ML19351G087
| ML19351G087 | |
| Person / Time | |
|---|---|
| Issue date: | 12/08/1980 |
| From: | Dircks W NRC OFFICE OF THE EXECUTIVE DIRECTOR FOR OPERATIONS (EDO) |
| To: | |
| Shared Package | |
| ML19351F669 | List: |
| References | |
| REF-10CFR9.7, TASK-CC, TASK-SE SECY-80-533, NUDOCS 8102230094 | |
| Download: ML19351G087 (19) | |
Text
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I December 8,1980
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NUCLEAR RE U ORY COMMISSION WASHINGTON, D. C. 20555 The CRONENT CALENDAR ITEM go,.
From:
William J. Dircks Executive Director for Operations
Subject:
GENERAL LICENSING OF CARRIERS OF IRRADIATED FUEL l
Purcose:
To obtain Commission approval to publish an effective amendment to 10 CFR Part 70 that would issue a general license to carriers of irradiated reactor fuel.
Cateoorv:
This paper covers a minor issue requiring Commission action.
l
Background:
By memorandum of May 25, 1979, the Commission requested that the
" staff consider modification of NRC rules so that carriers can be licensed directly rather than the licensees (shippers)." This l
would provide the NRC with direct inspection and enforcement authority over carriers of irradiated fuel.
In a letter dated June 29, 1979, Edlow International Company filed with the NRC a petition for rulemaking [PRM 73-5] to amend 10 CFR Parts 70 and 73 to provide physical security requirements for carriers of l
irradiated reactor fuel [44 FR 47998].
On March 12, 1980, the Commission published for public comment a proposed revision to 10 CFR Part 70, " Domestic Licensing of Special Nuclear Material; General License Requirements for Any Person Who Possesses Irra-diated Special Nuclear Material (SNM) In Transit" (45 FR 15936).
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Discussion:
On June 15, 1979, effective amendments to 10 CFR Part 73 (Sec-tion 73.37) were published (44 FR 34466) that prescribed require-ments for the physical protection of irradiated reactor fuel in transit.
Because Section 70.12 of 10 CFR Part 70 exempts carriers, l
freight forwarders, warehousemen and the U.S. Postal Service from j
these regulations, the responsibility for complying with Sec-tion 73.37 rests with licensees (shippers), even though physical possession of the irradiated reactor fuel may be in the hands of others during transit.
NRC has no legal basis to inspect carriers
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or to icpose fines and penalties on them (or other unlicensed l
persons who possess irradiated _ fuel during transit) for noncom-pliance with the regulations.
Inspections are carried out by NRC, but $re submitted to only on a voluntary basis on the part of the carrler.
A similar situation used to exist for the transportation of formula l
quantities of strategic special nuclear laterial (SSNM).
Ir. this case, effective amendments to 10 CFR Part 70 were published on May 8, 1979 (44 FR 26850) that placed carriers directly under NRC regula-tory control by virtue of a general license issued to percons who possess formula quantities of SSNM in transit.
The staff ana!y::is that provided the basis for th%e recent amendments was presented in SECY-78-8 (Enclosure A).
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Contact:
Og J. Prell 443-5904 9
The Commissioners 2
Basically, the analysis in SECY-78-8 is applicable to the present consideration of bringing domestic carriers of irradiated reactor fuel directly under NRC requirements.
Accordingly, in SECY-79-662, the staff recommended that the Commission choose the alterna~ive c
from SECY-78-8 (Alternative C) that eliminated the existing exemp-tion in 10 CFR 70.12 for persons who possess irradiated reactor fuel subject to the requirements of 5 73.37 of Part 73 and issue a general license to such persons.
The proposed rule, which was based on that recommendation, was published for public comment on March 12, 1980 [45 FR 15936].
When it becomes effective, this rule would provide the NRC direct regulatory control over all persons wno possess irradiated reactor fuel during transit.
The new require-ments would be applicable only to domestic shipments of irradiated reactor fuel (as defined in SECY-78-8).
These requirements would not be applicable to transient shipments of irradiated foal.
Transient shipment, as defined in S 70.4(v), means "a shipment of nuclear material originating and terminating in foreign countries, on a vessel or aircraft which stops at a U.S. port."
PUBLIC COMMENTS 1
Comments were received from five organizations [see Enclosure C].
None of the commenters objected to the proposed rule.
- However, most of the commenters sought clarification or changes to portions of the proposed rule.
Two commenters suggested that all reporting requirements associated with lost or missing material should be channeled through the Department of Transportation (00T).
The i
DOT, however, prefers that all reports be made directly to the NRC.
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One commenter sought clarification as to whether or not the carrier personally had to comply with meeting the physical protection require-ments formerly imposed only on shippers or whether the carrier only had to satisfy himself, in some unspecified manner, tnat the shipper l
had complied with the NRC requirements.
The staff hss proposed clarifying 70.20a(e)(1) by requiring that carriers of irradiated reactor fuel shall "... assure or receive certification from the shipoer that the transportation is in accordance with the appli-cable physical protection requirements of 6 73.37 of Part 73 of this chapter,..."
One commente.- felt that general licensees should not be subject to certain requi~ements of 10 CFR 570.42 " Transfer of special nuclear material." Ha felt that since the licensee shipper was already subject to these requirements, making the general licensee subject to them would be redundant, accomplish little and add to the bureau-l cratic nichtmare.
Specifically, the commenter objected to para-graphs 70.42(c) and (d) which require:
(1) that the general licensee register initially with the NRC and (2) that prior to transferring any special nuclear material the transferor verify l
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The Commissioners 3
that the transferee's license authorizes receipt of the type, form and quantity of material to be transferred.
The staff feels that these requirements are needed in order to help assure proper con-trol of the material at all transfer points.
The staff also feels that this will not present the general licensee with a bureaucratic nightmare because:
1.
the general licensee is required to register with the Commission only initially, and 2.
the general licensee can verify and obtain from the official records of the Commission or an Agreement State the identity of all the licensees it intends to deliver to and the scope and expiration dates of their licenses and registrations.
Once obtained, this list only has to be updated occassionally as licenses expire or license conditions change or new receivers are added.
The Department of Energy requested that their exemption from this rule be delineated in the final rule.
Staff does not believe this is necessary since 10 CFR 570.11 " Persons using special nuclear material under certain Department of Energy and Nuclear Regulatory Commission contracts" specifically exempts DOE from the require-ments of Part 70.
On June 29, 1979, Mr. Samuel Edlow, President, Edlow International filed by letter a petition for rulemaking [PRM 73-5] to amend 10 CFR Parts 70 and 73.
The intent of PRM 73-5 was to have comparable NRC controls over carriers of irradiated reactor fuel as are now required of carriers of formula quantities of strategic special nuclear material.
This rule change fulfills the intent of the Edlow petition and the petitioner will be so informed.
[See Enclosure F]
Enclosure B sets forth the proposed FRN for the final rule.
These l
actions would involve na new resource requirements.
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Imolementation:
The Nuclear Regulatory Commission has submitted this rule to the Comptroller General for review as may be appropriate under the Federal Reports Act, as amended (44 U.S.C. 3512).
The date on which the reporting requirement of this rule becomes effective, l
unless advised to the contrary, reflects inclusion of the 45-day l
period that statute allows for such review [(44 U.S.C. 3512)(c)(2)].
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Recommendation:
That the Commission:
l 1.
Aporove the amendments set forth in Enclosure "B" for publica-tion in final form in the Federal Register.
2.
Note that the appropriate Congressional committees will be notified of this Commission action.
4 The Commissioners 4
3.
Note that the value/ impact analysis (Enclosure "E") w'll be placed in the Public Document Room.
4.
Note that neither an Environmental Impact Statement nor a Negative Declaration is required in accordance with 10 CFR 51.5(d)(3) because the proposed amendments are rot significant from the standpoint of an environmental impact.
5.
Note that a public announcement such as Enclosure "D" will be issued when the amendments are filed with the Office of the Federal Register.
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v Willi h Dircks Executive Director for Operations
Enclosures:
"A" - SECY 78-8 "B" - Federal Register Notice.
"C" - Public Comments "D" - Public Announcement "E" - Value/ Impact Analysis "F" - Letter to Petitioner "G" - Draft Congressional Letter Commissioners' comments or consent should be provided directly to the Office of the Secretary by c.o.b.
Tuesday. December 23. 1980.
Comission Staff Office comments, if any, should be submitted to the Conmissioners NLT i
December 16, 1980, with an information copy to the Office of the Secretary.
If the paper is of such a nature that it requires additional time for analytical review and coment, the Comissioners and the Secretariat should be apprised of when coments may l
be expected.
This paper is tentatively scheduled for affirmation at an open meeting during the week of December 29, 1980.
Please refer to the appropriate Weekly Comission Schedule.
l when published, for a specific date and time.
DXSTRIBUTION Comissioners Comission Staff Offices Exec Dir for Operations i
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ENCLOSURE "A" SECY-78-8
" RESPONSE TO THE COMMISSION QUESTION CONCERNING THE PROTECTION OF STRATEGIC SPECIAL NUCLEAR MATERIAL (SSNM) SHIPMENTS" i
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0FFECL4L USE ONLY '.
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Januarv 5. 1973 umiso srArts SECY-78-3 NUCI. EAR REGut.ATORY COMMISSION CONSENT CALENDAR ITEM For:
The Commissioners From:
Robert B. Minogue, Director Office of Standards Development Thru:
Executive Director for Operation
. [
Subject:
RESPONSE TO TiiE COMMISSION QUESTION CONCERNING THE PROTECTICN 2?
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STRATEGIC SPECIAL NUCLEAR MATERIAL (SSNM) SHIPMENTS Purcese:
To analyze alternative approaches to bring domestic carriers, who transport SSNM in quantities specified in 10 CFR 73, more directTy ender NRC physical protection requirements.
Catecorv:
This paper cevers a major policy matter.
Issue:
Whether 10 CFR 70.12 should be amended to remove the exemption of carriers from the NRC physical protection requirements or usg some other method to bring domestic carriers more directly unde.
NRC requirements.
Decision Cr1:eria:
1.
