Jeffrey Robert Donovan, Tina Tigerstadt, IAEA,
14 January 2022.
5. William D. Magwood, IV, Director General, OECD Nuclear Energy Agency,
15 November 2021.
6. Jussi Heinonen, Director in Strategic Development in Oversight, Radiation and
Nuclear Safety Authority (STUK), 13 January 2022.
7. Dan Dorman, Executive Director for Operations, US Nuclear Regulatory
Commission (NRC), 11 January 2022.
Quotes in the text are taken from the following correspondence:1.

Foy, Mark, 2022, Email to the author, 30 September 2022.

2.

Hanson, Christopher T., 2022, Email to the author, 14 October 2022.

3.

Lucio, Pilar, 2022, Email to the author, 31 October 2022.

4.

Velshi, Rumina, 2022, Email to the author, 31 October 2022.

CHARACTERISTICS OF A TRUSTED NUCLEAR REGULATOR, NEA No.7618, © OECD 2024

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GLOSSARY OF KEY TERMS

Appendix 2. Glossary of key terms

Accessibility has been considered as many countries have specific laws and requirements
for making information accessible. Everyone, including people with disabilities, can expect
access to information and to participate in activities without barriers. Accessibility helps to
support trust building as it ensures that those who may otherwise be excluded, whether it
is due to a visible or invisible disability, are included. For the purposes of this report, thisrefers to the idea that barriers to access (particularly in communication and engagement
activities) should be removed, and emphasises the need to communicate in plain, concise
language to facilitate understanding and access.
Disinformation is defined as “false information spread in order to deceive people”(Cambridge Dictionary, n.d.).
Infodemic is used to describe the excessive amount of information available. The
Cambridge Dictionary (n.d.) defines it as “a situation in which a lot of false information
is being spread in a way that is harmful””. Infodemics can spread misinformation,
disinformation and rumours and hamper an effective response by creating confusion anddistrust.
Misinformation is defined as “wrong information, or the fact that people aremisinformed” (Cambridge Dictionary, n.d.).
Public confidence is trust bestowed by the public based on the behaviours of regulators.
As the NEA publication Stakeholder Confidence in Radioactive Waste Management: An
Annotated Glossary of Key Terms sets out “Confidence is related to process dependability,
based on evidence that can be provided through transparency” (NEA, 2022).
Regulatory independence is a key component to trust, and the regulatory body mustremain neutral in its communications. For example, the term “industry” should only be
used to refer to those who operate within the nuclear energy fuel cycle (such as. licensees)– the nuclear industry consists of a mixture of private sector firms and public sector
organisations and covers the entire nuclear energy fuel cycle from research anddevelopment, uranium mining, and fuel fabrication to nuclear reactor design, nuclear
plant construction, maintenance, waste management and decommissioning (Natural
Resources Canada, n.d.). Any references to the broader nuclear energy community or how
industry and others work together should use the term sector for clarity and to
distinguish between the two.
Risk communication refers to how the regulator communicates risk to the public and isan ongoing form of communication during times of crisis (non-radiological), radiologicalemergencies and periods of normal operation. Risk is a constant, and so the regulator outof necessity must communicate risk to the public.

CHARACTERISTICS OF A TRUSTED NUCLEAR REGULATOR, NEA No.7618, © OECD 2024

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GLOSSARY OF KEY TERMS

The use of and reference to evidence-based and risk-informed decisions are intended to
explain how regulatory decisions are made. In its decision-making process, theregulatory body should apply a conservative approach, by considering the short and longterm potential outcomes. This requires a healthy respect for the consequences of allactions and decisions. When there are competing requirements and pressures, safety
should always be the priority (NEA, 2016).

40

CHARACTERISTICS OF A TRUSTED NUCLEAR REGULATOR, NEA No.7618, © OECD 2024

COMPLETE LIST OF THE NEA SERIES OF REGULATORY GUIDANCE REPORTS (GREEN BOOKLETS)

Appendix 3. Complete list of the NEA series of regulatory
guidance reports (green booklets)

1

1999

The Role of the Regulator in Promoting and Evaluating Safety Culture

2

2000

Regulatory Response Strategies for Safety Culture Problems

3

2001

Nuclear Regulatory Challenges Arising from Competition in Electricity Markets

4

2001

Improving Nuclear Regulatory Effectiveness

5

2002

The Nuclear Regulatory Challenges in Judging Safety Backfits

6

2002

Improving versus Maintaining Nuclear Safety

7

2003

The Regulatory Challenges of Decommissioning Nuclear Reactors

8

2003

Nuclear Regulatory Review of Licensee Self-assessment (LSA)

9

2004

Nuclear Regulatory Challenges Related to Human Performance

10

2004

Direct Indicators of Nuclear Regulatory Efficiency and Effectiveness: Pilot Project Results

11

2005

Nuclear Regulatory Decision Making

12

2006

Regulatory Challenges in Using Nuclear Operating Experience

13

2008

Regulatory Goal of Assuring Nuclear Safety

14

2011

The Nuclear Regulator`s Role in Assessing the Licensee Oversight of Vendor and Other
Contracted Services

15

2012

Challenges in Long-term Operation of Nuclear Power Plants: Implications for Regulatory Bodies

16

2014

The Characteristics of an Effective Nuclear Regulator

17

2016

Implementation of Defence in Depth at Nuclear Power Plants: Lessons Learnt from the
Fukushima Daiichi Accident

18

2016

The Safety Culture of an Effective Nuclear Regulatory Body

19

2024

The Characteristics of a Trusted Nuclear Regulator

CHARACTERISTICS OF A TRUSTED NUCLEAR REGULATOR, NEA No.7618, © OECD 2024

41

NEA PUBLICATIONS AND INFORMATION

The full catalogue of publications is available online at www.oecd-nea.org/pub.
In addition to basic information on the Agency and its work programme, the NEA website
offers free downloads of hundreds of technical and policy-oriented reports. The professional
journal of the Agency, NEA News – featuring articles on the latest nuclear energy issues – isavailable online at www.oecd-nea.org/nea-news.
An NEA monthly electronic bulletin is distributed free of charge to subscribers, providing
updates of new results, events and publications. Sign up at www.oecd-nea.org/tools/
mailinglist/register.
Visit us on LinkedIn at www.linkedin.com/company/oecd-nuclear-energy-agency or follow us
on X (formerly known as Twitter) @OECD_NEA.

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Characteristics of a Trusted

Nuclear Regulator

This report is intended to serve as a practical guide to explain the organisational
characteristics, attributes and ways of thinking that can help a nuclear regulator build
and maintain trust with interested stakeholders and the public. It offers examples ofactions and activities that can be taken to demonstrate those characteristics in practice.
The NEA encourages and challenges all established regulatory bodies to use it as abenchmark so that they continually strive to enhance their effectiveness in fulfilling their
mission to protect people and the environment. It aims to be a resource for countries
with existing, mature regulators, but can also be used for training and developing staff
in newcomer countries currently in the process of developing and maintaining a trusted
nuclear safety regulator.

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nea@oecd-nea.org www.oecd-nea.org

NEA No. 7618