NUC0029
Written evidence submitted by the Isle of Anglesey County Council
1.0 Introduction to our response
1.1 The Isle of Anglesey County Council (the Council) welcomes the opportunity to respond to the inquiry by the Welsh Affairs Committee[1] to explore Wales’ role in the UK Government’s nuclear ambitions and the economic impact of a new nuclear power station at Wylfa.
1.2 The Council considers that it is well placed to provide evidence to this Inquiry and confirms that it has focussed its evidence on those questions asked which are considered to be most relevant to any future new nuclear development on the Island and where we can draw upon our previous experience and position on the new nuclear opportunity on Anglesey, which includes;
- The Council has for over a decade, through its Energy Island Programme[2] (EIP) adopted and maintained a supportive position in respect of potential new nuclear at the Wylfa allocated site[3], recognising the significant long term and high-quality socio-economic opportunities and benefits that such a major development could bring to the Island. The Council recognises the national policy position in respect of identifying Wylfa as a strategically credible site for new nuclear development.
- The Council’s previous position, involvement and experience as local authority and host authority in relation to Horizon’s Wylfa Newydd new nuclear project prior to Hitachi’s decision to wind up Horizon Nuclear Power as an active development entity in March 2021.
- The Council is directly involved in a number of wider energy projects which are promoted through the Energy Island Programme (EIP)2.
- The Council is also able to build on its perspectives from a rich and safe heritage of hosting the Magnox Wylfa A station with many of the island’s communities benefiting from employment in this important sector.
IACC’s written evidence to the Inquiry
2.0 What role can, or should nuclear power play in achieving net zero - and UK energy security?
What practical steps can the UK Government take to support the nuclear industry in developing a range of nuclear technologies, including small modular reactors?
2.1 In making this response, the Council has had regard to those matters within and beyond its direct influence, it being evident that wider parties including UK Government, the emergent Great British Nuclear (GBN)[4], the role of BEIS especially in respect of the Future Nuclear Enabling Fund (FNEF)[5] and Welsh Government all have a collective responsibility to drive forward a UK wide response to nuclear programme development which can extend through Wales.
2.2 The UK Government’s commitments to nuclear are set out in the context of net zero and energy security and as detailed within the Energy Security Strategy6. The UK Government’s ambition is to deploy 24GW of nuclear by 2050 to meet some 25% of projected electricity demand. Moreover, the Government has committed to establishing the £120m Future Nuclear Enabling Fund (FNEF) and Great British Nuclear (GBN) to support nuclear development programmes.
2.3 In the context of nuclear development in Wales, the Council notes the explicit reference to Wylfa in launching the FNEF and the importance of Government financial support. Moreover, the Government has identified the eight sites included (designated) within the National Policy Statement (NPS) for Nuclear Generation (EN6) including the Wylfa site and has committed to developing an overall long term siting strategy for these sites. The Wylfa site remains an identified strategically suitable site for nuclear development in the NPS.
2.4 The capacity to influence successful outcomes for Wales must be influenced by the UK Government Energy Security Strategy[6] and Energy Security Bill[7] as well as the Government’s ten point plan for a green industrial revolution[8] and the Net Zero Strategy[9].
2.5 The Council is particularly aware of the important role that nuclear can play in transition to net zero. We are supportive of the significant commitments made in Wales through Welsh Government’s commitment to net zero by 2050 aligned with the Climate Change Act (2008), its declaration of the Climate Emergency, and transition to 2030 under Climate Change Committee (CCC) scenarios.
2.6 The Council understands the national need to secure low carbon energy generation sources in a timely manner. The Council has itself declared a Climate Emergency and has consequently agreed a ‘Towards Net Zero Plan 2022 to 2025’ which outlines its commitment to climate emergency and outlies how it intends to transform to become a net zero organisation[10].
2.7 The Council established the Energy Island Programme (EIP) over a decade ago, as a collective effort between several stakeholders within the public, private and third sectors working in partnership to ensure that Anglesey is exemplar in the transition to a prosperous and resilient low carbon economy, providing high quality jobs, education and supply chain opportunities, whilst protecting and enhancing the natural environment and enabling the Welsh Language and culture to thrive in vibrant communities.’
2.8 The EIP has adopted and maintained a supportive position in respect of potential new nuclear at the Wylfa allocated site, recognising the significant long term and high-quality socio-economic opportunities and benefits that such a major development could bring to the Island.
2.9 However, this willingness cannot be at any cost to the Island’s communities. The Council’s support in principle, and the social license for nuclear development, is subject to the following principles which are consistent with the IACC’s previous position as to Horizon Nuclear Power’s Wylfa Newydd proposals:
2.10 For any nuclear project which might be hosted on Anglesey, the approach to its development must reflect and respect the Island’s unique characteristics, its communities and ‘sense of place’.
2.11 The Council considers that early and meaningful engagement and collaboration with all key stakeholders (including in particular the host Authority and host community) is crucial.
2.12 In relation to obtaining community support, openness, trust and respect is considered to be key and this applies not only to the developer but also in relation to key stakeholders (including UK Government/ Great British Nuclear (GBN) and Welsh Government).
2.13 In relation to obtaining community support, openness, trust and respect is considered to be key and this applies not only to the developer but also in relation to key stakeholders (including UK Government/Great British Nuclear and Welsh Government).
2.14 The Council recognises the crucial enabling role that GBN can play in enhancing confidence and certainty of outcome for nuclear development within the UK context. The Council also notes that given this influence, GBN should engage and learn from authorities like IACC in respect of nuclear programme experiences to this point. As noted within this evidence, IACC’s long term experience with Wylfa A and Horizon’s Wylfa Newydd proposals have created important learning points, especially around community engagement and involvement. The Council considers it vital that GBN learn from these experiences as it formulates its strategy.
2.15 The Government has highlighted the potential for streamlining / enhancing the consenting and licensing of new nuclear power stations which is of keen interest to the Council. As confirmed above, whilst the Council is, in principle, supportive of new nuclear and recognises the role that it can play in responding to a pathway to net zero this cannot be to the ultimate detriment of the Island or its communities.
2.16 The Council’s involvement in the consenting process (especially in representing its communities) is of fundamental importance. In terms of Horizon’s Wylfa Newydd proposal, the Local Impact Report (LIR) prepared by the Council as host authority was a key report that the Inspector referred to regularly during the examination of the application
2.17 The Council would like to confirm the importance of it as Local Planning Authority and host authority of having the appropriate capacity and resources in place to allow it to be able to fully and appropriately engaged with a nuclear developer from its early development design stages.
2.18 With regards to Horizon’s Wylfa Newydd prior Development Consent Order (DCO) proposals, the IACC confirms that a Planning Performance Agreement PPA was in place between the IACC and Horizon which allowed the Council to be appropriately resourced throughout the project phases and to be able to influence and advise.
2.19 In this regard, any accelerated or streamlined process for bringing new nuclear forward must remain reflective of the need for the Council to have a reasonable and fair capacity to state its’ case and to influence outcomes to the benefit of the communities it represents. Any departure from this approach, which whilst well intentioned to accelerate delivery and reduce carbon intensity in the energy supply system, would in the Council’s opinion, have a detrimental impact on the Council’s involvement and capacity to influence outcomes, and impact upon the ability of the host community to influence the process, as well as directly impact community support.
2.20 Whilst the Council clearly has direct and relevant experience of the development phases of contemporary GW scale nuclear by virtue of Horizon’s Wylfa Newydd proposal, it is acknowledged that such experience is not commonplace for MW scale SMR / AMR development. On the basis that one of the attractive aspects / propositions of SMR / AMR is the speed of development to construction and commissioning, the Council acknowledges that this form of nuclear development may well gain further traction as an enabler to net zero and security of supply over the next ten years. It is expected that this will be underpinned by both technology investment by Government such as the Advanced Nuclear Fund (as per direct award to Rolls Royce[11]) as well as development programme support under the Future Nuclear Enabling Fund (FNEF) and potentially enabling approaches from Great British Nuclear (GBN).
2.21 The extent to which the Council may have an appropriate opportunity to influence SMR / AMR development is again (as per GW scale nuclear) of considerable importance to the Council.
2.22 As already confirmed, the Council’s support to any future new nuclear proposal on the Island is on the basis of it being a sustainable form of development that reflects the unique characteristics of the Island, communities and values with local socio-economic benefits maximised and secured. The Council advocates early and meaningful engagement and collaboration.
2.23 The Council is aware that the potential route to influence proposals at the MW scale will be intimately linked to the applicable land use planning regime. For permissions for SMR / AMR up to 350MW in Wales these matters will be subject to a Developments of National Significance (DNS) Consent via Welsh Ministers without the specific ‘cover’ of an NPS. For SMR / AMR proposals above 350MW then matters will fall to the Planning Act with those relevant schemes being considered a Nationally Significant Infrastructure Project (NSIP).
2.24 Whilst the NPSs may not have a legal effect in respect of an SMR / AMR proposal it is expected that they would remain an important and relevant consideration. However, the Council notes that there has been limited formal progress in developing the planning framework for SMR / AMR beyond consultation on the NPS which concluded in 2021. The Council would thus highlight the need for a clear policy position in respect of support for SMR / AMR which resolves the uncertainty for developers, host authorities and wider stakeholders. This should take into account the crucial role that host authorities must play in the planning process for SMR / AMR, the weight to be given to local planning policy and the overall spatial and criteria led process at a national level which can support identification of strategically suitable development locations.
2.25 There is a level of familiarity and therefore predictability in respect of the Council’s capacity to influence proposals through the Planning Act regime. The Council would look to secure precisely the same level of influence for any SMR / AMR proposal which might be promoted under DNS.
2.26 The potential for deployment of SMR / AMR on the eight Nuclear Power Generation ‘designated’ sites (including Wylfa) in the NPS also needs to be considered. From the Council’s perspective, these matters would be best resolved through an SMR / AMR focussed Strategic Siting Assessment (SSA) process with specific criteria developed which take into account the particular development and operating requirements of SMR / AMR, the outcome of which could inform a future NPS for advanced nuclear technologies.
2.27 The Council notes that the confidence which might stem from such an approach would be materially helpful to the work of the nuclear sector clusters such as the North West Nuclear Arc (NWNA), who are particularly active across the supply chain of north Wales and the north west of England, the Advanced Manufacturing Centre Cymru (AMRC) at Deeside, the Urenco facility at Capenhurst, the Westinghouse fuel manufacturing facilities at Springfields, the Wales Nuclear Forum and wider bodies such at the Nuclear Advanced Manufacturing Research Centre (NAMRC). This would also assist in the ongoing work of the Anglesey and more widely Trawsfynydd Enterprise Zones and the Local Enterprise Partnerships (LEPs) across England.
2.28 The Council notes that the programme of development for the wide range of nuclear technologies, especially out to 2050, creates a significant opportunity for UK and local skills development and growth over time. In this context, the Government has a significant opportunity to continue to drive investment in skills enabling, working with industry partners, academia and learning providers and innovation hubs supporting business growth. In terms of potential development at Wylfa the key stakeholders include (but are not limited to) the Council, Welsh Government, Economic Ambition North Wales, MSParc, Menter Mon, Grwp Llandrillo Menai, Prifysgol Cymru Bangor and Cwmni Egino.
2.29 What sits around this opportunity for growth is community awareness and ultimately endorsement. The Council considers that the Government can drive up confidence to enable a ‘social licence’ to be gained from communities for new nuclear programme ‘hosting’ in Wales. Communities in and around the island have been left uncertain by the outcome of the Wylfa Newydd experience. Some community groups have flagged deep disappointment that given the level of invested time and influence it was not possible to bring forward a development which could realise both community and developer ambitions for the island. In this regard, the Government should consider how confidence in delivery can be regained, with clear commitments around community, jobs & skills and supply chain engagement built into a viable programme. As with establishing the siting and policy framework, the Council considers that these matters too can be supported through the activities of Great British Nuclear (GBN).
2.30 The Council would wish the Government to ensure that in enabling the nuclear industry to respond to and support a range of nuclear technologies and their programmes, that a community led response to co-creating development outcomes is secured (particularly in respect of associated or ancillary development).
2.31 In tandem with creating / configuring the regulatory, licensing and land use planning systems which can shape development across GW scale, small and advanced modular reactor designs, the Council would wish to see the Government ensure that community engagement is properly timetabled into expected development pathways. This should deliver an efficient, but also appropriately extensive pre-application stage to allow a prospective developer to ensure they have an adequate understanding of the local context (particularly important in for example in a unique environment such as Anglesey) and to allow communities to actively highlight opportunities for local benefit and to raise concerns which can be resolved through the early project development process including implementation of project design changes.
2.32 The Council advocates an open and transparent process within which decision making and opportunities to influence outcomes are clear to all stakeholders. In addition to this, and again as noted within this evidence more widely, the Council would wish to see clear endorsement from the Government on the principal of developer funded Planning Performance Agreements (PPAs) ensuring that local authority participation in development programmes across the wide range of nuclear technologies does not become a burden on the UK taxpayer nor dimmish local services to communities that local authorities represent.
Summary of key Observations: In establishing GBN and the FNEF, Government has taken some important steps forward to enhancing confidence in nuclear power deployment and its role in transitioning towards net zero.
The Council acknowledges that GBN is in its infancy and would recommend that it engages with experienced host authorities like the IACC to understand and learn from its experiences of nuclear power project development, especially in respect of community engagement and representation.
In recognising the crucial role that both GW scale and MW scale (SMR / AMR) nuclear power projects may have in enhancing security of supply and supporting net zero, the UK Government has set out a number of strategy and policy commitments which are expected to have a positive effect on programme delivery over the next ten to fifteen years.
The Council is very much aware of the importance of the pace of change which will be needed across the nuclear sector. The Government has taken some important steps forward in supporting the growth of both small and advanced modular nuclear technologies including direct awards to technology developers such as Rolls Royce as well as enabling funding support to the UK fuel and supply chain.