The alternative should provide a legal basis for NRC authority to inspect domestic shipments of strategic quantities of SNM commensurate with that now provided for NRC inspection of fixed sita facilities.
2.
The alternative should not diminish or limit competitive interest in the transport market of SSNM.
l 3.
The alternative should result in a reasonable cost impact on the NRC, licensees and domestic transport activities, (e.g., carriers, freight forwarders, warehousemen and shippers' agents), in consideration of the risks involved r
and the benefits derived.
4.
The alternative should result in minimal interference with other government agencies that regulate domestic transports tion activities.
i Alternatives:
A.
The Commission may elect to continue with the present system which provides for minimal regulation of domestic transport activities., wnereby NRC inspection functions are performed on a cooperative arrangement with carriers, who permit the NRC to inspect shipments.
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8.
The Commission may elect a system of indirect regulation whereby the Commission's regulations would be amended to require licensees to entar into a specific contract with the carrier to allow the NRC to carry out its inspection functions.
I C.
The Commission may elect a system of direct regulation whereby 10 CFR 70.12 would be amended to eliminate the exemption for carriers who transport SNM which i~s subject to the requirements of 10 CFR 73 and place carriers directly under NRC inspection requirements oy issuing carriers a general license to possecs SSNM subject to specific pro-visions regarding phys' cal protection.
D.
The Commission may elect a system of direct regulation and control over carriers who transport SNM which is subject to the requirements of 10 CFR 73 whereby 10 CFR 70.12 would be amended as in C above, and each carrier would be required to file an application for a specific license to possess SSNM.
l The subject of whether domestic transportation activities should 14 m:
be subject to' additional security requirements, either through licensing or some other method was raised in connection with SECY 75-463 during Policy Session 75-48 on August 29, 1975.
In a memorandum of September 3, 1973, the Commission requested the Executive Director for Operations to reconsider SECY 75-463 in light of the above.
In response to this request, SECY 76-532 dated November 2,1976, l
recommended actions for resolving, among other things, the l
mattar concerning additional security measures for domestic l
transportation activities.
After duly considering the recom-mendations made in SECY 76-532, the Commission, by memorandum to I
the Executive Director for Operations dated March 7,1977, l
directed the staff to prepare among other things, an analysis of alternative approaches to amending 10 CFR 70.12 to bring carriers directly under NRC physical protection requirements.
The Commission also directed the staff to prepare views on the preferred option.
BACKGROUND:
Domestic shipments of SSNM means the transport of SSNM witnin the United States or its possessions in quantities specified in and subject to the requirements of 10 CFR 73,
" Physical Protection of Plants and Materials."
SSNM shipments include the transport of SSNM:
(3) between U.S. licensee facil-ities; (b) from a licensee shipper to the first port of call in a foreign country for. export shipments; and (c) from the first s
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point of unloading in the United States to the receiving licensee facility for import shipments.
Currently, there are approximately fifteen (15) export / import reicted commercial comestic shipments of SSNM being made per year.
Although existing NRC regulations authorize commercial domestic shipments of all types of SSNM by sea and rail and certain types by air cargo, the shipments are currently being made primarily by road.
At the present time, one (1) carrier and two (2) shippers' agents have an NRC approved transportation security plan which cover road shipments, and there are no NRC approved security plans for freight forwarders or warehousemen.
Up to now, freight forwarders and warehousemen have essentially not been involved in the transport of strategic quantities of special nuclear materials and it is anticipated that, without plutonium recycle, the situation will probably not change.
Item 2 of the Secretary of the Commission's memorandum of March 7, 1977, explicitly requested that staff explore alter-native means for bringing carriers directly under NRC regula-tions.
However, staff believes that other persons involved in the domestic transport of SSNM (e.g., freight fo marders, ware-housemen and shippers' agents) who may, for varying periods of time, acquire physical possession of SSNM which is subject to the requirements of 10 M 73, but who are exempt from doing so by 10 CFR 70.12, should also be considered in this paper.
With regard to shippers' agents, SECY 76-532, stated that the com-pulsory licensing of shippers' agents is no.t supportable because their protection activities did not fall within the scope of Section 53a. of the Atomic Energy Act of 1954, as amended, i.e.,
they did not possess (strategic) special nuclear material, and that an apprcpriate approach would be an indirect regulation through a contractual arrangement between the shipper licensee and the shipper's agent.
Subuquent to this conclusion and recommendation, it has been sstablished through recent transportation activity that shippers' agents can and do at times possess SSNM within the meaning of Section 53a., and that a ccmpulusory license require-ment for shippers woul<f be supportable.
In October of 1977, an NRC licensee contracted with a shipper's agent to arrange to transport on his behalf, SSNM which.was subject to the physical protection requirements of 10 CFR 73.. The agent arranged for the transport and protection of the SSNM shipment including the hiring of carriers and escort guards.
A member of management from the agent's organization accompanied the shipment and exercised control over the movement of the material, and the activities of the protective forces.
In this instance prior 9
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to the shipment being made, the shipper's agent would not agree to permit Inspection and Enforcement to perforin certain inspec-tion functions on the shipment.
Because of this, a special license condition was imposed on the shipper licensee the day before the shipment was made to allow I&E inspection of the shipment.
Under the present regulations, the agent who had actual possession of the material was not, subject to NRC regu-lations during the course of the shipment (neither were the carriers or the escort guards).
It is expected that instances similar to this one will occur in the future.
There may also oe instances where a person other than a shipper's agent or a carrier would possess SSNM during transport without being sub-ject to NRC requirements.. Therefore, in the interest of pro-viding a uniform level of regulation of SSNM throughout the nuclear fuel cycle, and since the alternatives and the arguments both pro and con presented herein would apply to carriers, l
freight forwarders, warehousemen, shicpers' agents and any other person who would possess SSNM in the crurse of a shipment, staff believes that the Commission should consider imposing conccmi-tant and equivalent requirements on any person to possess or control SSNM for the purpose of transport or storage incident thereto.
Staff has appended an Enclosure 5 to this paper which l
sets forth the proposed changes to the regulations that would be necessary, should the Commission approve Alternative C, to require issuance of a general license applicable to persons who possess SSNM of the types and in the quantities subject to the requirements of 10 CFR 73, for the purpose of transport or storage incid:mt therr.o.
Such a requirement would provide the NRC a legal basis & regulating the transport of SSNM ccmpa-rable to that already provided for the regulation of fixed site
.wel cycle facilities.
The approaches for :onsidering bringing carriers under more direct NRC physical protection control with respect to transpor-i tation of strategic special nuclear material are independent from the safety aspects.
There are certain studies ongoing with respect to safety in the transportation of radioactive materials, such as the envirc, mental impact statement on Transportation of Padioactive Materials by Air and Other Modes, the environmental impact statement on Transportation of Radioactive Material Through Urban Environments and a study on ways to improve (frem a safety standpoint) transportation of low level radioactive mater'ials.
There is no indication at the present time that any of these safety studies would result in a conclusion that NRC should exercise direct regulatory control over carriers for l
safety purposes.
If any additional requirements should be considered necessary for carriers as a result of these studies,
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the present plan is to implement such requirements through the DOT regulations, rather than NRC regulations.
This would be consistent with the memory. cum of understanding with DOT whereby NRC is responsible for packaging requirements and 00T is responsi ble for carrier requirements with respect to safety in transpor:ao tion.
Only if 00T refused to impose additional carrier require-ments which NRC felt wers necessary would we consider using NRC authority to imposa safety requirements directly on. carriers.
The alternative approaches for bringing transport activities more directly under NRC physical protection requirements which would not interfere with other Federal Agencies regulation of transportation activities are presented and evaluated in the following paragraphs:
Alternative A.
The Commission may elect to continue the present system wnereoy NRC transportation inspection functions are i
carried out under a vcluntary arrangement with carriers and shippers' agents.
(See Enclosure 1).
Pro: (1) This. ;:ractice until recently has been acceptable.
(2)
For i carrier or shipper's, agent who is found to be in non t )mpliance with NRC requirements, t:he NRC can I
eithe revoke approval of that ccmcany's security plan l
or prahibit a licensee's use of that carrier or ship-per's agent, where the licensee approved security plan j
was being followed.
l (3)
No cost impact on the licensee, carrier, shipper's agent, or 'the NRC would result from continuation of Alternative A.
Con: (1) The NRC has no clear legal basis for inspecting trans-port security systems in the absence of a carrier's or shipper's agent's permission to inspect.
l (2) Although the shipper licensee does not possess or exercise control over the SSNM he is required to protect while in transit, he is responsible for the protection of the material while it is in the pos-session or under the control of another person.
(3) The NRC has no clear legal basis in the absence of a license to impose fines or penalties directly against a transport activity found to be in non-compliance with NRC requirements, or the approved transportation security plan.
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The Commissioners 6
Alternative B.
The Ccmmission may elect a system of indirect regulation wnereby the Commission's regulations would be amended to require shipper licensees to enter into a specific contract with a transport activity to al' low the NRC to carry out its inspection functions.
(See Enclosure 2.)
Pro: (1) A specific contract would bring. transportation activi-ties indirectly under NRC physical protection inspec-tion requirements.
(2) The shipper licensee, by express condition of his contract, would provide NRC the legal authority nec-essary for access to inspect a transport activity security system for each shipment, including his records, and the communications systems used.
(3) The present system for submitting a transport activity security plan for NRC approval could continue to be used and non-compliance of an item by the activity could result in NRC revocation of approval of his plan, or automatic revocation could ensue as a specific condition of a licensee contract with a carrier or shipper's agent.
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(4) The shipper licensee would by express condition of the contract have legal recourse for non-compliance or lack of performance in meeting NRC requirements on the part of a transport activity through a civil action at law.
I (5)
Should not' diminish or limit ccmpetitive interest in the transport market of SSNM.
Con: (1)
NRC regulatory control is indirect, through the licensee I
contract for transport.
(2) The NRC has no clear legal basis, in the absence of a license to impose fines or penalties against a trans-port activity found to be in non-compliance with NRC requirements.
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.(3) While the shipper licensee does not retain physical l
control over the SSNM, he is responsible for pro-l taction of the material during the period of time the transport activity has possession.
