Panel Report

12.1 Contamination of Air, Water and the Food Web

A fundamental concern of many northerners is the possibility that uranium mining and milling operations might poison the air that they breathe, the water they drink, and the country foods they eat. This issue has been partly considered by pathways modelling and the assessment of cumulative effects discussed in Section 9.5. The conclusion from these analyses is that radiological risks are extremely low.

Even though it is anticipated that the combined effects of the uranium mines would be acceptable, it is necessary to confirm all predictions using a well-defined monitoring program. Saskatchewan Environment and Resource Management (SERM) and the Atomic Energy Control Board (AECB) agreed to establish such a program in response to an earlier recommendation of the panel. They formed the Cumulative Effects Monitoring Working Group (CEMWG) in 1994 with technical advice from representatives of Saskatchewan Health, Environment Canada, the Department of Fisheries and Oceans Canada, the Saskatchewan Research Council, The University of Saskatchewan Toxicology Centre, the Saskatchewan Northern Mines Monitoring Secretariat, and Terrestrial and Aquatic Environmental Managers Ltd. This working group continues to improve the IMPACT/AECB model, which evaluates cumulative environmental effects.

The CEMWG has also established a cumulative effects monitoring program to test the reliability of the model's predictions using field observations. A total of 63 sample stations has been established. Valued ecosystem components (VECs), which are monitored on a 3-year cycle, include air, soil, lichen, blueberry, spruce needles, caribou, spruce grouse, water, depositional sediments, macrophytes, benthos, and fish. Each VEC is measured for concentrations of radionuclides and metals, together with other physical and chemical parameters.

We endorse the CEMWG initiatives and note that the existence of this diverse and highly competent team of scientists should reassure Athabasca residents and other northerners about the safety of country foods. Attempts should, however, be made to involve northern residents more closely in this project and its results. This could be achieved if the residents participated in the collection of information and had representation on the monitoring committees. A start has already been made in this direction by a food chain study in which the CEMWG employed local hunters for the collection of caribou in the Wollaston Lake area. [P. Thomas, Radionuclide Analyses of Saskatchewan Caribou -- 1995, Final Report, October, 1995, Saskatchewan Environment and Resource Management and Saskatchewan Health.]

The objective of the Wollaston Lake caribou study was to measure radionuclide body-burdens and to assess transfers of radionuclides from lichen to caribou and, potentially, to humans. The data obtained suggested that the radiation dose from eating Wollaston-area caribou meat is similar to the dose received from eating caribou meat harvested in an area of the Northwest Territories where there is no uranium mining. We encourage government agencies to continue initiatives where local residents are involved in such monitoring programs.

The available information suggests that there has been no detectable regional contamination of the food web in northern Saskatchewan. It appears that there is no danger, at present, associated with the consumption of locally grown plants, meat, or fish. This is fortunate because locally harvested foods continue to make an important contribution to the diet of many people in northern Saskatchewan.

It is, however, important that precautions be taken to prevent the possibility of future contamination of the food web. An early warning of such contamination would be provided by continuous monitoring of the type provided by the CEMWG.

12.2 Community Involvement

A common theme running through many of the presentations from northern Saskatchewan was that developments, such as mining, should be made in partnership with northern communities. There is a perception that many of the solutions to problems associated with northern development have been imposed on the region and that northerners are not in control of their lives.

The last area that I wish could be developed is a way to get the south to quit doing things for us and start doing things with us. I am happy to hear that the Environmental Quality Committees are now in place. I can now talk to people who know who I am, where I am from, and understand what it means to us to be a northerner. I believe these groups can bring all the stakeholders together in a way that will show the rest of this province that the north has matured and that we are equal players in the building of this province.

R. Rediron, Transcript of the McArthur River and Cigar Lake Public Hearings, Saskatoon, Saskatchewan, September 11, 1996, p. 189.

A start has been made on the establishment of vehicles through which northerners can become involved in activities related to the development of uranium mining in the region. One initiative, the formation of Environmental Quality Committees, was made by the provincial government, and the other, the Athabasca Working Group, came from the uranium mining industry.

12.2.1 Environmental Quality Committees

In response to a recommendation from this panel, the Government of Saskatchewan established three regional Environmental Quality Committees (EQCs) in 1995. [D.G. Lee, J.F. Archibald, J. Dantouze, R. Neal, and A. Yassi, Dominique-Janine Extension, McClean Lake Project, and Midwest Joint Venture, Supply and Services Canada, October, 1993, p. 11.] Representatives of the South-Central and Athabasca EQCs submitted several recommendations to the panel, all of which have received consideration in the preparation of this report.

The mining companies, the various provincial government departments and the communities appear to be taking these committees seriously and attempting to actively involve them in various monitoring activities. This approach is welcome, because the effectiveness of the EQCs depends on the opportunities provided for them to work in concert with the mine operators, the government regulatory agencies and the communities which they represent.