There have been positive steps forward around the regulatory and licensing process which has created more certainty for those organisations developing technologies with a view to deploy in the UK. There are still wider uncertainties associated with the land use planning system, the opportunities for community participation in programme development and the roles and responsibilities for GBN and the expected impact from the FNEF.
a) The UK Government has established a framework within which it expects to accelerate delivery of 24GW of nuclear energy by 2050. Key enablers within this context include the Future Nuclear Enabling Fund (FNEF), formation of Great British Nuclear (GBN) and the potential for streamlining of permissions and licenses processes as alluded to in the Energy Security Strategy. Whilst it is clear that such interventions are necessary to provide a meaningful change to the programmes to bring new nuclear forward experienced to date, and the Council is supportive of that change in the context of a pathway to net zero, the Council would wish to highlight the importance of a rounded consideration of needs which includes net zero and security of supply, and wider requirements for a positive legacy, minimising of adverse effects and a capacity to enhance / extend positive effects including those relating to the economy, protection of natural assets, wellbeing and community cohesion.
b) The Council anticipates a degree of traction to be developed around SMR / AMR in the next ten to fifteen years. The capacity of such programmes for potentially swifter delivery than GW scale nuclear is likely to be attractive, particularly in the context of the UK Government 24GW objective for nuclear by 2050 as set out in the Energy Security Strategy. The Council acknowledges the important role that SMR / AMR technologies may have on the energy system and recognise that many developers of these technologies may target sites coincident with the existing civil nuclear licensed fleet, including for example Wylfa. The Council considers that any form of nuclear development, being GW or SMR/AMR scale will need to take into account the same opportunities for proactive dialogue and influencing of outcomes, for the benefit of communities and in line with wider commitments including the Wellbeing of Future (Wales) Act 2015.
c) The Government should continue to invest in its support for supply chain development (for example as part of the Energy innovation Programme) in order to allow the host community of any nuclear development, the UK and Wales to capitalise on this emergent market opportunity. The Government should aim to ensure connections between industry, academia and research bodies and public and private bodies are maintained and should encourage those with a remit for regional co-operation such at the NWNA, to remain engaged. The UK, with Government support, should ensure that the longstanding capability around fuel fabrication / cycle is maintained and enhanced alongside novel advanced nuclear applications.
d) Government should ensure that FNEF is appropriately targeted (alongside wider technology development funding) to assist in the establishment of credible and integrated development / delivery vehicles (organisations) which can team the requirements of a developer organisation, a site and a credible technology to make tangible progress towards site based solutions for advanced nuclear technologies. Government should proactively share best practice, particularly for new entrants to the UK, on programme delivery such as that set out by the Infrastructure and Projects Authority.
e) Whilst Government has created enhanced certainty around GDA for advanced nuclear technologies, the wider land use policy framework remains unresolved. Government should commit to a programme of Strategic Siting Assessment (SSA) which supports a criteria based approach to the credible siting of SMR / AMR and identifies the balance which should be struck with those sites designated for 1GW+ technologies as set out within the NPS. Government should also move to establish an NPS which specifically identifies sites for SMR / AMR to provide more certainty from a spatial development perspective. This should be reconciled alongside the different operating requirements for SMR / AMR versus GW scale nuclear development. The Council considers that this could form part of the remit for Great British Nuclear (GBN).
f) The Council sees that Government has a significant potential role in supporting the convening of industry, regulators (including Natural Resources Wales) academia and research bodies as well as developing a social licence with potential host communities. The articulation of benefits needs to consider the local community interests and experiences, especially where confidence levels in programme delivery may be low based on prior experiences e.g. Wylfa Newydd.
g) Support for local authority engagement as a key partner for programme development at the local level is expected by the Council. Endorsement of a Planning Performance Agreement (PPA) based approach by Government and to set expectations of potential developers would be valued by the Council.
3.0 What is the potential economic impact for Wales of a new nuclear power station at Wylfa?
3.1 The Island and its communities has a longstanding and positive relationship with the nuclear sector. This includes the long-term socio-economic benefits that have been realised both locally and regionally throughout the operation of the Wylfa A station and its move towards decommissioning.
3.2 In 2019, the value of GVA in the Isle of Anglesey was estimated at £1.02 billion, an increase of 8.6% from 2009. However, the growth in GVA was significantly lower than North Wales, Wales and the UK which increased by 15.8%, 18.4% and 20.8% respectively. The real estate sector provided by far the most significant contribution to overall GVA in Anglesey in 2019 (£183.8m or 18%) and was far higher proportionally than in comparator areas. Other important sectors in Anglesey included Land transport, Storage & Post, Accommodation & Food Services, Education, Retail, Public Administration & Defence and Utilities
3.3 The impact of the Covid-19 pandemic has been profound. The particular characteristics of the Welsh economy are likely to present more distinct challenges for recovery when compared with the UK. Wales (and indeed North west Wales) have typically experienced a higher proportion of workers on low pay and (through Covid) a higher proportion of workers in ‘shut down’ sectors such as retail and hospitality. Over time, there is also predicted to be a shift in the age profile of the resident population in Wales. Data from Experian identifies that there is a predicted increase of some 33% of over 64s to 2040 and a decline of some 5% in the age range 16 to 64. Whilst there is expected to be an overall population growth of some 4% in Wales over this period to 2040, it is expected that this will be fuelled by the increase in the 64+ population with differing needs and lower levels of full time employment in areas which might support a nuclear new build programme.
3.4 The challenges for the economy of Anglesey and North Wales, in recovery from the Covid-19 pandemic and in a shift towards an ageing population as well as a high reliance on relatively fragile employment sectors are significant. The potential for long term employment associated with the Wylfa A station for the local communities of Anglesey will diminish over time. The Council notes that this context is particularly important when considering the high impact GVA opportunities associated with a new nuclear build programme at Wylfa.
3.5 When considering the relative strength of the economy, especially in and around Anglesey and post the global Covid-19 pandemic, there has been a relatively high dependence on the Magnox Wylfa A station for employment and therefore economic activity.
3.6 A report prepared by Economic Insights Ltd for the NDA in July 2018[12] confirmed that the highest local GVA impact comes from Wylfa (£39m).
3.7 The report also calculates the sites’ contribution to economic activity in their local areas. Total jobs supported by a site in its local authority district range from 0.1% (Oldbury) to 1.9% (Wylfa) of all jobs in the site’s local authority district. Sites account for a slightly higher proportion of GVA in their local authority districts because they undertake relatively high value work. Wylfa makes the largest GVA contribution relative to its local authority district, at 3.9%.
3.8 The report goes on to confirm that the main channel of local impacts arise through direct employment at the sites and this is mainly because the sites provide jobs for people living in the local areas; and employees subsequently support further jobs and economic activity through spending their wages – which are above national averages – in local areas. The majority of employees live in the local authority district that their site is located in, or those adjacent to it. As such, employment effects are relatively concentrated in the local economies.
3.9 The Council as already identified in this response, recognises that any new nuclear project at Wylfa has the potential to transform the economy of Anglesey, particularly the North of the Island, as well as the North Wales region and further afield and provide potential short, medium and long term employment and economic development opportunities.
3.10 In terms of Horizon’s Wylfa Newydd Project, a report by Miller Research for the Welsh Government ‘Nuclear Capability Study’ (September 2014)[13] highlighted the planned investment in new build and decommissioning in Wales, the capabilities of Welsh companies and the potential business prospects if they take advantage of the available opportunities.
3.11 The report illustrated the scale of the potential investment, the opportunities for Welsh businesses and some of the issues and perceptions that needed to be addressed in order to maximise the potential benefits which included the need for concentrated effort by businesses, industry, public and private sectors.
3.12 The key economic benefits highlighted in the report included;
- The construction jobs would peak at 6,800
- The project could have seen £5bn spent on businesses in Wales
- Estimates suggest that planning and construction costs for Wylfa Newydd will be in the region of £14bn (up to 2024 and allowing for inflation), while a further £3.7bn will be contributed (up to 2033) once operational
- It is estimated that 34% of the new build cost could be spent in Wales and at its peak in 2021, some 6,800 people are expected to be employed constructing the plant
- The operational workforce is expected to be at its highest at 875 in 2025
- Between 2013 and 2033, the planning, construction, operation and maintenance of the plant is forecast to make a £2.4bn (2013 prices) gross value added (GVA) contribution to Welsh GDP
- After the plant begins to generate electricity, it is forecast to contribute nearly £87m in gross value added each year (in 2013 prices)
- Decommissioning at Wylfa is expected to contribute £630m GVA to the Welsh economy over 20 years, with an additional £310m contribution expected from the continuing decommissioning at Trawsfynydd between 2013 -2033
- The total GVA contribution to the Welsh economy from planning, building, operation and decommissioning is forecast to be some £5.7bn between 2013 and 2033 representing 0.5% of total GVA in Wales over this 20 year period.
3.13 The Council’s support for any new nuclear project at Wylfa, in line with the EIP vision, is on the basis that the project delivers transformational socio-economic benefits for the host communities. In its approach to all major development, the Council adopts the Proximity Principle. The Proximity Principle requires a sequential approach with consideration given first to the impacts on neighbouring communities and, as the impacts experienced reduce with distance from the project, so does the need for benefits and the mitigation measures to be provided including compensation.
3.14 The Council adopted the Proximity Principle in order to inform its position for Horizon’s Wylfa Newydd DCO application. This ensured that all benefits, mitigation and compensation were focused on the host community in the first instance, in line with where the impacts of the project stages are mostly experienced.
3.15 The number of working age residents on the Island has been falling and is forecast to continue. It is therefore important for economic health, and for the ability of the Islands economy to grow, that the number of young people leaving the Island is slowed and that working age people are attracted into the economy. To help close the wage ad productivity gap, jobs which are created on the Island need to be well paid and attractive to higher skilled candidate, including professionals. The Council recognises that the potential large demand for jobs at a new nuclear development at Wylfa has the potential to assist in creating an inward draw of highly skilled people to Anglesey.
3.16 The Council in its Local Impact Report (LIR) for Horizon’s Wylfa Newydd development confirmed that the project had the potential to contribute to a positive long-term shift in the structure of Anglesey economy, create higher paid jobs during all its phases, to move local businesses up the value chain through sourcing and support services contracts and to attract both new start-ups and inward investment associated with the project.
3.17 The potential economic impacts that would arise from a new nuclear power station both locally, regionally and wider were also assessed and identified as part of the Environmental Statement submitted as part of Horizon Nuclear Power’s application for Development Consent order (DCO) for the Wylfa Newydd proposed development.
3.18 Horizons Wylfa Newydd DCO application confirmed the following positive impacts of the labour market[14];
a) Creation of a minimum 2,000 new local jobs (90-minute to site) at the construction phase;
b) Commitment to achieving 85% of 850 local jobs at the operational phase of which are highly productive roles with salaries above national average;
c) Potential for local people to undertake a proportion of the 1,000 outage roles;
d) Potential to reverse the fall in working age population
e) Potential for GVA levels to increase significantly in the short term.
3.19 Horizons Wylfa Newydd DCO application confirmed the following negative impacts on the labour market;
a) Potential for labour displacement, reducing the net additionality arising from Wylfa Newydd
b) Small-medium enterprises, micro-businesses and the self-employed being attracted to the Wylfa Newydd project and not being able to undertake business as usual (domestic and light-industrial) activities to serve the needs to the local economy
c) Product displacement
3.20 In line with its position for Horizon’s application, the Council confirms that if the investment is to be truly transformational and have a long-term impact then the proportion of jobs taken by local labour needs to be maximised, not just at peak, but in every year of construction and operation. The Council support is also predicated on the creation of a broad range of direct and indirect jobs, form support services to highly skilled technical and professional roles for local people currently in work, unemployed, leaving school, college and university, prospective returnees, the long terms unemployed and young people ‘not in education, employment or training’ (NEETs).
3.21 Horizon’s Wylfa Newydd DCO application confirmed the following positive impacts on supply chain;
a) Local spend - £200-£400m will be spent locally in an immediate positive
b) Opportunities for businesses – provide opportunities for businesses to secure contracts for a number of years therefore securing job creation
c) Legacy of upskilling and improving competitiveness - Businesses in the locality will have to upskill to become part of the supply chain. This in turn will ensure a lasting legacy in securing further contracts and becoming more competitive.
d) Port of Holyhead - Ensuring the Port plays an active and meaningful role in the supply chain will result in direct investment creating substantial construction and operational jobs for a number of years.
e) Sites & Premises - The development of Wylfa Newydd must result in the creation of additional sites and premises on Anglesey and North Wales for indigenous businesses and inward investors.
f) Indirect opportunities - Although not directly linked to the Wylfa Newydd development, there will be an abundance of indirect opportunities from construction workers accommodation to cooking, cleaning etc.
3.22 Horizon’s Wylfa Newydd DCO application confirmed the following negative impacts on supply chain;
a) Displacement - There is a very real potential that the development – especially as a result of the Hinkley pay deal – will adversely affect the local supply chain causing displacement and companies unable to backfill.
b) Some local businesses and self-employed contracting (no additionality)
c) Tourism sector contracting
a) Boom and bust scenario - Negative impacts seen throughout the construction period will remain after the positive construction impacts have gone away
3.23 In relation to the negative impacts confirmed above and in paragraph 3.14, the Council through its engagement with Horizon discussed mitigation and compensation measures to help deal with the impacts identified (both positive and negative). This included Horizon preparing both a Jobs and Skills Strategy and Supply Chain Action Plan which confirmed the developers measures and approaches to minimise adverse impacts and to maximise the benefits.
3.24 Horizon’s analysis (for GW+ scale development) suggested a peak construction demand of 9,000 with approximately 2,000 of these skills potentially being met within the existing daily commuting zone of Wylfa. Horizon applied a further multiplier of 1.9 to calculate indirect and induced jobs and this suggested a further 1,800 jobs would be created through construction within the daily commuting zone. These total demand figures for GW scale nuclear construction are not inconsistent with the broad figures set out by EDF Energy (NNB Genco) for Hinkley Point C and Sizewell C. In this context, they serve as a reasonable proxy of the likely employment opportunities presented by GW scale construction within the north Wales area and more widely.
3.25 Given the demand profile for construction workers exceeds those that may be resident in the daily community zone Horizon recognised that purpose built worker accommodation would be needed. This comprised (and was proposed in the DCO) 4,000 in temporary worker accommodation and with 3,000 expected to use existing / new accommodation.
3.26 In the Horizon submission, there was a detailed analysis, supported by a gravity model analysing the distribution of workers and accommodation preferences which highlighted available headroom and demand. On an ‘all accommodation’ basis, demand (746) was identified as higher than headroom (604) in the area identified as Anglesey North although typically the analysis suggested capacity to meet demand.
3.27 Notwithstanding, the Council identified a need for a Housing Fund as a negotiated element in the s106 obligations package to assist in addressing pressures on housing stock availability. It is expected that similar measures would be required from any future proposals for new nuclear development at Wylfa, particularly as the housing market on the Island is under further pressure post the pandemic.
3.28 As a wider issue, whilst Horizon concluded that there was sufficient headroom and therefore no significant impact associated with displacement on tourism accommodation, this remained at area of concern for the Council and would need to be addressed in any future development proposals for new nuclear build.
3.29 Any prospective nuclear new build would need to take into account the potential effects on public services including education provision; policing; fire and rescue services; leisure and community services as well as GPs, dentists and wider medical services. It is noted here that for the Horizon Wylfa Newydd application these matters around clinical services were addressed as part of a scheme wide Health Impact Assessment.
3.30 In respect of school places, Horizon did not identify significant additional pressures on educational places. Again, in response to the Council’s recommendations, suitable provision was put in place for a Welsh Language Impact Assessment (WLIA) which specifically identified provision for language support for new pupils (to ensure wider support to Welsh language and culture). This included Contribution and Contingency provision within the S106 agreement.