(4)
Requires amendment to 10 CFR 70 wherein the NRC would provide' detailed guidance to transport activities to
The Commissioners 7
assure that specific terms and conditions which would retain NRC authority to inspect, are incorporated into the specific contract for transport.
(5) Would require NRC review and approval of each shipper licansee's contract for transport.
-(6) Would involve some cost impact on the shipper licensee and the NRC, and minimal, if any, on the transport activity.
Alternative C.
The Commission may elect a system of direct regulation wnereby 10 CFR 70.12 would be amended to delete the transport activity exemption when carrying the types and quanti-ties of SSNM subject to physical protection during transporta-tion under 10 CFR 73 and place transport activities directly under NRC physical protection requirements by issuance of a general license to possess SSNM.
(See Enclosure 3.)
Pro: (1) The NRC would exercise direct regulatory authority-over transport activities.
(2) The NRC would have a clear legal basis for inspecting transportation security systems.
(3) The NRC would have the legal authority to impose fines and/or penalties on transport activities for non-compliance with NRC physical protection requirements.
(4) The general license would set forth specific provisions and conditions for retention of certain NRC authority (i.e., to inspect, to require documentation and records, to require reports, to confiscate material, etc.).
(5) Would be effective without the filing of applications with the Commission or the issuing of licensing docu-ments to particular persons.
(6) Would involve no cost impact on the shipper licensee, and minimal on the transportation activities, and the NRC.
'(7) The resconsibility for assuring protection of SSNM in transit would be placed directly on the transport activity.
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Con: (1)
Could diminish the interest of other transport activi-ties that would otherwise enter the SSNM transport market.
(2) Would reo> ire a person who possesses SSNM to submit for NRC approval a cocy of his security plan which describes the security system he will use and the procedures he will follow to protect SSNM in his pos-session during transport.
Alternative D.
The Commission may elect a system of direct regulation and control over transport activities whereby 10 CFR 70.12 would be amended as in Alternative C above, and each transport activity would be required to apply for a spe-cific license to possess.
(See Enclosure 4.)
Pro: (1) The NRC would have a legal basis for exercising direct regulatory authority over transport activities.
(2) The NRC would have a clear legal basis for inspecting transport security systems and to impose fines or penalties for non-ccmpliance with NRC requirements.
(3) Would place the responsibility for assuring protection of SSNM in transit directly on the transport activ.ity during the period of time that he possesses SSNM.
(4) Transport activities would be bound to comply with all the provisions and conditions of a specific license.
(5) Would result in no additional cost to the shipper licensee.
(6) Would give the NRC the authority to screen transport i
activity applicants to determine their qualifications and capabilities'resulting in NRC approval and licens-ing of certain transport activities.
Con: (1) Would require transport activities to file an applica-tion for a specific license.
(2) Would result in the issuance of licensing documents to particular persons.
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(3) Would result in moderate additional cost to transport activities and to the NRC.
Could result in significant cost impact to the NRC in the future with the expan-sion of the nuclear fuel cycle.
l (4) Would diminish or limit competitive interest in the transport market of SSNM.
Recommendation:
That the Commission:
1.
Acorove publication for public comment the amendments to 10 CFR Part 70 as set forth in Enclosure 5 (Alternative C).
which would reqrire the issuance of a general license to j
possess to any person who possesses SSNM subject to the requirements of 10 CFR 73.for the purpose of transport.
2.
Note:
i (a) that the appropriate congrassional committees will be i
notified of this Commission action.
(b) that an Environmental Impact Statement need not be prepared on subsequent associated rule-making action since the actions to be taken are essentially proce-di Tl in nature and will not have a significant envi-ru mental impact.
(c)
That a public announcement of the amendment is attached.
The Office of Public Affairs has prepared the announcement.
Coordination:
The Executive Legal Director has no legal objection.
- However, he points out that "(1), one instance of a recalcitrant ship-per's agent does not necessarily establish a pattern of non-cooperation for the future and even in the cited instance, NRC authority was exercised through the licensee shipper; and (1),
the recommended general license closely resembles a specifit license since under the proposal the general licensee could
' not actually exercise rights under the license until his transportation. security plan had been reviewed and approved by NRC."*
The Offices of Nuclear Material Safety and Safeguards, sThere is precedent for this level of detail in a requirement for a general license as exhibited in the proposed amendments to 10 CFR 70 for possession and use of plutonium-238 powered cardiac pacemaker s.
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The Commissioners 10 Inspection and Enforcement and Public Affairs have con-curred in the recommendations of this paper.
The Office of Policy Evaluation comments sve been reviewed and appropriately responded to.
The second pm
- sch on page 4 of the staff paper was added to respond to OGC co
- ns regarding safety issues.
ANTICIPATED SCHEDULING:
Week of January 30,197Qg t an OPE? Meating.,
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Robert B. Minogue, Director Office of Standards Development
Enclosures:
"1" - Alternative A:
Minimal Regulation Uncer a voluntary Arrangement with Carriers and Shippers Agents "2" - Alternative B:
Indirect Regulation of Carriers ihru Shipper Licensees Contract for Carriage With Carriers or Shippers Agents "3" - Alternative C:
Direct Regulat~on of Transport Activities Thru Issuance of, General License to Possess SSNM "4" - Alternative 0:
Direct Regulation of Transport Activities Thru Issuance of A Specific License to Possess SSNM "5" - Proposed Changes to 10 CFR Part 70 to Effect Alternative C for any Person who Possesses Special Nuclear Material Subject to 10 CFR 73 for the Purpose of Transport "6" - Draft Public Announcement Commissioners' comments or consent should be provided directly to the Office of the Secretary by cab Wednesday, January 18. 1978.
l Commission staff office comments, if any, should be submitted to the Commissioners NLT January 13, 1978, with an information copy to the Office of the Secretary.
If the paper is of such a nature that it requires additional time for analytical review and comment, the Commissioners and the Secretariat should be apprised of when comments may be expected.
DISTRIBUTION Commissioners Commission Staff Offices Exec Dir for Operations Secretariat m-7,
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ENCLOSURE "1" Alternative A:
Minimal Regulation Under a Voluntary Arrangement with Carriers and Shippers Agents 4
The present regulations in 10 CFR Part 73 requirs licensees who transport or who deliver strategic special nuclear material to a carrier
,for transport, to submit a transportation security plan for NRC approval.
For shipments which are made via contract or common carrier, arrangements are made by the licensee with a carrier or a shipper's agent to submit to the NRC on behalf of the licensee the transport activities transportation security plan that will be implemented and followed to meet NRC require-ments during the period of time that the SSNM is in the possession of the transport activity.
Under this arrangement, the NRC does not exercise regulatory authority over carriers or shippers' agents responsible for transporting SSNM.
In addition, the licensee continues to be held respon-sible for protection of the material a'lthough he does not possess it or exercise physical control over it whila it 1: in transit.
As a result of the exemption in 10 CFR 70.12 the NRC may not, without consent, enter common or contract carrier vehicles, aircraft, ships, or facilities to inspect their activities as they pertain to the protection of SSNM in the absence of a license.
However, NRC inspections have been carried out
' regularly with the cooperation of carriers and shippers' agents and until l
1
' Enclosure "1"
I the recent occurrence described in the staff paper, this system has been I
satisfactory, but there is no guarantee that in the future carriers or shippers agents will c:cperate with the NRC and that the systam will be effective.
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2 Enclosure "1"
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ENCLOSURE "2" Alternative B:
Indirect Regulation of Carriers Thru Shipper Licensees Contract for Carriage With Carriers or Shippers Agents An indirect form of regulation would consist of a specific contract between a licensee and a carrier or shippers agent which would set forth specific provisions to require carrier conformance to NRC requirements and to allow the NRC to inspect ' carriage and the transportation security system.
NRC regulations (10 CFR 70) wauld be amended to include a requirement for licensees who utilize a shipper's agent or contract or common car riers to submit as part of their security plan a copy of the specific contrart they would enter ints to assure retention of specific rights and authori-ties necessary to provide the NRC a legal basis to carry out its inspec -
tion functions.
Under this arrangement, the licensee would continue to be responsible for providing protection of the SSNM shipment at all times.
Thus, any NRC enforcement actions for items of non-co=pliance or violations of NRC requirements by the transport activity would be taken against the licensee.
For infractions of NRC requifements, that result in' damages to the licensee, legal action against the carrier could be brought by the licensee or his agent for damages in a civil action:
Although alternative 3 would provide l
NRC with the legal authority to inspect carriers transport systems, there 1
Enclosure "2"
I is no clear legal basis for the NRC' to impose fines or penalties for infractions of its regulations in the absence of a license.
2 Enclosure "2"
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ENCLOSURE "3" Alternative C:
Direct Regulation of Transport Activities Tnru Issuance of A General License to Possess SSNM This alternative would require amendment of 10 CFR 70.12 to remove the exemption fica NRC licensing requirements for transport activities who voluntarily transport types and quantities of SSNM subject to the require-
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cents of 10 CFR 73 and would include a requirement for issuance of a general license to such transport activities.
The license would be effec-tive for any transport actitity regardless of code of transport without the filing of applications with the Commission or the issuing of licensing documents to particular persons, and the transport activity would still be required to =ake shipments in accordance with an NRC approved transporta-l tion security plan prior to transporting SSNM.
l Under a general license, the transport activity responsible for arranging the shipment would be required to submit a transportation security plan describing the security system to be used to protect an SSNM shipment.
However, any transport activity who possesses SSNM would be l
l responsible for assuring that the SSNM is protected in accordance with an NRC approved transportation security plan, and system as provided by either the shipper licensee, his agent, or a carrier.
This option would provide NRC the legal basis needed to inspect
(
shipments of SSNM, SSNM shipment records and other shipment related func-tions of carriers, shippers' agents or other transport activities involved 1
Enclosure "3" l
in the transportation of SSNM, and would also provide the NRC the legal basis needed to take direct enforcement action against transport activi-ties who carry SSNM in violation of NRC transportation security require-i ments.
The present system would not be physically affected by this option, but the activities and practices new in effect thru other mea,ns, would be l
codified.
