[Federal Register Volume 78, Number 66 (Friday, April 5, 2013)]
[Notices]
[Pages 20625-20628]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2013-07994]


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DEPARTMENT OF ENERGY


Spent Nuclear Fuel Management at the Savannah River Site

AGENCY: U.S. Department of Energy.

ACTION: Amended Record of Decision.

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SUMMARY: The U.S. Department of Energy (DOE) is amending its August 7, 
2000, Record of Decision (ROD) pursuant to the Savannah River Site 
Spent Nuclear Fuel Management Final Environmental Impact Statement, 
Aiken, SC (DOE/EIS-0279, 2000; SRS SNF EIS). In the 2000 ROD, DOE 
decided to develop and demonstrate the ``melt and dilute'' technology 
to manage approximately 28.6 metric tons of heavy metal (MTHM) of 
aluminum-clad SNF, consistent with its preferred alternative identified 
in the SRS SNF EIS.
    DOE now amends that decision and will manage approximately 3.3 MTHM 
from the currently projected inventory of 22 MTHM at SRS using 
conventional processing \1\ at the H-Canyon facility at SRS, as 
described and evaluated under the Conventional Processing Alternative

[[Page 20626]]

in the SRS SNF EIS. The quantity of 3.3 MTHM is the minimum amount of 
SNF necessary to avoid the need for costly modifications to the L-Basin 
that would allow DOE to accommodate expected receipts of SNF for the 
foreseeable future. This includes up to 200 High Flux Isotope Reactor 
(HFIR) cores generated at the Oak Ridge National Laboratory and 
approximately 1,000 bundles of aluminum-clad SNF currently stored at 
SRS, as well as target residue materials \2\ containing enriched 
uranium (including target materials from Canada that contain liquid 
Highly Enriched Uranium (HEU) of U.S. origin). DOE anticipates that 
processing this SNF and target residue material would begin as early as 
2014 and continue approximately four years. As a result of this amended 
decision, HEU in the SNF and target materials will be down-blended to 
low-enriched uranium (LEU). This end product will not be useable in 
nuclear weapons, but will be available for use in commercial power 
reactors such as those operated by the Tennessee Valley Authority (TVA) 
to generate electricity. DOE will continue to safely store the 
aluminum-clad SNF not addressed in this Amended ROD in L-Basin at SRS, 
pending future analysis and DOE decisions.
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    \1\ Conventional processing is a chemical separations process 
that involves dissolving spent fuel in nitric acid and separating 
fission products from uranium using solvent extraction.
    \2\ Target materials are residual materials left after the 
desired isotopes have been removed from the targets. For example, 
target materials could be residual materials from the production in 
a research reactor of molybdenum-99, which decays to technetium-99, 
a medical isotope. Targets may be shaped as plates, pins, or 
cylinders. Target materials are not high-level radioactive waste.
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    In accordance with DOE regulations for implementing the National 
Environmental Policy Act (NEPA), DOE has prepared a Supplement Analysis 
(SA) to examine previous NEPA analyses of the management of SNF at SRS, 
particularly the SRS SNF EIS and the Proposed Nuclear Weapons 
Nonproliferation Policy Concerning Foreign Research Reactor Spent 
Nuclear Fuel Environmental Impact Statement (DOE/EIS-0218, 1996, FRR 
EIS) tiered from the Programmatic Spent Nuclear Fuel Management and 
Idaho National Engineering Laboratory Environmental Restoration and 
Waste Management Programs Final Environmental Impact Statement (DOE/
EIS-0203, 1995), to determine whether DOE's amended decision would make 
substantial changes in its proposed actions or whether there are 
significant new circumstances or information relevant to environmental 
concerns and bearing on the proposed action or its potential impacts. 
Based on the SA, DOE has determined that a supplemental or new EIS is 
not required.
    The actions to be taken pursuant to this Amended ROD strongly 
support U.S. non-proliferation policy and goals by permanently 
dispositioning HEU. In particular, this amended decision implements the 
U.S. and Canadian agreement reached at the Nuclear Security Summit in 
March 2012 to expand efforts to return U.S.-origin HEU currently stored 
in Canada to the U.S. The commitment supports international efforts to 
consolidate and dispose of HEU and to combat nuclear terrorism. The 
actions addressed in this amended decision will free existing storage 
space in L-Basin, avoiding the need and cost required to provide 
additional new space in the Basin. This in turn will allow for 
continued receipt of Foreign Research Reactor SNF (FRR SNF), adequate 
storage for HFIR cores, continued operation of HFIR in support of DOE's 
research and development mission, dispositioning of HEU out of South 
Carolina, and cost-effective use of DOE's H-Canyon processing facility 
at SRS.

