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Forwards SECY-78-311 & SECY-78-311A Re SAND77-1927,Transportation of Radionuclides in Urban Environs:Work Draft Assessment. Staff Recommends No Immediate Regulatory Action
	ML19263B212
Person / Time
Site:	Shoreham File:Long Island Lighting Company icon.png
Issue date:	12/20/1978
From:	Hoefling R; NRC OFFICE OF THE EXECUTIVE LEGAL DIRECTOR (OELD)
To:	Bowers E, Paris O, Shon F; Atomic Safety and Licensing Board Panel
References
	NUDOCS 7901150006
	Download: ML19263B212 (44)
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UNITED STATES OV f'

NUCLEAR REGULATORY COMMisslON 5

.i WASHING TON. D. C. 20555 Q @7,, 'j; December 20, 1978 Elizabeth S. Bowers, Esq.

Dr. Oscar H. Paris, Member Atomic Safety and Licensing Board Panel Atomic Safety and Licensing Board U.S. Nuclear Regulatory Commission U.S. Nuclear Regulatory Commission Washington, D. C.

20555 Washington, D. C.

20555 Mr. Frederick J. Shon, Member Atomic Safety and Licensing Board U.S. Nuclear Regulatory Commission pp -

Washington, D. C.

20555

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In the Matter of

't LONI ISLAND LIGHTING COMPANY C

(Shorehar luclear Power Station, Unit 1) ~

Docket No. 50-322 4

Dear Members of the Board:

On July 19, 1978, the NRC Staff sent to the Board and the parties a copy of SAND 77-1927 entitled, " Transport of Radionuclides in Urban Environs:

Work Draft Assessment" (WDA).

This was a preliminary report in the development by the NRC of a Generic Environmental Impact Statement (GEIS) on transportation cf radionuclides in urban environs.

The general objectives of the GEIS are (1) to identify any unacceptable risk or hazard to public health and safety and (2) to identify promising alternatives whereby current levels of safety may be improved further.

The study is not intended, by itself, to support any specific rulemaking action or other regula tory activit".

Among the topics discussed in the WDA were:

(1) sabotage of spent fuel i

casks, discussed in Chapter 6, resulting in severe consequences (thousands I

of deaths, billions of dollars in damages) and (2) consequences of severe accidents in urban areas resulting in costs exceeding $560 million.

'he Staff is hereby forwarding for the informatior-of the Board and the parties copies of Commission Information Reports, 5ECY-78-311, dated June 14, 1978 and SECY-78-311 A */ dated November 9,1978.

These Infonnation Reports indicate to the Commission the Staff's view of the impact of the WDA on current regulatory policy. As can be seen from these Commission U Only the unclassified portions of SECY-78-311A have been forwarded.

In addition, SECY-78-311A has been supplemented by a " Correction Notice" of November 27, 1978. A copy of this notice is also attached.

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_2 papers, the NRC Staff has recommended that no immediate regulatory action is necessary to protect spent fuel shipment at tnis time.

Sincerely,

,f.b Richard K. Hoeflin Cnunsel for NRC Staff a Enclosures as Stated cc (w/encls.):

Edward M. Barrett, Esq.

Edward J. Walsh, Esq.

Ralph Shapiro, Esq.

Howard L. Blau, Esq.

W. Taylor Reveley, III, Esq.

Jeffrey Cohen, Esq.

Irving Like, Esq.

Atomic Safety and Licensing Board Atomic Safety and Licensing Appeal Board Docketing and Service Section Mr. J. P. Novarro

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O!SCUSSION:

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Early in June, Sandia Laccrateries (under c:ntrac: :: 050) caliverec ::

."RC, anc simultacecusly releasec :u::licly, a 'Jerki g Craf-Assessmen: :r

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secuences calculatec for sucn a :acks :s suf":cien:iy c::- tr a i t may b e necessary :: ::nsider acciti::nai safeguarcir; Oy :nysicai : ::ec::ce measures, further package hartenin;, ce reu::ng restric:: ens.

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the stucy indica:es that accitional regulat ry acti:ns may Oe 3::rt:ria:e, scecific studies of :hese ac:f cns will be ;ncertaken.

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nese general Objectives, the staf' may rec:= enc in :Ne Scrxing Craft En-v i... re. e... a l

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he NRC staf# is sxe::icai ntact:

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I 2-The Ccmmissioners about the Sandi$ assessrent of the rescense characteristic; Of scent fuel to explosive 35 sault and has already taken steos to cbtain an evaluaticn of

'uel releases and discersion #-cm fuel ex:erts at the Cak ?ic;e National Lac.

oratory (CRNL).

In addition, a researc5 : reject has been under develocrent for some time to identify the need for an actual test procram to verify the calculations contained in this and other studies relative to fuel fracture and release fr3ctions resulting free explosive ructure.

The CRNL will provide ex ert assistance to the NRC staff to jucce en an interim basis whether action is necessary pricr to ecmpletion of the research prcgram.

The results of the research pregran cculd provide the final basis for deter-mining whether or not there is a need for adcitional safeguarcing.

When Sandia submitted the Workinc Draft Assessment to NRC in aarly June, Sandia also sent their recert to each of the twenty rembers of the Task Grcu that has been assisting Sandia in this study, and Sancia will make their recort availacle t.o other remners of the public cn recuest.