This option would not specifically require carriers or shippers' agents to develop the resources needed to meet NRC transportation security requirements but would continue to allow the various options for providing protection of SSNM in transit, (e.g., the shipper licensee, or his agent.
or his carrier could either provide or arrange for protection of SSNM shipments), however, the transport activity will be responsible for assuring that the SSNM is protected in accordance with an NRC approved plan and NRC requirements.
Transport activity responsibility would ba delineatad in the amendments proposed to 10 CFR 70.
There would be no additional cost impact on the-Ticensee and only nominal impact on the carrier and the NRC.
.The amendments would require any person who possesses SSNM for the l
purpcse of transport under the general license to assure that the trans-
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the approved transportation, plan.
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ENCL 05tJRE "4" Alternative 0:
Direct Regulation of Transport Activities Thru Issuance of A Specific License to Possess SSNM This option would require carriers and shippers agents to file a formal application for a license in accordanca with filing procedures prescribed in 10 CFR Part 70.
Carriers and shippers agents would then be screened and a determination ~made as to approval of the application.
inis option wculd provide NRC the authority to control which carrier or shippers agents would be permitted to cnter the SSNM transport business.
The NRC would have a legal basis for direct regulation of, and enforcament action against, carriers or shippers agents when necessary.
This option would limit the numher of transport activities that might otherwise enter into the business because the limited amount of business available to a carrier at the present time may not be worth the expense and bother of being burdened with requirements over and above those already requi.ed by the ICC, COT, FAA, etc.
This option would result in a moderate cost impact on each carrier, shippers agent, and the NRC The cost impact on the NRC in the future could be significant.
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ENCLOSURE "S" PROPOSED CHANGES TO 10 CFR PART 70 TO EFFECT ALTERNATIVE C FOR ANY PERSON WHO POSSESSES SPECIAL NUCLEAR MATERIAL SUBJECT TO 10 CFR 73 FOR THE PURPOSE OF TRANSPORT NUCLEAR REGULATORY COMMISSION
[10 CFR Part 70]
SPECIAL NUCLEAR MATERIAL General License Requirements For Any Person Who Possesses Special Nuclear Material (SNM) In Transit, Subject to the Requirements of 10 CFR Part 73 AGENCY:
U.S. Nuclear Regulatory Ccemission ACTION:
Proposed Rule
SUMMARY
Based on the Commission decision to provide a comparable level of protection for special nuclear material in the transporta-tion sector as is now provided for special nuclear material at fixed sites, the Nuclear Regulatory Commission is considering amend-ments to its regulations to require any person who possesses, or who exercises control over, SNM in transit to be responsible for assuring that the SNM is protected against theft and sabotage by a security 1-Enclosure "S" A
..; - ~....
system which is implemented in accordance with a Transportation Security Plan that had received prior NRC approval.
Implementation of the rule would bring persons who possess or control SNM in transit directly under NRC physical protection regulations.
DATES:
Comments must be received on or before ADDRESSES:
Comments or suggestions for consideration in connection with the proposed amendments should be sent to the Secretary of the Commission, U.S. Nuclear Regulatory Ccmmission, Washington, D.C.,
20555, Attention:
Occketing and Service Branch.
Copies of comments received may be examined at the Ccmmission's Public Document Rocm at 1717 H Street, NW., Washington, D.C.
'FOR FURTHER INFORMATION CONTACT:
Mr. R. J. Jones, Chief, Materials Protection Standards Branch, Division of Siting, Health and Safeguards Standards, Office of Standards Development, U.S. Nuclear Regulatory Commission, Washington, D.C. 20555,- 301-443-6973.
SUPPLEMENTARY INFORMATION:
In light of the criteria that shipments of strategic quantities of SNM~ should be protected in the interest of national securit/ and public ' health and safety, the Commission l
believes that carriers, and other persons presently exempt from licensing under 10 CFR 70.12 should, while in actual physical posses-1 l
sion of SNM, be licensed while performing the vital role of trans-porting strategic quantities of SNM.
Under the present system the l
I
'2-
~
Enclosure "5" e
8 a
NRC has no legal basis for inspecting shipments in transit in the absence of a license or other formal means although such inspec-tion is now carried out on a voluntary basis.
The Cannission believes that the authority for inspection of ecmmon or contract carrier vehicles, aircraft, ships, carrier or shipper agents' facilities, and all made transfer and temporary storage points associated with strategic SNM snipments should be given a firm regulatory basis.
Accordingly, the Ccamission proposes to amend its regulation in Section 70.12 of 10 CFR Part 70, that grants an exemption frca regulatory requirements for carriers and other persons who may possess or control SNM in transit.
Section 70.12 would be revised to remove the exemption frem the regulations. as to carriers and other persons who possess or control strategic quantities of SNM, subject to the physical protection requirements of 10 CFR Part 73, l
for the purpose of transport, or to provide storage incident to s
transport.
A new section 70.20a would be added to Part 70 granting a general license to any person who possesses or controls SNM in transit.
The general license would be limited to possession only and would be effective during th'e course of a shipment.
The a 9mption remains in effect for all other SNM shipments.
The general license would be subject to certain enumerated sections of Part 70 and a transportation security plan would have to be sub-mitted and receive NRC approval before being able to possess SNM under the license.
3 Enclosure "S"
.A
o O
The amendments proposed only codify practices and procedures presently conducted on a voluntary basis and will not require the filing of applications with the Ccmmission or the issuing of licensing docun.ents to particular persons by the Ccmmission.. The promulgation of the amendments will not result in any activity that affects the environment.
Accordingly, the Ccmmission has determined under the National Environmental Policy Act, the Ccuncil of Environ-mental Qcality guidelines, and the criteria of 10 CFR Part 51.5(d)(3),
i that neither an environmental impact statement or environmental impact appraisal to support a negative declaration for the proposed amendments to 10 CFR Part 70 is required.
Pursuant to the Atomic Energy Act of 1954, as amended, the Energy Reorganization Act of 1974, as amended, and Section 553 of title 5 of the United States Code, notice is hereby given that adoption of the following amendments to Title 10, Chapter I,. Code of Federal Regulations, Part 70 is contemplated.
1.
Section 70.12 is revised to read as follows:
5 70.12 Carriers.
Common and contract carriers, f< eight forwarders, warehousemen, and the U.S. P-stal Service are exempt from the regulations in this part to the extent that they transport or store special nuclear material in the regular course of carriage for *another or storage incident thereto.
This exemotion does not acoly to special nuclear material subject to Sections 73.30 through 73.36 and 73.70(g) of Part 73 of this chapter and transoort'ed under the general license issued under Section 70.20a of this Part.
4 Enclosure "5" A
2.
A new Section 70.20a is added to read as follows:
5 70.20a General license to cassess scecial nuclear material for-transoort.
(1) A general license is hereby issued to cossess scecial nuclear material of the tyces and cuantities subject to the reouirements of Section 73.30 throuoh 73.36 and 73.70(o) of Part 73 of this Chacter, for the curcose of transoort and storage, incident thereto.
The oeneral license is subject to the orovisions of 5 5 70.32, 70.42, 70. 52, 70. 55. 70. 61, 70.62 and 70. 71 of this Part.
(2) Any oerson who cossesses soecial nuclear material for the purcose of transoort under this general license:
(a) shall have submitted and received accroval of his trans-portation security olan.
The security olan shall cutiine the oro-cedures that will be used to meet the reouirements of 11 73.30 through 73.36 and 73.70(o) of Part 73 including a olan for the selection, cualification, and training of armed escorts, or the specification and design of a saecially desioned truck or trailer as aporopriate.
(b) shall assure that the' transoortation is in accordance with the apolicable physical orotection reouirements of Part 73 of this Chapter and the acolicable accreved transoortation security olan.
Dated at Washington, D.C. this day of 197.
For the Nu:lehr Regula m y Commission.
Secretary of the Cannission S
Enclosure "5"
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.,t-ENCLOSURE "6" NRC PROPOSES TO AMEND REGULATION ON SHIPMENTS OF STRATEGIC QUANTITIES OF SPECIAL NUCLEAR MATERIAL The Nuclear Regulatory Commission is proposing to further strengthen its regulations for safeguarding the shipment of strategic quantities of special nuclear material (high enriched uranium and plutonium).
This would be done by extending present safeguards requirestits for NRC licenses to cover carriers, freight forwarders, warehouse organizations and shippers' agents.
At present, NRC licensees who actually ship the material--or shippers' agents or carriers which represent the licensees and have pre-approved physical security plans--are responsible for assuring that shipments are
~
properly safeguarded.
Under the proposed amendment, the NRC would issue a general license governing any shipment of a strategic quantity of special nuclear material.
Under this license, the organization responsible for arranging for the shipment would be required to have an NRC-approved physical security plan.
Any other organization possessing the material'during the course of the shipment also would be directly responsible for seeing that the applicable approved physical security plan is pro ~perly implemented.
The ' general l'icense requirement will create direct authority for NRC inspection of shipments and other shipment-related functions, and provide a legal basis for taking enforcement action against any organization 1
Enclosure "5" A*
.,w-involved in shipments of strategic quantities, of SNM.
Under the present regulation, the shipper licensee is held responsible for any transport organization which violates the applicable approved transportation security plan and the applicable NRC physical security requirements during shipments.
Comments on the proposed amendment should be submitted within days of publication in the Federal Register on They should be addressed to the Secretary of the Commission, Nuclear Regulatory Commis-sion, Washington, D.C. 20555, Attention:
Docketing and Service Branch.
2 Enclosure "6"
i ENCLOSURE B FEDERAL REGISTER NOTICE
[7590-1]
NUCLEAR REGULATORY COMMISSION
[10 CFR Part 50]
DOMESTIC LICENSING OF SPECIAL NUCLEAR MATERIAL General License Requirements For Any Person Who Possesses Irradiated Special Nuclear Material (SNM) In Transit AGENCY:
U.S. Nuclear Regulatory Commission.
ACTION:
Final Rule
SUMMARY
The NRC is amending its regulations to issue a general license to any person who possesses irradiated reactor fuel ia transit.
