ML20126G728

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Advises Commissioners of Issue W/Potential Natl Policy Implications Re Disposition of Large Quantities of Weapons Grade SNM Resulting from Decommissioned Nuclear Weapons
ML20126G728
Person / Time
Issue date: 02/25/1992
From: Taylor J
NRC OFFICE OF THE EXECUTIVE DIRECTOR FOR OPERATIONS (EDO)
To:
References
SECY-92-064, SECY-92-64, NUDOCS 9301040211
Download: ML20126G728 (9)
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./2: b -.-. ! L eN n ate inta!S i 3 I l ' 'I \\ 'y. o E c o n e> a c,c u e o o o e e e e o o o o o o o r %g f 1 POLICY ISSUE (Information) 3 February 25, 1992 SECY-92-064 M The Commissioners Fromt James M. Taylor ~ Executive Director for Operations

Subject:

DISP 051T10N OF THE WEAPONS GRADE NUCLEAR MATERIAL FROM DECOMMISSIONED NUCLEAR WEAPONS

Purpose:

To aovise the Commissioners of an issue with potential national policy implications concerning the disposition of large quantities of weapons grade spacial nuclear (naterial (SNM) resulting from decomissioned nuclear weapons. Backgrounds Since the global nuclear threat was dramatically reduced with the end of the cold war, the two super oower nations, the United States (U.S.) and the Russian Republic, have announced l their intentions, based on a bilateral agreement, to dismantle large nurr.bers of their existing nuclear weapons. The resultant large amount of reclaimed high enriched uranium (HEU) and plutonium (Pu) will create new handling, transportation, storage and safeguards challenges potentially impacting the Nuclear Regulatory Commission (NRC) and our licensees. This paper provides the following informations (1) current discussions in the disarmament context, (2) technologies and f acilities available for conversion of SNM metals to light water reactor (LWR) fuel, (3) NRC's readiness to respond to the national initiative, and (4) potential alternatives in national policy formulation. Contacts Philip ".ing, NMSS -NOTE: TO BE MADE PUBLICLY AVAILABLE 504-3379 IN 10-WORKING DAYS FROM THE l DATE OF THIS PAPER 310021 k - 9301040211 920225 PDR SECY t\\ l 92-064 PDR

The Commissioners 2 Discussion: Current Discussions in the Disarmament Context The on-going bilateral negotiations between the U.S. and the Russian Republic have already resulted in agreements to dismantle large numbers of nuclear weapons. The disposition of the nuclear materials from the dismantled weapons must follow. Typically, the process of disarmacent involves (1) separating the nuclear warhead from its delivery system, (2) extracting or separating the HEU or Pu from the warheads, and (3) changing the chemical / physical form of the SNM to remove the restricted data associated with the SNM, such as shapes, surface and thickness specifications, alloy composition and Pu isotopes. At this point, the SNM is in a form which is ready for either storage or the conversion process. The partial disarmaments made to date have apparently gone no further than the first step of this process. In order to cooperate in mutually agreed upon general disarmament actions, several, as yet not agreed upon, options exist for the disposition of the weapons related SNM. One possibility would be for the U.S. to offer to store Pu and purchase HEU from Russia. Another possibility would be for the U.S. to build facilities in Russia, to be operated by the Russians with U.S. support, to convert the material into LWR fuel. Shipment to and conversion of the material in the U.S. is another possibility. The overall impact of the disarmament process may further result in policy decisions to (1) convert only the U.S. generated HEUs (2) convert =the U.S. generated HEU and Pui (3) convert only the HEU generated by both the U.S. and Russia (and potentially other federation countries) or (4) convert both the HEU and Pu from all federation sources. Any impact on the NRC and our licensees would depend upon decisions made by the respective governments on several cptions available, such as the few addressed above. Impact on l NRC would also be contingent upon-the direction of U.S. policy l on whether the conversion process would be performed at Department of Energy (DOE) facilities or at NRC licensed facilities (B&W-Lynchburg and-NFS-Erwin). A decision to have the HEU and Pu converted at B&W-Lynchburg and NFS-Erwin would have the maximum impact on NRC. NRC will obviously be least impacted if the decision is to convert the material in Russia.- There will be little impact on NRC if the material is transported f rom Russia to the U.S. government-to-government (i.e., to DOE facilities, by DOE transport vehicles). l ~

I The Commissioners 3 Several other issues must be addressed such as the quantities of SNM generated by this process, SNM transportation capabilities, and distribution of the final product '7eed material) before the options can be explored in detail. The 4 answers to several of those questions may lead to a better understanding of the impact on NRC. Technologies and Facilities Available for Conversion of SNM Metals to LWR Fuel The following information provides an overview of technologies currently available for conversion of weapons grade SNM.