(CC.1 has recuestec a number of ccoies to transmit infernally to interested members of Ccngress).

Some memcer of the Task Greuc or generai cublic may call for irmediate regulatcry action, because of the consecuences of s ert fuel cr other sabeti ce events as stated in the recert. Ir fact, Cr. Lecnard Scion, Cirecter, Sureau of Radiation Control, "ew York City Cecartment of uealt", "as called for such icrediate regulatory action en the basis of less refined calculations; both the reculatory actiers are the calculatf ors su::crting Cr. Scicn's position vere ciscussed in a secuerce of corresconcence (hetween Cr. Scien and the Sandia Lancratories 'no ~' wnich the PRC staff has placed in the a

record (and the PCR) at br etings of tLe ACRS Working Greu; en Transcortativn (Encicsure C).

In rescense to cublic and "CC staf' ccrments, Sandia Labs is expected te

ravise, s they dean a:prc:riate, the '.'erkire Draft Assessrent transmi-ec in June. The resulting Craft Assessment, which Sardia clans to issue in Secte cer, will form a casis for tre Fra# Envircreental Imcact Statement, whien ne st2'f clans to issue later this year. The esults s ated i n -he '.ecr&i ng Cr f t Assessment accear eneral' y reasonabla, recccnizinc "e ex:ressed skacticis:.1 of the staf# 3: cut the as ;esscent's en:imatas of reiease, aercsoli:ec, arc resairabie fracticns base: cn fuel beravice su: Ject to therrai and ecnanicai assault:. "evertheless, 2navoidaele uccertainties in tre analysis (nue, in 3

part, to lack of excerice, tai tata) ma cause the calculated cnnsecuerces ta te greater er lesser thar the values realized, if the hycethetical events were to eccur.

The "CC ::af', in evaluoting Sarcia's irde:encent asses: rent, will interpret the results within the entire fracework of regtlatcry pclicy I

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's (Enclosure C), including t"e likeli"ced of a success #ul malevolent attack, the consecuences of such attacks, and the ccsts recuired Oc arevent or reduce such attacks.

7herefera, we believe i::rediate regulatory action, en the :: asis of this preliminary reccrt, is premature.

Original eis::ed b/7 RCECC 3. "* *X*.~3 Rcbert 8. Finccue, Director -- -

Office of Standards Cevelecrent c)

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Clifford V. Smith, Cirector Office of "uclear "aterial Safety and Safeguards

Enclosures:

A.

Su=ary of Dublic Consecuences P.

Correscencence between Dr. Lecnard Scion and Sandia Labs on Safeguards C.

Issues to be consicered in the Staf' Evaluation DISTRIBUT*CN occ:

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ENCLOSURE a Somrary of Dublic Corsecuences' Early Early Latent Cancer Scurce Fatali-fes Mercicities Fatalities 5:ent Fuel-Truck 10's 1CO's - IC00's 100's Rail 100's 100's - 1000's ICCO's Ncn-fissile Isot:ces l's 10's TO's (Large Sources) 5NM l's 10's 1CO's l's L w Level Waste

Based u:cn :ne larges release '-action cstulated for eae.1 categcry:

Scent Fuel:

ICC% ncol e gases, i.5: cesium,1.0% solids Other : nan cas um.

1/2% of :tal solics in res:iracle form.

Non-fissile sct ces: U: :: ICC% release, 2% in respiracl e form.

SNM:

Up to 100% release, 20% in res:f racle form.

Low Level Waste: U: :: 5C% release,1 C% in res:f rt:le form.

~hese casualty estimates are 'Or radiciagical effects onIy; casualties resul-ing fr:m excl sions usec release ind :: di s:erse racitactive material are no: incluced, even -hcugn seversi nundred 1 medi ate ceatns may result from ex:iasions in :ertain scenarios.

~he econcmic ::s:s wnich 3re ex remely diee::ui

es:imate #:r me ny:er-ur an envir0rment, C:u!

exceed sever 1I iiiians f Cilles.

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NUC:. EAR REGULA7:RY COMMis::C.N e

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Raymenc.:. Fraley, Executive Direc :r, Acviscry Committee en Reac r Saf acuarcs FRCM:

Rccer: 3. Minceue, Direct:r, Cffice Of Stancarts Cevel crent

SUBJECT:

CCRRESPCNCENCE CN SAFE 3UARDS. CR TRANSPCRT C.=

RADICNUCLICES IN URSAN INV!RCNS In May 1975 :ne Office of S andards Ceveiccment ::ntesc:ad with Sancia La:crat:ri as to pre:are an envircementai assessment on ne Terns:cr Of Radienuclides in Ur:an Envi ns.

n kee:ine wi n :ne Ccmmissi n's keec One ACRS informed of r:gress en this study, en August 22, recuest :

1977 mem:ers of my staff and their c:nsultants fr:m Sancia Oriefec :ne ACRS '4crxing Gr u en Trans:cr:ation on :ne Interim Repce issuec Oy Sancia in April 1977.

A: this briefing in A.sgust, Dr. Lecnarc Sci:n, Direct:r, 3ureau f:r Racia-tion Control, Oe:artment of ieal:n, The City of New 'tcrx, was :ermi::ad by Dr. Siess, Chairman of the Wcrking Gr up, :: reac a sta: ament int:

the briefing record and :: res:cnc :: cuestions fr:n ACRS mem:ers anc censul tants. Most of Dr. Sci:n's statement was. :m:rf sad Of his 14::ar of Acril 11, 1977 to Peter McGrath (Enclosure A).

