ML20138F712
| ML20138F712 | |
| Person / Time | |
|---|---|
| Issue date: | 10/14/1985 |
| From: | Clark A NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS) |
| To: | Rouse L NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS) |
| References | |
| REF-PROJ-M-38 NUDOCS 8510250334 | |
| Download: ML20138F712 (14) | |
Text
_ _ _ _ _ - _ _ _ _ _ _ _ _ _ _ _
e return to FBrown SS 396 Distribution:
OCT 141985 Project M_38 PDR RBoyle NMSS R/F JMapes FCAF R/F KSchneider LCRouse ATClark JSurneir NDavison MEMORANDUM FOR:
Leland C. Rouse, Chief FBrown (LA File)
Advanced Fuel and Spent Fuel Licensing Branch Division of Fuel Cycle and Material Safety FRCM:
A. Thomas Clark, Jr.
Advanced Fuel and Spent Fuel Licensing Branch Division of Fuel Cycle and Material Safety, NMSS
SUBJECT:
MEETING WITH CLINCH RIVER MRS TASK FORCE FROM OAK RIDGE
-- ROANE COUNTY, TENNESSEE The subject meeting was held on October 2, 1985. A list of meeting attendees is attached.
The Task Force is composed of members appointed by the Roane County Commission ad the Oak Ridge City Countil to evaluate the MRS proposal.
A draft copy (attached) of a summary of the Task Force position on the proposed MRS facility was provided and briefly discussed.
The principal topic for discussion was the concept of a citizen MRS Environment, i
Safety,and Health Review Board, which the Task Force is considering.
The Task Force believes that the Board would represent the community's interests by reviewing data collected by Federal agencies on the MRS, conducting inspections, participating in the development of performance standards and criteria, and issuing abatement orders.
We indicated that neither the state r )r local authorities could abrogate Federal regulatory authority in such matters.
It was pointed out that Section 274(i) of the Atomic Energy Act of 1954, as amended, has been a basis in a few instances for states to participate jointly with our Regional offices or inspections. We also indicated that no judgment could be rendered on the Task Force's con:epts at the meeting.
Mr. Scharber indicated that he was participating in the meeting as an observer for the State of Tennessee.
He also indicated that the State had not taken a position on the draft concepts of the Task Force, but that, at present, it did look favorably on the ideas.
It was indicated that the position of the Task Force was to be coordinated with the MRS Subcommittee of the Governor's Committee for Safe Growth.
Original Signed By 8510250334 851014 A. Thomas Clark, Jr.
PDR PROJ NRC MRS Project Manager M-38 PDR Advanced Fuel and Spent Fuel Licensing Branch
Enclosures:
As stated
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2 MEETING ATTENDEES
^
October 2, 1985--Sth Floor Willste Building Clinch River MRS Task Force Tennessee Dept. of Health & Environment Joseph C. King Wayne K Sharber Larry Dickens Frank Charton William D. Harris Shirley Hendrix Michael W. Walker N1C Jane R. Mapes Kathleen N. Schneider A. Thomas Clark, Jr.
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ROANE COUNTY / CITY OF OAK RIDGE, TENNESSEE
,,,,,,a 015/483-5671-POST OFFICE BOX 1 OAK RIDGE, TENNESSEE UNAPPROVED 10/1/85 DRAFT NOTE: The following is a draft summary.
Although drawn from the reports issued by Study Groups of the Clinch River MRS Task Force, it has yet to be officially adopted.
Clinch River MRS Task Force DRAFT POSITION ON THE PROPOSED MONITORED RETRIEVABLE STORAGE FACILITY ABSTRACT: The Clinch River MRS Task Force was appointed in July 1985 by the Roane County Commission and the Oak Ridge City Council to evaluate the Monitored Retrievable Storage (MRS) facility proposed by the Department of Energy to be constructed in the Roane County portion of Oak Ridge. After several weeks of
- study, numerous public
- meetings, site visits to fuel and radioactive waste handling facilities, and careful evaluation of the integrated MRS concept, it is the corsidered opinion of the Task Force that the facility could be safely built and operated in Oak Ridge.
- However, a MRS facility constructed in Oak Ridge would be neither accepted as safe or seen as providing net economic benefit to the local community, region, and state unless certain concerns are addressed and impacts mitigated.
