ML14002A027
| ML14002A027 | |
| Person / Time | |
|---|---|
| Site: | Limerick  |
| Issue date: | 12/31/2013 |
| From: | Fred Bower Reactor Projects Region 1 Branch 4 |
| To: | Cuthbert D Alliance For A Clean Environment |
| BOWER, FL | |
| References | |
| EDATS 2013-0370 | |
| Download: ML14002A027 (27) | |
Text
h High Burnup Spent Fuel Nuclear fuel is removed from a reactor every few years when it can no longer economically sustain a chain reaction. This spent fuel remains radioactive and must be managed. Initially, it goes into a pool onsite for cooling and storage. Some utilities are moving their spent fuel after it has cooled for several years in the pool into NRC-certified dry storage casks. These casks are specially designed to contain the radioactivity and allow hot spent fuel to cool further.
What is burnup?
Burnup is a way to measure the uranium burned in the reactor. It is expressed in gigawatt-days per metric ton of uranium (GWd/MTU). Burnup depends on how long the fuel is in the core and the power level it reaches. The burnup level affects the fuels temperature, radioactivity and physical makeup.
In a reactor, uranium fuel fissionssplits apart and releases energyand the metal cladding that encases the fuel reacts with cooling water. This reaction forms oxide on the outside (similar to rust) and releases hydrogen. These processes begin slowly then start to accelerate as the fuel reaches burnup of 45 GWd/MTU. Anything above this level is considered high burnup.
Over time, burnup has increased, allowing utilities to get more power out of their fuel before replacing it. Average burnup, around 35 GWd/MTU two decades ago, is over 45 GWd/MTU today.
How hot and radioactive spent fuel is depends on burnup, the fuels initial makeup and conditions in the core. All these factors must be taken into account in designing dry storage and transport systems for spent fuel.
Is it safe to store and transport high burnup fuel?
To be certified by the NRC, dry cask designs must meet transportation requirements in 10 CFR Part 71 or storage requirements in 10 CFR Part 72. The NRC approves designs only after a full safety review.
Based on these reviews, the NRC has certified numerous cask designs for spent fuel storage and transportation. Operating experience since dry storage began in 1986 and short-term tests show both low and high burnup spent fuel can be stored and transported safely.
More casks are available for low than for high burnup spent fuel. Because it has been used longer, there is a great deal more data on low burnup fuel. There is enough data on high burnup fuel that the NRC has been able to certify some high burnup spent fuel storage casks for an initial term of 20 or 40 years. Some systems have also been approved for transporting high burnup spent fuel.
Why does burnup matter?
Burnup is important to the NRCs review of spent fuel cask designs because each system has limits on temperature and radioactivity. When the cask is being dried, pressure increases inside and the fuel heats up. This may cause the cladding to become more brittle when it cools. These changes depend on burnup and the type of cladding, and need to be accounted for in high burnup spent fuel systems. A great deal of work has been done to understand the conditions that make different types of fuel cladding more brittle.
Testing continues on high burnup spent fuel and the set of available data is growing. Cask designers use the results to redesign their casks for higher burnups and additional fuel types. As more data becomes available, the NRC expects to be able to certify more casks. Cask designers also need this data to demonstrate the long-term safety of their systems so they can continue storing spent fuel beyond the initial license term.
How does the NRC make sure it remains safe?
The NRC assures safety by requiring many layers of protection. Casks provide several layers and the fuel cladding itself is an important layer. The regulations are designed to ensure the casks will hold up and the cladding will not break during storage or in a transport accident. The NRC carefully reviews each cask application to see if it meets the requirements. As part of this review, the NRC does its own analysis to confirm information in the application.
The NRC also does inspections before and during loading of dry casks to ensure the correct fuel goes into the right storage systems. Fuel with burnup higher than the NRC certificate allows cannot be loaded. It must remain in pool storage until a cask approved for higher burnup becomes available. The NRC also inspects loaded casks every few years.
What confirmatory research is being done?