Under the general license, a person who possesses irradiated reactor fuel in transit would be subject to certain requirements.
This action would provide the NRC a level of direct control and direct inspection authority over irradiated reactor fuel shipments comparable to that now provided over formula quantities of strategic special nuclear material (SSNM) in transit.
Notice is hereby given that this action meets the intent of the petition for rulemaking (PRM 73-5) filed by Mr. Samuel Edlow by letter dated June 29, 1979, with the Nuclear Regulatory Commission and therefore further action is not required.
EFFECTIVE DATE (60 days after publication in the FR)
FOR FURTHER INFORMATION CONTACT:
Mr. James A. Prell, Safeguards Standards l
Branch, Division of Siting, Health and Safeguards Standards, Office of l
l Standards Development, U.S. Nuclear Regulatory Commission, Washington, D.C.
20555 301-443-5904 SUPPLEMENTARY INFORMATION:
On May 8,1979, eff ective amendments to 10 CFR l
Part 70 were published, 44 FR 26850, that removed the licensing exemption 1
[7590-1]
and granted a general license to carriers and other persons who have actual or constructive possession (constructive possession is a form of legal possessior' m material in a shipment that does not req 0 ire actual physical custody; it may be evidenced through control over the shipment or by other means) of formula quantities of SSNM for the purpose of transport or storage incident to transport.
This provided the NRC with a legal basis (in the absence of a specific license or other formal means) for inspecting ship-ments of formula quantities of SSNM in transit.
Prior to issuance of the effective a'mendments, inspections were submitted to on a voluntary basis on the part of the carriers.
On June 15, 1979, effective amendments to 10 CFR Part 73 (Section 73.37) were published (44 FR 34466) that prescribed requirements for the physical protection of irradiated reactor fuel in transit.
In their present form, these regulations do not subject to direct regulation carriers and other persons who possess (actually or constructively) irradiated reactor fuel for the purpose of trans) ort or storage incident to transport.
This creates the same situation for the shipment of irradiated fuel as existed for the shipment of strategic special nuclear material prior to the removal of the licensing exemption for carriers of that material (44 FR 26850).
That is, the NRC has no legal basis for inspecting the irradiated reactor fuel shipments in transit to verify compliance with Section 73.37.
On June 29, 1979, Mr. Samuel Edlow, President of Edlow International Company, filed with the Nuclear Regulatory Commission a petition Nr rule-making to amend 10 CFR Parts 70 and 73.
The intent of this petition, which was assigned Docket Number PRM 73-5, was to make carriers of irradi-ated reactor fuel subject to_a level of NRC control similar to that required of carriers of formula quantities of strategic special nuclear material.
2
r7590-l]
In order to provide the NRC a level of control over irradiated fuel shipments comparable to that provided over formula quantities of SsNM in transit, the Commission is, therefore, amending its regulations to grant a general license to any person who possesses (actually or constructively) irradiated reactor fuel during transport.
The general license would per-tain only to the carriage or storage in transit of irradiated fuel subject to 10 CFR 73.37.
For this purpose, on March 12, 1980, the Nuclear Regulatory Commission published in the Federal Register [45 FR 15936] proposed amendments to 10 CFR Part 70 of its regulations.
Interested persons were invited to submit written comments and suggestions on the proposed amendments within sixty days after publication in the Federal Register.
The principal comments and the Commission's responses follow:
(1) Physical protection responsibilities of carriers - one commenter sought clarification as to whether or not the carrier was respon-sible for meeting the physical protection requirements of 10 CFR S 73.37.
This rule does not relieve the shipper of full responsibility for meeting the physical protection requirements of 9 73.37.
However, the carrier shall either assure himself or receive cartification from the shipper that the requirements are being met.
Paragraph 73.20c(e)(1) has been modified from the pro-posed amendment ta clarify this meaning.
(2) Reporting requirements - two commenters suggested that all reporting requirements associated with lost or missing material 3
f
[7590-1]
be channeled through the Department of Transportation.
The Department of Transportation, however, prefers tha'. all reports be made directly to the Nuclear Regulatory' Commission.
(3) Exemption from 10 CFR 9 70.42 - One commenter felt that general licensees should not be subject to the requirements of 10 CFR 6 70.42 " Transfer of special nuclear material." He felt that since the licensee shipper was already subject to these require-ments, making the general licensee subject to them would be redundant, accomplish little and add to the " bureaucratic night-mare." Paragraph 70.42(c) requires:
(1) that the general licensee initially register with the NRC, and (2) that prior to transferring special nuclear material, the transferor verify that the transferee's license authorizes receipt of the type, form and quantity of material to be transferred.
The Commis-sion believes that this requirement is needed in order to l'elp assure proper control of the material at all points of treasfer.
The Commission also believes that this will not present the general licensee with a bureaucratic nightmare" because:
(1) the general licensee is required to register with the Commission only initial',y, and (2) the general licensee can verify and obtain from the official records of the Commission or an Agreement State the identity of all the licensees it intends to deliver to and the scope and expiration dates of their licenses and registrations.
Once obtained, this list only has to be updated occursionally as licenses expire or license conditions change or new receivers are added.
4
[7590-1]
In light of the above, appropriate paragraphs of 9 70.20a have been revised to issue a general license to any person who possesses (actually or constructively) irradiated reactor fuel in transit.
The scope of the general license granted under the amendment is limited to possession only and is effective during the course of a shipment.
The amendment does not affect the exemption for carriers and other persons under 9 70.12 who transport other forms of special nuclear material subject to NRC regulations.
Also, the amendment does not apply to transient shipments, that is, shipments that originate in a foreign country with destinations in a foreign country that transit the United States.
Such shipments are the subject of a separate rulemaking procedure (see 45 FR 1625).
The amendment codifies practicer and procedures presently submitted to on a voluntary basis by most carriers and other persons.
The~ amer.dment does not require the filling of applications with the Commission or the issuing of licenses to particular persons by the Commission.
The promulgation of this amendment does not result in any activity that affects the environment.
Accordingly, the Commission has determined under the National Environmental Policy Act, the Council of Environmental Quality guidelines, and the criteria of 10 CFR Part 51, that neither an environmental impact statement nor an environmental impact appraisal to support a negative declaration for the proposed amendment to 10 CFR Part 70 are required.
Pursuant to the Atomic Energy Act of 1954, as amended, the Energy Reorganization Act of 1974, as amended, and sections 552 and 553 of title 5 of the United States Code, the following amendments to Title 10, Chapter I, 5
[7590-1]
Code of Federal Regulations, Part 70 are published as a document subject to codification.
PART 70 - SPECIAL NUCLEAR MATERIAL 1.
Section 70.12 of 10 CFR Part 70 is revised to read as follows:
9 70.12 Carriers.
Common and contract carriers, freight forwarders, warehousemen, and the U.S. Postal Service are exempt from the regulations in this part to the extent that they transport [or-store] special nuclear material in the regular course of carriage for another or storage incident thereto.
This exemption does not apply to the storage in transit or transport of mate-rial by persons covered by the general license issued under S 70.20a.
[of-this-chapter]*
2.
Paragraphs 70.20a(a) and (c) are revised to read as follows:
9 70.20a General license to possess special nuclear material for transport.
(a) A general license is hereby issued to any person to possess formula quantities of strategic special nuclear material of the types and quantities subject to the requirements of SS 73.20, 73.25, 73.26, and 73.27 [and-73-70fg3]
of Part 73 of this chapter, and irradiated reactor fuel containing material of the types and quantities subject to the requirements of f 73.37 of Part 73 of this chapter, in the regular course of carriage for another or storage incident thereto.
The general license is subject to the applicable pro-visions of 56 70.32(a) and (b), 70.42, 70.52, 70.55, 70.61, 70.62 and 70.71.
n a
s s
- Comparative text to the proposed amendments published for public comment
[45 FR 15936].
Additions are underscored and deletions are crossed through.
6
-~
[7590-l']
(c) Nothwithstanding any other provision of this chapter, the duties of a general licensee under this section while in possession of formula quantities of strategic special nuclear material or irradiated reactor fuel in the regular course of carriage for another or storage incident thereto shall be limited to providing for the physical protection of such material against theft or sabotage.
Unless otherwise provided by this section, a general license under this section is not subject to the requirements of Parts 19, 20, 70 and 73.
x 3.
A new paragraph 70.20a(e) is added to read as follows:
(e) Any person who possesses irradiated reactor fuel under this general license shalli (1) assure or receive certification from the shipper that the trans-portation is in accordance with the applicable ph.sical protection require-ments of 6 73.37 Lot,
, at
.nu, u..q.., and (2) comply with the reporting requirements of 6 73.71 of Part 73 of this chapter.
AUTHORITY:
Secs. 53, 161b, 161i, 1610, Pub. L.83-703, 68 Stat. 930, 948, 949, 950 as amended (42 U.S.C. 2073, 2201), Sec. 201(F), Pub. L.93-438, 88 Stat. 1243 (42 U.S.C. 5841).
Dated at Washington, D.C. this day of 1980.
l For the Nuclear Regulatory Commission l
l Samuel J. Chilk l
Secretary of the Commission 7
[
4 5
ENCLOSURE C PUBLIC COMMENTS
1 ASSOC.o. TION OF RW1]MDG0@RDM DOROLLDG@bnib~D@*
LAW CEPARTMENT AMERICAN RAILROkDS BUILDING WASH!NGTON, D.C. 20036 202 l293-4088 -
R. SCOTT GotRCNER Assistant General S:5citor ur.r.EI :ia:. uEw,3 rg.
o NCF05ED RULE I -70 May 6, 1980 N
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M5 FR 15936) k'M' 131980 > c-k" C I~' ;' 08 Sam-7 Mr. Samuel J. Chilk Secretary
', 2"T.Q3Si8 W
U{g, U.S. Nuclear Regulatory Commission
,/
Matomic Building v,
1717 H Street, N.W.
Washington, D.C.
