ML20207N153
| ML20207N153 | |
| Person / Time | |
|---|---|
| Issue date: | 09/16/1988 |
| From: | Pittiglio C, Tokar M NRC |
| To: | |
| Shared Package | |
| ML20205F142 | List:
|
| References | |
| FOIA-88-361 NUDOCS 8810180531 | |
| Download: ML20207N153 (30) | |
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NRC PERSPECTIVE ON ALTERNATIVE DISPOSAL METHODS by C.L. Pittiglio and M. Tokar Division of Waste Management -
U. S. Nuclear Regulatory Comission 1
1 ABSTRACT In this paper is discussed an NRC staff strategy for the development of technical criteria and procedures for the licensing of various alternatives for disposal of low-level radicactive waste. Steps taken by the staff to identify I
viable alternative disposal methods and to comply with the requirements of the
! Low-Level Radioactive Waste Policy Amendments Act (LLRWPAA) of 1985 are also l discussed.
i The strategy proposed by the NRC staff is to focus efforts in FY 87 on alternative concepts that incorporate concrete materials with soil or rock i cover (e.g., belowground vaults and earth-mounded concrete bunker"), which I
several States and Stato Compacts have identified as preferred diwosal l options. While the NRC staff believes that other options, such as aboveground l vaults and mined cavities, are workable and licensable, the staff also believes, for ' reasons addressed in the' paper, that it is in the best interest i
I of the industry and the public to encourage standardization and to focus limited ret;urces on a manageable number of alternative options. Therefore, i guidance on abw eground vaults, which are susceptible to long-term materialt degradation due to climatological effects, and mined cavities, which represent a significant departure from the current experience base for low-level radioactive u ste disposal, will receive minimal attentien.
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I. BACKGROUND 1
Whenever Nuclear Regulatory Comission (NRC) representatives talk about land disposal of low-level racioactive waste (LLW), they almost automatically start with Part 61 to Title 10 of the Code of Federsl Regulations (10 CFR Part 61),
(Ref. 1) because that regulation establishes the framework for the licensing of land disposal of low level radioactive waste. All aspects of waste cisposel, from site selection to closure and the period of active I institutional contrul, are covered by Part 61. Moreover, wnile the Tecnqical i Requirements in Subpart D of Part 61 focus primarily en improveo shallow land I
burial ($LS) disposal metnods, tnose requirements and the Part 61 Performance Objectives apply to all methods of near-surface disposal, i
including those that woulti utilize additional engineered barriers or structu res. It is well known that such alternative methocs of disposal are of keen interest to state organizations, irdustry groups, disposal facility I cperators and others. ,
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l The Low-Level Radioactive Waste Policy Amendments Act (LLRWPAA) of 1985 (Ref.
- 2) addresses the matter of alternatives by establishing schedules for development of licensing procedures and technical guidance. Specifically, the NRC must identify' methods of disposal other than SLB by January 1987 and must establish procedures and develop the technical capability to process a license application within 15 months of receipt. Furthermore, the Act requires that by January 1988 the NRC must publish all relevant technical informdtion regarding l such alternative dispcsal methods.
The NRC is meeting the requirements of the Lt.RWPAA by a variety of actions, which are discussed below, and in fact has for quite some time prior ;
to enactment of the LLRWPAA, been engaged in work on alternatives. For '
example, in 1983 a study was initiated with the U.S. Corps of Engineers (COE) that evaluated several generic disposal concepts. Since the completion of that evaluation, which was published in the Federal Reoister in March of 1986 as a draft technical position (Ref. 3), the staff has been improving its licensing capabilities by developing guidance documents. The first of these documents was a draft guide titled "Standard Fomac and Content Guide (SF&C) for Near-Surface Disposal of Radioactive Waste" (Ref. 4). The draft guide was issueo on March 14, 1986, and is currently being revised to be in conformance with a companion document called a Standard Review Plan (SRP).
The SF&C is intended to show an applicant what types of infomation should be submitted with an application for a license for a disposal facility, while the ,
SRP is intended to provide a staff reviewer with guidance on how to review the I information submitted. The versions of the SFAC and the SRP that will be in place by January 1987 will address improved shallow land burial of the here-to-fore traditional Part 61 type; that is, they will not address engineered structures or barriers (othat than stabilized waste foms and hign integrity containers).