Provided DOE is required by Congress to comply with tough, but reasonable conditions recommended by the Task
- Force, the MRS should be welcomed by the State of Tennessee as a beneficial addition to the region's economic base.
Monitored Retrievable Storage The Nuclear Waste Policy Act of 1982 requires the Department of Energy (DOE) to provide for the development of
- deep, geologic respositories for the disposal of spent nuclear fuel and other high-lesel radioactive wastes and to submit for Congress' consideration a proposal on the need for one or more Monitored Retrievable Storage (MRS) facilities.
Although the MRS was initially considered as a backup for a repository, DOE determined that the facility would perform a
more effective role as a
receiving, packaging, and lag storage center handling fuel assemblies enroute to the repositories.
The MRS proposed by DOE and evaluated by the Task Force is often referred to as an
i
=
I CLINCH RIVER MRS TASK FORCE 10/1/85 UNAPPROVED DRAFT Integral Monitored Retrievable Storage or I-MRS facility.
The facility referred to in this paper is based on the I-MRS concept.
The Clinch River MRS Task Force Following the Department of Energy's announcement i r. April 1985 that three Tennessee sites were to be considered for the Monitored Retrievable Storage facility.
Governor Alexander initiated a review of the proposal to be coordinated by his Safe Growth Team. Roane County and the City of Oak
- Ridge, the local governments sharing jurisdiction over DOE's primary and secondary sites, were invited to participate in the State's review of the MRS proposal.
A similar invitation was provided to local governments in the Hartsville
- area, location of the third alternate MRS site.
The Clinch River MRS Task Force was devised as a means of accomplishing this for the Oak Ridge sites.
To defray expenses incurred by the Task Force, a
$100,000 grant was awarded by the Tennessee Department of Health and Environment from $1.4 million provided by DOE to fund the State's review of the MRS proposal.
Many issues related to the proposed MRS are being considered by the Governor's Safe Growth Team. The primary objective of the Clinch River MRS Task Fcrce has been to determine whether the proposed Monitored Retrievable Storage facility should be accepted by the local governments and if sc, under what conditions.
The Task Force has not addressed tiie question of need for the MRS or the rationale empicyed by DCE in recommending that it be constructed in Tennessee. It is the belief of the Task Force that these are issues to be resolved by
- Congress, not by the local community.
The 31 member Task Force is composed of an equal number of appointees from the County and City, with staff support provided by the City of Oak Ridge.
The Clinch River MRS Task Force is organized into an Executive Committee co-chaired by the Roane County Executive and Mayor of Oak Ridge and three Study Groups focusing on environmental (including health and safety),
socioeconomic, and transportion issues.
Each eight person Study Group is composed of an elected County Commissioner and City Councilman, three citizens appointed by the
- County, and three citizens appointed by the City. Each Study Group is supported by a City staff person.
Additional support is provided as needed by i
I l
2-l 1
E61NEN RIVER Mh@ TA5K F0nCC 10/1/05 UNAPPROVED DRAFT the two local governments, interns, and consultants.
Task Force members have contributed considerable time in evaluating the MRS proposal, sacrificing other interests to devote long hours to the project.
The Task Force as e whole has conducted monthly work sessions and businees meetings since its establishment.
Study Groups have typically held weelly work sessions.
In addition, the Task Force and its Study Groups have sponsored several special events designed to involse the entire community in the evaluation process.
All meetings have been open to the public.
To supplement its series of public meetings, the Task Force has dispatched several members to other communities to view federal and private facilities involved in activities associated with fuel and radioactive waste management activities.
Sites visited have included a fuel handling facility at
- Morris, Illinois operated by General Electric; low-level radioactive waste facilities in Parnwell. South Carolina operated by Chem-Nuclear: DOE's Idaho National Engineering Laboratory:
DOE's Nevada Test Site; and f acili ti es operated for DCE by Sandia at Albuquerque.
The Department of Energy is scheduled to present its recommendations on the MRS facility to Congress :n mid-January of 1986. At the time of its inception, the Clinch River MRS Task Force determined that its position on the proposal to place the MRS facility in Oak Ridge should be completed in time to be of l
use to DOE in the preparation of those recommendations.
