[Federal Register Volume 68, Number 248 (Monday, December 29, 2003)]
[Notices]
[Pages 74986-74988]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-31875]


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NUCLEAR REGULATORY COMMISSION

[Docket No.: 40-8989; SMC-1559]


Envirocare of Utah, Inc.; Order Modifying Exemption From 
Requirements Relative to Possession of Special Nuclear Material

    Envirocare of Utah, Inc., (Envirocare) operates a low-level waste 
(LLW) disposal facility in Clive, Utah. This facility is licensed by 
the State of Utah, an Agreement State. Envirocare is also licensed by 
Utah to dispose of mixed radioactive and hazardous wastes. In addition, 
Envirocare has a U.S. Nuclear Regulatory Commission (NRC) license to 
dispose of byproduct material as defined in 10 CFR part 40.
    Section 70.3 of 10 CFR part 70 requires persons who own, acquire, 
deliver, receive, possess, use, or transfer special nuclear material 
(SNM) to obtain a license pursuant to the requirements in 10 CFR part 
70. The licensing requirements in 10 CFR part 70 apply to persons in 
Agreement States possessing greater than critical mass quantities as 
defined in 10 CFR 150.11.
    Pursuant to 10 CFR 70.14, ``the Commission may. * * * grant such 
exemptions from the requirements of the regulations in this part as it 
determines are authorized by law and will not endanger life or property 
or the common defense and security and are otherwise in the public 
interest.''
    On May 24, 1999, the NRC transmitted an Order to Envirocare of 
Utah, Inc. The Order was published in the Federal Register on May 21, 
1999 (64 FR 27826). The Order exempted Envirocare from certain NRC 
regulations and permitted Envirocare, under specified conditions, to 
possess waste containing SNM in greater quantities than specified in 10 
CFR part 150, at Envirocare's LLW disposal facility located in Clive, 
Utah, without obtaining an NRC license pursuant to 10 CFR part 70. The 
methodology used to establish these limits is discussed in the 1999 
Safety Evaluation Report (SER) that supported the 1999 Order.
    On January 30, 2003, the NRC revised the Order to (1) Include 
stabilization of liquid waste streams containing SNM; (2) include the 
thermal desorption process; (3) change the homogenous contiguous mass 
limit from 145 kg to 600 kg; (4) change the language and SNM limit 
associated with footnotes ``c'' and ``d'' of Condition 1 to reflect all 
materials in Conditions 2 and 3; and (5) omit the confirmatory testing 
requirements for debris waste. The revised Order was published in the 
Federal Register on February 13, 2003 (68 FR 7399).
    Envirocare, in a letter dated July 8, 2003, proposed that NRC amend 
the 2003 Order to: (1) Include additional SNM concentration limits to 
Condition 1 of the Order, including limits for SNM with and without 
magnesium oxide and limits for additional enrichments of uranium-235; 
(2) revise the limits in Condition 1 to be in units of gram of SNM per 
gram of waste rather than the current units of pCi of SNM per gram of 
waste; and (3) increase the limits of plutonium isotopes and uranium-
233 to allow for greater flexibility in accepting liquid SNM waste. In 
addition, Envirocare has requested an evaluation of three new waste 
treatment technologies. The NRC is evaluating Envirocare's request in 
two phases. This

[[Page 74987]]

modification of the Order addresses the revisions to the table in 
Condition 1, to include criticality-based concentration limits without 
magnesium oxide. Phase two will be subject to a separate evaluation and 
revision of the Order.
    A principal emphasis of 10 CFR part 70 is criticality safety and 
safeguarding SNM against diversion or sabotage. The staff considers 
that criticality safety can be maintained by relying on concentration 
limits, under the conditions specified below. Safeguarding SNM against 
diversion or sabotage is not considered a significant issue because of 
the diffuse form of the SNM in waste meeting the conditions specified. 
These conditions are considered an acceptable alternative to the 
criticality definition provided in 10 CFR 150.11, thereby assuring the 
same level of protection. The staff reviewed safety aspects of the 
proposed action (i.e., granting Envirocare's request) in the Safety 
Evaluation Report, dated September 23, 2003. The staff concluded that 
additional conditions were required to maintain sufficient protection 
of health, safety, and the environment. The exemption conditions would 
be revised as follows:
    1. Concentrations of SNM in individual waste containers must not 
exceed the following values at time of receipt:

----------------------------------------------------------------------------------------------------------------
                                          Maximum concentration with MgO  (g   Maximum concentration without MgO
              Radionuclide                           SNM/g waste)                       (g SNM/g waste)
----------------------------------------------------------------------------------------------------------------
U-235 a.................................  8.6E-4                              9.9E-4
U-235 b.................................  5.4E-4                              6.2E-4
U-235 c.................................  1.2E-5                              1.2E-5
U-235 d.................................  3.1E-4                              3.1E-4
U-235 e.................................  7.3E-5                              7.3E-5
U-233...................................  7.7E-6                              4.7E-4
Pu-239..................................  1.6E-7                              2.8E-4
Pu-241..................................  3.5E-9                              2.2E-4
----------------------------------------------------------------------------------------------------------------
a for uranium below 10 percent enrichment. Column 1 considers a maximum of 20 percent of the weight of the waste
  of materials listed in Condition 2. Column 2 considers that materials in condition 2 are not present in bulk
  quantities.
b For uranium at or above 10 percent enrichment. Column 1 considers a maximum of 20 percent of materials listed
  in Condition 2 of the weight of the waste of materials listed in Condition 2
c For uranium at any enrichment with unlimited quantities of materials listed in Conditions 2 and 3
d For uranium at any enrichment with sum of materials listed in Conditions 2 and 3 not exceeding 45 percent of
  the weight of the waste
e For uranium at any enrichment with unlimited MgO or beryllium

    Plutonium isotopes other than Pu-239 and Pu-241 do not need to be 
considered in demonstrating compliance with this condition. When 
mixtures of these SNM isotopes are present in the waste, the sum-of-
the-fractions rule, as illustrated below, should be used.
[GRAPHIC] [TIFF OMITTED] TN29DE03.012

    The concentration values in Condition 1 are operational values to 
ensure criticality safety. Where the values in Condition 1 exceed 
concentration values in the corresponding conditions of the State of 
Utah Radioactive Material License (RML), the concentration values in 
the RML, which are averaged over the container, may not be exceeded. 
Higher concentration values are included in Condition 1 to be used in 
establishing the maximum mass of SNM for non-homogeneous solid waste 
and liquid waste. The measurement uncertainty values should be less 
than or equal to 15 percent of the concentration limit, and represent 
the maximum one-sigma uncertainty associated with the measurement of 
the concentration of the particular radionuclide.
    The SNM must be homogeneously distributed throughout the waste. If 
the SNM is not homogeneously distributed, then the limiting 
concentrations must not be exceeded on average in any contiguous mass 
of 600 kilograms of waste.
    2. Except as allowed by notes a, b, c, and d in Condition 1, waste 
must not contain ``pure forms'' of chemicals containing carbon, 
fluorine, magnesium, or bismuth in bulk quantities (e.g., a pallet of 
drums, a B-25 box). By ``pure forms,'' it is meant that mixtures of the 
above elements such as magnesium oxide, magnesium carbonate, magnesium 
fluoride, bismuth oxide, etc., do not contain other elements. These 
chemicals would be added to the waste stream during processing, such as 
at fuel facilities or treatment such as at mixed waste treatment 
facilities. The presence of the above materials will be determined by 
the generator, based on process knowledge or testing.
    3. Except as allowed by notes c, d, and e in Condition 1, waste 
accepted must not contain total quantities of beryllium, hydrogenous 
material enriched in deuterium, or graphite above one percent of the 
total weight of the waste. The presence of the above materials will be 
determined by the generator, based on process knowledge, physical 
observations, or testing.
    4. Waste packages must not contain highly water soluble forms of 
uranium greater than 350 grams of uranium-235 or 200 grams of uranium-
233. The sum of the fractions rule will apply for mixtures of U-233 and 
U-235. Highly soluble forms of uranium include, but are not limited to: 
uranium sulfate, uranyl acetate, uranyl chloride, uranyl formate, 
uranyl fluoride, uranyl nitrate, uranyl potassium carbonate, and uranyl 
sulfate. The presence of the above materials will be determined by the 
generator, based on process knowledge or testing.
    5. Waste processing of waste containing SNM will be limited to 
stabilization (mixing waste with reagents), micro-encapsulation, macro-
encapsulation using low-density and high-density polyethylene and 
thermal desorption.
    When waste is processed using the thermal desorption process, 
Envirocare shall confirm the SNM concentration following processing and 
prior to returning the waste to temporary storage.