3.31 In respect of the potential for displacement or adverse effects on community and leisure facilities, Horizon maintained that on site provision, particularly associated with the purpose built worker accommodation would restrict the potential wider impacts on community resources, including those linked to tourism. This remained an area of considerable uncertainty and concern for the Council. In particular, the Council would wish to see a strong evidence base, linked to a well developed gravity model setting out the expected spatial distribution of the workforce, the effects on worker accommodation and the potential pressures placed on tourism assets from any new build proposals.
3.32 Whilst much was made of the construction opportunities in the Wylfa Newydd proposals, it is noted that the operational requirements of the GW+ Advanced Boiling Water Reactor (ABWR) proposals would have provided some 850 permanent positions. Horizon considered that some 85% of these roles would be within the daily community zone i.e. considered to be locally provided. The Council worked with Horizon to co-develop a range of measures which could help secure these local roles including: knowledge and training development; STEM engagement with schools and education providers; apprenticeships; work experience / placement opportunities; graduate programmes and supporting experienced people from the existing labour market. Given the emphasis on local employment, it was expected that circa 15% or 128 operational staff would come from beyond the daily community zone with limited associated demand on accommodation or public services. The Council would note that such effects would be reflective of the proactive approach taken and success of local employment in the operational stage.
- Ensuring maximum local and regional socio-economic benefits from a future new nuclear development proposal
3.33 In relation to ensuring that any nuclear project presents the maximum and transformational socio-economic opportunities and reflecting from the Council’s experience of engaging with the Horizon Wylfa Newydd project, it is crucial that early engagement and collaboration between key stakeholders take place.
3.34 In relation to any future new nuclear development at Wylfa, the key stakeholders include (but are not limited to) the Council, Welsh Government, Economic Ambition North Wales, MSParc, Menter Mon, Grwp Llandrillo Menai, Prifysgol Cymru Bangor, NWNA, WNF and the NIA.
3.35 There is a need for an early understanding and confirmation of the project requirements across its development phases in order to map this against the local availability in relation to jobs, skills and supply chain. This allows for any gaps in local provision to be identified and for collaboration to take place to ensure that plans and programmes are established in a timely manner to fill these gaps and ensure the maximum local and regional benefit and opportunities and that there is resilience to manage labour displacement.
3.36 Opportunities for STEM and educational outreach is also critical to ensure that there is adequate skills capacity in the pipeline across the life of the development.
3.37 In light of the Government's Strategy to achieve net zero and the inclusion of the range of technology types, it is crucial to ensure that there is sufficient and appropriate jobs, skills and supply chain capacity for the entire renewable energy sector. This again requires collaboration and engagement with a range of key stakeholders.
3.38 Under the Councils EIP, the development portfolio is currently wide ranging and includes tidal, offshore wind, solar, hydrogen and potential nuclear development. There is a need to ensure alignment and synergy between all developments, developers and the opportunities presented.
3.39 The Council will be seeking for the local socio-economic baseline for any application to be fully up to date and confirm the current baseline for the Island in order to ensure an appropriate and satisfactory assessment of potential impacts (negative and beneficial) is carried out, leading to the identification and agreement of mitigation measures.
3.40 The Council is very aware from its assessment of Horizon’s Wylfa Newydd proposal that an appropriate balance that needs to be struck between encouraging workers to have a local accommodation base (including to minimise local transport impact) whilst managing the potential impacts of housing workers living close to site and the impact on those local communities including impact on the Welsh language, culture and local service provision.
3.41 Throughout pre-application and DCO submission, the Council made extensive representations regarding the need to ensure that host communities were appropriately supported through s106 obligations packages / community benefit schemes to address impacts and maximise positive effects arising from the proposals. The Council remained concerned that the spatial scale at which effects were considered did not properly address very local effects on an aggregated or cumulative basis.
3.42 For any new nuclear build proposals at Wylfa, the Council would expect such matters (at the local and community scale) to be fully considered from the outset and the Proximity Principle applied.
3.43 Whilst much of the detailed evidence available to support informed commentary on the potential economic impact of a new nuclear power station at Wylfa has focussed on GW+ scale development, the Council is aware that nuclear proposals at the site could also include MW scale SMR / AMR in the future and that the socio-economic impacts would differ from that of a GW scale proposal.
3.44 Work completed by Ove Arup and Partners Ltd. for Welsh Government[15] has focussed on the potential for SMR / AMR deployment at Trawsfynydd, however, it provides useful additional information of relevance to north Wales and Wales more widely.
3.45 This analysis considered a range of deployment scenarios, attendant employment opportunities and wider supply chain activity which could stem from SMR / AMR deployment. Gross Value Added (GVA) calculations have been completed and linked to job creation opportunities. Using a peak of construction set for analysis at 2027, circa 1,520 jobs were suggested within the north Wales area, with a further 1,370 in the supply chain. In respect of economic outcomes, the report concluded that peaks of construction could yield £41.6million in GVA in north west Wales and overall GVA across Wales at £177.5million.
3.46 Whilst these figures are proportionately lower (as might be expected) than GW+ scale nuclear development construction estimates they nonetheless demonstrate that a significant contribution might be made from SMR / AMR deployment within north west Wales and Wales more generally and that it is critical that the Island and the region is able to fully maximise the opportunities.
3.47 In the event that SMR / AMR proposals were to be brought forward in advance of any GW+ scale development, the Council would expect any developer to be cognisant of the range of matters set out in this evidence as requiring early and detailed dialogue. This should build on the range of economic (and wider) considerations from the Horizon proposals for Wylfa Newydd. The Council also recognises the potential for both GW+ scale reactors and MW scale SMR / AMR to be brought forward at Wylfa concurrently. Such matters, particularly in the event of different developer teams would require very extensive early engagement and collaboration between the council and all relevant key stakeholders to ensure positive impacts are maximised and adverse effects mitigated and appropriately compensated.
3.48 In respect of having a capacity to leave a lasting legacy around job creation, skills enhancement and overall economic impact in Gross Value Added (GVA) terms, it is evidenced that nuclear power projects can have a material change across several generations of communities. The Council would wish to see real opportunities established early to secure these benefits and have clear and supported accessibility to them, for people and businesses within and beyond the spatial extent of Anglesey and the North Wales region. Any such benefits will need to be completely reflective of and responsive to the protected and sensitive habitats and landscape (and wider natural assets) of the Island which continue to make it such an important tourist destination and are key to the Island’s economy.
Summary of key Observations: The evidence set out in this response highlights the potential opportunity a new nuclear development at Wylfa presents to Anglesey and the north Wales economy. This economy has been identified as relatively fragile with a reliance on relatively low average wage employment within the tourism sector and which itself has been widely impacted by the global Covid-19 pandemic. Proposals for nuclear development at Wylfa would be welcomed by the Council in this context but the Council would not provide that support unconditionally. A range of measures linked to the effects, including on the economy would need to be discussed in a proactive and constructive way with the Council in the interests of its community.
a) A substantial evidence base exists in respect of analysis conducted by Isle of Anglesey County Council, Gwynedd Council, NDA, Magnox, Welsh Government and Horizon Nuclear Power (amongst others) which provides a means to characterise the importance of nuclear to Anglesey and the north Wales economy. In respect of direct, indirect and induced labour, as well as contributions to the supply chain, this evidence has set out the significant and positive GVA impact which might be made from GW+ scale as well as SMR / AMR development at Wylfa. This would be meaningful in any regional economy but against the backdrop of a relatively fragile economy in north Wales, it would be particularly meaningful.
b) Such development proposals (whilst welcomed by the Council) could not be brought forward without commitment to active dialogue and recognition of the unique characteristics of Anglesey. Only through active discussion with the Council (and wider stakeholders) would it be possible to establish an appropriate means to compensate host communities for hosting this infrastructure, manage the potential impact on public services, minimise effects on natural assets and support Welsh language and culture as well as community cohesion.
c) The Council would particularly wish to highlight the importance of a community scale of analysis and tailored response to mitigation. Very pronounced effects were inferred in very discrete areas of Anglesey from the Horizon Wylfa Newydd proposals. The potential cumulative effects at that community level were often subordinate to the description of effects across wider areas selected for assessment. In maximising opportunities for the island and its communities, the Council would particularly encourage any prospective developer to consider that local view and engage in dialogue to promote those community’s needs. For any new nuclear build proposals at Wylfa, the Council will be seeking for the local socio-economic baseline for any application to be fully up to date in order to ensure an appropriate and satisfactory assessment of potential impacts (negative and beneficial) is carried out, leading to the identification and agreement of mitigation and compensation measures. The Council would expect all impacts (at the local and community scale) to be fully considered from the outset of project design and the Proximity Principle applied.
1.0 Cyflwyniad i’n hymateb
1.1 Mae Cyngor Sir Ynys Mon (y Cyngor) yn croesawu’r cyfle i ymateb i’r ymchwiliad gan y Pwyllgor Materion Cymreig[16] i archwilio rôl Cymru yn uchelgeisiau Llywodraeth y DU o ran ynni niwclear, ynghyd ag effaith gorsaf bŵer newydd yn Wylfa o safbwynt economaidd.
1.2 Mae’r Cyngor yn ystyried ei fod mewn sefyllfa dda i ddarparu tystiolaeth i’r Ymchwiliad hwn, ac mae’n cadarnhau ei fod wedi canolbwyntio ei dystiolaeth ar y cwestiynau hynny a ofynnwyd yr ystyrir eu bod fwyaf perthnasol i unrhyw ddatblygiad niwclear newydd ar yr ynys yn y dyfodol. Gallwn fanteisio ar ein profiad blaenorol a’n safbwynt o ran y cyfle newydd ar gyfer datblygiad ynni niwclear ym Môn, sy’n cynnwys:
- Dros gyfnod o ddegawd, trwy ei Raglen Ynys Ynni[17] (RhYY), mae’r Cyngor wedi mabwysiadu a chynnal safbwynt cefnogol o ran y potensial ar gyfer cael gorsaf niwclear newydd yn y safle a neilltuwyd yn Wylfa[18]. Mae’n cydnabod y cyfleoedd a’r buddion economaidd-gymdeithasol hirdymor ac o ansawdd uchel all ddod i’r ynys yn sgil datblygiad mawr o’r fath. Mae’r Cyngor yn cydnabod y safbwynt cenedlaethol o ran polisi yng nghyswllt dynodi Wylfa fel safle credadwy ar gyfer datblygiad niwclear newydd o safbwynt strategol.
- Safbwynt, cyfraniad a phrofiad blaenorol y Cyngor fel awdurdod lleol ac awdurdod lletyol yng nghyswllt prosiect safle niwclear Wylfa Newydd Horizon, cyn penderfyniad Hitachi i ddirwyn Pŵer Niwclear Hitachi i Ben fel endid datblygu gweithredol ym Mawrth 2021.
- Mae’r Cyngor yn chwarae rhan uniongyrchol mewn nifer o brosiectau ynni ehangach a hyrwyddir trwy’r Rhaglen Ynys Ynni (RhYY)2.
- Mae’r Cyngor hefyd yn gallu adeiladu ar ei safbwyntiau o ran ei dreftadaeth gyfoethog a diogel o letya gorsaf Wylfa A Magnox, gyda chymaint o gymunedau’r ynys yn manteisio ar gyflogaeth o fewn y sector pwysig hwn.
Tystiolaeth ysgrifenedig CSYM ar gyfer yr Ymchwiliad
2.0 Pa rôl y gall, neu y dylai, ynni niwclear ei chwarae wrth gyflawni sero net a diogelu ffynonellau ynni’r DU?
Pa gamau ymarferol y gall Llywodraeth y DU eu cymryd i gefnogi’r diwydiant niwclear wrth ddatblygu amrywiaeth o dechnolegau niwclear, gan gynnwys adweithyddion modwlar bach?
2.1 Wrth lunio’r ymateb hwn, mae’r Cyngor wedi ystyried y materion hynny o fewn ei gylch dylanwad uniongyrchol a thu hwnt, gan ei fod yn amlwg bod gan bartïon ehangach, gan gynnwys Llywodraeth y DU, Great British Nuclear (GBN)[19], rôl BEIS yn enwedig o ran Cronfa Galluogi Niwclear y Dyfodol (FNEF)[20] a Llywodraeth Cymru, gyfrifoldeb ar y cyd i hybu ymateb gan y DU gyfan i ddatblygu rhaglen niwclear sy’n gallu ymestyn trwy Gymru.
2.2 Mae ymrwymiadau Llywodraeth y DU i ynni niwclear wedi’u nodi yng nghyd-destun sero net a diogelwch ynni, ac fel y nodir o fewn yn y Strategaeth Diogelwch Ynni6. Uchelgais Llywodraeth y DU yw rhoi 24GW o ynni niwclear ar waith erbyn 2050, i gwrdd â thua 25% o’r galw rhagamcanol am drydan. Yn ogystal, mae’r Llywodraeth wedi ymrwymo i sefydlu Cronfa Galluogi Niwclear y Dyfodol (FNEF), sy’n werth £120m, ynghyd â Great British Nuclear (GBN), i gefnogi rhaglenni datblygu niwclear.
2.3 Yng nghyd-destun datblygu ynni niwclear yng Nghymru, mae’r Cyngor yn nodi’r cyfeiriad pendant at Wylfa wrth lansio’r FNEF, ynghyd â phwysigrwydd cymorth ariannol y Llywodraeth. Yn ogystal, mae’r Llywodraeth wedi nodi’r wyth safle sydd wedi’u cynnwys (dynodi) o fewn y Datganiad Polisi Cenedlaethol (NPS) ar gyfer Cynhyrchu Niwclear (EN6), sy’n cynnwys safle Wylfa, ac mae wedi ymrwymo i ddatblygu strategaeth leoli hirdymor gyffredinol ar gyfer y safleoedd hyn. Mae safle Wylfa yn dal i fod yn safle addas o safbwynt strategol sydd wedi’i nodi ar gyfer datblygiad niwclear yn y NPS.
2.4 O ran y capasiti i ddylanwadu ar sicrhau canlyniadau llwyddiannus i Gymru, rhaid dylanwadu ar hyn gan Strategaeth Diogelwch Ynni Llywodraeth y DU[21] ynghyd â’r Bil Diogeledd Ynni[22], yn ogystal â chynllun deg pwynt y Llywodraeth ar gyfer chwyldro diwydiannol gwyrdd [23] a’r Strategaeth Sero Net[24].
