ML20128K142

Trip Rept of 930114 Visit to Toronto & Ottwa,Canada to Become Familiar W/Canadian Approaches to & Experiences in Storage of LLW So That Practices & Lessons Learned Will Be Considered in Planning for Increased Storage of LLW in Us

ML20128K142
Person / Time
Issue date:	02/10/1993
From:	Brach E, Nelson R, Danni Smith NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS)
To:	NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS)
References
REF-WM-3 NUDOCS 9302180081
Download: ML20128K142 (13)

Text

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!" o NUCLEAR REGULATORY COMMISSION g j WASHINGTON, D. C. 20555

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/ FEB 10 iWJ HEMORANDUM FOR: Richard L. Bangart, Director Division of low-level Waste Management and Decomissioning FROM: E. William Brach, Deputy Director Division of Low level Waste Management and Decomissioning Robert Nelson, Project Manager Licensing and Coordination Section low-levei Waste Management Branch Division of Low-level Waste Management and Decomissioning Donna K. Smith, Physical Scientist Licensing and Coordination Section Low-level Waste Management Branch Division of Low-level haste Management and Decomissioning

]

SUBJECT:

TRIP REPORT TO VISIT LOW-LEVEL WASTE STORAGE FACILITIES IN CANADA From January 11 through January 14, 1993 the undersigned traveled to Toronto cnd Ottawa to meet with officials from the Atomic Energy Control Board (AELB),

visit the low-level waste. (LLW) storage facilities at Bruce Nuclear Power Development (BNPD), meet officials from the Atomic Energy of Canada Limited (AECL), and tour the LLW storage facilities at the AECL Chalk River Laboratories (CRL). The purpose of the trip was to become familiar with Canadian approaches to and experiences in storage of LLW so that their practices and lessons learned can be considered in our planning for increased storage of LLW in the US.

The following report sumarizes the trip (a copy of the itinerary is enclosed), identifies the individuals with whom we met, and provides major observations and-a description of discussion topics.

AECB - Toronto In the initial meeting with officials from the AECB en the afternonn of January 11, plans to visit BNPD and AECL Chalk River Laboratories'were-finalized, the NRC staff was briefed on the respective sites, and Canada's regulatory program for_ low-level waste storage and disposal was discussed.

George Jack'(Director of Wastes and Impacts Division) initiated the meeting with a brief description of the AECB. Paul J. Conlon-(Section Leader in the-Wastes aad' Impacts Division) presented an overview of storage facilities and' technical information for both BNPD and CRL. Also present from the Wastes and 3 0

Impacts Division was Andre Regimbald (Project Officer for AECB). i 180070 J;p\- ,

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Rjchard L. Bangart .

HEC) - Headauarters Ottau i The final meeting, January 14, with the same AECB officials as mentioned l above, following the visit to BNPD and CRL, focused on observations at BNPD 1

and CRL, public involvement in AECB regulatory activities involving storage

,- dnd disposal, and an DverView of Canada's experiences with LLW storage. The ,

, topics discussed during both the initial and final meetings with AECB included j the following:

AECB is the regulatory agency whose responsibilities are similar to those of NRC. The AECB 00ard consists of five members. The President of the Board is the only full time Board member.

l The Wastes and Impacts Division is under the Directorate of Fuel Cycle

and Materials Regulation and is responsible for the regulation of radioactive waste management and decommissioning of nuclear i facilities.

I The AECB staff implerents the policies o' the Board and makes

recommendations- to the Board concerning .ne issuing of licenses and i

other _ regulatory matters. The AECB has increased their staff from 334 in March 1992 to approximately 400 by. December 1992.

1 Even though Canadians view disposal as preferable over storage, there

, has yet to be a disposal site licensed. All LLk has been managed by i

placement in interim storage facilities for over 40 years. AECB received its first license application for a LLW disposal facility (Intrusion Resistant Underground Structure - IRUS) from the AECL in May of 1992. The application is currently in the review process.

AECB had their first application review meeting with AECL on January.

12, 1993. This meeting was not open to the public. AECL-anticipates operation of IRUS in 1996.- IRUS is further discussed below.