[[Page 74988]]

    Liquid waste may be stabilized provided the SNM concentration does 
not exceed the SNM concentration limits in Condition 1. For containers 
of liquid waste with more than 600 kilograms of waste, the total mass 
of SNM shall not exceed the SNM concentration in Condition 1 times 600 
kilograms of waste. Waste containing free liquids and solids shall be 
mixed prior to treatment. Any solids shall be maintained in a suspended 
state during transfer and treatment.
    6. Envirocare shall require generators to provide the following 
information for each waste stream:

Pre-shipment

    a. Waste Description. The description must detail how the waste was 
generated, list the physical forms in the waste, and identify uranium 
chemical composition.
    b. Waste Characterization Summary. The data must include a general 
description of how the waste was characterized (including the 
volumetric extent of the waste, and the number, location, type, and 
results of any analytical testing), the range of SNM concentrations, 
and the analytical results with error values used to develop the 
concentration ranges.
    c. Uniformity Description. A description of the process by which 
the waste was generated showing that the spatial distribution of SNM 
must be uniform, or other information supporting spatial distribution.
    d. Manifest Concentration. The generator must describe the methods 
to be used to determine the concentrations on the manifests. These 
methods could include direct measurement and the use of scaling 
factors. The generator must describe the uncertainty associated with 
sampling and testing used to obtain the manifest concentrations.
    Envirocare shall review the above information and, if adequate, 
approve in writing this pre-shipment waste characterization and 
assurance plan before permitting the shipment of a waste stream. This 
will include statements that Envirocare has a written copy of all the 
information required above, that the characterization information is 
adequate and consistent with the waste description, and that the 
information is sufficient to demonstrate compliance with Conditions 1 
through 4. Where generator process knowledge is used to demonstrate 
compliance with Conditions 1, 2, 3, or 4, Envirocare shall review this 
information and determine when testing is required to provide 
additional information in assuring compliance with the Conditions. 
Envirocare shall retain this information as required by the State of 
Utah to permit independent review.

At Receipt

    Envirocare shall require generators of SNM waste to provide a 
written certification with each waste manifest that states that the SNM 
concentrations reported on the manifest do not exceed the limits in 
Condition 1, that the measurement uncertainty does not exceed the 
uncertainty value in Condition 1, and that the waste meets Conditions 2 
through 4.
    7. Sampling and radiological testing of waste containing SNM must 
be performed in accordance with the following: one sample for each of 
the first ten shipments of a waste stream; or one sample for each of 
the first 100 cubic yards of waste up to 1,000 cubic yards of a waste 
stream, and one sample for each additional 500 cubic yards of waste 
following the first ten shipments or following the first 1,000 cubic 
yards of a waste stream. Sampling and radiological testing of debris 
waste containing SNM ( that is exempted from sampling by the State of 
Utah) can be eliminated if the SNM concentration is lower than one 
tenth of the limits in Condition 1.
    8. Envirocare shall notify the NRC, Region IV office within 24 
hours if any of the above conditions are not met, including if a batch 
during a treatment process exceeds the SNM concentrations of Condition 
1. A written notification of the event must be provided within 7 days.
    9. Envirocare shall obtain NRC approval prior to changing any 
activities associated with the above conditions.
    Based on the staff's evaluation, the Commission has determined, 
pursuant to 10 CFR 70.14, that the exemption of above activities at the 
Envirocare disposal facility is authorized by law, and will not 
endanger life or property or the common defense and security and is 
otherwise in the public interest. Accordingly, by this Order, the 
Commission grants an exemption subject to the stated conditions. The 
exemption will become effective after the State of Utah has 
incorporated the above conditions into Envirocare's radioactive 
materials license. In addition, at that time, the Order transmitted in 
January 2003 will no longer be effective.
    Pursuant to the requirements in 10 CFR part 51, the Commission has 
prepared an Environmental Assessment for the proposed action and has 
determined that the granting of this exemption will have no significant 
impacts on the quality of the human environment. This finding was 
noticed in the Federal Register on October 16, 2003 (68 FR 59645).
    The request for the modifying the Order are available for 
inspection at NRC's Public Electronic Reading Room at <http://www.nrc.gov/reading-rm/adams.html ML031950334. Staff's 
Environmental Assessment and Safety Evaluation Report may be obtained 
at the above web site using ML032691442 and ML032680942. Any questions 
with respect to this action should be referred to Anna H. Bradford, 
Environmental and Performance Assessment Branch, Division of Waste 
Management, Office of Nuclear Material Safety and Safeguards, U.S. 
Nuclear Regulatory Commission, Washington, DC 20555-0001. Telephone: 
(301) 415-5228, Fax: (301) 415-5397.

    Dated at Rockville, Maryland this 16th day of December, 2003.

    For the Nuclear Regulatory Commission.
Martin J. Virgilio,
Director, Office of Nuclear Material Safety and Safeguards.
[FR Doc. 03-31875 Filed 12-24-03; 8:45 am]
BILLING CODE 7590-01-P