2.5 Mae’r Cyngor yn ymwybodol iawn o’r rôl bwysig y gall ynni niwclear ei chwarae o ran pontio i sero net. Rydym yn cefnogi’r ymrwymiadau sylweddol a wneir yng Nghymru trwy ymrwymiad Llywodraeth Cymru i gyflawni sero net erbyn 2050, sy’n cyd-fynd â’r Ddeddf Newid yn yr Hinsawdd (2008), ynghyd â’i ddatganiad o ran yr Argyfwng Hinsawdd, a phontio i 2030 o dan senarios y Pwyllgor ar y Newid yn yr Hinsawdd (CCC).
2.6 Mae’r Cyngor yn deall yr angen cenedlaethol i ddiogelu ffynonellau cynhyrchu ynni carbon isel mewn modd amserol. Mae’r Cyngor ei hun wedi datgan Argyfwng Hinsawdd, ac o ganlyniad i hynny, mae o wedi cytuno i’r ‘Cynllun Tuag at Sero Net 2022 i 2025’ sy’n amlinellu ei ymrwymiad i’r argyfwng hinsawdd, ac yn amlinellu’r modd y mae’n bwriadu pontio i ddod yn sefydliad sero net[25].
2.7 Sefydlodd y Cyngor y Rhaglen Ynys Ynni (RhYY) dros ddegawd yn ôl, o ganlyniad i ymdrech ar y cyd rhwng amryw randdeiliaid o fewn y sectorau cyhoeddus a phreifat, a’r trydydd sector yn gweithio mewn partneriaeth i sicrhau bod Ynys Môn ‘yn esiampl i eraill wrth bontio at economi carbon-isel ffyniannus a gwydn sy’n creu cyfleoedd ar gyfer gwaith, addysg a swyddi cadwyn gyflenwi o ansawdd uchel, gan hefyd warchod a gwella’r amgylchedd naturiol a chynorthwyo’r iaith Gymraeg a’i diwylliant i ffynnu mewn cymunedau llawn asbri.’
2.8 Mae’r RhYY wedi bod yn gefnogol i’r potensial o ran datblygu gorsaf ynni niwclear newydd yn y safle a neilltuwyd yn Wylfa, ac wedi parhau i gynnal y safbwynt hwnnw, gan gydnabod y cyfleoedd economaidd-gymdeithasol hirdymor sylweddol, o ansawdd uchel, a allai ddod i’r ynys yn sgil datblygiad mawr o’r fath.
2.9 Fodd bynnag, ni chaiff y parodrwydd hwn fod ar draul cymunedau’r ynys. Mae cefnogaeth y Cyngor mewn egwyddor, a’r drwydded gymdeithasol i fwrw ymlaen â datblygiad niwclear, yn amodol ar yr egwyddorion a ganlyn, sy’n cyd-fynd â safbwynt blaenorol CSYM o ran cynigion Pŵer Niwclear Horizon ar gyfer Wylfa Newydd:
chymdeithasol.
2.10 O ran unrhyw brosiect niwclear y gellir ei letya ym Môn, rhaid i’r modd y caiff ei ddatblygu adlewyrchu a pharchu nodweddion unigryw'r ynys, ynghyd â’i chymunedau a’r ‘ymdeimlad o le’.
2.11 Mae’r Cyngor yn ystyried bod ymgysylltiad a chydweithrediad cynnar ac ystyrlon â’r holl randdeiliaid allweddol (gan gynnwys yr Awdurdod lletyol a’r gymuned letyol yn arbennig) yn hanfodol.
2.13 O ran cael cefnogaeth y gymuned, mae bod yn agored, ynghyd ag ymddiriedaeth a pharch, yn cael eu hystyried yn nodweddion allweddol, nid yn unig o safbwynt y datblygwr, ond hefyd o ran rhanddeiliaid allweddol (gan gynnwys Llywodraeth y DU/Great British Nuclear a Llywodraeth Cymru).
2.14 Mae’r Cyngor yn cydnabod y rôl alluogi hanfodol y gall GBN ei chwarae o ran gwella hyder a sicrwydd o ran y canlyniad o safbwynt datblygiadau niwclear o fewn cyd-destun y DU. Mae’r Cyngor yn nodi hefyd, o ystyried y dylanwad hwn, y dylai GBN ymgysylltu ag awdurdodau fel CSYM a dysgu o’u profiadau hyd yma o ran eu rhaglenni niwclear. Fel y nodwyd o fewn y dystiolaeth hon, mae profiad hirdymor CSYM gyda Wylfa A, ynghyd â chynigion Horizon ar gyfer Wylfa Newydd, wedi creu pwyntiau dysgu pwysig, yn enwedig yng nghyswllt ymgysylltu â’r gymuned a’i hymrwymo. Mae’r Cyngor yn ystyried ei bod yn hanfodol i GBN ddysgu o’r profiadau hyn fel y mae’n ffurfio ei strategaeth.
2.15 Mae’r Llywodraeth wedi amlygu’r potensial o ran symleiddio / gwella’r broses gydsynio a thrwyddedu ar gyfer gorsafoedd pŵer niwclear newydd, sydd o ddiddordeb mawr i’r Cyngor. Fel y cadarnhawyd uchod, tra bo’r Cyngor, mewn egwyddor, yn cefnogi datblygiadau niwclear newydd, ac yn cydnabod y rôl y gall chwarae o ran ymateb i lwybr tuag at gyflawni sero net, yn y pen draw, ni all hyn fod ar draul yr ynys neu ei chymunedau.
2.16 Mae ymrwymiad y Cyngor yn y broses gydsynio (yn enwedig o ran cynrychioli ei gymunedau) yn hanfodol bwysig. Yn nhermau cynnig Horizon ar gyfer Wylfa Newydd, roedd yr Adroddiad ar yr Effaith Lleol (LIR), a baratowyd gan y Cyngor fel awdurdod lletyol, yn adroddiad allweddol y cyfeiriodd yr Arolygydd ati’n rheolaidd yn ystod yr archwiliad o’r cais.
2.17 Hoffai’r Cyngor gadarnhau ei bwysigrwydd fel Awdurdod Cynllunio Lleol ac awdurdod lletyol, o safbwynt cael y capasiti a’r adnoddau priodol i’w alluogi i chwarae rhan lawn a phriodol gyda datblygwr niwclear, a hynny o gyfnod camau cychwynnol proses ddylunio datblygiad.
2.18 O ran cynigion Gorchymyn Cydsyniad Datblygu (DCO) blaenorol Horizon ar gyfer Wylfa Newydd, mae CSYM yn cadarnhau y bu Cytundeb Perfformiad Cynllunio (PPA) ar waith rhwng CSYM a Horizon a oedd yn caniatáu adnoddau priodol ar gyfer y Cyngor trwy gydol cyfnodau’r prosiect, ac iddynt allu dylanwadu ar y broses a darparu cyngor.
2.19 Yn y cyswllt hwn, rhaid i unrhyw broses gyflymach neu symlach a sefydlir ar gyfer hybu datblygiadau niwclear newydd barhau i ystyried yr angen i’r Cyngor fod â chapasiti rhesymol a theg i ddatgan ei achos, a chael dylanwadu ar ganlyniadau er budd y cymunedau a gynrychiolir ganddo. Ym marn y Cyngor, byddai unrhyw newid o safbwynt y broses hon, er yn llawn bwriadau da, gyda’r nod o gyflymu datblygiadau a lleihau allyriadau carbon o fewn y system gyflenwi ynni, yn cael effaith andwyol ar rôl y Cyngor a’i gapasiti i ddylanwadu ar ganlyniadau. A byddai’n effeithio gallu’r gymuned letyol i ddylanwadu ar y broses, yn ogystal â chael effaith uniongyrchol o ran cefnogi’r gymuned.
2.20 Er ei bod yn amlwg bod gan y Cyngor brofiad uniongyrchol a pherthnasol o gyfnodau datblygu datblygiadau niwclear cyfoes ar raddfa GW, trwy gyfrwng cynnig Horizon ar gyfer Wylfa Newydd, cydnabyddir nad yw profiad o’r fath yn gyffredin o safbwynt datblygiadau SMR / AMR ar raddfa MW. Ar y sail mai un o agweddau / cynigion atyniadol datblygiadau SMR / AMR yw eu cyflymder o ran y cyfnodau adeiladu a chomisiynu, mae’r Cyngor yn cydnabod ei bod yn bosibl iawn efallai bod y math hwn o ddatblygiad niwclear am ddod yn fwy tebygol o gael ei hyrwyddo fel modd o alluogi camau i gyflawni sero net, a diogelu’r cyflenwad o ynni dros y deng mlynedd nesaf. Disgwylir y caiff hyn ei ategu gan fuddsoddiad y Llywodraeth mewn technoleg o’r Gronfa Niwclear Uwch (‘Advanced Nuclear Fund’) (fel dyraniad uniongyrchol i Rolls Royce[26]), yn ogystal â chymorth ar gyfer rhaglen ddatblygu o dan Gronfa Galluogi Niwclear y Dyfodol (FNEF), a gyda’r posibilrwydd o gefnogaeth gan ‘Great British Nuclear’ (GBN).
2.21 Unwaith eto, mae’r graddau y gallai’r Cyngor gael cyfle priodol i ddylanwadu ar ddatblygiad SMR / AMR (yn yr un modd â datblygiad niwclear ar raddfa GW) o gryn bwys i’r Cyngor.
2.22 Fel y cadarnhawyd eisoes, mae’r Cyngor yn jcefnogi unrhyw gynnig ar gyfer datblygiad niwclear newydd yn y dyfodol ar y sail ei fod yn fath cynaliadwy o ddatblygiad, sy’n adlewyrchu nodweddion unigryw’r ynys, ei chymunedau a’i gwerthoedd, ac yn diogelu buddion economaidd-gymdeithasol ar gyfer yr ardal leol ac yn manteisio i’r eithaf arnynt. Mae’r Cyngor yn argymell ymgysylltiad a chydweithrediad cynnar ac ystyrlon yn y broses o ddatblygu unrhyw gynnig newydd.
2.23 Mae’r Cyngor yn ymwybodol y bydd gan y llwybr posibl o safbwynt dylanwadu ar gynigion ar y raddfa MW gysylltiad agos â’r drefn cynllunio defnydd tir. O ran caniatadau ar gyfer datblygiadau SMR / AMR o hyd at 350MW yng Nghymru, bydd y materion hyn yn destun Cydsyniad Datblygiad o Arwyddocâd Cenedlaethol (DNS) trwy Weinidogion Cymru, heb ddod o dan Ddatganiad Polisi Cenedlaethol (NPS) yn benodol. O ran cynigion ar gyfer SMR / AMR ar raddfa uwch na 350MW, bydd materion yn dod o fewn cwmpas y Ddeddf Gynllunio, gyda’r cynlluniau perthnasol hynny’n cael eu hystyried yn Brosiect Seilwaith o Arwyddocâd Cenedlaethol (NSIP).
2.24 Er efallai na chaiff Datganiadau Polisi Cenedlaethol effaith gyfreithiol o safbwynt cynnig ar gyfer SMR / AMR, disgwylir y byddant yn dal i fod yn ystyriaeth bwysig a pherthnasol. Fodd bynnag, mae’r Cyngor yn nodi y cafwyd ychydig iawn o gynnydd ffurfiol o ran datblygu’r fframwaith cynllunio ar gyfer SMR / AMR, y tu hwnt i ymgynghori ynghylch yr NPS a ddaeth i ben yn 2021. Felly byddai’r Cyngor yn amlygu’r angen am safbwynt clir o ran polisi yng nghyswllt cefnogaeth ar gyfer SMR / AMR, sy’n datrys yr ansicrwydd ar gyfer datblygwyr, awdurdodau lletyol a rhanddeiliaid ehangach. Dylai hyn ystyried y rôl hanfodol y mae’n rhaid i awdurdodau lletyol ei chwarae yn y broses gynllunio ar gyfer SMR / AMR, ynghyd â’r pwys y dylid ei roi ar bolisi cynllunio lleol, a’r broses gyffredinol ar lefel genedlaethol a gaiff ei harwain gan ystyriaethau gofodol a meini prawf, sy’n gallu cefnogi camau i ganfod lleoliadau addas ar gyfer eu datblygu o safbwynt strategol.
2.25 Mae’r Cyngor yn gyfarwydd â’i gapasiti i ddylanwadu ar gynigion trwy drefn y Ddeddf Gynllunio, ac mae’r gallu i ddylanwadu yn y modd hwn yn ddisgwyliedig. Byddai’r Cyngor yn ceisio sicrhau’r un lefel o ddylanwad yng nghyswllt unrhyw gynnig ar gyfer SMR / AMR y gellir ei hyrwyddo o dan DNS.
2.26 Yn ogystal, mae angen ystyried y potensial o ran lleoli SMR / AMR ar yr wyth safle ‘dynodedig’ sydd wedi’u neilltuo ar gyfer Cynhyrchu Pŵer Niwclear (sy’n cynnwys Wylfa) yn y NPS. O safbwynt y Cyngor, y modd gorau o ddatrys y materion hyn fyddai trwy broses o Asesu Lleoliadau Strategol (‘Strategic Siting Assessment’ / SSA) sy’n canolbwyntio ar SMR / AMR, a fyddai’n datblygu meini prawf penodol sy’n ystyried gofynion arbennig SMR / AMR o safbwynt eu datblygu a’u gweithredu. Byddai canlyniad hyn yn llywio NPS yn y dyfodol ar gyfer technolegau niwclear ar lefel uwch.
2.27 Mae’r Cyngor yn nodi y gallai’r hyder a fyddai efallai’n deillio o ymagwedd o’r fath fod o gymorth mawr i waith clystyrau’r sector niwclear, fel Bwa Niwclear y Gogledd-orllewin (NWNA), sy’n weithgar iawn ledled cadwyn gyflenwi Gogledd Cymru a gogledd orllewin Lloegr, ynghyd â Chanolfan Ymchwil Gweithgynhyrchu Uwch Cymru (AMRC) yng Nglannau Dyfrdwy, cyfleuster Urenco yn Capenhurst, cyfleusterau gweithgynhyrchu tanwydd Westinghouse yn Springfields, Fforwm Niwclear Cymru, a chyrff ehangach fel y Ganolfan Ymchwil Gweithgynhyrchu Uwch Niwclear (NAMRC). Byddai hyn hefyd yn cynorthwyo gwaith parhaus Parthau Menter Ynys Môn, ac yn ehangach, Trawsfynydd, ynghyd â’r Partneriaethau Menter Lleol (LEPs) ledled Lloegr.