AECB regulations are general in nature, broadly based on performance

triteria. To obtain a license for-LLW storage, it is the . ,

! responsibility of the licensee / applicant to present to the AECB what-actions are planned, explain how its- storage facility meets' the performance criteria, and how ongoing safety will be ensured.

Long-term management of LLW (whether it be storage or disposal) is the l j responsibility of the waste generator. Nuclear utilities in Canada-4 currently store their own generated LLW. Each nuclear utility -

operates one storage facility that' receives waste produced from each of its nuclear power reactor sites. _The'BNPD site is the central-storage repository for all LLW generated by the three Ontario Hydro j

• nuclear power sites.' .The two other nuclear utilities store their

, waste at-their respective nuclear power plant sites. AECL stores-the remaining LLW generated in Canada from hospitals, universities, etc.

. at CRL.

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,! The AECB issued a Regulatory Policy Statement R-65 in 1989, governing 1 j the exemption of certain radioactive materials from further licensing l 3

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Richard L. Bangart upon proposed transfer for disposal. Specifically, the policy statement states:

...the criteria by which the AECB will determine the

. acceptability of applications for the exemption of certain radioactive materials from further licensing...The AECB will -

use a de minimis dose of radiation -to individuals of 0.05 millisievert [5 mrem] in a year _for deciding such exemption-on a case-by-case basis, provided that the radiological impact will be localized and-the potential _ for exposure of large populations is small."

There are two private waste processors located in Toronto and Montreal, licensed by AECB, who compact waste from other than-power .

reactor generators prior to shipment to AECL.

AECB's review of a license application is an iterative process. The following steps outline the_ interaction between-the AECB and an applicant:

- The applicant must first submit a letter of intent which may be accompanied by the application.

- The AECB releases a public information notice.

-- The applicant submits a request to the AECB asking permission to begin construction.

- AECB establishes the review staff and-solicits assistance, as required,- from other government _ agencies to help in the _ review.

- The project officer is the liaison between the AECB (including the-sister agencies involved in the review) and the potential' licensee.

- The applicant must develop c public information- program.and submit a description of_ their proposed program to the AECB. The program must contain the following information:

- how the applicant defines the "affected public" how the applicant intends to reach the "affected public" content of the message to_ the public The AECB will: monitor any. public hearing or public communication to determine accuracy and clarity of content and.to observe questions, concerns,-and reactions of the public.

Supporting documentation and technical information is requested from the applicant as needed. This' process-is similar to the-NRC's review process.

J 4-When the AECB' staff review .is complete, the staff recommends that -

T . the AECB Board consider: final _ AECB action (e.g., license s issuance), ,

The Board allows two weeks for public comraent prior to the first -

of two Board meetings'.- The public must: register with the Board if 6

they want to raise any-issues at the-first meeting.

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- Following the first Board meeting, the staff responds to Board and-public questions. At the second Board meeting, the Board deliberates in private then provides their final decision.

Ontario Hvdro - BNPQ j On the morning of January 12, NRC staff departed Toronto for BNPD. At BNPD.

we were briefed by Brian Vaughan (Technical Superintendent of Waste Management for BNPD) on the waste management-program at the BNPD site. Following-the-

briefing we toured the Radioactive Waste Operations Site 2 (RWOS 2) which j consists of the Radioactive Waste Processing. Facility and Radioactive-Waste l Storage Facilities.

i

, Ontario Hydro -is the largest Canadian nuclear utility and operater nuclear-generating stations at-Darlington, Pickering and BNPD. Ortario Hydro has two i waste management sites located at BNPD to store low and intermediate level

, waste. The first of the two sites, Radioactive Waste Operation Site 1 (RWOS

1) was-in use until-1974 and is now closed and monitored regularly. - The other site, RWOS 2, operated by approximately a_ ten person staff, is larger and

meets all of Ontario Hydro's current waste storage needs.

Ontario Hydro classifies its low and intermediate level waste according to its

! radioactivity,' determined by contact _ dose rates, and physical composition.

! Type 1 LLW consists of waste with a contact dose of-less than 0.2 rem /hr.

l Type 1 LLW makes up-97 percent of total waste stored. Type 1 LLW is further classified as being either incinerable, compactable, or non-processible.