1. Blending of HEU to form low-enriched uranium (LEU).

(A) HEU and depleted or normal uranium (DU/NU) metals cut into appropriate sizes can be melted together and recast to form LEU ingots or rods. (B) HEU metal can be converted to uranium oxide powder and blended with DU/NU oxide. (C) HEU metal can be dissolved in nitric acid (HNO ) and 3 blended with DU/NU nitrate solutions. (D) HEU metal can be converted to hexafluoride (VF ) 6 gas and blended with DV/NV hexafluoride.

2. Conversion of lieu metal to commercial fuel f acility feed (input) material.

(A) Uranium metal can be burned in air to form uranus-uranic : oxide (U,08 ) followed with hydrogen (H,) reduction to uranidm dioxide (UO ) r in steam (with H ) to 2 2 directly form VO, (B) Uranium metal can be dissolved in nitric acid and the resulting solution thermally denitrated to_VO. -(This productwouldbedissolvedbythefuelfabric$torsat the head end to their process.) The VO,'could be reduced to 00 by calcining in a hydrogen atmosphere. 2 (C) Uranium metal can be dissolved in nitric acid and .precipated with ammonia (NH ) to form.amonium 2 diuranate (ADU). ADU can be directly reduced to UO by 2 calcining ~in a H atmosphere. 2

3. Conversion of uranium' metal to VF
  • 6 (A) Uranium metal can be burned.to the oxide and subsequently UF is the standard burned in fluoride (F ) to form UF.

input (feed)materialfortheurankumfuhlfabricators. 2 ?

'tj The Comissioners 4 1

4. Conversion of plutonium metal to mixed oxide fuel.

1 (A) Plutonium metal readily burns in air to' form Pu0 ' 2 Dissolution processes are also available. to form l (B) The plutonium oxide would be mixed with 00,$% the mixed oxide. Mixed oxides containing Z I Pu0 are requi ed for fast reactors and 4% Pu02 2 for light-water reactors. b The following 00E and commercial f acilities are available for performing the conversion processes (A) Facilities for HEU metal casting are available only_at i the Y-12 Plant (Oak Ridge, Tennessee)~ within the DOE complex. However, comercial f acilities also may be-made available at B&W-Lynchburg and NFS-Erwin with the addition of some new equipment. (Note ~Y-12 is_not. -i licensed,NFS-ErwinandB&W-Lynchburgarelicensed.)- (B) HEU dissolution:and conversion facilities are available at Savannah River Plant, !daho Chemical Processing Plant and the Y-12 Plant of the DOE complex and at NRC licensed facilities, NFS-Erwin and B&W-Lynchburg. (C) Pu conversion facilities are available at-( Rocky Flats Plant, Los Alamos National Laboratory, Hanford Engineering Development Laboratory, and the Savannah River Plant.of the_ DOE complex.: 1 NRC's Readiness to-Respond-to the National Initiative l NRC's current safety and safeguards ~ regulations cover the types of operations needed to convert weapons: grade material-to.WR fuel.: However, the existing Category, I fuel facility licensees will.have to obtain-license 4 i amendments for this activity. Also, the commingling _of-HEU-and-LEU within the same facility will complicate the safeguards < measures needed-and the associated licensing considerations.. Current rules outline clear distinctions-in the material contro1 and physical-protection measures-for each type: of. material.- New safeguards rulemaking may be required. 1 There is' current rulemaking underway for. upgrading transportation requirements for Category I.(HEU) ando l Category 11 Pu/HEU metals which will be applicable to the ~ safeguarding of shipments that could potentially develop as a result-of.the~ disarmament program.- Currently,1the small-amounts of comercial HEU being transported are - n being shipped by the existing DOE-Safe Secure _ Transport I E -(SST) system, since there 'are currently no comercial carriers licensed to ship HEU.- N