20555 Re:
Proposed Revision of 10 C.F.R. Part 70, Domestic Licensing of Special Nuclear Material; General L'icense Re-quirements for Any Person Who Possesses Irradiated Special Nuclear Material (SNM)
In-Transit, 45 Fed. Reg. 15936
Dear Sir:
The Association of American Railroads, on behalf of its members, hereby requests a 30-day extension of the date for filing comments in the above-entitled rulemaking proceeding.
Sincerely, i
h ELW cc:
Dr. Willard B. Brown Acting Chief Safeguards Standards Branch Y'b p.h g
-.u.v.,:. w,, we. 5lxl'sa. mde..
CTR1C I4 NUCLEAR ENERGY BUSINESS GROUP GENERAL ELECTRIC CCMPANY,175 CURTNER AVE.. SAN JCSE, CAUFORNIA 95125 Shy 7,1980.;w2 was File FDF: 80-79 PROFDSED RULE l~
(45 Ft31593G)
Secretary of the Commission U. S. Nuclear Regulatory Ccamission Washington, D.C.
20555 pl50l. y Attention:
Docketing and Service Branch 4
cccxErro V
Subject:
Proposed Rule - Demestic Licensing
[2 ec.:-
I of Special Nuclear 3'aterial; General License Requirements for Any Person 9;
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~
'ho Possesses Irradiated Special
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cira ee mery Nuclear Shterial (SN>!) In-Transit Dub - *"
Gentlemen:
<fj e.,
ne Nuclear Energy Business Group of the General Electric Ccmpany has reviewed the proposed rule to Title 10 CFR, Part 70 as pub-lished in the Federal Register of Shrch 12, 1980.
We do not generally oppose this rulemaking, if it does codify prac-tices and procedures now submitted to on a voluntary basis by the carriers.
However, we strongly object to this general license be-l ing subject to the provisions of 70.42, " Transfer of special nuclear material", en the following grounds.
He shipper, as a licensee, is already subject to these provisions.
The redundancy to these regulations accomplishes nothing, except increasing the bureaucratic nightmare that is growing rapidly to cover the shipping of irradiated reactor fuel.
The purpose of the proposed 70.20 (a), is seen as a mechanism for inspection during transit for proper physical protection.
Imposition of the requirements of 70.42 and specifically 70.42 (c) and (d) on the carrier, does not add to the physical security, and is envisaged to increase th' cost of shipment.
e We, therefore, reccmmend the NRC modify this proposed Iule by'ex-l cluding the pr,ovision of 70.42 (c) and (d) in its entirety.
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D;C.htiff t.,.,1 ;sn:ce 1
gg Washington, D.C.
20555
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Attention:
Docketing & Service Branch
Dear Sirs:
The cognisant New York State agencies have reviewed the NRC proposed rule which would provide a " general lic.ense" for possession of irradiated special nuclear material (spent nuclear fuel) in-transit.
Based on this review, New York supports the adoption of this proposed rule.
New York appreciates being given the opportunity to co:rrient on this matter.
Sincerely,
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r T. K. DeBoer i
I Director of Nuclear Operations TDK:JM:1aa l
cc:
G. Wayne Kerr l
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c; U.S. Nuclear Regulatory Commission h;dgj["
l Washington, D.C.
20555 Attn:
Docketing and Service Branch O
a Im,
Dear Sir:
On March 12, 1980, the Nuclear Regulatory Commission published a notice of proposed rulemaking in the Federal i
Register "to issue a general license to any person who possesses irradiated reactor fuel in transit."
45 Fed. Reg.
l 15,936 (1980).
The Electric Utility Companies' Nuclear Transportation Group
- hereby provides its comments on that "American Electric Pcwer Company, Arizona Public Service Company, Baltimore Gas & Electric Company, Commonwealth Edison Company, Consolidated Edison Company of New York, Inc.,
The Detroit Edison Company, Duke Power Company, Florida Power & Light Company', Gecrgia Power Company, Gulf States g
Utilities Company, Houston Lighting & Power Company, Kansas City Power and Light Company, Kansas Gas and Electric Company, l
N l
Long Island Lighting Company, Middle South Services, Inc.,
b,.'o Niagara Mohawk Power Corporation, Northeast Utilities,
[Oh' Northern States Power Company, Pacific Gas & Electric Company,
/
Philadelphia Electric Company, Portland General Electric
[
Company, Power Authority of the State of New York, Public Service Company of Colorado, Public Service Electric & Gas Company, Rochester Gas and Electric _ Corporation, Southern California Edison Company, Union Electric Company, Virginia Electric & Power Company and Yankee Atomic Electric Company.
i
.st n
2 proposed rule.
The Nuclear Transportation Group consists of 29 electric utility companies operating 44 reactors and responsible for the planning, design or construction of additional reactors.
The Group's members supply a substantial portion of the estimated 13% of this nation's electricity currently generated by nuclear power.
After consideration of the proposed rule to license carriers generally, which we perceive would subject them to inspection and enforcement authority for assuring physical protection of spent fuel in transit in accordance with the NRC's interim regulations in 10 C.F.R. Part 73, we have concluded that the proposed rule should be adopted,'as' stated, in final form.
We believe, however, that the NRC should fully ccordinate with the DOT its action in adopting and enforcing these regulations so'that there is not duplicati*Ie enforcement of regulations with respect to carriers.
Very truly yours, LeBOEUF, LA'43, LEIBY & MacRAE Attorneys for the Electric Utility Companies' Nuclear Transportation Group M N' iM sy_
Leonard M. T'rosten Partner cc:
Dr. Willard 3. Brown e
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pi*
s Mr. Samuel J. Chilk p
Secretary cc mco U.S. Nuclear Regulatory Cercission usNac 1717 H Street, NW 6-3 I E0>C t.
Washington, DC 20555 Cmu :t 2.s k cur i 9
bhyg & 6 w Re:
Procosed Revision of 10' C.F.R. Part 70, Docestic Licensing of Special Nuclear j,
^
b Material; General License Require =ents i (,.'
C for Any Person Who Possesses Irradiated Special Nuclear Material (SNM) In-Transit, 45 F.R.
15936 (March 12, 1980)
Dear Sir:
Southern Railway Cocpany and its affiliated carriers, which together operate a system of railroad co==only referred to as
" Southern Railway System (" Southern"), submit these co==ents on the captioned proposed rulemaking whereby the Nuclear Regulatory Co==is s ion ("NRC") seeks to issue a general license to carriers transporting irradiated reactor fuel.
Frudence dictates the filing of these co==ents since Southern may transport such ship-
=ents in the future and would thus be directly affected by this rulemaking.
According to the preamble, the NRC's sole stated reason for imposing the general license is to provide the agency with the legal basis to inspect irradiated reactor fuel shipments during transit.
Given the fact that the carriers (according to the NRC's own words) have voluntarily submitted to such inspection for years, this requirement appears to be unneeded.
Nonetheless, Southern takes no obj ection to the general license concept itself providing that it is being imposed solely for the reason stated above.
K Southern's cricary difficulty with this rulemaking springs 9,,g from the proposal's ambiguity regarding the requirement the NRC o
N, seeks to impose under Section 70.20 a(e) on all general licensees, including carriers:
i.e., the require =ent under (e)(1) to assure N
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Mr. Sa=nel J. Chilk June 12, 1980 Page 2 that the transportation of any such shipcents is in accordance with the applicable physical protection require =ents of Section 70.37.
Southern's problem is not knowing exactly what the NRC intends by this requirement.
A literal interpretation of (e)(1) would require the carriers themselves to comply with the extensive physical protection re-quirements which heretofore have been i= posed on shippers alone.
These require =ents include, inter alia, giving advance notification to the NRC of covered shipments, securing prior NRC route approval, use of trained escorts and two-way co==unication capability between escorts and a designated " roving" recoce control center.
- However, carrier cocpliance with such require =ents would be extrecely burden-unnecessarily duplicative of shipper responsibilities, and
- sace, would hold up these shipments in direct contravention of regulations issued by the Materials Transportation 3ureau.
Surely the NRC could not have intended that result.
Railroad cormon carriers -
unlike shippers - are simply not equipped to' undertake such re-sponsibilities.
If that is what the NRC intended, we submit it has no legal authority to i= pose such requirecents on cor=on carriers.
Another possible interpretation of (e)(1) subparagraph is that the NRC only intends for carriers to satisfy the=selves in so=e unspecified =anner that the shippers have in fact co= plied with the applicable NRC' physical protection requirements prior to the railroads ' accepting those shipments for transportation, n.e.,
through a shipper certification to that effect.
In Southerns view this interpretation repYese'nts the far core rcasonable approach, especially since the responsibility of safeguarding such shipments should be borne exclusively by the shippers.
However, because 1
carriers cannot unilaterally extract such certifications froc shippers, this approach will work only if the Materials Transporta-I tion Bureau prescribes a requirement for shippers to certify to' l
carrieri that the applicable NRC physical protection requiracents have been complied with.
This approach provides additional backup assurance of shipper compliance without unduly burdening the rail-l roads' operations or interfering with interstate coc=erce.
l Clarification of the agency's intentions regarding (e)(1) is essential, not only with respect to the carriers' obligations l
vis-a-vis the NRC but also vis-a-vis the growing nt=ber of states seeking to regulate the transportation of radioactive caterials.
In that regard it should be noted that it is the position of Southern (and the rest of the rail-industry for that catter) that states and political subdivisions are preempted from regulating the rail transportation of radioactive caterials by virtue of the Federal Railroad Safety Act, the Hazardous Materials Transportation Act,-and the Atomic Energy Act.
1.
I
s Mr.' Samuel J. Chilk i
June 12, 1980 l
Fage 3 l
In addition, Southern objects to the reporting requirement i
prescribed by Section 70.20 a(e)(2).
That section requires that all general licensees, including carriers, comply with the re-l porting requirement contained in Section 73.71, which mandates immediate notification to the NRC if any of the material is lost or unaccounted for or if any effort rias been made to commit a theft or unlawful diversion of irradiated reactor fuel.
A written report is also required within fifteen days.
While im=ediate notification to the NRC'would not be unduly burdensome (given i
the limited number of shipments that rail carriers handle), it would be better if such reports could be made to the Department i
of Transportation for transmittal to'the NRC in accordance with Section V of the Memorandum of Understanding between NRC and DOT.