Type 2 LLW consists of waste with a contact-dose of greater than 0.2 rem /hr and less than 15 rem /hr (3% of total).1 Type 3 intermediate level waste is

waste with a contact dose of greater than 15 rem /hr1(<1% of total)..

For the past two decades, a radioactive waste volume reduction facility, i consisting of an incinerator, -a . waste drum compactor, and a low-force baler, has been used for achieving volume reduction.: Seventy percent of-waste:

received at RWOS 2 is incinerable with volume reduction capability of 66:1, .

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- 10% is compactable with 4:1 volume reduction capability, and 20% is non-processible.. Newer incineration and super _ compaction technologies are being

investigated. Waste segregation and sorting-are done at the generating reactor site. The RWOS 2 operations process the' waste as received. There is

no further sorting or decontamination activities at the RWOS 2 to facilitate l volume reduction of LLW.

j Iyp_es of Storaae Facilities at BNPD i

hLgvel Storaae Buildinos (LLSB) are above ground warehouse type structures used to store volume reduced, low specific activity waste (waste which has a .

i contact dose rate of less than 1 rem /hr). LLSBs are made from prefabricated,=

prestressed concrete consisting of 38 cm thick walls with overlapping joints, i 16 cm thick walls with support columns, and poured concrete floors. Spills-4 i

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Richard L. Bangart  !

are collected in a sump through the floor drain and leakage is detected by

another-sump that collects water from below the floor. The building 1 dimensions are 50 m long by 30 m wide by 8 m high with storage capacity of l 8000 cubic meters. LLSBs are protected by a fire detection and a carbon i dioxide deluge fire suppression system. Per unit volume, LLSBs are more '

economical to construct (3 million dollars) than below ground structures,

offer more efficient use of the land, and allow stored waste to be " cascaded".

Cascading is the process of retrieving waste from the concrete trenches or i other engineered below grade facilities that has< decayed-to low enough levels

to be stored in the LLSB. -This provides reusable space in the other i structures for higher activity LLW, reducing-the need to construct additional i costly below grade facilities. BNPD currently has six LLSBs with two in j active use and one under construction.

t Ouadricells are modular above ground storage structures primarily designed to contain bulk spent ion exchange-resins:. There are 15 quadricell modules in the quadricell facility. A quadricell module consists of a cubic outer

structure divided into four cells and a cylindrical concrete vessel placed _ _

within each cell. The interspace between the cylindrical vessel and the outer

structure contains a sump which is monitored. -Quadricell modules measure i 5.5 m long, 6 m wide, and 5.5 m high. Each quadricell module has a storage

capacity of 24 cubic meters. The quadricell design has been replaced by the j less expensive and more space efficient in-ground containers.

Cnnerete Trenches are shallow in-ground structures.used to store Type 2 waste.

They measure 3 m wide, 40 m long, and 4 m deep with 38 cm thick walls. The bottom slopes to a sump and standpipe to permit water detection, monitoring, i and removal. Once full, trenches are covered with 30 cm_ thick precast

concrete lids with neoprene gaskets. After a period of heavy rain one of the L trench sections rose 15 cm. Underdrainage was installed to correct this

! problem in the other trenches. -Trenches have been replaced at BNPD with the j development of in-ground containers discussed below.

j- Concrete Tile Holes are in-ground structures for Type 3 waste. Most contain a

.- retrievable steel liner and are capped with a concrete lid when full. Tile i holes have an inside diameter of 60 cm and a depth of 3.5 m. The space i

between the tile hole and its liner is monitored for water. Subsurface water e around the tile holes drains to a sample station. . This desigt has also been .

! replaced by the more economical in-ground container.

i- In-GrounLCgntainers QQ1 are now being built.for higher activity LLW. ICs i are made from carbon steel liners concreted into- augured holes. A. retrievable 4

' inner carbon- steel liner is used unless the waste has its own steel container.

ICs are less expensive and faster to' construct than the-quadricells, concrete 1- trenches, and tile holes. A sample line, in the space between the outer and i inner liner, is routinely monitored for water or other contaminants. Coal tar

, epoxy protects the containers from corrosion. ICs have a-_ storage capacity of j- 2 to 12 cubic meters depending on the size of the inner liner.