Dr. Sci:n also felicwed uc wi th a l e er :: Mr. Gary Cui::schreiber On Augus: 25,1977 (Inc1:sure 3).

On Novem er 7,1977, Peter McGra:n rescended (Inciosure C)

Dr. Scian's lat:ar of April,1977 My s aff enterec McGra:n's latter in:

the recerc at a briefine of ne ACRS Wcrting Gr:u :n Novem er 15, 1977 Finally, Dr. Sclan res:enced On Decem er 20, 1977, :: McGra n's Never:er lettar (Encicsure C).

We are transmi ing ne entire corres:cncecca sacuenca : ycu (1) sicca tne ACRS nas teen invcived in entarinc scme of :ne : r escencence i ::

the record, (2) 50 as keec :na ACRS a:reas: Of curren: devel:cmenta in ace:reance wita the Commission's cirecticn, (2) s :na: Dr. Scinn's most recent c:rres:cncerce may Oe mace availl: T e f:r :ne ACRS, i ts s ta f f, anc c:nsul tants.

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3" - Scion ie::ar : Gui :scnreiter, AL:us: 25, I?77

'C' - McGra a i s::ar :: Scien, Ncvencer 7,1977

0' - 5:!on ie::ar : McGra:n, Oecam:er IC,1977 Or. Lacnar Sci:n

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New York City with the poteqcia! for hundreds of thcusands of daaths and ccher sc:r.itic and genetic casualties.

I believe the task fcree ust realistically confrcn: the ineluctable consequencas of the data presented in NUREG-Clg4 - megacurie shipmencs of spelt fuel and high level wasta are simply act accep.able in higniy :cpulated urt<tn centars such as New York City. Aitarnative rcu:as cr me:hed: must be used or established, if not already avatiable, especially with increased reliance en ecmercial nur. lear pcwer in the ccming decades.

.May I suggest with the approval of ycu and Art ccharme, thac this lettar be distributed Oc rembers of the task force and other interestad individua I an taking the liberty of furnishing 'he auchers of NUREG-Ol?4 copies direc Ty.

Best perscnal regards.

Sincerely ycurs, -.

sf/

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, Qm Cr. Lecnard R,. Scicn Directcr LRS.fc cc.

C. Vernen h'cdge, "uclear Regulaccry Cer::issicn James E. Cametell, Sandia Labcraccries jA,r*hur Cucharma, Iandia Laboratories e

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.L l8W10.11 August 25, 1977 Lffice of '.he Executive Director Adviscrf Ccmi::ae en Reacter Safeguards L'nited States Nuciear Requiat:ry C:=1issicn

' ashington, C.C.

2C555 Attention: Mr. Gary R. Quittschreiber L' ear Mr. Quittschreiber:

Curing the meeting of the Advis ry C:=1ittee en Reacter Safeguards

,,cekinc accue on irans:crtaticn c-Rac1cac:1ve :da ert ais a: =e inera nn-n e

laGuarcia.-c:ei in New fcr4 C1;y August 23,1977, =e Cnair an, Cr. Chester

.siess, requested dat I fornard t you a c:py of my lenar of ?:ril li,1977

. Dr. J. Pe:er McGra-h of Sandia Labcratries f:r distribution = =e

'lcrking Grcus.

am glad :: do this and a c:py is anciesed.

Curing the cuestien pericd which ensued aftar the reading

' y lenar, one of the 'dcrking Group consultants ex:ressed dcub: Or sur: rise a: my e ssertion that shi men s of s:ent react:r fuel anc hign-levei wasta -h Ough te City cf "ew York wcuid a:;rcach cr exceed a=rextra:aly ne-cer werking e.ay if the tnree L:ng *sland Lighting C ::any (L*LCC) : wer reac :e shi; en s were added to tne 3reckhaven National ' 2berat:ry s;ent fuei shipmen.s frc. One SNL High Flux Beam Reac. r.

T'ne 319 M'de Shoreham react:r 56 miles east Of 2e."ew York City line

'which is sc ewna cre than fifty ;<: enc c:::leta) was planned, when it bec: es c era-icnal, to add betweer,5 and 70 megacurie-level truck shi; ents through New Y:rk City. The Ovin (each 115C ?4ie) James:cet reac=rs Itcu-

8 miles east of Shcrehact wculd acc an additicnal 15C-150 shi: en= if te James:crt nuclear cc :iax bec::as :eraticnal, a

+

i Serween Januari 1975 and Oct:er 1975, =e las

ericd in wnich sni:-

9ents frv1 =e HF5R it 3NL we're ;en.inac :y =e ecarren: Of ieai-

=rcugn New York City, ; rice :: :ne enac=ent :f =e Ci.y cf New 'f:rk Meai = Code acicactive materiais requia i:n, recuiring a Certi ~ica a Of Emergency 7 ans:cr-for such,sni ments, twelve s;gnt fuei sni: ents, each invciving :f e cr:er :?