Along with this wo'k, the staff has implemented a process of pre-licensing l censultatien with th= States, regional Compacts, and other interested parties. Ongoing consultation activities have included (a) an "Outreach
- Frogram," in which the staff meets with State and Ccepact efficials to discuss regulatory guidance needed for the development of new disposal
- facilities and (b) regional workshops that are intended to focus r specifically on technical issues associated with alternative methods. The i first workshop, which was a "kick-off" meeting and which was intended to '
solicit opinions from members of the public as well as industry and cff1cial spokesmen, was held in Bethesda in June. In that meeting there appeared to be broad support for the pre-licensing consultation process and a desire for l standardization. With regard to standardization, a sentiment was expressed for two types of designs, ane of which might be suitable for "wet" climates and the other for dry environments. Over the next few months, the staff intenes to pursue these design questions in more detail at regional workshops at various locaticns. ,
!!. TYPES OF ALTERNATIVES LNCER CONSIDERATION The options identified in the COE work include (1) Aboveground Vaults (2)
Selowground Vaults. (3) Earth Mounded Concrete Bunkers (EMCS), (4) Shaf ts, and (5) Mined Cavities. A brief description of each of these alternative disposal methods is presented below. The reader is directed to the COE report (Ref. 5) cn these options for further details.
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A. Aboveground Vaults '
An aboveground vault is an engineered structure or building with a floor. L walls, roofi and limited access openings on a foundation near the grounc :
surface. At least some portion of the structure would be above the final post-closure sur face grade. Major factors to be considered for an abovegrounc ,
vault would be (1) the heavy reliance on the structure to meet the intruder -
- barrier and radiation protection-related perfonnance cbjectives, and (2) the need to address, through materials testing and analysis, the long-tenn i durability of the structural materials. The long-term effects cf *
- climatological changes and natural phenomena, such as freeze / thaw cycles and the chemical constituents in precipitation (e.g., acid rain), would be (
, particularly important to the performance of aboveground vaults, i B. Belowground Vaults .
i l The term "belowground vault" refers to any enclosed structure built totally below the surface of the earth. For the purposes of this discussion, a ,
belowground vault may be assumed to either extend above or be totally below the i original natural surface grade. Though a belowground vault would likely be built of the same types of materials (for examples, concrete or masonry) as an i abcveground structure, a telowground unit would be less susceptible to chronic
] climatological effects and might, arguably, be less inviting to a potential 1
iritruder. However, because all surfaces of the vault would be in contact with the host media, careful attention would have to be given to the long-tenn i compatibility of *he host recia with the structural materials used to ,
1 construct the vault.
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! C. Earth Mounded Concrete Bunkers (EMCBS) [
An EMCB may include features of trenches, belowground vaults, and earth mounds.
, By definition, it will extend above the original natural grade. As with the j basic design of an EMCB used in France, the EMCS may rely more heavily than ;
scee other options on the segregation of wastes. Thus, in the French version :
! of an EMCB, wastes with nigher levels of activity are embedded in concrete belowground, and waste packages with lower levels of activity are emplacea i above natural grade in earthen mounds (temuli). As a hybrid technology, involving the intergration of trench disposal, vaults, and controllec
! packaging, the EMCB is a relatively complex option. A careful analysis of new l each component of the system contributes to the satisfying of Part 61
- Perfonnance Objectives woulo be required for any application of an EMCB.
l 1 D. Shaft Disposal i
The tenn "shaft disscsal" refers to a near-surface disposal alternattve in
- which wastes would be disposed of in shafts or boreholes that are augurec,
- bored, or sunk by conventional construction methods. The shaft could be lined cr unlined. IJnlinec shaf ts may be considereo a minor variant of conventieral
{ shallow land burial. It seems likely that a proposal incercorating shaft
- disposal would incluce shaft liners for added confidence of barrier protection.
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E. Mined Cavities ,
The U.S. Department of Energy and the Tennessee Valley Authority, amcng others, have studied the . feasibility of mined cavity d;sposal of low-level radioactive waste. Salt mines have been used in West Germany for disposal of both radioactive and hazardous wastes.
III. CURRENT STRATEGY As menti 6ned earlier, the NRC staff is developing a Standard Format and Content Guide and a Standard Review Plan that will initially address improved i shallow land burial without engineered structures. These documents will be l in place by January 1987 so as to meet the requirements of the LLRWPAA.
l During the remainder of 1987, the staff will be revising and adding sections I
to these documents to address alternative methods of disposal.
For at least the remainder of this year and 1987, the staff will focus on alternative concepts that incorporate cementitious materials (e.g., reinforced concrete) with earthen cover (for example, belowground vaults and earth-mounded concrete bunkers), for which States and State Compacts have
, expressed interest. While it is the NRC staff's belief that other options, such as aboveground vaults and mined cavities, are workable and licensable, it is also believed that it is in everyone's best interest to encourage standacdization and to focus attention on a manageable number of alternative options. Thus, the NRC staff will not attempt to provide more than minimal guidance on aboveground vaults, which are susceptible to long-term materials' degradation effects. Nor will mined cavities, which I represent a significant departure from the current experience base for low-level radioactive waste disposal. Teceive more than minimal attention.