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The AECB requires that the BNPD maintain a certain amount of empty waste '

storage space to serve as reserve storage. This reserve storage is set aside

, in the event of an accident at one of the-Ontario Hydro nuclear sites. -

Ontario Hydro currently has no definite plans for disposal of their LLW.-

Based on-discussions during our visit, it appears Ontario Hydro is monitoring the progress mada by AECL in their development of the IRUS disposal facility.

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, AECL - Chalk River

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On' the morning of January 13 the NRC staff-departed Ottawa for AECL Chalk 1

River Labor'atories. A brief summary of the discussions with _AECL follows:

I Leo Buckley (Manager - Waste _ Processing Technology) initiated the meeting ~with background _information concerning the AECL. AECL is a-Federally funded government corporation that promotes the uses of nuclear energy. Three divisions compose the AECL: AECL Research (CRL and the Whiteshell Laboratories in Manitoba) performs research, development and demonstrations; AECL CANDU designs,-constructs, and provides engineering services; AECL Inc., with an

. office in Washington, D.C...-is the commercial division to promote the technical services-of AECL Research and- AECL CANDU. AECL Research at CRL consists of a 2400 person staff. AECB-began regulating AECL_.in-1980.

Mr. Buckley also hostedithe visit at the AECL facilities.

John Torok (Research Engineer) presented information concerning_the site characteristics of AECL-CRL property. The CRL site covers 30 square kilometers- of- a Graben or- Rift valley located along the Ottawa River _in- the Greenville_ province of theiCanadian Shield. The area receives '830 mm of annual rainfall. The bedrock consists of fluvial and aeolian sand which allows good drainage. Limited areas exist for-' disposal facilities because of the limited areas with sufficient depth to the water-table. The depth to the wa'er table ranges from 5-10 meters.

R.E. (Bob) Donders (Project Scientist) outlined the sources and types of-radioactive waste managed at CRL which consists of the following: isotope production, isotope users, reactor operations, nuclear--research and-development, decommission'39, fuel-fabricators, irradiated fuel,- contaminated soil. .

-No.rm W. Edwards (Customer Service Representative) presented an overview of pas.t and present waste management operations and hosted.the tour of the LLW management facilities as listed below.

-Waste Management Area "A"'(WMA "A"), in operation between 1946?and 1952, was CRL's' first waste burial site. LLW was buried directly into the sand. Also waste from a 1952 reactor. accident is_ buried at_this-site.

Richard L. Bangart WMA "B" began service in 1953, with LLW buried in sand trenches. In-1955 engineered facilities began with asphalt lined trenches which evolved into the cylindrical bunkers and tiles holes that are used today and as described below.

WMA "C", consisting of a series of sand trenches, became operational in 1963. By 1982, 30 sand trenches were used. The LLW placed in WMA "C" is limited to radioactive waste with hazardous lifetimes of up to 150 years (ten half-lives less than 150 years). As a result of contamination / migration, one quarter of this area was covered with a plastic membrane and AECL reported that the diversion of the surface water runoff has significantly reduced the migration of the waste, mainly tritium. No off-site migration has been detected.

There were four other waste management areas at CRL not included in our tour. These areas contain contaminated soil and equipment, concrete canisters for dry storage of spent fuel, and other radioactive waste. Contaminated soil is being stored pending a decision on final disposal.

Tvoes of Storaae Facilities at CRL Cylindrical Concrete Bunkers are used to store waste that can be handled safely without protective shielding. Located near-surface, at least one meter above the highest level of the water table, the bunkers measure 6.1 meters in diameter, 4 meters deep with a capacity of.99 cubic meters. Each bunker has a sump from which water that has collected is removed and sampled.

Concrete Tile Holes are similar to those used by Ontario Hydro. They are used to store higher level activity waste such as used nuclear fuel bundles'(HLW).

Tile holes enable waste to be emplaced directly from a transportation shielding cask while maintaining shielding for workers. .The diameters of the tile holes range from 30 cm to 1 meter and have a depth of about 5 meters.

Some have a steel liner as an'added containment barrier and each hole is closed with a removable shielding plug.

Discosal at CRL - IRUS Bruce A. Lange disposal plans 'a(Senior Project t AECL-CRL. Manager)

' AECL presented submitted information -license the first LLW-disposal on future application to the AECB in the Spring of 1992 requesting approval to construct and operate a demonstration unit of a near-surface disposal system at CRL.