i{ 1 f l The Comissioners 5 l For licensing review of a facility for recycle Pu, the former Atomic Energy Commission, prompted by the concern for the potential production of. large quantities of plutonium from nuclear generated comercial power reactors, pubitshed a draft Generic Environmental-Statement on use of MixedOxideFuelinLightWaterReactors(GESMO), WASH-1327-il in August 1974. The final GESMO Report was published by theNRCinAugustof1976(NUREG-0002). The purpose of the GESMO was to assess the impacts of the implementation of j plutonium recycle in the LWR industry. The original draft-GESMO only considered the issues of health, safety and - environment. In May of 1978, the NRC published a supplemental report to GESMO to include safeguards (NUREG-0414, Safeguarding a Domestic Mixed Oxide Industry against a Hypothetical Sub-National Threat"). The GESMO project was terminated August 1, 1979, as a result of a national policy not to pursue the Pu recycling-process. However, the conversion of the reclaimed Pu from-nuclear-weapons to LWR fuel does not-require reprocessing. Therefore, the regulatory process for licensing of a Pu-conversion facility would be significantly less.= The GESMO contains a wealth of information which can provide the needed technical basis for developing. licensing review guidance. and procedures. It should be noted, however, that for'the previously licensed Pu facilities there were no requirements to design the facilities to resist =the forces of natural-phenomena such as earthquakes. The new Pu f acilities-would be subject to this requirement. Since the conversion of HEU and Pu reclaimed from decom-a missioned nuclear weapons may be a major national under-taking, a' comprehensive environmental impact statement-(EIS) for the conversion operation and the use of the converted HEU and Pu as LWR fuel would be required. It! is:likely that DOE would be charged with the responsibility to - prepare the EIS. NRC would probably be asked to assist DOEi by providing. technical input.. Alternatives in National Policy Formulation The staff-understands that several other federal' agencies are also assessing-and evaluating the current-global-and domestic need.to~ address the disposition of the SNM-recovered from dismantled nuclear weapons.- la

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The Commissioners 6 There is also public discussion of this issue. Enclosure 1 is an article by William Broad that appeared in the New York Times on December 17, 1991. Also, Enclosure 2 is an October 19, 1991 article written by Thomas Lippman appearing in the Washington Post. Accordingly, the following are the possible options for the Commission as courses of action for addressing the current national environment concerning the issue of disposition of the SNM reclaimed from the decommissioned nuclear weapons. Unless otherwise directed by the Commission, the staff will pursue Option (3). (1) NRC may pursue a passive role and react to specific calls for action from the President or the Congress. (2) NRC may pursue a pro-active role and push for a national policy on the conversion issue which would involve the NRC. (3) NRC may pursue a middle-of-the-road policy involving actively monitoring the activities related to the current issue which are taking place in other federal agencies, and interacting with them as appropriate. Coordination: The Office of the General Counsel has reviewed this paper and has no legal objections. / I ecutive irector for Operations DISTRIBUTICIN: Conunissioners OGC OCtJ\\ OIG LSS IP REGIONAL OFFICES EDO AC!ni SECY --%-_--_m___.__

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A stede gehhshed 1a.5 tw emhn Emi t=4.re Presdent flesh an-by snrntnas at the Feierry tarpart-se.um ed a anda eral an kar ar=es mege's Pards: North est 1.at-wa-u tory un Ret daad. Wash, bsted the gapi4,ggg,, g.gg redation te t wwwdh. sc en e.g_r .~r.- ,tists-t t_. _. ~ g .er- - Im - d. - ..s e October 18, 1991 d.ce-raus =f.espeewe chahnges.d ti,e The opt =m_ed tas en wt.- -...r ma - .d - - ,r_ - a - f,_ m. m a.. p.bng. w tredled wetting sein as the Nevada g,;,g g gg Test Ste. w