Consequen tl y, it has been necessary for the Task Force to complete its evaluation within a very limited time frame.
The Department of Energy has not yet issued its environmental assessment of the prcposed facility, and a
full environmental impact statement (EIS) is not required until the MRS is authorized by Congress. The Clinch River MRS Task Force and the local governments it represents, anticipating full participatation in the review of these and other important forthcoming documents, reserve the right to modify positions taken based on i nf ormati on yet to be presented.
The Nuclear Waste Rolicy Act establishes a unique process of consultation between DOE and state and local governments.
This is a
welcome step in the improvement of intergovernmental relations.
In its prompt response to written and verbal questions and requests for available information, the Department of Energy has been most cooperative in assisting the Clinch River MRS Task Force to complete its initial review.
DOE and contractor personnel have been available at
- most, if not
- all, Task Force meetings to answer questions.
- 3_
CLINCH REVER MRS TASK FORCE 10/1/85 UNAPPROVED DRAFT Summary of Findings Based on its review of the proposed MRS facility and its expectation that Congress and the State will adopt the conditions recommended herein. the Clinch River MRS Task Force concludes the f ollowing:
1.
Spent nuclear fuel and other h i gh-l evel radioactive wastes can be safely transported.
Spent nuclear fuel is highly radioactive, and exposure to even low l evel s of radiation over sufficiently long periods of time can cause harmful health effects.
However, spent nuclear fuel is not e:: p l o si ve.
Nor is there risk of a self-sustaining nuclear reaction within a shipping cask.
Spent fuel shipping casts are heavily shielded and constructed so as to protect the public from any significant radiation l evel s.
The NRC-licensed casks designed for shipment of spent nuclear fuel provide for complete containment of their contents in the event of accidents.
Extensive testing has proven that such casts would provide for safe shipment of fuel assemblies to and from the proposed MRS.
The federal government and nuclear Industry have safely transported nuclear waste materials for nearly 20
- years, including hundreds of spent nuclear fuel shipments through Tennessee. There has never been an accidental radiation release in the transport of spent nuclear fuel.
The State would determine by which Tennessee routes spent fuel is shipped to and from the proposed MRS facility.
The rail line upgrades and roadway improvements recommended by the Task Force fcr State Routes 58 and 95 would support safe travel from the interstate to the proposed MRS sites.
With an upgraded
- roadways, the number of shipments associated with the proposed MRS would not be significant enough to negatively impact regional traffic conditions.
Shipments of spent nuclear fuel are already strictly
)
@6iN@M RRJER MR@ TA@K PONCE 10/1/09 UNAPPROVED DRAFT regulated for safety and security purposes.
If the escort and inspection procedures recommended by the Task Force are adnpted, an additional margin of transportation safety would be guaranteed.
The emergency response planning procedures and DOE-provided first responder training program recommended by the Clinch River MRS Task Force would prepare the state and local governments to deal with any accident involving the transport of spent nuclear fuel.
2.
Based on the best information currently available to the Task Force, either the prefe red Clinch River site or the secondary DOE Reservation site would accommodate the proposed MRS facility.
Ecosystem damage does not appear so significant as to be an overriding factor in determining location of the proposed MRS facility at either Oak Ridge site.
Mitigation of ecological and scenic impacts would be possible following the recommendations of the Task Force.
Site design of the proposed MRS seems to assure that its component facilities would be properly placed relative to natural features.
This region is not prone to significant earthquakes. the proposed sites are located well above flood
- levels, and the underlying geology will support the MRS facility.
3.
The proposed MRS facility can be safely constructed and operated.
The MRS facility would be fully licensed by the Nuclear Regulatory Commission (NRC),
which would regulate its construction and operation.
In addition to NRC regulations, the construction of the proposed MRS would be subject to numerous federal, state, and local codes, and industry standards.
The construction methods and operating technologies of the proposed MRS are already largely proven.
The facility would not require creation of new or e>: o t i c equipment and i
processes.
All fuel assemblies would be remotely handled in " hot cells" to protect workers and the surrounding population.
The facility would be constantly monitored to detect radiation levels, and sufficient redundancy in control and monitoring systems would assure that performance standards are met. _
CLINCH RIVER MRS TASK FORCE 10/1/85 UNAPPROVED DRAFT Compared to a conventional factory or processing plant, the MRS would be a relatively " clean" facility.