A simple amendment to the MT3's immediate notification rule at 49 CFR 5171.15(A) to reflect the SRC's rule (based on knculedge of the facts) would take care of the matter.
However, Southern dces object to the written report because it would needlessly duplicate the shippers' reports.
At a minimum any reports which the carriers are to file should be channeled through the DOT in I
accordance with 49 CFR 5171.16.
In conclusion, Southern asks that the NRC clarify its intentions regarding this proposed rulemaking and carefully consider in its deliberations the points raised requiring DOT /MTB 1
involvement.
l Sinesiely yours, bN A. Gayle Jordan j
General Attorney i
I cc:
Dr. Willard 3. Brown 1
Acting Chief Safeguards Standards Branch - I appreciate Southern's being afforded the opportunity of i
filing these_ comments for the record in line-with the request made by the Association of American Railroads Mr. Hollis G. Duensing Mr. Scott R. Gardner Association of American Railroads 4
Q _-.
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- A&,'.gh-i Department of Energy Washington, D.C. 20545
!.'AY 9 1980 Dr. Willard B. Brown, Acting Chief Safeguards Standards Branch Division of Siting, Health and Safeguards Standards Office of Stendards Development U.S. fluclear Regulatory Comission
'!ashington, D.C.
20555
Dear Dr. Brown:
This has reference to the fluclear Regulatory Commission's proposed rule which would amend Title 10 Code of Federal Regulations, Part 70, pertaining '
to " Domestic Licensing of Special fluclear Material; General License Requirements for any Person who Possesses Irradiated Special fluclear Material In-Transit."
Enclosed are the Department of Energy's comments.
Department of Energy representatives will be pleased to meet; with you and discuss the matter at length.
Please contact me on 353-5363 if your agency desiras further Department of Energy input to this proposed rulemaking.
Sincerely, f
i;
~
(+'G ior
- 'D ransportation Office Environmental Control Technology Division Office of Environment Enclosure V (f'Y t\\
7 l
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a DEPARTMENT OF ENERGY COMMENTS TO PROPOSED RULE AMENDMENT TO TITLE 10 CODE OF FEDERAL REGULATIONS PART 70. 00"ESTIC LICENSING 0F SPECIAL NUCLEAR MATERIAL; GENERAL LICENSE REQUIREMENTS FOR ANY PERSON W ) POSSESSES IRRADIATED SPECIAL NUCLEAR MATERIAL IN-TRANSIT The proposed general license would apply only to persons subject to the licensing requirements of the Atomic Energy Act of 1954, as amended.
There-fore, all Department of Energy shipments of irradiated fuel and formula quantities of special nuclear material would not be subject to the requirements of the proposed general license.
For clarity, it may be desirable that this exclusion be delineated in any final rule adopted.
We have heard sharp criticism frca the ccamercial carrier industry pertaining to the overlap which is now occurring in t' Federal regulatory scheme. Such overlap is beginning to adversely impact *.he carriers' ability to provide safe, secure and tirt y service at economic cost.
An example would be the l
i multiple inspections performed by Federal and State authorities.
Additionally, we know of no safety or environmental benefits which have accrued as a result of such overlags.
The safety and security record of no radiation-related deaths, injuries, or serious property damage nor lost material in transit in a 30-year period has been exemplary and unequaled by any other hazardous or strategic aaterial.
Based upon the aforementior.ed, we therefore urge that all inspection activities "
be coordinated and conducted in conjunction with other regulatory agencies such as the U.S. Department of Transportation or the appropriate State enforcement i
authorities.
l l
The Department of Energy previously transmitted comments on the interim final rule (10 Code of Federal Regulations 73.l(b) and 73.37) which imposed interim l
physical protection measures for licensed shipments of spent fuel within the
.. United States.
We are atta. chi,ng a copy of. those commen,ts for your further.,
reasideration.
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' Departmen:oiEncray-Washing:on, D.C. ~20535 SEP 10 1979
!ionorable Jcseg5.M. liendric Chairman U. S. Nuclear Recula*.rv Commission Washington, D.C.
055' Dear Mr/. C'
.trman:
'phe Department of Energy would like to cerment on the interim final rule (10 CFR 73.1(b) and 73.37) which imposed interim physical protection ceasures for licensed shipme.~.t of spent fuel within the United States.
DOE agrces that
.every effert should be made to ensure the public health and safety in shipment of spent fuel; however,for the reasonc i
r.tated in the enclosed staff comrants, DOE believes the l'
. interim rule is premature.
These cernents are in addition l'. -
to those contained in a June 13,-1979 memorandum from George Weisz, Director, DOE Office of Safeguar s and Security, to Robert F. Burnett of your staff.
i
=
[
- ihe transportation safety interface has been addressed in p:st NRC-DOE coordination meetings, and our concern relative to this interim rule was expressed in our !!ay 29, 1979 letter frc=
s Mr. Robert M. Barber to Mr. Thomas A. Rchm (EV 14/ SED - 15 ).
That letter requested a copy of the order and requested opportunity to corrent before NRC implenentation.
Mcwe.er, NRC's action was taken without any formal coordinstion.wita OCE.
As you know, our mutual interest is to ensure that COE and NRC
-'rcouirements result in protection tht t is both effectivo and ~
IcoSoar able.
The DOE' Of fice of Safegt.ards and Security is.
~ -
' cur'rently evaluating the need for specific physical pro
- ccion requireneh's for DCE shipments of spent fuel in additicn to c
the renuirenents now contained in DOE Order 5632.2, " Physical
'~
Protection of Special Nuclear Materials,", issued February '.',
r 1979.
As was mentioned in the June 13 accorandum from George Weisz, we will advise you of the results of these activitics.
In addition, DOE is ccordinating with MEC the develop =cnt of experimental data on the amount of radioactice
.. raaterial that could be released in a sabotage attack en span:
.ng h. h explosires.
,,lis progrc= wi3 t :.ncienc fuel casks us:.
g an evaluation of the consequences resulting frca such attacks.
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Uc recotr.cnd that the DOS and "RC coo,cerate in carrying
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e >: p e d i t e d. h a
. nece.ss.ary s..tudics. a.nd tions of the.thre. sis.,
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measures to mitigate the con'scquences thercof, to assist the NRC in identifying adjustr. cats to the interim rule which may be desirable.
Such collaborations vould be consistent wit!. the recorr.endation in the GAO report
. EMD--79-18, dated March 7, 1979.
S.inc
- ely, Jonn M.
Deutch Under Sec.retarY
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PHYSICAL PROTECTIOM OF IRRADIATED REACTOR FUEL Ill TRA" SIT 1.
Has a reasnnable basis been established for im ediately establishina
. new physical,rotection reauirements cendinc ccasideration of tra.ce-offs involved?
Based upon information presently available to 00E, we are unable to discern a valid justification for the physical protection requirements contained in the interim rule. Re are not aware of any recent increase in the threat to spent fuel shipments.
This seems to be corroborated by the NRC staff statement in their May 22 presentati:n to the Ccmnission that the staff has no evidence of any new situaticas
-.~ uhich posed a threat to such shipments.
The basis given by the I:RC staff for the new regulatica was the s.ignificant consequences of the sabotage scenario portrayed in the SAND 77-1927* analysis and the delay inherent in completing research i
to confirm or deny the validity of the conseque'nces projected in the
. analysis.
i Our review of SA"3 77-1927 sugcests. that an attack on a spent fuel cask using high e.v. plosives would be very difficult to acccr.31ish ar.d
- unlikely to succeed.
To properly evaluate the risk of spant fuel
. ; sabotage, we.should,'therefore: (1) reach collaborative agreement en the threat, (2) identify 'and evaluate the large number of steps ;hich would need to be successfully accomplished for sabotage, (3) ceterrina the amount of radioactive catei-ial that could be released, and (4) examine the range of possible consecuences.
Until the results cf st.:-
~
preliminary studies are available, i't is our view that interim.:aysi:a; protectica requirements for spent fuel in transit cannot be propcriy
. evaluated.
I
,f 2.
Some provisions of the rule may not imorove security Even'if it is assumed that a significant risk exists which. :v nts
~
greater protection of spent fuel shipments, certain provisicns in this rule may be counterproductive.
Transpo: t routes away from population centers engender greater shipping distances and are of tsn over less well maintained highways and roadbeds where transport conditions may be less than ideal.
Under these conditions, notifi-l' cation and response to any diversion or sabotage attempt could rceuire I
~
l nore time and effort.
Additionally, longer and more circuitous routes may increase the likelihood of transportation accidents to the 1-Interim Report, "The Transport of Radienuclides in Urban Envirens:
A 1'orking Draf t Assessment," SAriD 77-1927.
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s detriment of the public health and safety.
Most population centers, on the other hand, are served by, excellent interstate highways and mainline railroad track that are well patrolled and easily accessible in case of emergency.
With respect to the LEA pre-arrangement! requirement, the number of local jurisdictions involved in a' spent fuci shipment can be lq very large..It may, therefore, not be practical to ccmmunicate gI at the' local level with the numero.us jurisdictions; such action could cause unnecessary concern and possible interference with the shipment.
This practice in itself may present a significant breach' in the very security the rule is intended to enhance.
~'Enobilizing the cab is of limited value since a new one may be stbstituted.
By i n abilizing the trailer, the rig becomes dedicated e p to one task and caoital costs (570-30K per vehicle) will be mucn greater than the $200K stated by the staff fo'r a National program.
3.
Cost benefit study is necessary h'hile adequate safeguards are essential rega'rdless of cost, the choi.cc cf suc.i safecuards prccedures must follow a careful anliysis of their cost values and benefits.
Some of these procecures may prove expensive and provide li,ttle or doubtful benefit, for exarpie, the procedure discussed in item 2 above.
Also, in rail transper::cica
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the rule could intensify the railrcads insistence on the use of special trains, even though the NRC guidelines do not require them.
4.
The NRC action should be inteorated with DDT resconsibility for routina_
D0T has the experience and jurisdiction, knowledge of the transsor-tation and environmenc on road way and rail, and is more equipped
..than NRC and 00E to promulgate safety and routing security rules l
'uhich effect the carriage rather than the packaging of these caterials.