2.28 Mae’r Cyngor yn nodi bod y rhaglen ddatblygu ar gyfer yr ystod eang o dechnolegau niwclear, yn enwedig ymlaen i 2050, yn creu cyfle pwysig o ran datblygu sgiliau a thwf ar lefel leol a’r DU dros gyfnod o amser. Yn y cyd-destun hwn, caiff y Llywodraeth gyfle pwysig i barhau i ysgogi buddsoddiad mewn galluogi sgiliau, gan weithio gyda phartneriaid o fewn y diwydiant, ynghyd â’r byd academaidd a darparwyr dysgu, a hybiau arloesedd sy’n cefnogi twf busnes. Yn nhermau datblygiad posibl yn Wylfa, mae’r rhanddeiliaid allweddol yn cynnwys (ond nid yn gyfyngedig iddynt) y Cyngor, Llywodraeth Cymru, Bwrdd Uchelgais Economaidd Gogledd Cymru, MSParc, Menter Môn, Grŵp Llandrillo Menai, Prifysgol Cymru Bangor a Chwmni Egino.
2.29 Agweddau pwysig sy’n gysylltiedig â’r cyfle hwn o ran twf yw ymwybyddiaeth y gymuned ac wedyn, yn y pen draw, eu cefnogaeth. Mae’r Cyngor yn ystyried y gall y Llywodraeth ennyn hyder o fewn cymunedau i gael ‘trwydded gymdeithasol’ i letya rhaglen niwclear newydd yng Nghymru. Gadawyd cymunedau o fewn yr ynys a’i chyffiniau ag ymdeimlad o ansicrwydd yn sgil canlyniad y profiad o Wylfa Newydd. Mae rhai grwpiau cymunedol wedi amlygu siom enfawr, o ystyried lefel yr amser a fuddsoddwyd, ynghyd â’u dylanwad ar y broses, nad oedd modd cyflawni datblygiad a allai wireddu uchelgeisiau’r gymuned a’r datblygwr ar gyfer yr ynys. Yn y cyswllt hwn, dylai’r Llywodraeth ystyried y modd y gellir adennill yr hyder y bydd modd cyflawni’r datblygiad, gydag ymrwymiadau clir o ran y gymuned, swyddi a sgiliau ac ymgysylltiad â’r gadwyn gyflenwi yn cael eu hymgorffori o fewn rhaglen hyfyw. Yn yr un modd ag o ran sefydlu lleoliad y datblygiad a’r fframwaith o ran polisïau, mae’r Cyngor yn ystyried y gellir cefnogi’r materion hyn hefyd trwy weithgareddau ‘Great British Nuclear’ (GBN).
2.30 Byddai’r Cyngor yn dymuno i’r Llywodraeth sicrhau, wrth alluogi’r diwydiant niwclear i ymateb i’r ystod o dechnolegau niwclear a’u rhaglenni a’u cefnogi, y gellir sicrhau ymateb a arweinir gan y gymuned tuag at gyd-greu canlyniadau o ran datblygu (yn enwedig o ran datblygiadau cysylltiedig neu ategol).
2.31 Ochr yn ochr â chreu / llunio’r systemau rheoleiddio, trwyddedu a chynllunio defnydd tir sy’n gallu llywio datblygiad dyluniadau ar gyfer adweithyddion ar raddfa GW, ynghyd ag adweithyddion modiwlar bach ac adweithyddion modiwlar datblygedig, byddai’r Cyngor yn dymuno gweld y Llywodraeth yn sicrhau bod ymgysylltiad â’r gymuned yn cael ei gynnwys mewn modd priodol o fewn llwybrau datblygu disgwyliedig. Dylai hyn gyflenwi cyfnod cyn ymgeisio digon helaeth i ganiatáu i ddarpar ddatblygwr sicrhau bod ganddo ddealltwriaeth ddigonol o’r cyd-destun lleol (sy’n arbennig o bwysig o fewn amgylchedd unigryw fel Ynys Môn er enghraifft), a chaniatáu i gymunedau fynd ati i amlygu cyfleoedd ar gyfer sicrhau buddion lleol, ynghyd â chodi pryderon y gellir eu datrys trwy’r broses ddatblygu gynnar, gan gynnwys rhoi newidiadau ar waith o ran dyluniad y prosiect.
2.32 Mae’r Cyngor yn ffafrio proses agored a thryloyw, y mae’r penderfyniadau a wneir a’r cyfleoedd i ddylanwadu ar ganlyniadau oddi mewn iddi yn glir i bob rhanddeilydd. Yn ychwanegol i hyn, ac unwaith eto, fel y nodir yn ehangach o fewn y dystiolaeth hon, dymuna’r Cyngor weld cymeradwyaeth glir gan y Llywodraeth i’r egwyddor o Gytundebau Perfformiad Cynllunio (PPAs) a ariennir gan y datblygwr. Mae hyn yn sicrhau nad yw cyfranogiad awdurdodau lleol yn natblygiad rhaglenni ar draws yr ystod eang o dechnolegau niwclear yn dod yn faich ar drethdalwyr y DU, ac nad ydynt yn lleihau’r gwasanaethau sydd ar gael yn lleol i gymunedau a gynrychiolir gan awdurdodau lleol.
Crynodeb o’r Sylwadau Allweddol: Wrth sefydlu GBN a FNEF, mae’r Llywodraeth wedi cymryd camau pwysig ymlaen o ran ennyn hyder mewn rhoi lleoliadau ar gyfer datblygiadau niwclear ar waith, ynghyd â’i rôl o ran pontio i gyflawni sero net.
Mae’r Cyngor yn cydnabod bod GBN yn ei ddyddiau cynnar, a byddai’n argymell ei fod yn ymgysylltu ag awdurdodau lletyol profiadol fel CSYM er mwyn cael deall a dysgu mwy yn sgil ei brofiadau o ddatblygu prosiectau pŵer niwclear, yn enwedig o ran ymgysylltu â’r gymuned a’i chynrychioli.
Gan gydnabod y rôl hanfodol sydd gan brosiectau pŵer niwclear ar raddfa GW a MW (SMR / AMR) o safbwynt ennyn sicrwydd o ran y cyflenwad o ynni, ynghyd â chefnogi camau i gyflawni sero net, mae Llywodraeth y DU wedi nodi nifer o ymrwymiadau o ran strategaethau a pholisi y disgwylir iddynt gael effaith gadarnhaol ar gyflenwi’r rhaglen dros y deng i bymtheg mlynedd nesaf.
Mae’r Cyngor yn ymwybodol iawn o bwysigrwydd cyflymder y newid a fynnir ar draws y sector niwclear. Mae’r Llywodraeth wedi cymryd rhai camau pwysig iawn ymlaen o ran cefnogi twf technolegau niwclear modiwlar bach a datblygedig, gan gynnwys dyraniadau uniongyrchol i ddatblygwyr technoleg fel Rolls Royce, yn ogystal â galluogi cefnogaeth gyllidol ar gyfer cadwyn danwydd a chyflenwi’r DU.
Cafwyd camau cadarnhaol ymlaen yng nghyswllt y broses reoleiddio a thrwyddedu, sydd wedi creu mwy o sicrwydd i’r sefydliadau hyn sy’n datblygu technolegau gyda golwg ar eu cyflwyno yn y DU. Mae’r ansicrwydd ehangach yn parhau yng nghyswllt y system gynllunio defnydd tir, y cyfleoedd ar gyfer cyfranogiad y gymuned yn natblygiad y rhaglen, ynghyd â’r rolau a’r cyfrifoldebau ar gyfer GBN a’r effaith a ddisgwylir gan y FNEF.
a) Mae Llywodraeth y DU wedi sefydlu fframwaith y mae’n disgwyl cyflymu’r cyflenwad o 24GW o ynni niwclear oddi mewn iddo erbyn 2050. Mae galluogwyr allweddol o fewn y cyd-destun hwn yn cynnwys Cronfa Galluogi Niwclear y Dyfodol (FNEF), ffurfio Great British Nuclear (GBN), ynghyd â’r potensial o ran symleiddio prosesau caniatadau a thrwyddedau fel yr awgrymwyd yn y Strategaeth Diogelwch Ynni. Er ei bod yn glir bod angen ymyriadau o’r fath i ddarparu newid ystyrlon i’r rhaglenni i gyflwyno datblygiadau ynni niwclear newydd a brofwyd hyd yma, ac mae’r Cyngor yn cefnogi’r newid hwnnw yng nghyd-destun llwybr tuag at gyflawni sero net, byddai’r Cyngor yn dymuno amlygu pwysigrwydd ystyriaeth gyflawn o anghenion. Mae’r rhain yn cynnwys cyflawni sero net a sicrwydd o ran y cyflenwad o ynni, ynghyd â gofynion ehangach o safbwynt etifeddiaeth gadarnhaol, lleihau effeithiau andwyol, ynghyd â chapasiti i hybu / ymestyn effeithiau cadarnhaol, gan gynnwys y rheiny sy’n ymwneud â’r economi, amddiffyn asedau naturiol, lles a chydlyniant cymunedol.
b) Mae’r Cyngor yn rhagweld y bydd y posibilrwydd o ddatblygu SMR / AMR yn dod yn fwy tebygol yn y deg i bymtheg mlynedd nesaf. Mae capasiti rhaglenni o’r fath o ran y posibilrwydd o’u cyflenwi’n gyflymach na datblygiadau niwclear ar raddfa GW yn debygol o fod yn ddeniadol, yn enwedig yng nghyd-destun amcan 24GW Llywodraeth y DU ar gyfer ynni niwclear erbyn 2050, fel y nodwyd yn y Strategaeth Diogelwch Ynni. Mae’r Cyngor yn cydnabod y rôl bwysig sydd gan dechnolegau SMR / AMR efallai o ran y system ynni, ac yn cydnabod y bydd sawl datblygwr ym maes y technolegau hyn yn targedu’r un safleoedd â rhai’r fflyd drwyddedig o safleoedd niwclear sy’n bodoli eisoes, gan gynnwys Wylfa er enghraifft. Mae’r Cyngor yn ystyried y bydd angen i unrhyw fath o ddatblygiad niwclear, bo hwnnw ar raddfa GW neu SMR / AMR, ystyried yr un cyfleoedd ar gyfer cynnal deialog rhagweithiol a dylanwadu ar ganlyniadau, er budd cymunedau, ac yn unol ag ymrwymiadau ehangach, gan gynnwys Deddf Lleisiant Cenedlaethau’r Dyfodol (Cymru) 2015.
c) Dylai’r Llywodraeth barhau i fuddsoddi yn ei chymorth o ran datblygu’r gadwyn gyflenwi (er enghraifft, fel rhan o’r Rhaglen Arloesedd Ynni) er mwyn caniatáu i gymuned letyol unrhyw ddatblygiad niwclear, o fewn y DU a Chymru, elwa ar y cyfle hwn sy’n datblygu o ran y farchnad. Dylai’r Llywodraeth geisio sicrhau ei bod yn cynnal cysylltiadau rhwng y diwydiant, y byd academaidd a chyrff ymchwil, a chyrff cyhoeddus a preifat, a dylai annog y rheiny a chanddynt gylch gorchwyl sy’n cynnwys cydweithredu rhanbarthol, fel NWNA, i barhau i ymgysylltu. Gyda chefnogaeth y Llywodraeth, dylai’r DU sicrhau ei bod yn cynnal ac yn hybu’r galluogrwydd hirdymor o ran cynhyrchu / y cylch tanwydd, ochr yn ochr â chymwysiadau niwclear datblygedig newydd.
d) Dylai’r Llywodraeth sicrhau bod FNEF yn cael ei thargedu’n briodol (ochr yn ochr â chyllid ehangach ar gyfer datblygu technoleg) i gynorthwyo gyda sefydlu cyfryngau datblygu / cyflenwi credadwy ac integredig (sefydliadau), sy’n gallu dwyn ynghyd gofynion sefydliad datblygu, ac o ran safle a thechnoleg gredadwy, i gyflawni cynnydd pendant tuag at ganfod datrysiadau ar safleoedd ar gyfer technolegau niwclear datblygedig. Dylai’r Llywodraeth fynd ati’n rhagweithiol i rannu arferion gorau, yn enwedig o ran sefydliadau sy’n newydd i’r DU, ynghylch cyflenwi rhaglenni, fel y rheiny a nodir gan yr Awdurdod Seilwaith a Phrosiectau.
e) Tra bo’r Llywodraeth wedi creu mwy o sicrwydd o ran GDA ar gyfer technolegau niwclear datblygedig, mae’r fframwaith polisi ehangach o safbwynt defnydd tir yn dal i fod heb ei ddatrys. Dylai’r Llywodraeth ymrwymo i raglen o Asesiadau Lleoli Strategol (SSA) sy’n cefnogi dull sy’n seiliedig ar feini prawf i fynd i’r afael â lleoli SMR / AMR mewn modd credadwy. Yn ogystal, mae angen canfod y cydbwysedd y dylid ei gael gyda’r safleoedd hynny sydd wedi’u dyrannu ar gyfer technolegau 1GW+, fel y nodir o fewn yr NPS. Dylai’r Llywodraeth hefyd fwrw ymlaen â sefydlu NPS sy’n mynd ati’n benodol i ganfod safleoedd ar gyfer SMR / AMR, er mwyn darparu mwy o sicrwydd o safbwynt datblygu gofodol. Dylid cysoni hyn ochr yn ochr â’r amryw ofynion gweithredu ar gyfer SMR / AMR yn erbyn datblygiad niwclear ar raddfa GW. Mae’r Cyngor yn ystyried y gallai hyn ffurfio rhan o’r cylch gorchwyl ar gyfer ‘Great British Nuclear’ (GBN).
f) Mae’r Cyngor yn gweld bod gan y Llywodraeth rôl bwysig bosibl o ran cefnogi’r gwaith o ddod â’r diwydiant, rheoleiddwyr (gan gynnwys Cyfoeth Naturiol Cymru), y byd academaidd a chyrff ymchwil at ei gilydd, yn ogystal â datblygu trwydded gymdeithasol gyda darpar gymunedau lletyol. Wrth fynegi buddion, mae angen ystyried buddiannau a phrofiadau’r gymuned leol, yn enwedig os mae lefelau hyder yn y modd y cyflenwir y rhaglen yn isel, yn seiliedig ar brofiadau blaenorol, e.e. Wylfa Newydd.
g) Mae’r Cyngor yn disgwyl cefnogaeth ar gyfer ymgysylltu â’r awdurdod lleol fel partner allweddol o safbwynt datblygu’r rhaglen ar y lefel leol. Byddai’r Cyngor yn gwerthfawrogi pe bai’r Llywodraeth yn cymeradwyo ymagwedd yn seiliedig ar Gytundeb Perfformiad Cynllunio (PPA), ac yn nodi’r disgwyliadau o safbwynt datblygwyr posibl.
3.0 Beth yw’r effaith economaidd bosibl i Gymru o gael gorsaf ynni niwclear newydd yn Wylfa?
3.1 Mae gan yr ynys a’i chymunedau berthynas hirdymor a chadarnhaol â’r sector niwclear. Mae hyn yn cynnwys y buddion economaidd-gymdeithasol hirdymor sydd wedi’u gwireddu ar lefel leol a rhanbarthol trwy gydol cyfnod gweithredu gorsaf Wylfa A, ynghyd â’i symudiad tuag at ddatgomisiynu.