NRC regulations and the conditions recommended by the Tast Force wc.u l d allow only minute quantities of gases or liquids to be released to the outside environment.
Radiation monitors would ensure detection and warning of accident conditions.
Radiation exposure to a person living near the proposed MRS facility is stated to be less than a
millirem per year.
Typical background radiation levels (from natural
- sources, drinking water and food, travel, building matertals, medical X-rays, etc.)
are between 100 and 200 millirem per year.
With the adoption of Task Force recommendations regarding establishment of a
MRS Environment,
- Safety, and Health Review Board and the implementation of a
Community Environmental Monitoring Program, the population surrounding the proposed MRS could feel more confident of environmental release data validity.
4.
The proposed MRS facility could benefit the economies of the local community, the reoion, and the State of Tennessee.
The proposed MRS facility would employ approximately 750 contractor and DOE personnel.
Annual operating
- ccsts, including payroll expenditures, would be approximately
$50 million.
Construction of the MRS facility itself would cost approximately
$1 billion.
Costs for on-site storage casks would amount to approximately
$300 million.
Research and development activities associated with transportation issues could cost more than
$200 million.
Expenditures associated with t r ansoor t a ti on cask production and transport could total
$3 billion.
With adoption of Task Force recommendations to encourage the procurement of goods and services from Tennessee vendors, a portion of this business would stay in the State.
Pctential " spin-off" activities associated with the MRS would include training, transportation, metals technology, waste packaging, laser cutting, and robotics.
Assuming adoption of Task Force recommendations, the MRS would pay grants equivalent to all state and local
- taxes, annually generating several million dollars in much needed public revenue.
l 4._
CLINCH RIVER MRS TAUR FORCC 10/1/60 UNAFFROVED DRAFT Summary of Concerns, Anticipated Impacts, and Recommended Mitigations Even assuming the proposed MRS factltty would contribute to resolution of the nation's spent fuel disposal problems, an MRS constructed in Oak Ridge would neither be acceptable nor provide net economic benefit to the local community,
- region, and State unless certain critical concerns were addressed and impacts mitigated.
The most important issues identified by the Clinch River MRS Task Force are enumerated below, along with recommended mitigating actions.
It should be noted that the Task Force is most interested in mating clear its objectives, not necessarily in dictating the specific means achieving them.
1.
Without dilicent adherence to rules, regulations, and safety procedures, the MRS could adverselv impact the surrounding population and local environment.
Monitored Retrievable Storage health and safety issues are considered by the Clinch River MRS T as t: Force to be of primary importance.
It is crit. cal that the following recommendations be adopted:
1.1.
A citteen MRS Environment. Safety, and Health Review Board should be appointed to represent the community's interests during construction, operation, and decommissioning of the prcposed MRS facility.
The Board would be charactertred as follows:
1.1.1.
An equal number of Board members would be appointed by Roane County. the City of Oak
- Ridge, and the State.
1.1.2.
The Board would operate under formal contract with responsible federal agencies.
It would not supplant regulatory agencies responsible for activities at the proposed MRS
- and, to the greatest extent possible, would make use of data collected by those agenctes.
However, the Board should have the authority to conduct its own inspections.
1.1.3.
The Board should participate in the development of performance standards and criteria for the MRS facility and have access to all information on the
(
condition of shipments arriving at the MRS, effluents released to the outside environment, radiation exposure I
to workers and the surrounding population, accidents.
l.--
CLINCH RIVER MR9 TASK FORCE 10/1/85 UNAPPROVED DRAFT and incidents as classified by the NRC.
1.1.4.
The Board should have the authority to issue abatement orders if releases at the MRS are above graded action levels.
If corrective actions are not taken in such instances, the Board should have the authority to issue a desist order halting incoming fuel shipments and all plant operations other than corrective ones.
1.2.
Management of plant operations should be designed to limit the potential for harm to workers and the surrounding population.
Such procedures should incorporate the following:
4 1.2.1.
Local environmental and demographic parameters should be used to evaluate the consequences of air or liquid releases.
Performance standards and graded action levels should be developed for evaluating and responding to releases.
1.2.2.