The AECL disposal concept is called an Intrusion-Resistant Underground Structure (IRUS). Each IRUS unit will be an underground concrete vault measuring 30 m long, 20 m wide, and 10 m deep designed to safely contain 1980 cubic meters of LLW with hazardous lifetimes of up to 500 years (ten half-lives less than 500 years. IRUS is designed to be situated with the bottom of l

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the facility one meter above the groundwater table and the concrete roof below the frost level. Drainage barriers will be used to direct rain water away from the repository. Water that does seep into IRUS will exit through a porou

: bottom sandy layer, designed to remove radionuclides that may be picked

! up by the water. Doses to intruders and the public are. limited to 5

mrem / year. Review of the IRUS application is expected to be completed by the AECB within the next two years, with operation scheduled by 1996.

C_gnclusion Early practices of LLW storage in Canada gave little consideration to waste i form, packaging, or waste segregation. The early CRL facilities were not engineered with ease of retrievability in mind. Various activity-level' i materials were interspersed in sand trenches, while some concrete trenches were back-filled with sand and gravel, and sealed with a poured concrete cover to create a concrete monolith. Earlier facilities were also not engineered to preclude ground and surface water infiltration. . Covers and side walls were

'; permeable and some engineered facilities exparienced " bath-tubbing" and required installation of sumps.

Although segregation of LLW by activity level is currently practiced at-both BNPD and CRL, there is not much emphasis placed on waste form development or

package integrity. The only requirement for most waste to be received into storage is that the waste be dry and limited to no more than 1% free liquid.

The packages to be stored in cylindrical _ concrete bunkers or tile holes at the CRL are expected to maintain their integrity for a 10 or 30 year period.

There is no package requirement for LLW placed in sand trench storage or in

, the IRUS disposal facility, i

Early LLW storage facilities and some current storage facilities of the AECL resemble shallow land burial. Based on discussions with AECL and AECB, analyses of the-waste buried in these trenches may show that the wastes may remain in situ instead of being excavated and reprocessed for' disposal.

Retrievability of LLW is currently _ recognized as an important requirement for storage facility design. Current storage designs and practices address waste activity level for segregation and the permeability of the facility cover and walls to ground and surface water. Retrievability in these more recent i storage facilities is accomplished with minimal effort (e.g., lift cover and .

remove).

It was observed by the NRC staff that effective competent, storage facilities can be licensed and constructed without the need for detailed prescriptive regulations. The AECB's ability to perform the review of a storage license application appears to be in part the result of a limited number of organizations involved in waste management (AECL and three nuclear utilities).

-The-trip by the NRC-staff to_ visit LLW. storage facilities at BNPD and CRL-and to interact with AECB officials was valuable in that observations and topics

. discussed addressed concerns and issues directly related to questions and issues concerning LLW storage practices, policies, and regulations here in the US. At the conclusion of the meeting, George Jack expressed an interest in maintaining dialogue with NRC on LLW, decommissioning, uranium mill tailings, t

i Richard L. Bangart f-and related matters. He noted that in the past, he and his staff havs had more interactions with Europeans on these matters but that the US and: Canada have much in common to share.

omqtNA1. SIGNED M E. William Brach, Deputy Director Division of Low-Level Waste Management and Decommissioning

' OmGN! S!GNED BY Robert Nelson, Project Manager Licensing and Coordination Section Low-Level Waste Management Branchi Division of Low-Level Waste Management and Decommissioning 6t@BN1 MMEU # * >

-Donna X. Smith, Physical Scientist -

Licensing and Coordination Section Low-Level Waste Management Branch-Division of low-Level Waste Management and Decommissioning

Enclosures:

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[f B. Vaughan, Ontario Hydro (BNPD)P. Stevens Cuille, Ontario Hydro (H11 A27 H. Morrison, Ontarlo Hydro (BNPD)

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Sugeet 0401 U.S. NRC Technleal Visit. Jan. 11 - 14. 1993 As discussed visit of the U.S.with NRC you earlier, I as sending you the complete itinerary fot the team, US NRC Team:

E. William Brach, Deputy Director, Division of Low Level Vaste Management and Decommissioning; Office of Nuclear Material Safety and Safeguarda (NMSS)