Testing has provided a lot of information on how different types of cladding on spent fuel will behave, and this work continues. Planning has begun for an important new study, run jointly by the nuclear industry and the Department of Energy, with regulatory oversight by the NRC. In this study, high burnup spent fuel will be loaded into a cask fitted with instruments to provide temperature readings and allow gas sampling. Those readings, combined with tests on the fuel assemblies and inspection of the casks interior after years of dry storage, will provide a much better understanding of what happens to high burnup spent fuel in a storage cask as it cools over time.
Work is underway to create better models to determine how much cladding actually may become brittle and the impact of vibration during transport. The NRC is also monitoring work going on internationally.
All this work will help cask designers, users and regulators better understand how to ensure high burnup spent fuel will remain safe in long-term dry storage and during transportation to a centralized storage or disposal facility.
December 2013 Page l 2
Public Involvement in the Nuclear Regulatory Process
Public Involvement in the Nuclear Regulatory Process Table of Contents Introduction ....................................................................................................... 2 Rulemakings ...................................................................................................... 3 Licensing ........................................................................................................... 4 Decommissioning and License Renewal .......................................................... 5 High-Level Waste .............................................................................................. 6 Environmental Impacts ..................................................................................... 7 Petitions ............................................................................................................. 8 Reporting Safety Concerns ............................................................................... 9 Enforcement ...................................................................................................... 9 Public Meetings ............................................................................................... 10 Freedom of Information Act Requests ............................................................ 12 General Correspondence ................................................................................. 12 For Additional Information ............................................................................. 12 1
Public Involvement in the Nuclear Regulatory Process Introduction tion, and (3) a facilitys impact on the environment.
Public involvement in the Nuclear Regulatory Commissions activi-Notices of opportunities for in-ties is a cornerstone of strong, fair volvement are published in the regulation of the nuclear industry.
Federal Register, and sometimes The NRC recognizes the publics on the Internet. The Federal Reg-interest in the proper regulation of ister is a daily publication announc-nuclear activities and provides op-ing rules, policies, and other important portunities for citizens to make actions of the Federal Government.
their opinions known. The NRC Copies are available at many seeks to elicit public involvement local libraries, at the NRCs early in the regulatory process so Public Document Room (PDR) in that safety concerns that may af-Rockville, Marlyland, and on the fect a community can be resolved internet. For major actions, the NRC in a timely and practical manner.
issues press releases, which reach the This process is considered vital to public through local newspaper assuring the public that the NRC articles, mailings, and the Internet.
is making sound, balanced deci-sions about nuclear safety.
This booklet briefly de-scribes various ways you can learn about and par-ticipate in the NRCs regulatory process.
Anyone may provide comments or voice concerns at critical junctures in the devel-opment of safety rules, including decisions about (1) where to locate and whether to license a nuclear facility, (2) ongoing issues about a facilitys operation or termina-2
Public Involvement in the Nuclear Regulatory Process Rulemakings The rulemaking process is de-scribed in detail in the Com-One of the primary duties of the missions regulations in Title 10 of NRC is to establish regulations on the Code of Federal Regulations in the safe use of nuclear materials.
Part H, Section 2.802.
These regulations address such is-sues as siting, design, construction, All rulemakings provide the pub-operation, and ultimate shutdown lic with at least one opportunity for of nuclear power plants, uranium comments. Often, there are sev-mills, fuel facilities, waste reposi-eral opportunities. In some cases, tories, and transportation systems.
NRC holds meetings and work-NRC regulations also address shops before a proposed rule is other uses of nuclear materials, drafted. This way, members of the such as nuclear medicine programs public can express their concerns at hospitals, academic activities, early in the process and identify research work, industrial applica- important issues to be covered in tions such as the use of gauges and the rule. Sometimes, the NRC testing equipment, and the import may publish an Advance Notice of and export of nuclear materials and Proposed Rulemaking in the Fed-technologies. The process of de- eral Register to obtain public com-veloping these regulations is called ments and provide clarification of rulemaking. A regulation is certain issues before developing a sometimes referred to as a rule. proposed rule.