Performance standards should require a vigorous "As Low As Reasonably Achievable" (ALARA) program to control radiation exposures, and sufficient redundancy of control and rioni toring systems shoul d be utilized to assure that standards are met.
J 1.2.3.
All information on radiation releases and accidents should be made available to the proposed MRS Environment, Safety, and Health Review Beard as well as to the general public.
l 1.2.4.
A Community Environmental Monitoring Program similar to the one operated by EPA at other DOE facilities should be established.
1.3.
- Research, development, and rigorous testing should continue on prototypes of spent fuel transportion and storage casks so that those models put into service in conjunction with the proposed MRS facility are proven to effectively contain radiation and withstand accident conditions.
1.4.
Transportation safety should be assured by means of
" gold star" inspections performed at the originating point of each spent fuel shipment and again at the MRS facility.
Shipments out of the MRS to the permanent repositories j
should be subject to identical inspections.
These i
inspections, conducted by personnel independent of DOE or MRS operations, should guarantee compliance with rigid
}
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@6fNEM RIVER Mh5 TAOM FORCC 10/1/G5 UNAPPROVED DRAFT l
l standards relating to radiological, vehicle, and personnel safety.
Those conducting such inspections should have authority to levy stiff penalties for noncompliance with applicable standards.
1.5.
For purposes of assuring rapid response to emergencies, all spent fuel shipments to and from the MRS shor tld be accompanied by single vehicle escorts.
1.6.
As the NRC licensee for the MRS facility, DOE should assume the lead role in developing emergency response procedures to be followed by local and state public safety personnel in the event of an accident involving spent nuclear fuel.
First responders from local and state agencies should be trained and equipped by the federal government with associated costs borne by the Nuclear Waste Fund.
1.7.
State Routes 95 and 58 should be designated as primary and secondary routes for transport of spent nuclear fuel from the interstates to the proposed MRS with use of other routes prohibited except in the case of emergencies.
Costs for necessary improvements to these routes should be borne by the Nuclear Waste Fund.
1.8.
The Norfolk Southern Corporation railroad
- track, or i
other lines designated to serve the MRS site should be upgraded to Class IV standards.
1.9.
To mitigate the adverse construction impacts on l
private property surrounding the proposed MRS facility, the Task Force recommends establishment of a heavily landscaped buffer around the selected site and adherence to state and local noise.
- blasting, eroston, and other development codes.
1.10.
The secondary radioactive waste items generated at i
the proposed MRS (assembly ftttings, contaminated gloves and protective clothing, etc.)
should be disposed of at DOE's 4
permanent geologic repository, rather than at the low-level waste facility handling other such materials generated in Tennessee facilities.
1.11.
To address concerns regarding long-term site conditions, a plan should be established before operations at the MRS begin outlining how the facility would eventually be fully decommissioned so that the site can be made available for an alternate use at the earliest possible date.
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_ 9.
I
i CLINCH R2VER MRS TASK FORCE 10/1/05 UNAPPROVED DRAFT 2.
The proposed MRS facility could delay construction of the geolooic repository and become a de facto site for permanent spent fuel storace.
Despite clearly stated national policy to the contrary.
there are legitimate concerns that once in operation, the MRS would relieve pressure on DOE and the Congress to follow through en plans to construct a permanent repository.
The Task Force reccmmends that MRS authori Ing legislation specify the followingt 2.1.
No more than 300 metric tons of spent fuel should be received by the MRS facility before a construction license is granted for the permanent repository.
2.2.
No more than 10,000 metric tons of spent fuel should be received before the out-shipments of consolidated fuel rods begin to the permanent repository.
2.3.
Any extension of the MRS stcrage capacity beyond the 15,000 metric tons currently envistoned should be subject to the same review and notice of disapproval procedures followed to initially authorize the MRS.
2.4.
Any spent fuel stored at the MRS longer than 15 years should be subject to a significant " overdue-removal penalty" levied by the State.
3.
The MRS facility could hinder the community *e efforts to diversify and expand its commerc i al /i ndustr i al base.
There is concern that the
- MRS, if handled as just another federal
- facility, would significantly impede the local community's efforts to achieve a stronger economic base.
In addressing this
- concern, the Clinch River MRS Task Force recommends the following 3.1.
With regard to permanent repositories. Section lib (c) of the Nuclear Waste Policy Act provides host Jurtsdictions with grants equal to taxes that would be paid were the facilities privately owned.