2CC kilccurits af ;.ixec fission ;r:cuc= were carried by==k 2r:ugn te :i y.

s t

...m.;.m n.

aviun cugus: 2s, ::<<

Thus adding up te :::aiity of s:ent fuei shi: en:s al:ne f := Shcrenam, Jamesport, and Brecknaven, 'here went Oc have been terueen a: cut 200 and 250 sci:ments of these regacurie and nigh '<ilecurie scent fuei shipments de:ugn New Ycrk City.

I offer without further presen: cer=en:, dese figures for fur =er d1: ailed : nsideration by me ACRS in its advisory ca:aci:y :: the '!uclear Regulatory Ccamissien as :ar: of te ia::er's legisiatively manda:ec c:le of patacting Se public heale and,de:y.

I appreciated the :;pertunity of appearing before One ACRS 'dcr<ing Grou:

on Trans:crtation of Radioactive Materials and the ::urtesy sn:wn me :y me e n cers and staff.

Neecless to say, I am pre:ared :: am:lify or discuss furter any of 2e mtters Teated in t9e present ie:ter.

Sincerely.ycu--[ r.

--- /..

//

i-i s :. 4 Cr. Leonard R. Scien Director L15:fp enclosure Cr. Chester Siess "cr an A. Eisenberg

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a a

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--.a

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a..,.. 4.

s. *..,e j

Radioicgical ::nsequences cf a hypothetical sabc: age even:.,nich causes a reiease of raci: active mc.:eriti fr:m a s:ent fuel cask and a hign levai waste cask are cal:uiated.

Tne release f a:ti:ns Of vc!2:lle fission reducts in the s:ent fuel and the sciid fissica pr:duc 3 in to-h the scent fuel and high level waste are trea:ed as :artmeters.

Assuming a larges:

credible solids release fraccicn of one :ercent. ne num:ers of heal.h effects are shown to be smali and en the same er:er of nagnitude for bo.h spent fuel and high levei.2:te.*

The numcers recalculated fr:m the C2C mcdel and :resen:ed in ycur letter (wnich incidentally emolays a hy;ctheticai ;cpulation densi y distri:ution gre? ar than New York City) clearly do not supparc the inference of the Abstract (wnice is the only thing many planners get to read).

For the sake of ccc:arison, let us 11s: these vari:us r. umbers de;ending '.';cn the assum tion of ;c:ulation density.

Peculation Early Latent Censity Dea tns Cancer Celtis

ersens mile-2 Hecge and Cam: bell NUR5G-019a 100 0-2 (Fecruary 1977) a0 - 250 McGrath and Erf eson 0 d miles 15C-1500 5CCO - 11,0C0 fletter t: Solen; (250,000)

(mean)

November 7, 1977) 4-12.5 miles (50,0e0) 12.5 - 30 miles (10,CCO) 20-55 (ICCO) 55-500 (100)

Scien 55,C00 13C0 159,000

'.'lew Ycrk Times)

(Manhattan McVeccer 12, 1977 average)

Scion ECO,CCO C - IC,:CC 2 x 10 - 1.3 x 10 3

lL2tter Oc McGra n)

(. Manna t:an Acril 11,1977

eak)

I su:mit, that in : arms of :ubitc heai:n signifi:ance, ycu and 'ir. Eri:sta came to the essentiaily identical ::eraticnal ::nciusica that I have.

I am sure that neither of us will argue ::c s:renucusly in benalf of the :r2cise :uanti: :ive rebutness of any Of :ne num:ars.

is evident, newever, that the esul:s of a major radiciegical releasa fr:m the deliterita cr acciden:ai ru::uring :f a s:ent fael cask in a hy:erur:an envir r. ment ::uld be disastr:us indesc - eitner : re or less seri:us than most Of :ne num:ers tabuiatad.

New to the assum::f:ns of

.a ::nsequenca I dei (CCMC) itsalf. Another o' my raferences here is NUREG-03a Cverview of the React:r Sa'ety 5tudy Consacuea:e v

Mcdei pubif shed in Oct:ber 197~.

. Ocsarve :na; ycu are listac as ne of :ne sEi (I.3. Wall, 5.5. Yaniv, R.M. 31cnd, P.E. McGrath, H.W. Church, J.R. Wayiand}

autnors.

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r MCREG-03aC (and Accendix 7I Of the 'Jash-iaCC Reactar Safa:v 56udy) :raatac raie=se e -'.c *. i. c n s "..a

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9mpicyed in MUREG-0194 is ina:clicable t: New York City.

For 100 king a: New Y rk City.

One shculd as:ume the kind cf hi;h vel: city wines and :urbulence ty ical of many days beginning in Oct::er and encing in March anc oc:asicnally f:r :-har days :nr:ugn-out :ne year.

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s

Dr. Laonard R. Scien 4-Cecember C, 1977 Permit me :: reiterste my 10:reciati:n for the additi:nal eff:r: that ycu and l4r. Ericscn have put into furener analysis of dis i.m:cr: ant mat Or.

"ly im osa upon you :: cir:ula te the presen letter *.: 111 the :ec:le nha recaived ccpier of ycur Ncvember 7,1977 c:rmunication

me, es:ect illy mercers :f :ne-Task ircuc en Transco-tation O' adicactive "a teri ais in Ur an Envi-ens.

I a.m furntsning /ern.mccge anc ticrm i:sen: erg c:c:es cirec:;/.

Best personal regards ard bes: wishes fer the Icasan and ali cf 1973.