Rulemaking is initiated mostly by When a proposed rule is devel-NRCs technical staff, although oped, it is published in the Fed-any member of the public may pe- eral Register for public comment.
tition the NRC to develop, change, The notice identifies an NRC con-or rescind any regulation. Petitions tact who can reply to questions and should be addressed to: provides an address for sending comments. The agency may hold The Secretary meetings and workshops to dis-U.S. Nuclear Regulatory cuss the proposed rule, explain its Commission purpose and background, and re-Washington, D.C., 20555-0001. ceive further comments. These meetings are normally announced 3
Public Involvement in the Nuclear Regulatory Process in the Federal Register. Com- Licensing ments are factored into the final Before a company can propose to rule, which, like the proposed rule, site, construct, or operate a nuclear is again published in the Federal power plant or any other nuclear-Register. The NRC issues press related facility or to engage in releases for rules that have strong the use of radioactive materials, it public interest. In addition, an must apply to NRC for a license.
electronic bulletin board is avail-The licensing process includes able which provides the status of approval of the initial license, all rulemakings in progress. This amendments, license renewals, and interactive Ruleworking Forum is applications for exemptions from located at http://ruleforum.llnl.gov NRC regulations.
on the Internet.
Policy statements, Commission As part of the prelicensing process, guidance, and generic communi- the public is notified through the cations with licensees that have Federal Register, press releases, significant public interest are and local advertisements that an often handled like a rulemak- application has been received. No-ing, offering an opportunity for tices regarding opportunities for public comment. hearings or public comment on all licensing actions, including amendments to a facilitys operat-ing license, or license renewal pro-ceedings, are published in the Fed-eral Register. For nuclear power plants, individuals who are directly affected by the proceeding may participate in a formal hearing. However, for materials li-censes and fuel cycle facilities, most hearings are informal.
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Public Involvement in the Nuclear Regulatory Process If local interest is strong, the utilities may decide instead to re-NRC may decide to hold public quest an extension of their licenses meetings in the vicinity of a pro- to continue to produce electricity posed facility. Notices of local up to 20 years past the original li-meetings may be mailed to citi- cense under the NRC plant license zens groups and civic and gov- renewal rule. In either case, the ernment leaders in the commu- public has an opportunity to par-nity and may be advertised in lo- ticipate in NRCs decisionmaking cal newspapers. process to either renew a license or decommission a facility.
Decommissioning and License Renewal This process is also used in licens-When a nuclear power plant ing and decommissioning nuclear approaches the end of its initial materials facilities, such as those 40-year operating license period, handling low-level radioactive the utility that operates it may waste. When facilities stop oper-choose to decommission the plant ating, the owners must initiate de-and terminate its license. Other commissioning to remove or re-5
Public Involvement in the Nuclear Regulatory Process duce radioactive contamination High-Level Waste that might have occurred at the site The projected licensing of a high-during operation. The NRC has level waste (HLW) repository is a developed a list of sites in the first-time endeavor for NRC, and United States that warrant special one in which public participation oversight because of unique de- started well before an actual license commissioning issues. application. All meetings regard-ing the HLW program are open to The public may become involved the public and noticed in the Fed-in the decommissioning process for eral Register. Up-to-date informa-these sites during the development tion on future meetings and other of an Environmental Assessment important activities regarding the (EA) or an Environmental Impact HLW program can be obtained on Statement (EIS). These terms are the Internet at http://www.nrc.gov.
described in more detail below. The NRC also provides opportunities Nuclear power plants can store for public involvement through spent nuclear fuel in independent roundtable meetings. They are con- spent fuel storage installations vened when the NRC believes that (ISFSIs) on the premises of the enhanced public involvement will plant under either a specific or a contribute to the success of the de- general license from the NRC.
commissioning process. The NRC Applications for a specific license conducts roundtable meetings in the would be handled the same as other vicinity of the site to enable the licensing actionswith full notice public to collect information, to and participation by the affected comment on and question the de- community on use of storage con-commissioning actions at the site, tainers at the facility. Under the and to discuss decommissioning is- terms of an NRC general license, sues among stakeholders. The any nuclear power reactor licensee roundtable format includes repre- can use a pre-approved storage sentatives of Federal and State cask if the company notifies the agencies, interest groups, and the NRC in advance, meets the condi-community. Meetings are usually tions of the casks NRC certificate announced in local newspapers or of compliance, and complies with on local radio stations. the NRCs regulations. Before 6
Public Involvement in the Nuclear Regulatory Process approving a cask design for use un- An Environmental Assessment der a general license, the NRC (EA) is usually prepared and pub-publishes a notice of proposed lished in the Federal Register as a rulemaking in the Federal Regis- precursor to an EIS. An EA is a ter for public comment and issues brief discussion of the need for the a press release. proposed action, along with a list of the agencies and experts con-Environmental Impacts sulted. If the EA indicates the pro-posed action or facility will not When the NRC reviews a proposal have a significant effect on the en-to build a major new facility or vironment, no EIS is required.