This approach is an acknowledgement of the fact that it is not feasible to l-atterpt to provide guidance on all potential options at this tire, because the resources of the NRC and the industry are limited and the time to develop the technical knewhow and licensing capability is short. ,
From a technological standpoint, a cecision to focus attention on the earth-covered options has the following merits. First, it limits the concern regarding the effects of long-term climatological phenomena on materials' durability. The significance of this cannot be overemphasized, for while an engineereo structure would have to be designed and constructed to last on the i l
order of 500 years, the likely primary material of construction, vit.,
Portland cement-type concrete, has been in use for only about a third of that time. Cement specialists are in general agreement that the effects of freeze / thaw cycles and acid rain are extremely important to the long-tem durabilty of concretes, ano those effects would be lessened for structures that have soil cover. Thus, the develecment of technical and licensing support for belowground structures is expected to be simpler and more I
straight-forward than for aboveground stuctures. A second reason that soil-covered structures are attractive is that they provide an added barrier, '
Mth from the standpoint of intruder protection as well as radionuclide I release. Third, the UC has substantial experience with earth. covered I structures as a result of the agency's involvement for several years in the
- uranium mill tailings remedial action program. Thus, from the standpoint of i ensuring stability and overall perfor
- rance, the NRC already has substantial l exCertise for earth-covered (i.e., belcwground) structures. l l .S 1
In keeping with these objectives and the inttrqsc exorcsr.e1 by irctstry <
spokesmen, the NRC intends to emphasize tr. art 6rcizeo designs. Sterdarditicien has some important advantages. First, it mil 'iste . ave ard envirortr entally sound disposal through concentration of resverces of indum:ry sad gasernment on a limited number of materials and practices. Sacono, it will ger. nit raore effective and efficient licensing and insocction crocessus. Th';s, sigrificant time savings rnay be achieved through NRC :t.1-itgroval cf ftcility or ecy.onent designs and construction materials. Thi r:' vid: spread a:ceptince of th:tse facility designs would permit resource sav'.193 cy reducirg ita:e or CcNAct staffing requirements. A State or Regione s facii tty developine'it auth.1rity would not need the level of technical staf"ing )r contra.:turai support required to justify a highly individualized design. Tr.tr in tari would tena tc
- educt interstate and interregional competition !:r mnilabls engine.tring are geotechnical expertise.
IV. FUTURE ACTIVITIES Consistent with reducing the number of desigi .)1tiens thit will be aedressed further over the remainder of this and t.*ts .'ollowing sear, the NRC staf f expects that the development of specific techal:al infernatian and critaria will accelerate. Though the Standard Ree ow Plan thst w 11 ae in place by January 1987 will initially address impr9ved satilon lan.1 burial without any engineered structures or additional barrisr5. f)r the remtinder of 1987 the staff will be working on additicrs t) the StF taat will adoress tne earth-covered concrete alternatives. The emphas:s alli he en the de.elopment of technical criteria that can be added in tht. incividLal scetions that comprise the Standard Review Plan. Thi3 off ert will inc't.de the development of structural criteria as well as criteria c11).ig. term mateMals' durability.
With regard to materials' parameters, the affe-ts of envi'nnmental factors as well as composition and processing varist1 ts will be takan into ac:ount.
It should be noted that from an NRC staf# pen pective. '.he primary interest in developing acceptance criteria for alteri9 ti"es lies i s a.:tering that Part 61 Perforvance Objectives will be met. Thtt the main . oicern from a technical review standpoint is to assure that an eriginet red fett-Jre wil'..not a bersely impact the ability of the facility to set li?y Part 61 .erforrance
) eejectives such as the 25 mrem dose liaiit. In addi's )a. the staff does not irtend to develop criteria for functional requirement that ite outsice of Part 61.
This means, for example, that there will be it tecnnical Utdance developed fcr retrievability because retrievabilit) li net vitnin the parview of Part 61.
This materials' durability and acceptanee criteria wort , which is teing conducted by NRC's Office of Materials h f at" and S.ifesuaret, is intenced to complement a separate project that is te ng 6crain11tered by NRC's 1ffice of Researen. In that research effort, a "hataros analysis" has identified the comocnents that are most important to tM tunct. ions nf a iear surf 5ce disposal to their contribution to the perfor arce system of and hasThe the syster. ranked them study has accoroing(Re#
shown 3, that the ;over and structural components of any near surface disposal s;< stem are important engineered features regardless of design details sacu u the presence er absence of otner comocnents. This work is continuing with a study of the reliability af important components and the environmertal conditions tha- ir fiuence reliability.
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1 IV. StP ARY -
i In ccccludirg this clicussion, tot following goints should at m1asino:
l Part 61 to Title 10 of tha Code of rect:ral Angulations etelillslies tto fremtwork fcr licersing lano disatsal Jf Icw '.tr/ul radinctivi wit.r.it. It tay ha usic to licarsa any 'anu elin)nal inathca, inciacing ttnse put und erg 11eered barriors ar !Aructures.
