Ministerial Statement of Expectations and Director-General Statement of Intent

Australian Naval Nuclear Power Safety Regulator Ministerial Statement of Expectations 2025

1. Overview 

Australia’s acquisition of conventionally-armed, nuclear-powered submarines will be integral to the integrated, focused Australian Defence Force, capable of defending Australia and its national interests. 

A commitment to nuclear safety to protect Australia’s people and the environment is at the centre of this endeavour. 

As an independent, specialised and dedicated regulator with functions and powers to regulate activities associated with naval nuclear propulsion across the Nuclear-Powered Submarine Enterprise, including to licence, monitor and enforce in accordance with the ANNPS Act and Regulations, your functions are central to assuring nuclear safety. 

As a statutory body, the ANNPSR is accountable to the Parliament and ultimately the public. Accordingly, I expect the ANNPSR to exercise its functions and powers in good faith, taking into account the matters below.

2. Regulatory Framework

The ANNPSR is required to perform its functions in accordance with the ANNPS Act, and associated subordinate legislation, the Public Governance, Performance and Accountability Act 2013 (the PGPA Act), the Public Service Act 1999 and other relevant legislation.

I expect the ANNPSR to competently carry out the regulatory functions as laid down in the ANNPS Act. In addition, I expect the ANNPSR to uphold the objects of the ANNPS Act and support the regulated community to do the same. It is the responsibility of the ANNPSR to assure the Australian public that all activities associated with naval nuclear propulsion are conducted with the paramount consideration of nuclear safety. 

3. Regulatory Role and Responsibilities

The ANNPSR is responsible for regulating naval nuclear propulsion activities in relation to AUKUS submarines, promoting confidence and trust in the nuclear safety and radiation protection of people and the environment, supporting the AUKUS partnership and in so doing promoting the defence and interests of Australia. 

I expect the ANNPSR will work closely with existing Australian safety regulators, particularly the Australian Radiation Protection and Nuclear Safety Agency, the Australian Safeguards and Non-Proliferation Office, the Australian Naval Seaworthiness Regulator and the regulated community to protect the safety of our Royal Australian Navy people, defence industry, Australian communities, and the environment. 

4. Regulatory Approach

The ANNPSR regulatory approach will be dependent on the complexity of the activity being regulated. Where appropriate, the ANNPSR may adopt a rules-based approach, prescribing specific rules and processes that must be followed, such as in areas requiring specific standards, or where clarity and certainty are crucial. Similarly, when appropriate, the ANNPSR may employ a principles-based regulatory approach, setting goals for expected outcomes and focusing on desired outcomes and allowing further flexibility in how outcomes are achieved. Regardless of approach, I expect that the ANNPSR will proactively execute its regulatory functions, keeping nuclear safety at the core of all decisions. 

I expect the ANNPSR to actively monitor, identify and address regulatory gaps and keep the Australian Government advised about general naval nuclear propulsion safety trends and matters that identify new and emerging risks. Where potential risks arise, I expect the ANNPSR to take appropriate measures, consistent with its statutory framework, to minimise harm and to enhance nuclear safety outcomes.

Furthermore, I expect the ANNPSR to draw to the Australian Government’s attention in a timely way where existing policy or regulation presents barriers in fulfilling its roles and responsibilities. Where the Australian Government considers policy or regulatory change is needed, I expect the ANNPSR to support such change to the best of its ability. Where action is required, I expect the ANNPSR to respond expeditiously and without delay to mitigate the risk.

I expect the ANNPSR, in the performance of its regulatory functions, to continue to be guided by the principles outlined in the Australian Government’s Regulator Performance Guide (RMG 128).

5. The Government's Policy Priorities and Objectives

I expect the ANNPSR to support the Australian Government’s objectives, including in delivering the Optimal Pathway, and work with the Department of Defence (Defence), the Australian Submarine Agency (ASA), defence industry and other government agencies and regulators to enhance naval nuclear safety and promote the long term public interest.

In exercising its regulatory powers and functions, I expect the ANNPSR to take a proportionate risk-based approach and consider the impact on productivity to all their regulatory activities. I also expect the ANNPSR to have regard to, and contribute where possible to the Australian Government’s broader policy priorities.

6. Regulatory Reform Agenda 

The regulatory reform agenda is a part of the Australian Government's plan to improve the quality and efficiency of Australia's regulatory system through regulatory stewardship. I expect the ANNPSR to take a whole-of-system approach to regulation to meet current and future challenges, and to recognise regulatory systems as assets that need regular review and maintenance to continue to serve the Australian community and the Nuclear-Powered Submarine Enterprise.

I expect the ANNPSR to contribute to the Australian Government's regulatory reform agenda by implementing regulator best practice as outlined in RMG 128 in its decision making, policies, processes and communication practices, including by maintaining an open working relationship with the regulated community to enhance outcomes and minimise compliance costs.