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. ch -,e e, .,., t,.t __ y, _,., Rewnstees tkleww Causord, has snatessal ca 4 talt me the wrnae =em--a farody inr wha b a nde penroe. I temak they cuander the wearann. I and Arms Contml. 5%ronamn can cakulated that Bersh's mutusive and hamh would have se be I.asd If the ple-snaff an aswt. but I thank e's a b-e lippy g%qter ejempnent. er en-l be oswherd and unned weh urannen previous arms ennerei parts wel Awricace tegy.,rceary Iren-geneum is swit cla sata e as wasse. abdit y." tomtenant m seinerraneam vandts 5 to make a fort kenen as MOX that y=4d upwe than 42 tons ed phstme-ard A. Clavtar. wk ruses the taer-why one' ttnes the adnunigteatee Claytor.however deserted s as met as the Wasse Endetsam Pales could be wwd me resonercialmulrar um kw afegmial la aMstena. the En-gy tharterat'. wrapur.. npers. ondeoipla*e a resemstwin r1 the "awaksaNe. _ " y." fiant that the Emergy Dr1artneret ergy larpavinnens has what eser sese-saaf the weapses e te drstenyrd me b ar arnes race' taa the Umred Yao Hgspel saad that "one pumm-m about to espge se New tecure er g<esa mat report caErd scwrat w,s se desawe.ddrd m. d.3 4aees iper web anecenst_as inbey ser ehsymang 4 surplus pin-tte ympmed sepammery lor cwden power plants. tem" ei meable p4useress e ownt's l'ansei adme m Am nib Atanw Fawsgy Asem y regula'==m temum % the sees d adissBy taihamtwe wasse h wese Tau ab,. ..; pia,es a,e eat

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""""'M""***'"' N "'y M N W Wes mate aw W W a no deniased hw d. Paewddy nami. vt, = w hra enn,,s. w as tre,d2 deep mpmce ibipumal es esse of t.he proved safe, arature would be prr* g,,,M g,,se el mulitary Furt1=erni. ire the u After dNecogn6dy, the gdge.m ne wry ban:#m smethod af drapeang wmu w .e -me. m .m. an.dysa m the ear .mtw.p i-c.-,. i i. am.,a d - ed. mu.mpiuss.a,r e to be ddfuult, danerenes and en-stared at l'aeres asnt at enhrmy mal-guaribt sacrage whdr or taEL Northwege Laberstores and Can-wartirad sduemummL 8"'P""" ""d ""d'* I"8 ~ 8"8 U P"I"f-prewee." a staff rummerandera 6w bem uned a prensaserve dripnal abat what we are gang se ab.wah gremmasial Research Servat a bedrimise worage ed plusasuusi as Untd meWly b neue af d e-the Srnate Gaucrimmental Affairs plan := druckiped. he samP. e e the Irms term * =amt Frmak me studies tksh cmithsded that it as an eundued p der. Time a the ename I muro disposal attva ted httle atten-c,senuttec courteded. Kwitand Aw Farve Itame.N M,un Hwet. a semirar cupert at Prure-technstasy fessme but paidrant thew shast4erm approactt that at tum becaone arun-rdsction agree - f%sarmene, a smash %ade radusar-espesied to be a prenary starage tem Unmersny. and n

r out of the gues- *emed cwie manry ser commerurtssa of erw seasser buidmes and ist con-

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Srgullrg drtestatusit aged drey 4said orprWy.and the gM0ersel celsId reaEr ea4ed ORr chfnesistens el air-hmy sywms-soe es the esple. ammmes. Inr the tm 6r n a a naar and.r- _c--- _ 1. m. h,wh sers.- somre n -.2 w h==saicer te. ne m cred sur weap.m. e e. The eve werheads. whuh wer* to be Scratnts at Pacdsc herthwest care farin, e the hwne thee e cuers. Asnrra as and Sowet, he maed.1 eanw of pubir eqspeamsne--asul eresse==ustd "put e5 tarang the gere-stared for pnsside redrploynient, labs finsnd that meerty 100 percent out ed the weapan* Thr, nysymi w w mid sret inwh bertre d I knew canomme se MOX fer erratami tame of what to de web thew insee-runs, w ark sneer er Imeer must he a ,4 mar, the Pacdisc Marth-When earmiirte wahrade were.r,. et beagle ensts that ediaird awm- "the emes ermswennal m the orar what was gasqt se happre te the ,we=it IAluwateres and Congrensen-M* the C.%, _ __ Se* Weyer spMks of M. wrgtb term

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wou6# ce=are assima crustaley, er crat law rempares stime a be drierer i pra.ew that's misputant Sar tier tr d te ensure that summe of tier seerters that power ame Navy James it Werner. an e'ww.=- the =aadulte af a apuutanre== ' ed psmanently si a farthey hiewa I future.' In maut "Thrse dremaman smateramt was abwerted to entsens shgs. u 4}}

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