3.2 Yn 2019, amcangyfrifwyd bod gwerth GVA ar Ynys Môn yn £1.02 biliwn, sef cynnydd o 8.6% ers 2009. Fodd bynnag, roedd y twf o ran GVA yn gryn dipyn yn is na hynny yng Ngogledd Cymru, Cymru a’r DU, lle gwelwyd cynnydd o 15.8%, 18.4% a 20.8% yn y drefn honno. Y sector eiddo tirol a ddarparodd y cyfraniad mwyaf sylweddol i GVA yn gyffredinol ar Ynys Môn yn 2019 (£183.8m neu 18%) o bell ffordd, ac, ar gyfartaledd, roedd yn llawer uwch nag mewn ardaloedd cymharol. Roedd sectorau pwysig eraill ym Môn yn cynnwys Trafnidiaeth Tir, Storio a Phostio, Gwasanaethau Llety a Bwyd, Addysg, Manwerthu, Gweinyddiaeth Gyhoeddus ac Amddiffyn, a Chyfleustodau.
3.3 Bu effaith pandemig Covid-19 yn ddwfn. Mae nodweddion arbennig economi Cymru’n debygol o gyflwyno heriau mwy amlwg o safbwynt adferiad, o gymharu â’r DU. Mae Cymru (ac yn wir Gogledd Orllewin Cymru), yn nodweddiadol, wedi profi cyfran uwch o weithwyr ar gyflog isel, a (trwy gydol Covid) cyfran uwch o weithwyr mewn sectorau oedd wedi ‘cau’, fel manwerthu a lletygarwch. Dros amser, rhagwelir hefyd y bydd newid ym mhroffil oedran poblogaeth breswyl Cymru. Mae data gan Experian yn nodi y rhagwelir y bydd cynnydd o tua 33% yn nifer y rhai dros 64 oed hyd at 2040, ynghyd â gostyngiad o tua 5% yn yr ystod oedran 16 i 64. Tra disgwylir y bydd twf cyffredinol ym mhoblogaeth Cymru o tua 4% dros y cyfnod hwn, hyd at 2040, disgwylir y caiff hyn ei hybu gan y cynnydd yn y boblogaeth 64+, a chanddynt wahanol anghenion, ynghyd â lefelau is o gyflogaeth llawn amser mewn meysydd a allai gefnogi rhaglen adeiladu datblygiad niwclear newydd.
3.4 Mae economi Ynys Môn a Gogledd Cymru’n wynebu heriau sylweddol, o safbwynt adferiad o ganlyniad i’r pandemig Covid-19, ynghyd â’r newid i boblogaeth sy’n heneiddio, yn ogystal â dibyniaeth uchel ar sectorau cyflogaeth cymharol fregus. Bydd y potensial o ran cyflogaeth hirdymor yng nghyswllt gorsaf Wylfa A i gymunedau lleol ym Môn yn lleihau dros amser. Mae’r Cyngor yn nodi bod y cyd-destun hwn yn arbennig o bwysig wrth ystyried y cyfleoedd sy’n gysylltiedig â rhaglen adeiladu datblygiad niwclear newydd yn Wylfa, o ran eu heffaith fawr ar GVA.
3.5 O ran ystyried cryfder cymharol yr economi, yn enwedig ym Môn a’r cyffiniau, ac yn dilyn y pandemig Covid-19 byd-eang, cafwyd dibyniaeth cymharol uchel ar orsaf Wylfa A Magnox o safbwynt cyflogaeth, ac felly gweithgaredd economaidd.
3.6 Roedd adroddiad a baratowyd gan Economic Insights Ltd ar gyfer y NDA yng Ngorffennaf 2018[27] yn cadarnhau mai Wylfa (£39m) sy’n cael yr effaith fwyaf ar GVA ar lefel leol.
3.7 Mae’r adroddiad hefyd yn cyfrifo cyfraniad y safleoedd i weithgaredd economaidd yn eu hardaloedd lleol. Mae cyfanswm y swyddi a gefnogir gan safle yn ei ardal awdurdod lleol yn amrywio o 0.1% (Oldbury) i 1.9% (Wylfa) o’r holl swyddi o fewn ardal awdurdod lleol y safle. Mae safleoedd yn cyfrif am gyfran ychydig yn uwch o GVA yn eu hardaloedd awdurdod lleol oherwydd eu bod yn ymgymryd â gwaith o werth cymharol uchel. Wylfa sy’n gwneud y cyfraniad mwyaf o ran GVA mewn perthynas â’i ardal awdurdod lleol, ar lefel o 3.9%.
3.8 Mae’r adroddiad yn mynd ymlaen i gadarnhau bod prif sianel yr effeithiau lleol yn deillio o gyflogaeth uniongyrchol yn y safleoedd, ac mae hyn yn bennaf oherwydd bod y safleoedd yn darparu swyddi i bobl sy’n byw yn yr ardaloedd lleol. Mae gweithwyr wedyn yn cefnogi rhagor o swyddi a gweithgaredd economaidd, trwy wario eu cyflogau - sy’n uwch na chyfartaleddau cenedlaethol - mewn ardaloedd lleol. Mae’r mwyafrif o’r gweithwyr yn byw o fewn yr ardal awdurdod lleol y lleolir eu safle ynddi, neu o fewn yr ardaloedd sy’n gyfagos iddi. Fel y cyfryw, o gymharu ag ardaloedd eraill, gwelir bod yr effeithiau o ran cyflogaeth wedi’u canoli o fewn yr economïau lleol.
3.9 Fel y nodwyd eisoes yn yr ymateb hwn, mae’r Cyngor yn cydnabod bod gan unrhyw brosiect niwclear newydd yn Wylfa y potensial i drawsnewid economi Ynys Môn, yn enwedig gogledd yr ynys, yn ogystal â rhanbarth Gogledd Cymru a thu hwnt, ynghyd â darparu’r posibilrwydd o gyfleoedd tymor byr, tymor canolig a hirdymor o safbwynt cyflogaeth a datblygu economaidd.
3.10 Yn nhermau Prosiect Wylfa Newydd Horizon, roedd adroddiad gan Miller Research ar gyfer Llywodraeth Cymru, sef y ‘Nuclear Capability Study’ (Medi 2014)[28], yn amlygu’r buddsoddiad a gynlluniwyd ar gyfer adeiladu safleoedd newydd a datgomisiynu yng Nghymru, ynghyd â galluogrwydd cwmnïau yng Nghymru, a’r rhagolygon posibl o ran busnes os ydynt yn manteisio ar y cyfleoedd sydd ar gael.
3.11 Roedd yr adroddiad yn egluro’r buddsoddiad posibl, y cyfleoedd i fusnesau yng Nghymru, a rhai o’r materion a’r canfyddiadau yr oedd angen mynd i’r afael â hwy er mwyn gwneud y gorau o’r buddion posibl, a oedd yn cynnwys yr angen am ymdrech ddwys o safbwynt busnesau, y diwydiant, a’r sectorau cyhoeddus a phreifat.
3.12 Roedd y buddion economaidd allweddol a amlygwyd yn yr adroddiad yn
cynnwys:
- Ar ei huchaf, byddai nifer y swyddi adeiladu’n dod i gyfanswm o 6,800.
- Gallai’r prosiect fod wedi gweld £5bn yn cael ei wario ar fusnesau yng Nghymru.
- Mae amcangyfrifon yn awgrymu y byddai costau cynllunio ac adeiladu ar gyfer Wylfa Newydd yn tua £14bn (hyd at 2024 ac yn caniatáu ar gyfer chwyddiant), tra bydd £3.7bn pellach yn cael ei gyfrannu (hyd at 2033) pan fydd yn weithredol.
- Amcangyfrifir y gellid gwario 34% o gost adeiladu’r orsaf newydd yng Nghymru, ac ar ei anterth, yn 2021, disgwylir y caiff 6,800 o bobl eu cyflogi yn y gwaith o adeiladu’r safle.
- Ar ei uchaf, disgwylir y bydd y gweithlu gweithredol yn dod i gyfanswm o 875 yn 2025.
- Rhwng 2013 a 2033, rhagwelir y bydd gwaith cynllunio, adeiladu, gweithredu a chynnal y safle’n gwneud cyfraniad, o safbwynt gwerth ychwanegol gros (GVA), o £2.4bn (prisiau 2013) i GDP Cymru.
- Ar ôl i’r safle ddechrau cynhyrchu trydan, rhagwelir y bydd yn cyfrannu bron i £87m o safbwynt gwerth ychwanegol gros bob blwyddyn (yn ôl prisiau 2013).
- Disgwylir y bydd y broses ddatgomisiynu yn Wylfa yn cyfrannu £630m o safbwynt GVA i economi Cymru dros 20 mlynedd, gyda chyfraniad ychwanegol o £310m yn ddisgwyliedig o ganlyniad i’r gwaith datgomisiynu parhaus yn Nhrawsfynydd rhwng 2013 -2033.
- Rhagwelir y bydd cyfanswm y cyfraniad i economi Cymru o safbwynt GVA, o ganlyniad i’r gwaith cynllunio, adeiladu, gweithredu a datgomisiynu, yn tua £5.7bn rhwng 2013 a 2033, sy’n cynrychioli 0.5% o gyfanswm GVA yng Nghymru dros y cyfnod hwn o 20 mlynedd.
3.13 Yn unol â gweledigaeth y RhYY, mae’r Cyngor yn cefnogi unrhyw brosiect niwclear newydd yn Wylfa ar y sail bod y prosiect yn cyflenwi buddion economaidd-gymdeithasol trawsnewidiol i’r cymunedau lletyol. O ran ei ymagwedd at unrhyw ddatblygiadau mawr, mae’r Cyngor yn mabwysiadu’r Egwyddor Agosrwydd. Mae’r Egwyddor Agosrwydd yn gofyn am ddull dilyniannol o weithredu, gan roi ystyriaeth yn y lle cyntaf i’r effeithiau ar gymunedau cyfagos. Fel y mae’r effeithiau a brofir yn lleihau yn ôl eu pellter o’r prosiect, mae’r angen am ddarparu buddion a mesurau lliniaru, gan gynnwys digolledu, yn lleihau hefyd.
3.14 Mabwysiadodd y Cyngor yr Egwyddor Agosrwydd er mwyn llywio ei safbwynt ar gyfer cais DCO Wylfa Newydd Horizon. Roedd hyn yn sicrhau bod yr holl fuddion, mesurau lliniaru a digolledu yn cael eu canoli ar y gymuned letyol yn y lle cyntaf, yn unol â’r mannau a effeithir fwyaf o ganlyniad i effeithiau cyfnodau’r prosiect.
3.15 Bu nifer y preswylwyr o oedran gweithio ar yr ynys yn gostwng, a rhagwelir y bydd hyn yn parhau. Felly, o safbwynt iechyd economaidd, ac o ran gallu economi’r ynys i dyfu, mae’n bwysig ceisio arafu nifer y bobl ifanc sy’n gadael yr ynys, a bod pobl o oedran gweithio’n cael eu denu i mewn i’r economi. Er mwyn helpu i gau’r bwlch o ran cyflogau a chynhyrchiant, mae’n rhaid i swyddi a gaiff eu creu ar yr ynys dalu’n dda a denu ymgeiswyr â lefel uwch o sgiliau, gan gynnwys gweithwyr proffesiynol. Mae’r Cyngor yn cydnabod bod gan y posibilrwydd o alw mawr am swyddi ar gyfer datblygiad niwclear newydd yn Wylfa y potensial i gynorthwyo i ddenu pobl fedrus iawn i Ynys Môn.
3.16 Yn ei Adroddiad ar yr Effaith Leol (LIR) ar gyfer datblygiad Wylfa Newydd Horizon, roedd y Cyngor yn cadarnhau bod gan y prosiect y potensial i gyfrannu at newid hirdymor yn strwythur economi Ynys Môn. Bydd yn creu swyddi â chyflogau uwch yn ystod pob cyfnod o’r prosiect, gan symud busnesau lleol i fyny’r gadwyn werth trwy wasanaethau cyrchu a chefnogi, a denu busnesau newydd a mewnfuddsoddiad sy’n gysylltiedig â’r prosiect.
3.17 O ran yr effeithiau economaidd posibl a fyddai’n codi o ganlyniad i orsaf bŵer niwclear newydd, o safbwynt lleol, rhanbarthol ac yn ehangach na hynny, fe gawsant eu hasesu a’u nodi fel rhan o’r Datganiad Amgylcheddol a gyflwynwyd fel rhan o gais Pŵer Niwclear Horizon am Orchymyn Cydsyniad Datblygu (DCO) ar gyfer datblygiad arfaethedig Wylfa Newydd.
3.18 Roedd cais DCO Horizon ar gyfer Wylfa Newydd yn cadarnhau’r effeithiau cadarnhaol a ganlyn ar y farchnad lafur[29]:
a) Creu o leiaf 2,000 o swyddi lleol newydd (90-munud i’r safle) yn ystod y cyfnod adeiladu;
b) Ymrwymiad i gyflawni 85% o 850 o swyddi lleol yn ystod y cyfnod gweithredol, swyddi hynod gynhyrchiol gyda chyflogau uwchlaw’r cyfartaledd cenedlaethol;
c) Potensial i bobl leol ymgymryd â chyfran o’r 1,000 o rolau cyfnodau segur;
d) Potensial i wrthdroi’r gostyngiad yn y boblogaeth oedran gweithio;
e) Potensial i lefelau GVA gynyddu’n sylweddol yn y tymor byr.
3.19 Roedd cais DCO Horizon ar gyfer Wylfa Newydd yn cadarnhau’r effeithiau negyddol a ganlyn ar y farchnad lafur;
a) Potensial i ddadleoli llafur, gan leihau'r ychwanegiad net sy'n deillio o Wylfa Newydd;
b) Busnesau Bach a Chanolig, microfusnesau a'r rhai hunangyflogedig yn cael eu denu i brosiect Wylfa Newydd ac yn methu â chynnal gweithgareddau busnes fel arfer (domestig a diwydiannol ysgafn) i wasanaethu anghenion yr economi leol;
c) Dadleoli Cynnyrch.