considers any other action that might have a significant impact on Scoping meetings provide a fo-the environment, an Environmen-rum for members of the public to tal Impact Statement (EIS) must be express their opinion and provide developed by the NRC staff. The information in preparation for concept of an EIS originated in the environmental evaluations.
National Environmental Policy Act These meetings are often held to (NEPA), which requires Federal help NRC identify issues to be evaluation of a proposed facilitys addressed in an impact on the environment. This EIS and typi-is a detailed, scientific study cally involve describing the environmental ef-State and lo-fects of the proposed action or fa-cal agencies, cility. For example, the EIS in-Indian tribes, cludes information on the physi-cal characteristics of the area geology, water, and airthe ability of transportation sys-tems to support the facility, and local population informa-tion.
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Public Involvement in the Nuclear Regulatory Process or other interested people who take other appropriate enforcement request participation. action to resolve a problem identi-fied by a 2.206 petition.
For example, while the NRC was developing its decommissioning Once a petition is accepted for re-rule, the agency conducted four view, and throughout the petition scoping meetings around the coun- process, the petitioner is informed try to gather public comments re- of progress, given copies of all rel-garding the EIS and the clean-up evant correspondence, and may be criteria for the decontamination offered an informal public hearing, and decommissioning of NRC- if appropriate. An informal public licensed facilities. hearing is offered when the peti-tion presents new information that Petitions raises a significant safety issue or alleges a violation of NRC require-Any member of the public may ments involving a significant raise potential health and safety safety issue for which new infor-issues in a petition to the NRC to mation or a new approach is pro-take specific enforcement action vided. The NRC publishes a no-regarding a licensed, operating fa- tice in the Federal Register when cility. This provision is contained it receives a 2.206 petition and in Subpart B, Section 2.206 of the again 30 days in advance of an in-NRCs regulations and is often re- formal public hearing.
ferred to as a 2.206 petition. In general, the petition is submitted Electronic information on in writing to the Executive Direc- petitions is available at http://
tor for Operations and includes w w w. n r c . g o v / w h a t - w e - d o /
specific facts supporting the re- regulatory/enforcement/
quest for the NRC to take enforce- petition.html. More detailed in-ment action. Unsupported asser- formation on this process is con-tions of safety problems or general tained in a pamphlet entitled opposition to nuclear power are Public Petition Process, not considered sufficient grounds NUREG/BR-0200, which is for action. If warranted, the NRC available from the Government could take action to modify, sus- Printing Office and NRCs Office pend, or revoke a license, or could of Public Affairs.
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Public Involvement in the Nuclear Regulatory Process Reporting Safety 1-800-695-7403. Any member of Concerns the public may voice safety con-cerns in this same manner. Addi-Often workers at nuclear power tional information on reporting plants or members of the public safety concerns is found in raise concerns that safety rules are Reporting Safety Concerns to the not being followed at the facilities NRC, NUREG/BR-0240, from where they work or near where NRCs Office of Public Affairs.
they live. The NRC has estab-lished a formal process for review-ing and resolving these concerns.