I expect also that the ANNPSR will demonstrate in its performance reporting how it is meeting the Australian Government’s expectations. 

7. Transparency and accountability

The ANNPSR is accountable to me, as the relevant Minister, and to the Parliament. I expect the ANNPSR to fulfil all reporting obligations in accordance with all relevant legislation. 

I expect the ANNPSR to signal regulatory expectations to the broader Nuclear-Powered Submarine Enterprise, and promote public understanding of protections available and enforcement activities.  To that end, I expect the ANNPSR, where appropriate and taking into account national security considerations, to be transparent and accountable for its regulatory actions. I ask that the ANNPSR report each year in its Annual Report on its compliance and enforcement priorities, and its views on the level of compliance. 

To enable greater transparency and accountability, information in this letter along with your response should be published and made publicly available on the ANNPSR website.

8. Relationship with the Minister 

As the responsible Minister, I will provide an enabling environment for ANNPSR to consistently implement best practice by ensuring that you are informed of the Australian Government’s policy direction and priorities.

I expect that ANNPSR will provide me with accurate and timely advice.

9. Relationship with Defence and the Australian Submarine Agency

Acknowledging the need for demonstrable independence from the regulated community that is in the Defence Portfolio, I expect you to work cooperatively and productively with Defence and the ASA to support their role in advising me on policy, programs, budget and other matters.

In working with Defence and the ASA, I expect the ANNPSR to continue to share expertise and data to contribute to nuclear-powered submarine policy advice, ideas to strengthen naval nuclear propulsion safety in Australia, and to improve the regulatory framework and support regulatory changes.

10. Relationship with other stakeholders

I expect that the ANNPSR will draw on best practice principles to develop tailored processes in consultation with key stakeholders that are appropriately scaled to their role, regulatory posture, specific legislative objectives, functions and environment.

I expect the ANNPSR to engage proactively with the regulated community in a way that promotes greater understanding and compliance with the law, and confidence across the broader community.

I expect the ANNPSR to maintain effective and constructive working relationships with our international partners to support and promote the AUKUS partnership and nuclear safety, including development of policy having regard to the broader global regulatory operating environment.

I look forward to your reply to this Statement of Expectations, including your Statement of Intent, indicating how you will implement my expectations. 

Statement of Intent Director-General Australian Naval Nuclear Power Safety Regulator April 2026

1. Introduction

This Statement of Intent responds to the Statement of Expectations issued by the Minister for Defence. As the Accountable Authority of the Australian Naval Nuclear Power Safety Regulator (ANNPSR), I set out below how I will meet the expectations you have outlined and ANNPSR’s approach to fulfilling its statutory obligations and strategic aims. ANNPSR recognises the critical importance of nuclear safety in protecting Australia’s people, environment, and national interests, particularly as the nation advances its capability in conventionally-armed, nuclear-powered submarines (SSNs). This document sets forth our commitment to regulatory excellence, transparency, and accountability, ensuring that our activities align with the priorities articulated by the Minister and the National Defence Strategy.

2. Purpose, strategic direction and delivery of objectives

The ANNPSR’s mission is to protect the environment and people by providing assurance of nuclear safety of Australia’s nuclear-powered submarine (NPS) enterprise, while supporting Australia’s defence interests and the AUKUS partnership. Our vision is to be a trusted, independent regulator for Australia’s SSNs delivering assurance to Parliament, the public, and stakeholders. We will uphold the objects of the Australian Naval Nuclear Power Safety Act 2024 (ANNPS Act), and competently carry out the regulatory functions, which include licensing, monitoring, and enforcement of regulated naval nuclear power activities.

ANNPSR undertakes its legislative mandate with diligence, also upholding the requirements of the Public Governance, Performance and Accountability Act 2013, the Public Service Act 1999, and other relevant laws. We apply rigorous standards to licensing, monitoring, and enforcement functions, cognisant of best practice while pursuing continuous improvement. Our regulatory approach is anchored in transparency, accountability, and independence, enabling us to assure the public and Parliament that all activities associated with naval nuclear power are conducted with the paramount consideration of nuclear safety.

3. Risk-based regulation and enforcement

ANNPSR applies a graded regulatory approach, employing both prescriptive and outcomes-based regulation, to achieve nuclear safety outcomes. Our graded regulatory approach ensures that requirements are proportionate to nuclear and radiological risk. ANNPSR employs an evidence-based and data driven approach to policy and future regulation development. This approach also underpins our assurance of nuclear safety management systems and nuclear safety incident reporting, which is inclusive of near misses. Our assessment and oversight intensity is adjusted based on complexity, scale, and hazard profile, ensuring resources are directed where they have the greatest safety impact. In doing so, the approach will contribute to the optimisation of resources and increase the efficiency and effectiveness of the regulatory control. 