This division of responsibility has been in pjace for semecice and t;e believe it shculd centinue.
5.' DDE Statutory Exemntien In its present form, the. interim rule does.not specifically recccni:e DOE's long standing statutory exemption for shipment of materia!s necessitated by its progra:m::atic requirements.
This oversight shcuid l
be corrected.
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ENCLOSURE D PUBLIC ANNOUNCEMENT i
NRC AMENDS REGULATIONS ON SHIPMENTS OF IRRADIATED REACTOR FUEL The Nuclear Regulatory Commission is amending its regulations to extend present safeguards requirements for NRC licensees that ship irradiated reactor fuel to cover carriers, freight forwarders, warehouse organizations, and shippers' agents.
The amendments, in effect, issue a general license to all persons possessing irradiated reactor fuel during shipment.
Under current rules, only the person licensed to possess the irradiated fuel is responsible for its physical security during shipment.
Under the general license, any person possessing the material during the course of the shipment (for example, a trucking company) also is directly responsible for seeing that the physical security of the irradiated i
reactor fuel is implemented properly.
I This requirement establishes direct authority for NRC inspection of carriers and related activities.
It also provides a legal basis for taking I
appropriate enforcement action against any person involved in the trancport of irradiated special nuclear material.
I The amendments to Part 70 of NRC regulations will become effective 60 days after publication in the Federal Register on t
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ENCLOSURE E VALUE/ IMPACT ANALYSIS
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1
e VALUE/ IMPACT ASSESSMENT ON RULE FOR GENERAL LICENSING 0F CARRIER OF IRRADIATED FUEL I.
THE PROPOSED ACTION A.
Description 10 CFR Part 70 has been amended to issue a general license to common and contract carriers, freight forwarders, warehousemen, and the U.S. Postal Service (hereafter called carriers) so that they will be responsible for the requirements of 10 CFR 73.37 when they possess irradiated reactor fuel.
B.
Need for Proposed Action An anomaly existed in the regulations in that carriers of formula quantities of strategic special nuclear material (FQSSNM) were responsible for meeting the requirements of 10 CFR 73.25 and 73.26 when they had possession of the material, whereas carriers of irradiated reactor fuel were not similarly responsible for meeting the requirements df 10 CFR 73.37 when they had possession of irradiated j
reactor fuel.
The need for a general license for carriers of FQSSNM has been developed in SECY 78-8 (Enclosure "A").
The same reasons support the need for a general license for carriers of irradiated reactor fuel.
C.
Value/ Impact of Proposed Action 1.
NRC Operations
/alue E.
The NRC can exercise direct rege14 tory authority over persons in possession of irradiated reactor fuel during transport.
2 l
f b.
The NRC will now have the legal authority to inspect carriers of irradiated reactor fuel and to impose fines and penalties for non-compliance with NRC regulations.
c.
The general license imposes specific physical protection responsibilities on carriers, freight handlers, and others who possess irradiated reactor fuel for purposes of trans-port.
d.
The general license is effective without the filing of applications with the Commission or the issuing of licenses to particular persons.
Impact There is essentially no impact on the NRC.
2.
Other Government Agencies Other government agencies are not perceptably affected by this action.
3.
Industry l
l Value i
By making the carrier responsible for meeting the regulatory l
requirements when in possession of irradiated reactor fuel, a l
more direct correlation exists between a violation and a fine.
That is, licensees who now are held responsible for the regula-tory requirements while a carrier has possession of material may be relieved of the possibility of incurring a fine for a carrier's violation.
3
Impact The general license involves no cost impact on shipper-licensees and only a minimal cost impact on carriers and handlers, because the requirements of the general license are already being carried out by legal contract between the licensee and the carrier.
By directly subjecting carriers and handlers to possible fines, the interest of potential carriers and handlers, who otherwise might enter the irradiated reactor fuel transport market, might be diminished.
This possibility is considered negligible.
4.
Public The improved administrative and legal structure resulting from this action provides a more efficient government agency to serve the public.
No cost will accrue to the public from this action.
D.
Decision on Proposed Action The value obtained clearly outweighs the impact.
The need to make carriers of irradiated reactor fuel similarly responsible as are carriers of FQSSNM, support an amendment to the NRC requirements.
II.
TECHNICAL APPROACH / TECHNICAL ALTERNATIVES This action does not involve technical questions.
III. PROCEDURAL APPROACH The procedure to be used to promulgate the proposed action is clearly a regulation change because carriers that would be affected are not licensees.
They could not be regulated, for example, by a branch position or any other regulatory approach.
4
.)
IV.
STATUTORY CONSIDERATIONS A.
NRC Authority The Atomic Energy Act of 1954, as amended, Sections 161b, 161i and 1610 provide authority for the Commission to require that a general license be issu3d carriers of irradiated reactor fuel.
- B.
Need for K'.PA Assessment The proposed action is not a major action, as defined by 10 CFR 51.5(a)(10) and does not require an environmental impact statement.
V.
RELATIONSHIP TO OTHER EXISTING OR PROPOSED REGULATIONS OR POLICIES There are no apparent potential conflicts or overlaps with other NRC pro-posed regulations or policies nor with other agencies regulations or policies.
VI.
SUMMARY
AND CONCLUSION The need to issue a general license to carriers of irradiated reactor fuel I
when in possession of the fuel is clearly supported for the same reason carriers of FQSSNM are subject to a general license as developed in SECY 78-8.
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j
e ENCLOSURE F LETTER TO PETITIONER i
o Mr. Samuel Edlow, President Edlow Internaticnal Company 1100 17th Street NW., Suite 404 Washington, DC 20036
Dear Mr. Edlow:
I am writing in response to your petition for rulemaking, dated June 29, 1979, to the U.S. Nuclear Regulatory Commission.
As you are aware, your petition was published in the Federal Register [44 FR 47998] on August 16, 1979, for a 60-day public comment period.
The purpose of your petition was to make consistent the physical protection responsibilities of carriers of irradiated nuclear fuel with those of carriers of i
formula quantities of strategic special nuclear material.
On
, 1980,
[date of Commission approval] the NRC approved the publication of an effective amendment to 10 CFR Part 70 that issues a general license to carriers of irradiated reactor fuel.
A copy of the Federal Register Notice is enclosed for your benefit.
Although this action coes not make the specific changes you requested, it does fulfill the intent of your petition for rulemaking.
Accordingly, the NRC does not contemplate further action on your petition for rulemaking.
i Sincerely, Samuel J. Chilk Secretary of the Commission
Enclosure:
As stated
O ENCLOSURE G DRAFT CONGRESSIONAL LETTER e
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JRAFT CONGRESSIONAL LETTER Enclosed for the information of the Subcommittee are copies of effective amendments to Title 10 of the Code of Federal Regulations to be published in the Federal Register.
On May 8, 1979, effective amendments to 10 CFR Part 70 were published, 44 FR 26850, that removed the licensing exemption and granted a general license to carriers and other persons who have actual or constructive possession (con-structive possession is a form of legal possession of material in a shipment that does not require actual physical custody; it may be evidenced through control over the shipment or by other means) of formula quantities of stra-tegic special nuclear material (SSNM) for the purpose of transport or storage incident to transport.
This provided the NRC with a legal basis (in the 4
absence of a specific license or other formal means) for inspecting shipments of formula quantities of SSNM in transit.
Prior to issuance of the effective amendments, inspections were submitted to on a voluntary basis on the part of the carriers.
On June 15, 1979, effective amendments to 10 CFR Part 73 (Section 73.37) were published (44 FR 34466) that prescribed requirements for the physical protec-tion of irradiated reactor fuel in transit.
In their present form, these regulations do not subject to direct regulation carriers and other persons who possess (actually or constructively) irradiated reactor fuel for the purpose of transport or storage incident to transport.
Thic treates the same situation for the shipment of irradiated fuel as existed for the shipment of strategic
O 2
special nuclear material prior to the removal of trie licensing exemption for carriers of that material (44 FR 26850).
That is, the NRC has no legal basis for inspecting the irradiated reactor fuel shipments in transit to verify com-pliance with Section 73.37.
On June 29, 1979, Mr. Samuel Edlow, President of Edlow International Company, filed with the Nuclear Regulatory Commission a petition for rulemaking to amend 10 CFR Parts 70 and 73.
The intent of this petition, which was assigned Docket Number PRM 73-5, was to make carriers of irradiated reactor fuel subject to a level of NRC control similar to that required of carriers of formula quantities of strategic special nuclear material.
In order to provide the NRC a level of control over irradiated fuel shipments comparable to that provided over formula quantities of SSNM in transit, the Commission is, therefore, amending its regulations to grant a general license to any person who possesses (actually or constructively) irradiated reactor fuel during transport.
The general license would pertain only to the carriage I
or storage in transit of irradiated fuel subject to 10 CFR 73.37.
For this purpose, on March 12, 1980, the Nuclear Regulatory Commission published j
in the Federal Register [45 FR 15936] proposed amendments to 10 CFR Part 70 of its re.gulations.
Interested perseas were invited to submi; written comments and suggestions on the proposed amendments within sixty days after publication in the Federal Register.
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3 Based on public comments received, appropriate paragraphs of the proposed rule have been revised.
The revised, now effective, rule will issue a general license to any person who possesses (actually or constructively) irradiated reactor fuel in transit.
The scope of the general license granted under the amendment is limited to possession only and is effective during the course of a shipment.
The amendment does not affect the exemption for carriers and other persons under 6 70.12 who transport other forms of special nuclear material subject to NRC reatlations.
Also, the amendment does not apply to transient shipments, that is, shipments that originate in a foreign country with destinations in a foreign country that transit the United States.
Such shipments are the subject of a separate rulemaking procedure (see 45 FR 1625).
This amendment codifies practices and procedures presently submitted to on a voluntary basis by most carriers and other persons.
This rule change also fulfills the intent of the Edlow petition and the petitioner will be so informed.
Ray G. Smith, Acting Director Office of Standards Development
Enclosures:
1.
Federal Register Notice 2.
Letter to Mr. Samuel Edlow, Petitioner