Sincerely v~ -,

/

W

/

,g. _

Y-

_yx g

-P ~

Or. Leenach :t. Sci:n Director L3S: f p C-*

C. 'lernen Mcdce, U.S. Nuclear 3egulat:ry C:cissien, Washir.g::n Normen Eismacerg, U.S. Nuclear Regula::ry C:=:issien, Washing :n Arthar CuCharme, Sandia La:crat: ries, Albuquerque

ENCLCSURE c The issues :: be constderec f a the staf' evalua:icn include:

1.

Degree of realism in the Sandia consecuence estimates e ncble gas and volatiles release fraction a solids release frac:fon o so11ds aercsolized and rescirable fric f ons 2.

3ers ective en sacotage consecuences sacotage of racicac* tee sht:ments versus sni:ments Of 00h9r hazar ;s e

ma*erials alciclogical 20nsecuences cf 3 Saiev0Ient 10:aCX :n ricicaC te o

sni:ments versus nonridictogicai COnsecuences, e.;. ex 1csi0n f atalities, injuries, inc Or er*y damage attrac:f veness of radioac:f ie sni: cents as a target versus 0:rer e

otential targets 3.

Fotentist mitigating actions routing accurd cities - Ou; scme shi:ments can be hijacked arc ta<en e

Oc a hign consecuence targe*

hardening ackaging - stecnger casks e

e Chysicai Or0:ection Communication system :n sni:. ent or tr3nsacr /eric!e - 11 arm or e

locating devices

a

1, pr*w

+NC J higlgg

.Y:'*y C'W;sa.t1 s:.'Wect '.b UNITED STATES h

NUCLEAR REGULATORY COMMISSION S E Y-78-311A Novamber 9, 1978 INFORMATION REPORT For:

The Commissioners From:

Robert B. Minogue, Director, 050 Thru:

Executive Director for Operations

Subject:

STATUS UPDATE ON URBAN TRANSPORTATION SAFEGUARDS STUDY Oiscussion:

On June 14, 1978, the staff submitted an information report (SECY-78-311) to the Commissioners indicating that:

(1) the Working Oraft Assessment on Transport of Radionuclides in Urban Environs (SAND 77-1927), issued by Sandia Labs to NRC in May 1978, states that a successful sabotage attack on a spent ft.el shipment, although difficult to accomplish, could produce sig-nificant consequences, if performed in an urban area; (2) the staff was skeptical about certain aspects of the Sandia analy-sis, particularly the response of spent fuel to the sabotage attack environment; (3) the staff would evaluate in an accei-erated manner, with help frcm experts outside NRC, the degrr.e of reaHsm inherent in the Sandia analysis.

Because of the NRC staff skepticism regarding the ability o' the spent fuel to respond to the attack environment in the manner assumed in the Sandia analysis, the staff believed the analysis contained a fundamental conservatism and the consequences esti-mated greatly exceeded what might occur in reality.

Discus:: ions of this matter were held among Sandia, Oak Ridge National Labora-tory (ORNL), and NRC (50 and NMSS) staff members (see Enclo-sure "A" - Report on Safeguards Coordination Meeting and Fel-lowup).

The 050 staff and technical consultants from ORNL and Sandia recognize that great uncertainties exist in the ana'ysis, but no longer believe that the properties of the spent fue', will inherently prevent the response behavior postulated in the Sandia analysis.

Because of this change and other factors, the OSD staff characterization of the Sandia consequence analysis has changed from " conservative" to "probably realistic but with large uncertainties" (see Enclosure "B" - Factors Affecting Staff View of the Sandia Analysis).

Contact:

N. A. Eisenberg M3-5946

~w..uupp 7.g.g.m,,, m

%. : tag; s* '

,,y

,v..-, 3.

y

The Commissioners 2

On July 25, 1978, NMSS formally transmitted to RES a "Researc.1 Requirement on Vulnerability of Spent Fuel Shipments to Malevolent Events (NMSS 78-7)" (see Enclosure "C").

The requested research program is generally intended to identify the vulnerability of spent fuel shipments to malevolent attack, quantify the source term from such attacks for consequence estimation, and to pra-vide information useful in the formulation of protective meas-ures, if they are judged to be necessary.

The staff believes the requested research program is a suitable vehicle for resolv-ing the technical questions raised by the Sandia sabotage analy-sis and the subsequert staff evaluations.

Several key technical problems have been identified (shaped charges as a significart attack mechanism, the response of the fuel to a shaped charge attack, released, aerosolized, and respirable fractions), and this information can be used to focus the research program e.1 key problems.

NMSS and RES have primary responsibility for this research effort; 050 will provide technical input as required.

Chairman Hendrie has received a letter dated August 18, 1978 from L. D. Santman, Acting Director, Materials Transportatien Bureau, 00T, inviting NRC's views on DOT's advance notice 01 proposed rulemaking on routing requirements for highway carr ige of radioactive material.

The staff sent a response (letter of September 19, 1978 from L. V. Gossick, NRC, to L. D. Santman, DOT), that indicates the interrelation of safeguards and routing considerations.

The staff proposed to participate with 00T in a rulemaking proceading on this subject.

The Division of Safeguards in NMSS is considering wnat imolications, if any, the information above has on Safeguards policy or staff activity.

7 /,

!.. s

...~.