The low-Level Rad na:tii.e itste Policy Anendmen:s Ace, of .HiM i esta)'ishes schedules #0r the det.tlo)me9t cf I' censing proi;itriurvu di d <
tech.1(cal guidance. 'w(. naior milestones that inust be ret 4.*J (1) tri:
identificatin of rethods o/ d'so.'ss) other then sial'ow laint buriel 3r e tre etteblishment and obblica:i-): of ILioaace regardi19 tha tsu o' SJ:i nctnoc. .
l by knuary 1987, and (2) th1 ptblishing of tech,11 cal ntome.icn regareir.g l tuch alternat ve eettoos 'oy .lar.uar/1988. An editit'o9al reqt.irusrt 1 to i l establish procecares aad to 4tiivrilo) the techn; cal caonbilicy to :::rpterte the .
3 review of a 11:grse appl.catioa within 15 mentt.s of raceip- ,
The NRC has al #,4dy wt it.e 'irst .riter.tene ty puolishirg a draf t l technical oosition whict idencl!ied fives alterr.ative cont:et ts. -
- The second milestare wil' bt met h,w pub'ichirg terhnicel iafomtt'oa regarcing alternatives it cte hanstre RJview Plan and the Standaro #mntt ;
and Content Guice, wnich are .9erenly cong developed for s'iellow laic '
burial . '
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- Over the coming year, tot Nic will focus on alternative nit trols tnat i utilize cementitious tratilrials v tn sot 1 cone (f or exaspy, taiowgrivne i vaults and earth-mounded cercrece Junkers). NRC will exptM riti inia; resources on abovegroLnd vaulti or eine'$ :avitte:i. t The NRC enecurages stsadnrd ration because that will teste-mere effiC lent use of limited r2 sources and th'us will etsult in sef? Ino
- tavironmentally sound Ji@csal w*th significant tirre sayings.
- Pre licensing c:nstitation with the States Ragloral Cocpacts anc ather interested parties will t09 tint's. This will include tre ongoing "Outreacn Prcgram" and regional "rorkshops." In t:iese an! other forar.is s ach n *.his I
one, the staff will be interestec in feecback on their plans. !
V. REFERENCES l i
- 1. Nuclear Regulatory Ccmission Coce of Federal Regulations. Title 10. Pert j 61, "Licensing Requirements for Land Disposal of Rscicactive Waste " 1952, i
i :. Fublic Law 91-240, Title ! - Low-Level Racioactive Waste Policy Amercients l Act of 1955. 5
- 3. Nuclear Regulatt,ry Commission, Branch Technical Position Statemert i
(Draft), "'.icensing of Alternative tietnces of Disposal for Low-Level !
Radioactive Warit." March 1986. l l
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4 huc' tor Aepl atory Cornission, Draf t 3rarct. Tech 41:3i Pesittoa, "Stancard Torr.at v:d Content Gwice for f: ear Su: f ace O!ssosal of "Micactive Lice '
Haeci) 1986, i
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- 5. R.O.Bennett, et.al, "Alternative retSect fcr )tisessi of 6.cm :. uni 1 , Radicactive Weste." huRIG/CR-3774, hicst 2 5,1965.
'6 . tiark 0. Oth, "!afety Assestres* cf alterietives te 3%11 m 4a0 f uNel of i
Lc Wlevel Radicactiva. Waste--V31, 1, Feilvre Ant!) sis (.f 6?agineerte 5
Farriert," U.S. Aclaer Regulato*y Cani.itt*,cn Contra:tter h.cs t, NUREG/CR-4701, Acqust I M6.
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Note to: Gary Roles, NMSS From: Tim McCartin, RES $ I have reviewed the book entitled "Living Without Landfills". The author has combined facts, generalities, and a premise that any radioactive release is "hazardous", to write a very opinionated book on a not so technically controversial subject. Dr. Resnikoff cites examples of large exposures in foreign countries and talks of "eternal vigilance" to further sensationalize the disposal of low-level waste. Dr. Resnikoff's zero release premise causes wonder as to how mankind has survived natural background radiation. The author is using the book to condemn nuclear power rather than provide a meaningful discussion on near-surface disposal of low-level waste. Dr. Resnikoff uses most of the book detailing how the nuclear power industry is creating a "low-level radioactive waste crisis" while giving only a token discussion on the hydrologiw/ geologic considerations important to near-surface disposal . The author't ignorance of hydrology is no more evident than in his invention of hydrologic terminology such as: "water inmigration to trenches". ! A formal review of this book supplies it with credibility it does not deserve. ; Unless NRC plans to formally review all books dealing with low-level waste, I do not understand why valuable staff time should be expended on a forwal review of this book. l l l l I i
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