3.20 Yn unol â’i safbwynt o ran cais Horizon, mae’r Cyngor yn cadarnhau, os yw'r buddsoddiad am fod yn wirioneddol drawsnewidiol ac am gael effaith hirdymor, yna mae angen gwneud y mwyaf o gyfran y swyddi llafur lleol sydd eu hangen, nid dim ond ar adeg y cyfnodau prysuraf, ond yn ystod pob blwyddyn o’r gwaith adeiladu a gweithredu. Hefyd, mae cefnogaeth y Cyngor wedi'i seilio ar greu amrywiaeth eang o swyddi uniongyrchol ac anuniongyrchol. Maent yn amrywio o wasanaethau cymorth, i swyddi technegol a phroffesiynol medrus iawn ar gyfer pobl leol sydd mewn gwaith ar hyn o bryd, sydd heb waith digonol, sy’n gadael ysgol, coleg a phrifysgol, sy’n ddarpar ddychwelwyr, sydd wedi bod yn ddi-waith am gyfnod hir, ynghyd â phobl ifanc sydd 'Ddim mewn Addysg, Cyflogaeth na Hyfforddiant' (NEETs).
g) Gwariant lleol – byddai gwariant lleol o £200-£400m yn cael effaith gadarnhaol yn syth;
h) Cyfleoedd i fusnesau – darparu cyfleoedd i fusnesau ennill contractau am nifer o flynyddoedd gan felly sicrhau bod swyddi'n cael eu creu;
i) Etifeddiaeth o uwchsgilio ac ysbryd cystadleuol - Bydd angen i fusnesau'r ardal uwchsgilio i ddod yn rhan o'r gadwyn gyflenwi. Yn ei dro, bydd hyn yn gadael etifeddiaeth barhaol o ennill contractau pellach a dod yn fwy cystadleuol;
j) Porthladd Caergybi - Bydd sicrhau bod y porthladd yn chwarae rôl weithredol ac ystyrlon yn y gadwyn gyflenwi'n arwain at fuddsoddiad uniongyrchol gan greu nifer o swyddi dros y cyfnodau adeiladu a gweithredol, am nifer o flynyddoedd;
k) Safleoedd ac adeiladau - Byddai datblygiad Wylfa Newydd yn arwain at greu safleoedd ac adeiladau ychwanegol ar Ynys Môn ac yng Ngogledd Cymru ar gyfer busnesau brodorol a mewnfuddsoddwyr;
l) Cyfleoedd anuniongyrchol - Er na fyddent yn uniongyrchol gysylltiedig â datblygiad Wylfa Newydd, bydd digonedd o gyfleoedd anuniongyrchol, o ddarparu llety ar gyfer y gweithwyr adeiladu, i goginio, glanhau ac yn y blaen.
3.22 Roedd cais DCO Horizon ar gyfer Wylfa Newydd yn cadarnhau’r effeithiau negyddol a ganlyn ar y gadwyn gyflenwi:
d) Dadleoli - Mae potensial sylweddol y bydd y datblygiad - yn enwedig o ganlyniad i fargen gyflogau Hinkley - yn cael effaith andwyol ar y gadwyn gyflenwi leol, gan achosi dadleoli ac wedyn cwmnïau lleol yn methu ag ail-lenwi swyddi;
e) Busnesau lleol a hunan-gyflogwyr yn crebachu (dim ychwanegedd);
f) Y sector twristiaeth yn crebachu;
a) Senario ffyniant a methiant - Byddai'r effeithiau negyddol a welir drwy gydol y cyfnod adeiladu'n aros ar ôl i effeithiau cadarnhaol y cyfnod adeiladu ddod i ben.
3.23 O ran yr effeithiau negyddol a gadarnhawyd uchod, ac ym mharagraff 3.14, trwy ei ymgysylltiad â Horizon, trafododd y Cyngor fesurau lliniaru a digolledu i helpu i ddelio â’r effeithiau a nodwyd (cadarnhaol a negyddol). Roedd hyn yn cynnwys Horizon yn paratoi Strategaeth Swyddi a Sgiliau, ynghyd â Chynllun Gweithredu ar gyfer y Gadwyn Gyflenwi, a oedd yn cadarnhau mesurau a dulliau’r datblygwyr ar gyfer lleihau effeithiau andwyol a gwneud y gorau o’r buddion.
3.24 O ran y galw am weithwyr yn ystod y cyfnod adeiladu, roedd dadansoddiad Horizon (ar gyfer datblygiad ar raddfa GW+) yn awgrymu y byddai angen cyfanswm o 9,000 ar ei anterth, gyda’r posibilrwydd y byddai tua 2,000 o’r swyddi hyn yn cael eu cyflawni gan weithwyr sy’n byw o fewn parth cymudo dyddiol presennol Wylfa. Defnyddiodd Horizon luosydd ychwanegol o 1.9 i gyfrifo’r swyddi anuniongyrchol a’r rhai a gaiff eu creu yn sgil y datblygiad, ac roedd hyn yn awgrymu y byddai 1,800 o swyddi eraill yn cael eu creu trwy’r gwaith adeiladu o fewn y parth cymudo dyddiol. Nid yw’r cyfansymiau hyn, o ran y galw am weithwyr ar gyfer adeiladu datblygiad niwclear ar raddfa GW, yn anghyson â’r ffigyrau bras a nodwyd gan EDF Energy (NNB Genco) ar gyfer Hinkley Point C a Sizewell C. Yn y cyd-destun hwn, maent yn gweithredu fel procsi rhesymol o ran y cyfleoedd cyflogaeth tebygol a gyflwynir gan brosiect adeiladu ar raddfa GW o fewn ardal Gogledd Cymru ac yn ehangach.
3.25 O ystyried bod proffil y galw am weithwyr adeiladu’n mynd y tu hwnt i’r nifer sydd efallai’n byw o fewn y parth cymudo dyddiol, roedd Horizon yn cydnabod y byddai angen adeiladu llety pwrpasol ar gyfer gweithwyr. Roedd hyn yn cynnwys (a chynigiwyd hyn yn y DCO) 4,000 mewn llety dros dro i weithwyr, a gyda disgwyl i 3,000 ddefnyddio llety presennol / newydd.
3.26 Yn yr hyn a gyflwynwyd gan Horizon, cafwyd dadansoddiad manwl, a gefnogwyd gan fodel disgyrchiant a oedd yn dadansoddi dosbarthiad y gweithwyr a’r dewisiadau o ran llety, a oedd yn amlygu’r ddarpariaeth sydd ar gael wrth gefn ynghyd â’r galw. Ar y sail y byddai angen ‘llety i bob gweithiwr’, nodwyd fod y galw (746) yn uwch na’r ddarpariaeth wrth gefn (604) o fewn yr ardal a nodir fel Gogledd Ynys Môn er, yn nodweddiadol, bod y dadansoddiad yn awgrymu bod capasiti i gwrdd â’r galw.
3.27 Er hynny, roedd y Cyngor yn nodi angen am Gronfa Tai, fel elfen y gellir ei negodi o fewn y pecyn rhwymedigaethau Adran 106, i gynorthwyo i fynd i’r afael â’r pwysau ar y stoc dai sydd ar gael. Disgwylir y byddai angen mesurau tebyg gan unrhyw gynigion yn y dyfodol ar gyfer datblygiad niwclear newydd yn Wylfa, yn enwedig gan fod y farchnad dai ar yr ynys o dan ragor o bwysau yn dilyn y pandemig.
3.28 Fel mater ehangach, daeth Horizon i’r casgliad bod digon o ddarpariaeth ychwanegol, ac felly nad oedd unrhyw effaith arwyddocaol yn gysylltiedig â dadleoli o safbwynt llety i dwristiaid. Roedd hyn yn parhau i fod yn destun pryder i’r Cyngor, a byddai angen mynd i’r afael â hyn o fewn unrhyw gynigion yn y dyfodol ar gyfer adeiladu datblygiad niwclear newydd.
3.29 Byddai angen i unrhyw ddarpar ddatblygiad niwclear newydd ystyried yr effeithiau posibl ar wasanaethau cyhoeddus, gan gynnwys darpariaeth addysg, plismona, gwasanaethau tân ac achub, gwasanaethau hamdden a chymunedol, yn ogystal â meddygon teulu, deintyddion a gwasanaethau meddygol ehangach. Nodir yma, o safbwynt cais Wylfa Newydd Horizon, yr aethpwyd i’r afael â’r materion hyn o ran gwasanaethau clinigol fel rhan o Asesiad o’r Effaith ar Iechyd yn sgil y cynllun.
3.30 Yng nghyswllt lleoedd mewn ysgolion, nid oedd Horizon wedi canfod unrhyw bwysau ychwanegol arwyddocaol ar leoedd addysgol. Unwaith eto, mewn ymateb i argymhellion y Cyngor, rhoddwyd darpariaeth addas ar waith ar gyfer cynnal Asesiad o’r Effaith ar yr Iaith Gymraeg (AEIG) a oedd, yn benodol, yn nodi darpariaeth o ran cymorth o safbwynt yr iaith ar gyfer disgyblion newydd (i sicrhau cefnogaeth ehangach ar gyfer y Gymraeg a’i diwylliant). Roedd hyn yn cynnwys cyfraniad a darpariaeth wrth gefn o fewn y cytundeb a106.
3.31 O ran y potensial am ddadleoli neu effeithiau andwyol ar gyfleusterau cymunedol neu hamdden, roedd Horizon yn haeru y byddai darpariaeth ar y safle, yn enwedig yng nghyswllt y llety a gaiff ei adeiladu’n bwrpasol i weithwyr, yn cyfyngu’r effeithiau ehangach posibl ar adnoddau cymunedol, gan gynnwys y rheiny sy’n gysylltiedig â thwristiaeth. Roedd hyn yn parhau i fod yn destun ansicrwydd a phryder mawr i’r Cyngor. Yn arbennig, byddai’r Cyngor yn dymuno gweld sylfaen dystiolaeth gref, wedi’i chysylltu â model ddisgyrchiant trylwyr, a fyddai’n nodi dosbarthiad gofodol disgwyliedig y gweithlu, ynghyd â’r effeithiau ar lety i weithwyr, a’r pwysau posibl ar asedau twristiaeth o ganlyniad i unrhyw gynigion ar gyfer datblygiad newydd.
3.32 Tra bu cryn drafodaeth am y cyfleoedd o safbwynt gwaith adeiladu o fewn y cynigion ar gyfer Wylfa Newydd, nodir y byddai gofynion cyfnod gweithredu’r cynigion ar gyfer Adweithydd Dŵr Berw Uwch (ABWR) GW+ wedi darparu 850 o swyddi parhaol. Roedd Horizon yn ystyried y byddai tua 85% o’r rolau hyn o fewn y parth cymudo dyddiol, h.y. yr ystyrir y byddir yn eu darparu o’r ardal leol. Bu’r Cyngor yn gweithio gyda Horizon i gyd-ddatblygu amryw fesurau a allai helpu i ddiogelu’r rolau lleol hyn, gan gynnwys: datblygu gwybodaeth a hyfforddiant; gweithio gydag ysgolion a darparwyr addysg i ymgysylltu â STEM; prentisiaethau; cyfleoedd o ran profiad gwaith / lleoliadau; rhaglenni i raddedigion, ynghyd â chefnogi pobl brofiadol o’r farchnad lafur bresennol. O ystyried y pwyslais ar y gyflogaeth leol, disgwyliwyd y byddai tua 15%, neu 127, o staff gweithredol yn dod o’r tu hwnt i’r parth cymudo dyddiol. Byddai hyn yn creu galw cysylltiedig cyfyngedig ar lety neu wasanaethau cyhoeddus. Byddai’r Cyngor yn nodi y byddai effeithiau o’r fath yn adlewyrchu’r ymagwedd ragweithiol a gymerwyd, ynghyd â llwyddiant cyflogi gweithwyr lleol yn ystod y cyfnod gweithredol.
- Sicrhau cymaint o fuddion economaidd-gymdeithasol ag y bo modd, o safbwynt lleol a rhanbarthol, o ganlyniad i gynnig ar gyfer datblygiad niwclear newydd yn y dyfodol
3.33 O ran sicrhau bod unrhyw brosiect niwclear yn cyflwyno cymaint o gyfleoedd economaidd-gymdeithasol trawsnewidiol ag y bo modd, a gan feddwl am brofiad y Cyngor o ymgysylltu â phrosiect Wylfa Newydd Horizon, mae’n hanfodol i sicrhau ymgysylltiad a chydweithrediad rhwng rhanddeiliaid allweddol yn gynnar yn y broses.
3.34 O ran unrhyw ddatblygiad niwclear newydd yn Wylfa yn y dyfodol, mae’r rhanddeiliaid allweddol yn cynnwys (ond nid yn gyfyngedig iddynt) y Cyngor, Llywodraeth Cymru, Bwrdd Uchelgais Economaidd Gogledd Cymru, MSParc, Menter Môn, Grŵp Llandrillo Menai, Prifysgol Cymru Bangor, NWNA, WNF a’r NIA.
3.35 Mae angen cael dealltwriaeth a chadarnhad o ofynion y prosiect ar draws ei gyfnodau datblygu yn gynnar yn y broses, er mwyn mapio hyn yn erbyn yr hyn sydd ar gael yn lleol o ran swyddi, sgiliau a’r gadwyn gyflenwi. Mae hyn yn sicrhau y gellir canfod unrhyw fylchau o ran darpariaeth leol, ynghyd â chydweithredu i sicrhau y caiff cynlluniau a rhaglenni eu sefydlu mewn modd amserol i lenwi’r bylchau hyn, yn ogystal â sicrhau’r buddion a’r cyfleoedd mwyaf o safbwynt lleol a rhanbarthol, a gwytnwch i reoli sefyllfa o ran dadleoliad llafur.
3.36 Mae cyfleoedd o safbwynt STEM a gwaith maes addysgol yn hanfodol hefyd i sicrhau bod capasiti digonol o ran sgiliau yn yr arfaeth, trwy gydol oes y datblygiad.
3.37 Yng ngolau strategaeth y Llywodraeth i gyflawni sero net, ynghyd â chynnwys amryw fathau o dechnoleg, mae’n hanfodol i sicrhau bod capasiti digonol a phriodol o ran swyddi, sgiliau a’r gadwyn gyflenwi ar gyfer y sector ynni adnewyddadwy cyfan. Unwaith eto, mae hyn yn gofyn am gydweithredu ac ymgysylltu ag amryw randdeiliaid allweddol.
3.38 O dan RhYY y Cyngor, mae’r portffolio datblygu yn eang iawn ar hyn o bryd, ac yn cynnwys datblygiadau ynni llanw, gwynt ar y môr, solar, hydrogen a datblygiad niwclear posibl. Mae angen sicrhau cysondeb a synergedd rhwng yr holl ddatblygiadau, datblygwyr a’r cyfleoedd a gyflwynir.
3.39 Bydd y Cyngor yn dymuno i’r llinell sylfaen economaidd-gymdeithasol leol ar gyfer unrhyw gais fod yn gwbl gyfredol. Dylai gadarnhau’r llinell sylfaen bresennol ar gyfer yr ynys i sicrhau y gellir cynnal asesiad priodol a boddhaol o’r effeithiau posibl (negyddol a manteisiol), gan arwain at ganfod mesurau lliniaru a chytuno arnynt.