/

Robert B. Minogue, Director Office of Standards Development

Enclosures:

See next page

,!-s

+m O,

9

-r.,

The Commissioners 3

Enclosures:

"A*' - Report on Safeguards Coordination Meeting and Followup "B"

- Factors Affecting Staff View of the Sandia Analysis "C" - Research Requirement on Vulnerability of Spent Fuel Shipments to Malevolent Events (NMSS 78-7)

DISTRIBUTION Commissioners Commission Staff Offices Exec Dir for Operations Secretariat m 4 6

'9 e

0 6

ENCLOSURE A m

4

ENCLOSURE "A" REPORT ON SAFEGUARDS COORDINATION MEETING AND FOLLOWUP Coordination Meeting On August 10, 1978, a meeting was held at Sandia Labs to provide an oppor-tunity for staff members of NRC, Sandia, and ORNL (see Attachment 1 to Enclosure "A" for list of attendees) to discuss the analysis of spent fuel sabotage discussed in SAND 77-1927.

Specifically, fuel behavior experts from ORNL discussed with the sabotage analysts at Sandia the physical environment created by malevolent attack, the response of spent fuel to such an environment, and implications, if any, on the released, aero-solized, and respirable fractions estimated by Sandia.

Three technical issues received substantial discussion.

First, experiments performed at ORNL on spent fuel reprocessing indicate that even after prolonged heat-ing, during which the U0 oxidizes to U 0, at most 20% of the krypton in 2

33 the fission product inventory is released; both ORNL and Sandia Staff agreed that in view of this, the assumption in the Sandia analysis of 100%

noble gas release was too conservative.

Second, the ORNL staff considered the release of all cesium in the cladding gap (0.6% of the Cs in the fission product inventory) to be highly unlikely, since such releases are believed possible only when the cladding is ruptured at an elevated tempera-ture, so the cesium in the gap is in a volatile form and so the rapid fl:w O

of gas from the gap, out of the rupture, sweeps out the cesium.

Further-more, heating of the fuel pins after rupture would tend to cause the UO2 near the rupture point to oxidize and tne resulting swelling would tend to occlude the gap near the rupture point, thereby isolating the gap cesium inventory from the external environment.

Since the postulated sabotage scenarios cause rupture of the cladding at normal temperature (as opposed to certain accident scenarios), Sandia agreed:

(1) that no gap cesium would be released except for that directly in the path of the shaped charge jet, (2) that the cesium release would accompany tne solids releasr, and (3) that the cesium release fraction would equal the so! ids release fraction.

Third, ORNL experiments on shearing of spent fuel and shatteriag of fresh fuel by fast fission heating, indicate that a respirable fraction of 1% or less is likely for these processes (see Attachment 2 to Enclo-sure "A").

The Sandia analysis assumes a 50% respirable fraction for those solids released and aerosolized.

However, in a postulated attack using a shaped charge, the molten metal jet from the shaped charge erodes 3

away the target material at a penetration velocity of about 2 x 10 m/ set, by creating pressures of N 10" Pascal (about one megabar or 1.4 x 10 ps )

i and temperatures of 2000 to 3000 C, and thereby causing the target material to flow away from the jet-target interface.

Since the environment created by a shaped charge attack is so different, in both energy deposition per unit mass and energy deposition rate, from the ORNL experiments, both the Sandia and ORNL staff members agreed that the experimental data could not reasonably be extrapolated to the sabotage scenario.

In the absence of directly applicable information, the 50% respiracle fraction estimate 2

Enclosure "A"

appears reasonable.

In summary the ORNL and Sandia Staff members agreed that the noble gas and cesium release fraction needed to be revised downwar d, but that there is at present an insufficient technical basis for revising the 50% respirable fraction for solids.

Followup Following up on the coordination meeting, Sandia performed some prelimi-nary calculations to determine the effe:t of the modifications suggested by ORNL.

As expected, changes in the noble gas release fraction had virtually no effect on consequences.

Reduction of the cesium release frort 1.6% (1% in solids plus 0.6% in gap) to 1% (no gap cesium released) caused a small reduction (10% or less) in consequences.

Thus, the revised analy-sis provides consequence estimates different from those of the original analysis to a degree that is well within the uncertainty inherent in the analysis.

Essentially then, Sandia stands by the original consequence estimates.

In following up on the coordination meeting, the ORNL staff members have been unable to discover any data that might provide a better basis for estimating the respirable fraction for solids.

In fact, the ORNL fuel behavior experts are not sure if there are any physicochemical phenomena involved in a shaped charge attack that could provide a signifi-cant limitation on the respirable fraction.

In a related series of experi-ments (associated with the LMFBR program), ORNL staff will rapidly discharge a capacitor into a fuel pellet heated to a semi-molten state; the particle size distribution from the resulting explosion will then be measured.

Although not an exact analog of the shaped cnarge environment, this experiment

[

3 Enclosure "A"

approaches the rate of energy deposition in a shaped charge attack.

As the results of this experiment become available in the next few weeks, al' concerned parties will be kept informed and judgments will be made on the applicability of the forthcoming information to this sabotage issue.

X. ASS # LED

.1 Enclosure "A"

~

, ' t,.