As a responsive regulator, we will tailor our enforcement approach to the specific context, behaviour, and willingness of a regulated entity to proactively comply with the legislated framework. ANNPSR aims to predominantly encourage and assist the regulated community with compliance. However, we will not hesitate in directing compliance (such as through improvement notices) or pursue sanctions (including penalties and civil prosecution) if required, to minimise harm and enhance nuclear safety outcomes. This approach enables us to mitigate risks effectively while promoting operational efficiency and innovation. We leverage an integrated management system to streamline processes and reduce unnecessary duplication. By engaging with regulated entities early, we identify and address emerging risks, ensuring regulatory interventions are tailored, timely, and evidence-based.

4. Collaboration and reducing burden

ANNPSR collaborates closely with other Commonwealth and state regulators, as well as international counterparts, to minimise regulatory and administrative burden. Notably this includes regular engagements with co-regulators in the Australian Radiation Protection and Nuclear Safety Agency (ARPANSA); the Australian Safeguards and Non-Proliferation Office; the Department of Climate Change, Energy, the Environment and Water; and the Defence Seaworthiness regulatory authorities. Where appropriate, we support harmonisation of national radiological, nuclear and environmental requirements, and will leverage our AUKUS partner regulator’s experience. Joint initiatives, such as cross-agency engagement forums, foster consistency and efficiency. We are committed to high regulatory standards and clearly communicating compliance requirements to regulated entities operating in a complex environment, thereby reducing regulatory burden across the NPS enterprise.

5. Engagement

Engagement with regulated entities, other Commonwealth and state regulators, and stakeholders is central to our approach. We facilitate regular forums and consultations to gather feedback and foster collaboration. Our communication channels are designed to be accessible and responsive, ensuring the regulated community are informed and empowered to meet regulatory requirements. We also maintain open dialogue with community groups and the public, promoting understanding and trust in the safety of naval nuclear power activities.

ANNPSR actively engages with international regulatory bodies, notably our AUKUS peer regulators in the United Kingdom and the United States of America. We benchmark our standards and practices against global norms, such as those set by the International Atomic Energy Agency, and participate in knowledge-sharing and staff development initiatives. We ensure that Australian naval nuclear power safety aligns with best practice and that our personnel are equipped and competent to fulfil our current regulatory obligations. 

These engagements will strengthen Australia’s reputation as a responsible steward of naval nuclear power technology and fosters continuous improvement in our regulatory framework.

6. Alignment with regulatory policy framework

Our operations are aligned with the government’s Regulatory Policy, Practice and Performance Framework. ANNPSR embeds these principles in policy development, licensing, oversight and enforcement, decision-making, and stakeholder engagement. For example, our inspection 
program is targeted and risk-based, aligned with current and emerging activity hazards, and underpinned by a continuous improvement mindset within our intentional safety culture. We will regularly review our practices to ensure they remain fit-for-purpose and are responsive to changing risks and expectations. This alignment supports our accountability to yourself, Parliament, and the broader community.

7. Delivery of Minister’s expectations

To deliver on your expectations, ANNPSR is implementing sound agency governance structures, robust risk management systems, and targeted staff development programs. We foster an intentional safety culture through ongoing professional development, strong leadership, a questioning attitude, open communication and a respectful work environment. Our governance arrangements include independent audit committees and third party reviews, regular internal audits, and transparent reporting processes. These measures ensure that our regulatory activities are consistently high quality and that our workforce is empowered and competent to uphold the highest standards of nuclear safety and radiological protection for naval nuclear power.

8. Performance

ANNPSR’s performance measures and targets focus on assessing the delivery of our key activities. They are aligned with our objectives to promote nuclear safety for the environment and people in relation to Australia’s naval nuclear power, as well as promote, monitor and enforce compliance with the ANNPS Act. We monitor and report on these metrics regularly, enabling continuous improvement and demonstrating accountability for our regulatory outcomes. Progress against your expectations is measured through internal governance reviews, performance statements, and publicly released annual reports.

9. Engagement with the Minister and in regulatory reform fora 

ANNPSR will maintain engagement with you and external regulatory reform fora, supported by periodic briefings, and structured reporting mechanisms. Beyond explicit measures in the ANNPS Act, ANNPSR will balance independence with an effective working relationship with Defence, the Australian Submarine Agency, Australian Naval Infrastructure Pty Ltd and related industry by maintaining arm’s-length collaboration and working with existing regulators, such as ARPANSA. I will satisfy my reporting obligations under the ANNPS Act, including the reporting of certain nuclear safety incidents. And we will provide you with updates on regulatory activities, applicable naval nuclear power safety trends, emerging risks, and achievements, thereby ensuring that government priorities and public interests are consistently reflected in our operations.

10. Conclusion

ANNPSR reaffirms its unwavering commitment to nuclear safety, regulatory improvement, transparency and proactive engagement. Through strategic alignment, robust governance, and continuous improvement, we will deliver on your expectations and support Australia’s national defence objectives. We are committed to ensuring that Australia’s naval nuclear power capability is regulated to high standards of safety, integrity, and public accountability.