We fully endorse these committees and commend the mining companies and government departments for their willingness to work with, and support, the EQCs. We do, however, have two specific recommendations with regard to the operation of the EQCs. The first is that adequate, continuing financial support must be provided to allow the committees to effectively address the various issues related to uranium mining in northern Saskatchewan. Future activities in which EQC involvement is desirable require that committee members have an increased understanding of the issues. If the EQCs are to fulfil their mandate effectively, it will be necessary to dedicate additional resources for relevant training and information sessions for their members. It is also important, for obvious reasons, that the EQCs do not become dependent on grants from the mining companies to support their activities.

The second recommendation is related to the need for the Atomic Energy Control Board to further develop its EQC support and participation. The AECB plays a unique role in the regulation of the uranium mining industry. It has much to offer to, and much to gain from, strong involvement in EQC activities. Its participation is essential to their continued success.

12.2.2 The Athabasca Working Group

Prompted by a desire for better communication with the people of the Athabasca region, the presidents of Cameco and Cigar Lake met with 23 community leaders and representatives from Camsell Portage, Uranium City, Fond du Lac, Stony Rapids, Black Lake and Wollaston Lake in March 1993. A discussion of their concerns identified three major issues:

• a desire for more opportunities for jobs, training and business, but not at the expense of the environment;
• a need for a written guarantee stating that companies would protect the environment and compensate for any damage that might result from mining activity; and
• a desire to receive benefits and revenues beyond those of jobs, training and business opportunities.

The participants agreed that discussions should continue until a formal written agreement is reached on these three issues. This led to the formation of the Athabasca Working Group (AWG). Cogema Resources Inc. joined the process in January, 1994, making this the primary means of communication between all of the uranium mine operators and the Athabasca residents. The AWG consists of two members from each of the six Athabasca communities, and at least one representative each from Cameco, Cigar Lake, and Cogema. This group wishes to remain free of political involvement; government officials, and officers from the Métis Society, Prince Albert Grand Council, and the Federation of Saskatchewan Indian Nations are not included, except by invitation.

The AWG has no established rules or procedures; it is simply a forum for discussing and negotiating issues between the uranium mines and the Athabasca communities. The selection of issues to be discussed is determined by the consensus of the community representatives, and any agreements reached would be formulated as legally binding documents.

The AWG has devoted about half of its discussion time to dealing with mine site issues. Community members who work at the mines address their concerns to their AWG members who in turn bring them to the table at the next AWG meeting. For example, one problem identified was the inability of many northerners to communicate fully with human resource people at the mine sites. In response to this concern, an employee relations counsellor was hired to help all northern employees with their concerns and grievances.

The remainder of the AWG discussions has focused on the three main issues identified in the first meeting. The AWG has reached agreement on the first issue, and has defined procedures to maximize jobs, training and business opportunities for the people of the Athabasca region.

We support the AWG initiative and its attempts to establish consensus between the people of the region and the mining companies on the way in which mining is carried out in the north. The lack of formal procedures is a strength when discussions are going well, but may prove to be a weakness when consensus is difficult to reach. There is also a possibility that the mining companies might feel less motivated to reach agreement on outstanding issues after mine approvals have been granted. The panel encourages the continuation of the AWG initiative, and suggests that it establish terms of reference and procedures to confirm and protect the dialogue between the communities and the mining companies.

12.3 Community Health and Vitality

Saskatchewan Health considers health to be "a dynamic process involving the harmony of physical, mental, emotional, social and spiritual well-being. Health enables individuals, families and communities to function to the best of their ability within their environment." [Government of Saskatchewan, Submission to the McArthur River and Cigar Lake Public Hearings, Regina, Saskatchewan, September 4, 1996, p. 40.] In addition, the province's wellness approach recognizes that the state of our health is affected by factors like employment, income, education, housing, the environment, and individual lifestyle choices. Thus, the health of northerners is intimately connected to community vitality. Indeed, northerners themselves see how community health and vitality are intimately connected, for good or bad, and how they may be affected by uranium mining.

Some Athabascan communities do not have fundamental water and sewer services. People are hauling water by hand, and dumping sewage out back doors. This is a health issue, a cost of living issue, and community vitality issue. As mentioned earlier how can we realistically speak about the millions of dollars in revenues that are generated in our traditional lands when the poverty of these communities is there for all to see? [Athabasca Environmental Quality Committee, Submission to the McArthur River and Cigar Lake Public Hearings, La Ronge, Saskatchewan, October 2, 1996, p. 9.]

The health and quality of life of northern residents is subject to both positive and negative impacts from uranium mining. On the positive side, enhanced employment and business opportunities in northern communities may provide a better standard of living and be a source of optimism and hope for community members. Mine employees may also be good role models, encouraging students to stay in school and others to upgrade their education. The seven-day-in, seven-day-out rotation allows wage earners to remain active in traditional pursuits and to have quality time to spend with their families. The presence of mines may bring reduced transportation costs of goods throughout the region, and often results in an improved infrastructure (roads, electrical power, water and sewer, etc.) that contributes to the health and vitality of a community.