~ ^I5 mW3W t ATTACF"ENT 1 TO ENCLOSURE "A" Attendance At Coordination Meetings On Spent Fuel Sacotage - Albuquerque, NM, August 10, 1978 Morning NRC:

Norman A. Eisenberg, 50 Carl B. Sawyer, NMSS Sandia Labs:

Ronald 3. Pope David M. Ericson, Jr.

John M. Taylor Bruce Varnado Arthur R. DuCharne

'4artin Tierney David PcCloskey Robert Reese ORNL:

Anthony P. Malinauskas George W.

Parker R. A. Lorenz a#terncon:

NRC:

Nc-an A.

Eisenberg, SD Cari 3. Sawyer, t. MSS Sandia Laos:

Arthur R. OuCharme David M.

Ericson, Jr.

Paul H. Cooper Robert Reese David E. Bennett, III CRNL:

Anthony P. Malinauskas George W. Parker R. A. Loren:

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Uiiti.Abidi ATTACHMENT 2 TO ENCLOSURE "A" Particle Size Distributions For Stressed Fuel

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ENCLOSURE C O

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,.. neGULATORY COMMISSION WASHINGTON. D. C. 20555 5,,**.

JUL 2 ~ 197d

~ " " '

Saul Levine, Director MEFORANCUM FOR:

Office of Nuclear Regulatory Research Clifford v. Smith, Jr., Director Office of Nuclear Material Safety and Safeguards FROM:

RESEARCH REQUIREMENT ON VULNERABILITY OF SPENT FUE SUBJECT :

SHIPMENTS TO MALEV0LEkT EVENTS (NMSS 78-7)

The attached NMSS Research Requirement formally expresses the Division of Safeguards needs for researcn support in the evaluation of the vulnerability of spent fuel shipments to malevolent events.

Procedures for Processing User Office In accordance with SECY-77-1303, Research Recuirements, it is requested that a work scope, schedule, and cost estimate for tne work needed to satisfy the requTrement, as well as an estim?.te of the value effectiveness of the proposed research, be A. C. Giarratana is developed and submitted to ny office for review.

the NM55 ;:cint cf contact for any clarification or amplification of the statec -e:uirement.

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Cliffi 'd V. Smith, Jr.,%[ rector D

Offde of Nuclear Mater 1 Safety a d Safeguards

Enclosure:

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?s NM55 Research Requirement to Evaluate the '.'ulnerability of g. --

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Spent Fuel Shipments to o.

Malevolent Events A --.

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Enclosure C

UNr.,kSSMB 3

tim 55 5AFEGUA:35 RESEARCH REQUIREMEtiT TO EVALUATE VUltiERABILITIES OF SPEtiT ;UEL SHIPMEtiTS TO MALEV0LEtiT EVEtiTS BACXGROU!iD AtiD STATUS OF PROBLEM At present, there are no specific physical protection requirements for safeguarding shipments of spent nuclear fuel.

Transport standards which do exist are concerned primarily with safety, and are based on standards developed by the International Atomic Energy Agency (IAEA).

There are four basic requirements for meeting these safety standards. These are:

Adequate containment cf radioactive material; Adequate control of radioactive emissions; Safe dis:ipation of decay heat; and, prevention of criticality.

In meeting safety standards requirements, tne safeguards posture of spent LWR fuel shipments is enhanced, although the degree of inherent safeguards protection afforded by these requirements to some extent remains to be assessed.

To complete such an assessment, tiMSS needs information on the release source terms appropriate to a shipping cask exposed to an explosive attack in which the integrity of the cask is breached.

There are, at present, a number of approved and licensed spent fuel shipping containers suitable for either truck or rail transport.

These include legal weight truck packages with a capacity of one PWR or two BWR fuel assemblies;

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overweight tr.uck packages with a capacity for three PWR or seven BWR fuel assemblies; and rail packages of seven to ten PWR or eighteen to twenty-four B',;R assembly capacities.

Preliminary, classified investigations of the penetrability of spent fuel shioping cask exemplars by various kinds of explosive attack has revealed that snipping cask walls can be breached by a broad spectrum of explosive device configurations. While at this time conservative bounds can be determined, it is not possible to estimate precisely the radioactive release fractions that could result from an act of sabotage irwolving an explosive attack on a spent fuel shipping cask. Accordingly, it is necessary

.o refine the estimated effects of a succ.nsful attack to obtain a more exaT:-~difTnition of consequences.

Investigations to date have raised the following questions vis-a-vis the potential vulnerabilities of spent LWR fuel shipping casks to acts of sabo age involving explosives:

i JNC.ASTMiB

. What adversary resource requirements need be assembled to, with

- e a high degree of assurance, explosively breach a loaded spent LWR fuei shipping cask?

What quantities of spent LWR fuel could be discharged from spent

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LWR fuel shipping casks subjected to a variety of explosive

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attacks?

What portien of the radiation release fractions resulting from

- explosive breachings of spent LWR fuel shipping casks would be released in respirable aerosol forms?

What could the range of potential consequences of such events various environments?

/

What are the safeguards implications?

_.ESEAKH REGUIREMENTS C

A.

Functional Need A requirement exists for investigating the vulnerabilities explosives; for the development of potential source term source terms.. Support is required for:

1.

Consecuence Assessment This capability is required to assist in the formula:icn of policy concerning safeguarding shipments of spent LWR fuel.

2.

Reculatory Desien This capability is required to provide a basis for supporting the development of safeguards regulations which may be required for the shipment of spent LWR fuel.