Authorizing legiclation should apply Section ll6(c) provisions to the MRS as well.
Such authorization should additionally provide fort Coverage for all local and state taxon. including real and personal property taxes; and Specification of how tax equivalency will be I
administered, including valuation formulas, and for an arbitration board or alternative means for settling disputes.
3.2.
Annual impact assistance payments commensurate to 3 i
ELIN@H RjVER Nhg Task #0f4CC 10/1/05 UNAPPROVED DRAFT 4
grants equal to taxes paid on a ti billion facility should i
be provided to Roane County and the City Dal Ridge beginning with the date of Congressional authori:ation of the MRS and continuing until its operation commences.
3.3.
Proximity to Oak Ridge should be established as a
significantly weighted selection critertco for MRS procurement so that, to the fullest entent
- possible, all related
- research, development,
- gcads, and services are acquired from within the community, region, or state.
3.4.
To the greatest extent possible, all MRS related activities should be conducted in the private sector and on privately owned facilities.
3.5.
A significantly weighted criterion for selection of ma.ior contractors to construct,
- operate, and provide services to the proposed MRS facility should be the commitment of those firms to the diversification of the i
community's economic base.
All contractors selected should be expected to bring non-DOE business with them into the community.
3.6.
Programs necessary for MRS and transportation system employee training should be provided for by local educational institutions.
3.7.
To assist in the community's cont.inued industrial development activities, DOE should mal e available, for purchase at full market value, either of the two sites not chosen for the MRS facility.
4.
Public trust in DOE hac seriously ernded.
Environmental problems, long-standing debates on issues of taxation, and DOE's poor relationships with the community and State leave many l
skeptical that DOE's assurances regarding the MRS will be fulfilled.
4.1.
In its author 1:ation of the MRS.
Congress should specify DOE's compliance with Task Force recommendations contained herein.
4.2.
A schedule for bringtrg all DOE Oal Ridge Operations facilities into compliance with state and federal environmental regulations should be established prior to Congressional authorization of the MRS.
and clean up programs should be fully implemented prior to commencement 1
of MRS operations.
4.3.
Section ll7 (c) of the Nuclear Waste Policy Act i
l CLINCH RIVER MRS TASK FORCE 10/1/85 UNAPPROVED DRAFT provides for
" consultation and cooperation" (C
C) agreements between DOE and the State.
The MRS authori: Ing legislation should provide for C C
agreements directly between DOE and units of local government.
4.4.
Establishment of the aforementioned MRS Environment, Safety, and Health Review Board and Community Environmental Monitoring Frogram should be implemented as means toward ensuring public confidence in the saf e operation of the proposed MRS facility.
4.5.
Upon authert:ation, the managment of MRS
- design, construction, and operations, as well as transportation operations for the entire spent fuel disposal
- program, should be assigned to DOE's Oat Ridge offices.
4.6.
A simple and inexpensive procedure to guarantee private property values surrounding the MRS site and along the Blair Road railroad spur should be implemented by DOE.
5.
The MRS mav be perceived as a " nuclear waste dump."
DOE's environmental record has adversely impacted the regional and national image of Oak Ridge.
Although the
" waste dump" label already given the proposed MRS by many throughout the state can be proven erroneous, it exacerbates the problems Oak Ridge now experiences in maintaining its image as a
high quali ty community.
In accepting the proposed MRS
- facility, the local governments should be assured that DOE will accept the following recommendations:
5.1.
DOE should finance a significant precperational public education program, beginning upon authori:ation of the MRG, conducted by the County and City to highlight progress being made by DOE in resol vi ng environmental problems and to promote the community's general quality of life.
5.2.
Upon authorization of the MRS, DOE should construct, support, and promote new enhibits in the American Museum of Science and Energy and provide adequate funding for programs explaining MRS and its role in the integrated nuclear waste system.
An aggressive program should also be mounted to better explain existing DOE Oak Ridge facilities.
5.3.
The MRS facility itself should be well designed and landscaped so as to be aestheticall y pleasing.
5.4 As part nf the MRG, DOE should construct,
- staff, operate, and promoFe a visitor's center for the purpose of explaining MRS and its role in the integrated nuclear wasto system.