On the negative side, there is a communal sense of injustice and anger caused by the extraction of resources worth billions of dollars from the traditional lands of communities where many are struggling to meet basic needs. The high expectations of northerners for jobs may not be realized. Tensions may develop between community members with jobs and those without, and between those who favour mine development and those who oppose it. Uranium mining might cause a deterioration in the traditional way of life that is valued by many northerners. Fear of environmental pollution could create anxiety in communities that share the same watershed as the mines. Some employees might decide to move to southern cities, thus depriving northern communities of income and potential leadership. In addition, improved infrastructure might result in concerns about traffic accidents and possible spills of toxic materials.

Although this description of possible impacts is far from exhaustive, it does indicate that uranium mining has the potential to cause both positive and negative impacts on the health and vitality of northern communities. Therefore, if uranium mining is to remain a feature of the northern economy, it is as important to monitor its impacts on community health and vitality as it is to monitor its impacts on the environment. At least as much attention should be directed toward maintaining the well-being of the people of the region as is devoted to preserving the biota.

In order to do this, it will be necessary to identify a set of indicators that can be used to assess the impact of uranium mining on the health and quality of life experienced by residents of northern communities. This will be a challenging undertaking, one that will almost certainly require professional assistance. The panel, therefore, welcomes and strongly commends the leadership of Cameco, one of the CLMC partners, for offering to provide $250,000 annually towards the funding of a social scientist in the north, and the establishment of a northern community socio-economic and health impacts database. This initiative will be facilitated by the Department of Northern Affairs, through the Northern Mines Monitoring Secretariat, and in discussion with the emerging Northern Health Boards. Groups like the EQCs and the AWG might also play a role in the process. This initiative would undoubtedly enhance the health monitoring study which has been designed to identify health trends, past, present and future, in northern Saskatchewan. The first phase of the provincial study began in the fall of 1996. [Government of Saskatchewan, Submission to the McArthur River and Cigar Lake Public Hearings, Regina, Saskatchewan, September 4, 1996, p. 46.]

The panel heard various suggestions about ways in which community vitality could be enhanced or studied. For example, the Athabasca EQC suggested that communities and mining companies explore the possibility of joint bulk purchasing and transportation of dry goods, fuel, and construction supplies. The savings created by economies of scale could be shared. Such a suggestion shows a way in which the mining companies, government, and communities could work together to improve the quality of life of northerners, and should be carefully considered.

Some aspects of community health and its relation to uranium mining are being studied systematically. The cumulative health effects involving environmental pathways analysis and the monitoring of contaminants in a variety of VECs by the CEMWG have already been noted in Section 12.1. Saskatchewan Health has also completed a literature review on potential physical effects of uranium mining on adjacent human populations and is studying recommendations arising from this review. [Ibid, p. 45.]

A steering committee, comprised of federal and provincial government departments, northern communities, and industry, initiated a study of the feasibility of a comprehensive baseline health status survey. Based on its recommendations, Saskatchewan Health will facilitate a more detailed analysis of existing databases and of their possible use as indicators in a baseline health study. [Ibid, p. 46.]

Finally, an epidemiological study of the incidence of lung cancer and mortality of uranium mine workers in Saskatchewan has been announced. [Atomic Energy Control Board, Submission to the McArthur River and Cigar Lake Public Hearings, Regina, Saskatchewan, September 6, 1996, p. 5.] The proposed study is a cooperative venture involving the AECB, Saskatchewan Labour, Saskatchewan Health, and the mining companies. We strongly endorse this study, which will last for approximately thirty-five years. It should be given priority status, and appropriate funding should be made available to permit its long-term research goals to be achieved.

12.4 Conclusions and Recommendations

Information indicates that there has been no detectable regional contamination of the food web in northern Saskatchewan. Continuous monitoring and mitigation are necessary to protect it from deterioration as the region experiences development.

Local residents should be involved in all aspects of monitoring. The Environmental Quality Committees provide a good avenue for incorporating local wishes into decisions related to uranium mining activities in northern Saskatchewan. Adequate financial support should be provided to educate and train committee members in the various issues related to uranium mining and milling. The AECB should be more active in its EQC support and participation.

The activities of the Athabasca Working Group are to be encouraged; it is important that the mining companies and community representatives meet regularly to discuss issues of common concern.

Just as the monitoring of biophysical impacts requires the participation of professional biologists and chemists, the monitoring of impacts to community vitality requires assistance from social scientists. Cameco is to be commended for helping to fund this expertise and for linking it with community health.

The panel is encouraged by recent initiatives to monitor different aspects of community health, including cumulative effects and the possible contamination of country foods, a baseline community health status survey, and the epidemiological study of the incidence of lung cancer among uranium mine workers. Funds should be made available to ensure the continuation of these initiatives.