S.

product Characteristics Maximum radicactive release fractions from explosive ruptures of fully loaded spent LWR fuel shipping casks should be estimated.

1.

Data should be acquired frcm controlled laboratory tests of ex7losive disintegration of high burnuo LWR fuel pellets and of exolosivs rupture of scale model spent fuel shipoing casks leaded with surrogate fuel.

t llNCLASS!MD

/ The data from the controlled laboratory tests s 2.

breachings of fu'.ly loaded, full-size spent LWR fuel shipping casks.

The research products should include the range of volatile releases from explosive disintegrations of high burnup (30,000 3.

mwd /t) LWR spent fuel pin segments and pellets; the proportiens wnich are in of particulates arising from such disintegratirr.athe resp hipping '

i

nts,

, cask structural elements cn the dynamics of explos ve eve and the resulti7g interactions with and breakup of spent fuel samples; the estimated degree of plate out of v eglosively disintegrated LWR fuel; and radioactiv in the spent LWP, fuel explosive disintegration tests.

This research requirement product should include a data base describing the combinations of spent LWR fuel shipping containers 4.

and attack modes which would likely result in relea with the nature of damage inflicted on a shipping container, as activity.

well as with the internal cask pressures and temperatures asso-ciated w th the attacks.

i Empl'oying radiological release source terms developed in tne course of this research program or other NR 5.

explosive attack model and associated release s five, and ten year-old spent fuel.

Although those portions of the data base which provide details in safeguards vulnerabilities must be classified, the research S.

d product should, to the extent possible, provide an unclassifie overview and appreciation of the range of po C.

project Schecule Preliminary evaluative data concerning results of explosive disintegra-ld be available tiors of high burnup L',;R fuel pellets and pin segments shouC by 'he end of FY79.

be wailable by early FHO.

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\\1N:1SSliiU A decision poin should be scheduled for early FYSO for NRC staff to evaluate program results and decide whether program results warrant further research.

IMPLICATIONS FOR SAFEGUARDS FROGRANS This is a high priority requirement, significantly impacting NRC's policy safeguarding of s;ent LWR fuel shipment and the develop-concerning the ment of regulatory upgrades in this area.

RESEARCH RECUIREMENT in accordance with SECY-77-13CB, Procedures for Processina User Office P.esearch Recuirements, it is recuested tnat a work scope, scnecule, and cost estimate for the work needed to satisfy the requirem by the Office of Research and submitted to the Office of Nuclear Material Safety and Safeguards for review.

,RELATED ACTIV* TIES IN OTHER AGENCIES This research requirement could by met by a joint program with the Cepartment of Energy (CCE), whose objectivas in a currently funded program of similar nature appear complementary to thosa of NRC.

Tht DOE program to date has involved investigating the effects of various kinds of explosive attack on empty, obsolete, fuel casks designs, b

as on models of these casks.

Continuation and coordination with their centinuing effort is essential.

of this program into studies of the effects of explosive attack on casks and cask models of current design containing high burnup LW contemplated by DOE. attached, contains estimated costs of the DOE proposed validation studies.

Scurce terms developed from a joint undertaking could be used in conse-quence estimation methodologies recently developed, or now being develo under an NRC funded research program.

O mee

a.. %

November 27, 1978 C 0 R R E C T I

O N N 0 T I

C E TO ALL HOLDEnS OF SECY-78-311A - STATUS UPCATE ON URBAN TRANSPORTATION SAFEGUARDS STUDY, DATED NOVEMEER 9, 1978 (INFORMA liAl REPORT)

FER THE REQUEST OF THE EXECUTI'/E DIRECTOR FOR OPERATICNS, THE LAST PARAG;AFP CF PAGE TWO CF THE EASIC FCRTION OF THE SUEJECT STAFF OAPER IS ;E'!ISE3 'O

EAE: S COLLOWS:

"THE OFFICE OF NUCLEAR "ATERIAL SAFETY W '.AFEk ::S

a nTAINS THE POSITION AS STATED IN SECY-78-311 THAT ?,0 I."'E:I ATE EGCL. ~ 'R:

<TICN TO F3.0TECT SPENT FUEL SHIPYEaTS IS NEEDED AT THIS TIME.

IN SUFPCRi 0F THIS JLOGMENT, NMSS COES NOT BELIEVE THAT ANY NEW !NFCRMATICN u;g ggg3 P7ESENTED THAT WOULD SIGNIFICANTLY ALTER ITS INITIAL EVALUATION OF THE SANDIA STi.DY.

SPECIFICALLY, THE LARGE UNCERTAINTIES ASSOCIATED WITH C3LCULATICN OF CONSEOUENCES STILL REMAIN.

A RE'/IEW CF THIS POSITION WILL BE MADE AFT?.R THE FINAL REPCRT OF RESEARCH FRCJECT NMSS 78-7 IS DELI'/ERE:

IN EARLY FY 80."

THE SECRETARIAT e

em.

.ee

ML19263B212

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Enclosures:

SUBJECT:

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Dear Cr. MCGra.n:

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ML19263B212

Text

Dear Members of the Board:

Enclosures:

SUBJECT:

.4.f, r.;

Dear Cr. MCGra.n:

Subject:

Contact:

Enclosures:

Enclosures:

Enclosure:

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