3.40 Mae’r Cyngor yn ymwybodol iawn, o’i asesiad o gynnig Horizon ar gyfer Wylfa Newydd, bod angen canfod cydbwysedd priodol o ran annog gweithwyr i ganfod llety yn yr ardal leol (gan gynnwys er mwyn lleihau’r effaith ar gludiant lleol), gan reoli’r effeithiau posibl o ganlyniad i weithwyr tai yn byw’n agos i’r safle, ynghyd â’r effaith ar y cymunedau lleol hynny, sy’n cynnwys yr effaith ar y Gymraeg, ei diwylliant, a’r ddarpariaeth o wasanaethau lleol.
3.41 Trwy gydol y cyfnod cyn ymgeisio a chyflwyno’r DCO, cyflwynodd y Cyngor sylwadau helaeth ynghylch yr angen i sicrhau cefnogaeth briodol i gymunedau lletyol trwy becynnau rhwymedigaethau a106 / cynlluniau buddion cymunedol, i fynd i’r afael ag effeithiau a gwneud y gorau o’r effeithiau cadarnhaol o ganlyniad i’r cynigion. Roedd y Cyngor yn dal i bryderu nad oedd y raddfa ofodol yr ystyriwyd yr effeithiau yn ei herbyn yn mynd ati’n briodol i fynd i’r afael â’r effeithiau lleol iawn, ar sail gyfanredol neu gronnol.
3.42 O ran unrhyw gynigion ar gyfer datblygiad niwclear newydd yn Wylfa, byddai’r Cyngor yn disgwyl i faterion o’r fath (ar raddfa leol a chymunedol) gael eu hystyried yn llawn o’r cychwyn cyntaf, gan wneud hynny o safbwynt yr Egwyddor Agosrwydd.
3.43 Tra bo llawer o’r dystiolaeth fanwl sydd ar gael i gefnogi sylwadau gwybodus, o ran effaith economaidd posibl gorsaf bŵer niwclear newydd yn Wylfa, wedi canolbwyntio ar ddatblygiad ar raddfa GW+, mae’r Cyngor yn ymwybodol y gallai cynigion ar gyfer datblygiad niwclear ar y safle gynnwys SMR / AMR ar raddfa MW yn y dyfodol hefyd. Byddai’r effeithiau economaidd-gymdeithasol yn wahanol i’r rheiny o ganlyniad i gynnig ar raddfa GW.
3.44 Mae gwaith a gwblhawyd gan Ove Arup and Partners Ltd ar gyfer Llywodraeth Cymru[30] wedi canolbwyntio ar y posibilrwydd o leoli SMR / AMR yn Nhrawsfynydd. Fodd bynnag, mae’n darparu gwybodaeth ychwanegol ddefnyddiol sy’n berthnasol i Ogledd Cymru a Chymru ar lefel ehangach.
3.45 Roedd y dadansoddiad hwn yn ystyried amryw senarios o ran lleoli, ynghyd â chyfleoedd o ran cyflogaeth yn sgil hynny, a gweithgaredd o ran y gadwyn gyflenwi ehangach, a allai ddeillio o leoli SMR / AMR. Cwblhawyd cyfrifiadau o ran gwerth ychwanegol gros (GVA), ac fe’u cysylltwyd â chyfleoedd i greu swyddi. Gan ystyried dadansoddiad o’r gwaith adeiladu ar ei anterth yn 2027, awgrymwyd y byddai tua 1,520 o swyddi o fewn ardal Gogledd Cymru, gyda 1,370 o swyddi eraill o fewn y gadwyn gyflenwi. O ran canlyniadau economaidd, daeth yr adroddiad i’r casgliad, ar eu hanterth, y gallai cyfnodau adeiladu gynhyrchu £41.6miliwn mewn GVA yng ngogledd orllewin Cymru, ynghyd â GVA cyffredinol o £177.5miliwn ledled Cymru.
3.46 Tra bo’r ffigyrau hyn, ar gyfartaledd, yn is (fel y gellir ei ddisgwyl) na’r rheiny o ran amcangyfrifon ar gyfer adeiladu datblygiad niwclear ar raddfa GW+, er hynny, maent yn dangos y gellir gwneud cyfraniad sylweddol o ganlyniad i leoli SMR / AMR o fewn gogledd orllewin Cymru, ac yng Nghymru’n fwy cyffredinol, ac mae’n hanfodol i’r ynys a’r rhanbarth allu elwa’n llawn ar y cyfleoedd hyn.
3.47 Pe bai cynigion ar gyfer SMR / AMR yn cael eu cyflwyno cyn unrhyw ddatblygiad ar raddfa GW+, byddai’r Cyngor yn disgwyl i unrhyw ddatblygwr fod yn gyfarwydd â’r amryw faterion a nodir o fewn y dystiolaeth hon, a bod angen eu trafod yn fanwl yn gynnar mewn unrhyw broses ddatblygu. Dylai hyn adeiladu ar yr amryw ystyriaethau o safbwynt economaidd (ac ehangach) o fewn cynigion Horizon ar gyfer Wylfa Newydd. Mae’r Cyngor hefyd yn cydnabod y potensial o ran cyflwyno datblygiadau ar gyfer adweithyddion ar raddfa GW+ a datblygiadau SMR / AMR ar raddfa MW yn Wylfa ar yr un pryd. O ran materion o’r fath, yn enwedig o ran gorfod delio â thimau gwahanol ddatblygwyr, byddai angen sicrhau ymgysylltiad a chydweithrediad cynnar rhwng y Cyngor a’r holl randdeiliaid allweddol perthnasol, i sicrhau bod modd gwneud y gorau o effeithiau cadarnhaol, ynghyd â lliniaru effeithiau andwyol a chyflwyno mesurau digolledu priodol ar eu cyfer.
3.48 O ran cael capasiti i adael etifeddiaeth barhaus yng nghyswllt creu swyddi, gwella sgiliau a’r effaith economaidd gyffredinol yn nhermau Gwerth Ychwanegol Gros (GVA), ceir tystiolaeth y gall prosiectau pŵer niwclear greu newid sylweddol ar draws cymunedau am sawl cenhedlaeth. Byddai’r Cyngor yn dymuno gweld cyfleoedd gwirioneddol yn cael eu creu’n gynnar er mwyn diogelu’r buddion hyn. Dylai’r modd y gellir manteisio arnynt fod yn glir a dylid darparu cymorth i wneud hynny, i bobl a busnesau o fewn ardal ofodol Ynys Môn a rhanbarth Gogledd Cymru a thu hwnt. Bydd angen i unrhyw fuddion o’r fath adlewyrchu ac ymateb yn llawn i gynefinoedd a thirwedd (ac asedau naturiol ehangach) gwarchodedig a sensitif yr ynys, sy’n ei gwneud yn gyrchfan mor bwysig i dwristiaid, ac maent yn allweddol i economi’r ynys.
Crynodeb o’r Sylwadau Allweddol: Mae’r dystiolaeth a nodir yn yr ymateb hwn yn amlygu’r cyfle posibl a gyflwynir gan ddatblygiad niwclear newydd yn Wylfa i economi Ynys Môn a Gogledd Cymru’n ehangach. Nodwyd fod yr economi hon yn gymharol fregus, mae’n dibynnu ar gyflogaeth â chyflogau cymharol isel o fewn y sector twristiaeth, sydd ei hun wedi’i effeithio’n helaeth gan y pandemig Covid-19 byd-eang. Byddai cynigion ar gyfer datblygiad niwclear yn Wylfa yn cael eu croesawu gan y Cyngor yn y cyd-destun hwn, ond ni fyddai’r Cyngor yn darparu’r gefnogaeth honno’n ddiamod. Byddai rhaid trafod amryw fesurau yng nghyswllt yr effeithiau, gan gynnwys y rheiny ar yr economi, mewn modd rhagweithiol ac adeiladol â’r Cyngor, er budd ei gymuned.
a) Ceir tystiolaeth sylweddol o ran dadansoddiadau a gynhaliwyd gan Gyngor Sir Ynys Môn, Cyngor Gwynedd, NDA, Magnox, Llywodraeth Cymru a Pŵer Niwclear Horizon (ymhlith eraill) sy’n darparu modd o nodweddu pwysigrwydd datblygiad niwclear i economi Ynys Môn a Gogledd Cymru. O ran llafur uniongyrchol, anuniongyrchol, ynghyd â llafur ehangach yn sgil hynny, yn ogystal â chyfraniadau i’r gadwyn gyflenwi, mae’r dystiolaeth hon wedi nodi’r effaith sylweddol a chadarnhaol y gellir ei chyflawni o safbwynt GVA, o ganlyniad i ddatblygiad ar raddfa GW+, yn ogystal â SMR / AMR yn Wylfa. Byddai hyn yn ystyrlon mewn unrhyw economi ranbarthol, ond o fewn cyd-destun economi cymharol fregus yng Ngogledd Cymru, byddai’n arbennig o ystyrlon.
b) (Tra byddai’r Cyngor yn eu croesawu) ni fyddai modd cyflwyno cynigion o’r fath ar gyfer datblygu heb ymrwymo i ddeialog gweithredol a chydnabod nodweddion unigryw Ynys Môn. Dim ond trwy drafodaethau gweithredol gyda’r Cyngor (a rhanddeiliaid ehangach) y byddai’n bosibl sefydlu modd priodol o ddigolledu cymunedau lletyol am letya’r isadeiledd hwn, am reoli’r effaith bosibl ar wasanaethau cyhoeddus, lleihau’r effeithiau ar asedau naturiol a chefnogi’r Gymraeg a’i diwylliant, yn ogystal â sicrhau cydlyniant cymunedol.
c) Byddai’r Cyngor, yn arbennig, yn dymuno amlygu pwysigrwydd dadansoddiad ar raddfa cymuned, ynghyd ag ymateb wedi’i deilwra o ran mesurau lliniaru. Awgrymwyd y byddai effeithiau amlwg mewn ardaloedd unigol o’r ynys yn sgil cynigion Wylfa Newydd Horizon. Yn aml, roedd yr effeithiau cronnus posibl ar y lefel gymunedol honno yn dod yn ail i’r disgrifiad o’r effeithiau ar draws ardaloedd ehangach a ddewiswyd ar gyfer eu hasesu. O safbwynt gwneud y gorau o’r cyfleoedd ar gyfer yr ynys a’i chymunedau, byddai’r Cyngor yn arbennig yn annog unrhyw ddarpar ddatblygwr i ystyried y farn leol honno, a chynnal deialog i hyrwyddo anghenion y cymunedau hynny. O ran unrhyw gynigion ar gyfer datblygiad niwclear newydd yn Wylfa, bydd y Cyngor yn dymuno i’r llinell sylfaen economaidd-gymdeithasol leol ar gyfer unrhyw gais fod yn gwbl gyfredol, er mwyn sicrhau y cynhelir asesiad priodol a boddhaol o effeithiau (negyddol a buddiol) posibl, gan arwain at ganfod mesurau lliniaru a digolledu, a’u cytuno. Byddai’r Cyngor yn disgwyl i’r holl effeithiau (ar y raddfa leol a chymunedol) gael eu hystyried yn llawn o’r cychwyn cyntaf, yn ystod y broses o ddylunio prosiect, ynghyd â rhoi’r Egwyddor Agosrwydd ar waith.
August 2022
[1] A call for evidence has been made at: https://committees.parliament.uk/committee/162/welsh-affairs-committee/ and https://committees.parliament.uk/work/6700/nuclear-energy-in-wales/
[2] https://www.anglesey.gov.wales/en/Business/Energy-Island%E2%84%A2-Isle-of-Anglesey-North-Wales/What-is-Energy-Island%E2%84%A2.aspx
[3] As per the National Policy Statement for Nuclear Power Generation EN-6 (https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/47859/2009-nps-for-nuclear-volumeI.pdf)
[4] https://www.gov.uk/government/news/nuclear-energy-what-you-need-to-know
[5] https://www.gov.uk/government/publications/future-nuclear-enabling-fund-fnef
[6] https://www.gov.uk/government/publications/british-energy-security-strategy/british-energy-security-strategy
[7] https://www.gov.uk/government/collections/energy-security-bill
[8] https://www.gov.uk/government/publications/the-ten-point-plan-for-a-green-industrial-revolution
[9] https://www.gov.uk/government/publications/net-zero-strategy
[10] https://www.anglesey.gov.wales/en/Council/Climate-change.aspx
[11] https://www.gov.uk/government/news/uk-backs-new-small-nuclear-technology-with-210-million
[12] Economic Insight: 2018: Economic Impact Assessment of Magnox Sites: A report for the Nuclear Decommissioning Authority
[13] https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/725779/Economic_Impact_Assessment_of_Magnox_Sites_-_13-07-18_STC.pdf
[14] As confirmed in the IACCs Local Impact Report (LIR) submitted into the DCO examination to PINS
[15] Ove Arup and Partners Ltd.: 2020: Trawsfynydd Nuclear Licensed Site: Economic Assessment of Siting a Small or Advanced Modular Rector: for Welsh Government
[16] Cyflwynwyd galwad am dystiolaeth yn: https://committees.parliament.uk/committee/162/welsh-affairs-committee/ and https://committees.parliament.uk/work/6700/nuclear-energy-in-wales/
[17] https://www.anglesey.gov.wales/en/Business/Energy-Island%E2%84%A2-Isle-of-Anglesey-North-Wales/What-is-Energy-Island%E2%84%A2.aspx
[18] Fel y nodwyd yn y Datganiad Polisi Cenedlaethol ar gyfer Cynhyrchu Pwer Niwclear EN-6 (https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/47859/2009-nps-for-nutlear-volumeI.pdf)
[19] https://www.gov.uk/government/news/nuclear-energy-what-you-need-to-know
[20] https://www.gov.uk/government/publications/future-nuclear-enabling-fund-fnef
[21] https://www.gov.uk/government/publications/british-energy-security-strategy/british-energy-security-strategy
[22] https://www.gov.uk/government/collections/energy-security-bill
[23] https://www.gov.uk/government/publications/the-ten-point-plan-for-a-green-industrial-revolution
[24] https://www.gov.uk/government/publications/net-zero-strategy
[25] https://www.anglesey.gov.wales/en/Council/Climate-change.aspx
[26] https://www.gov.uk/government/news/uk-backs-new-small-nuclear-technology-with-210-million
[27] Economic Insight: 2018: Economic Impact Assessment of Magnox Sites: A report for the Nuclear Decommissioning Authority
[28] https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/725779/Economic_Impact_Assessment_of_Magnox_Sites_-_13-07-18_STC.pdf
[29] Fel y cadarnhawyd yn Adroddiad ar yr Effaith Leol (LIR) CSYM, a gyflwynwyd ar gyfer archwiliad DCO i PINS
[30] Ove Arup and Partners Ltd.: 2020: Trawsfynydd Nuclear Licensed Site: Economic Assessment of Siting a Small or Advanced Modular Rector: for Welsh Government