Enforcement The NRCs enforcement program The NRC encourages workers in seeks to protect public health and the nuclear industry to take their safety by ensuring that licensees concerns directly to their employer comply with regulations and because he or she has the primary license conditions. Enforcement responsibility for maintaining safe actions might take the form of no-operations. However, should em- tices of violations, civil penalties, ployees not be satisfied by com- or orders to modify, suspend, or pany response or choose to bring revoke licenses. Predecisional safety concerns directly to the enforcement conferences are often NRC, they may do so by calling held with a licensee, a vendor, or NRCs toll-free safety hotline, other person before the NRC 9
Public Involvement in the Nuclear Regulatory Process makes its final decision on a sig- sues. These include most techni-nificant enforcement action. In cal meetings with licensees and most cases, these conferences are meetings with trade organizations open to public observation. The and public interest groups. Often, NRC issues press releases an- the NRC staff meets with licens-nouncing all open enforcement ees to discuss their safety perfor-conferences, as it does with pub- mance. These meetings are open lic meetings (see the following sec- for public observation.
tion, Public Meetings). In addi-tion, summaries of all enforcement In some cases, meetings are held conferences, NRC actions, and lic- in the community near a nuclear ensee responses are available in the power plant or other facility to NRCs Public Document Room. make it easier for the public to par-ticipate. If a community expresses Public Meetings concern over licensing or other actions involving a facility nearby, The public can keep abreast of the NRC may hold public meetings NRCs regulatory activities near the site to explain the NRCs through a variety of open meetings role as it relates to the licensees dealing with significant safety is-planned activities and to answer questions posed by local citizens.
Public meetings may also be held when a licensee submits a plan to decommission a facility. Other open meetings may be held at one of the NRC regional offices or at 10
Public Involvement in the Nuclear Regulatory Process NRC Headquarters in Rockville, Persons interested in the activities of Maryland. a particular committee may call or write the NRC Advisory Committee The types of meetings that are not Management Officer, Office of the usually open to the public include Secretary, Washington, D.C. 20555-discussions of classified, propri- 0001; telephone 301-415-1968.
etary, or safeguards information; ongoing investigations; privacy in- The agencys policy regarding formation; inspector meetings with open meetings is described in more licensee management and technical detail in NRCs Management staff on site; or meetings that could Directive 3.5, Public Attendance pose a significant administrative at Certain Meetings Involving the burden and interfere with NRCs NRC Staff (available from the primary safety responsibilities. Government Printing Office).
Schedules of all NRC meetings In addition to these mechanisms, are available electronically at the NRC announces major meetings http://www.nrc.gov/public-in- in press releases issued to the news volve/public-meetings/meeting- media and mailed to more than schedule.html. 1,000 addressees. Notices are posted in the Public Document Weekly lists of staff meet-ings are also posted in the agencys public document room in Rockville, Maryland.
For staff meetings, a listing is available at least 10 calendar days in advance of the date of the meet-ing. Notices for Commission and Advisory Committee meetings are published in the Federal Register.
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Public Involvement in the Nuclear Regulatory Process Room and sometimes through ad- General vertisements placed in local news- Correspondence papers several days in advance of a meeting. At any time, of course, a member of the public can request information in writing or identify concerns about Freedom of Information nuclear facilities through regular Acts Requests correspondence. Routine correspon-The NRC releases information to dence between NRC and its licens-ees is made available in the Public the public related to its health and Document Room. General corre-safety mission by placing docu-spondence should be addressed to the ments in its Public Document Office of the Secretary, U.S. Nuclear Room. However, under the Free- Regulatory Commission, Washing-dom of Information Act (FOIA), ton, D.C. 20555-0001.
members of the public may request copies of other NRC documents For Additional and, unless these records fall under specific Federal exemptions, the Information NRC will provide access to them For more information on pub-within 20 working days after the lic involvement, contact the NRC request is received. Under certain Office of Public Affairs by tele-phone at 301-415-8200, or circumstances, fees are charged to via Internet electronic mail at cover the cost of locating and copy- <OPA@NRC.GOV>.
ing the requested material.
For more detailed descriptions of how Freedom of information in- to obtain information from the NRC, quiries may be addressed to the you can order a copy of the latest FOIA/PA officer, U.S. Nuclear revision to the Citizens Guide Regulatory Commission, Wash- to NRC Information, NUREG/
ington, D.C. 20555-0001. BR-0010, by writing to the Superinten-dent of Documents, Government Printing Office, Mail Stop SSOP, Washington, DC, 20402-0001 or at http://bookstore.gpo.gov/.
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NUREG/BR-0215, Rev. 2 October 2004