Paul Lohaus, Chief, Iow Level Vasta Kanagsment Branch, NM.'

j Bob Nelson, Swnlor Project Officer, Low-Laval Waste Management Branch, HMSS

- Donna Smith, Low Laval Vaste Management Branch, NNSS AECS Team:

George Jack, Director, Wastes and Impacts Division Paul Conlon Head Non mining and Waste Facilities Section j

Bill Whitehead, Project Officer Andre Regiabald, Project Officer l Monday, Jan. 11 13:30 US NRC team arrives in Toronto 15:00 AECB/US NRC technical discussions held at Bristol Place Hotel, 950 Dixon Road, Toronto Nightsbridge Conference Room (2nd floor of hotel)

Tel. (416) 673 9444 or 1-800 268 4927 Ros , nos . 5470059, 0852618, 3801378, 2569971, $460579 (Bill W.)

Tuesday, Jan. 12 08:30 Drive to Bruce Nuclear Power Development i

US NRC team accompanied by Bill Whitehead Car rented by AECS Airport Thrifty Car Rental Tel (416) 673-8811 11:30 Arrive at BNPD CanadE __ -

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2 12:30 Visit BNPD waste management site Ontario Hydro contact: Hugh Morrison a j

Tel~(519)3612673 ext.h369 16:30 Return to Toronto (airport) l Fly to Ottava on Canadien flight no. 930 at 21:00 j

Res. no. SSD 4XS (for four)

• Canadian Airlines (416) ,798 2211 or 798 3115

• Reservations mada at Roxborough Hotel for US NRC team

' 123 Metcalfe Screet, 0ttawa ($73/ night]

Tel (613) 237 5171 Rea, nos. 37, 38, 39 i

) Wednesday, Jan. 13

, 8:30 - US URC team met in hotel lobby by Andre Regimbald Drive to Chalk River

Thrifty Car Rental Tel (613) 238 8000 Visit AECL-CRL vaste management facility i AECL CRL contact

Doug Champ Tel. (613) 584 3311 I

15:00 Depart Chalk River l

4

} Thursday, Jan. 14

8

30 4 Technical review senaton at AECS 270 Albert Street Ottawa 6th floor conference Room j ARC 8 contact: George Jack Tel. (613) 995 4055 FM -

US NRC team departs for Washington l

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! Richard L. Bangart a The trip by the NRC staff to visit LLW storage facilities at BNPD and CRL and to interact with AECB official was valuable in that observations and topics

, discuss addressed concerns and issues relating to LLW storage practices, policies, and regulations here in the US. At the conclusion of the meeting, i George Jac expressed an interest in maintaining dialogue with NRC on LLW, i decommission ng, uranium mill tailings, and -related matters; noting that in the past, he nd his AECB staff have had more interactions with Europeans on these matters ut the US and Canada have more in common.

E. William Brach, Deputy Director Division of Low-Level Waste Management i and Decommissioning

)

Robert Nelson, Project Manager Licensing and Coordination Section Low-level Waste Management Branch

. Division of Low-level Waste Management

and Decommissioning

, Donna K. Smith, Physical Scientist

. Licensing and Coordination Section Low-Level Waste Management Branch Division of Low-Level Waste Management and Decommissioning l

Enclosures:

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Richard L. Bangart 1 The trip by the NRC staff to visit LLW storage facilities at BNPD and CRL and l to interact with AECB official was valuable in that observations and topics discussed add ssed concerns and issues relating to LLW storage practicos, policies, and gulations here in the US. At the conclusion of the meeting, George Jack ex ssed an interest in maintaining dialogue with NRC on LLW, 3 decommissioning, ranium mill tailings, and related matters; noting th + in

the past, he and h p AECB staff have had more interactions with Europe.>n an these matters but the US and Canada have more in common.

E. William Brach, Deputy Director Division of low-Level Waste Management and Decommissioning Robert Nelson, Project Manager Licensing and Coordination Section i Low-Level Waste Management Branch Division of low-Level Waste Management

and Decommissioning onna K. Smith, Physical Scientist L censing and Coordination Section lo -Level Waste Management Branch

! Di sion of Low-Level Waste Management a d Decommissioning Enclosures :

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