ADDRESSES: This Amended ROD, the SA for SRS SNF Management, and related 
NEPA documents are available on the DOE NEPA Web site at 
www.nepa.energy.gov and the SRS Web site at www.srs.gov/general/pubs/envbul/nepa/htm. To request copies of these documents, please contact:

Mr. Andrew R. Grainger, NEPA Compliance Officer, Savannah River 
Operations Office, U.S. Department of Energy, P.O. Box B, Aiken, South 
Carolina 29802, Telephone: (803) 952-8001, Email: 
[email protected].

FOR FURTHER INFORMATION CONTACT: For further information on the 
management of SNF at SRS, please contact Mr. Grainger as listed above.
    For information on DOE's NEPA process, please contact:

Ms. Carol M. Borgstrom, Director, Office of NEPA Policy and Compliance, 
GC-54, U.S. Department of Energy, 1000 Independence Avenue SW., 
Washington, DC 20585, Telephone: (202) 586-4600, or leave a message at 
(800) 472-2756, Email: [email protected].

SUPPLEMENTARY INFORMATION: 

Background

    DOE's purpose and need for action, as described in the SRS SNF EIS, 
is to develop and implement a safe and efficient SNF management 
strategy that includes preparing aluminum-clad SNF and target material 
stored at SRS, or expected to be shipped to SRS, for ultimate 
disposition offsite.
    In the SRS SNF EIS, DOE grouped the SNF to be managed based on 
characteristics such as fuel size, physical and chemical properties, 
and radionuclide inventory. The fuel groups and the seven technologies 
that could be used to prepare the SNF for disposition are described in 
the SRS SNF EIS. The potential environmental impacts associated with 
the use of these technologies, including conventional processing, were 
analyzed in the SRS SNF EIS. In the ROD for the SRS SNF EIS (65 FR 
48224; August 7, 2000), DOE identified the Minimum Impact Alternative 
as the environmentally preferable alternative, but selected the 
Preferred Alternative.\3\
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    \3\ DOE developed five alternatives that could be used to manage 
SNF: No Action; Minimum Impact; Direct Disposal; Maximum Impact; and 
the Preferred Alternative; these alternatives and the fuel groups 
are described in the SRS SNF EIS and summarized in the 2000 ROD.
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    To implement the Preferred Alternative described in the SRS SNF 
EIS, DOE decided to use a combination of technologies, including melt 
and dilute, to manage the SNF. The melt and dilute technology was to be 
used to treat all Group B fuel (about 20 MTHM of Material Test Reactor 
fuel from foreign and domestic reactors), all Group C fuel (about 8 
MTHM of oxide and silicide foreign and domestic reactor fuel) except 
failed fuel (which DOE would treat by conventional processing), and 
most Group D materials (about 0.6 MTHM of foreign research reactor 
targets). DOE estimated that these fuels and target materials would 
total approximately 28.6 MTHM, based on quantities then stored at SRS 
and estimated quantities located at domestic and foreign reactor 
locations scheduled or eligible to ship fuel to SRS.\4\ These shipments 
began in 1996 and are continuing. DOE now estimates that there are 
approximately 22 MTHM of SNF and target material at or eligible to be 
sent to SRS. This is less than the 28.6 MTHM evaluated in the SRS SNF 
EIS because DOE now expects to receive less FRR SNF than originally 
estimated.
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    \4\ On June 1, 1995, DOE announced that, among other actions, 
aluminum-clad SNF would be consolidated at SRS for management and 
non-aluminum-clad SNF would be consolidated at the Idaho National 
Laboratory (INL) (60 FR 28680; June 1, 1995). In keeping with this 
decision, when DOE announced its decision to implement a new foreign 
research reactor spent fuel acceptance policy, DOE stated that 
aluminum-clad fuel would be shipped to SRS and non-aluminum-clad 
fuel would be shipped to the INL (61 FR 25092; May 17, 1996).
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    The FRR EIS evaluated alternatives for return to the United States 
of SNF and target materials containing HEU enriched in the United 
States and supplied to foreign countries. Return of HEU for safe 
storage and disposition

[[Page 20627]]

advances the United States nuclear material nonproliferation goals. 
Appendix B1.5 of the FRR EIS discusses the two methods for preparing 
the target residue materials for transport: calcining and oxidizing. In 
the FRR EIS, DOE assumed that target residue material would be 
transported in solid form, and DOE evaluated the impacts of 
transportation accordingly. In Appendix B.2.1.2 of the FRR EIS, DOE 
explained that foreign research reactor shipments would be carried out 
in accordance with regulations set by the Department of Transportation 
(49 CFR parts 171 through 178) and the Nuclear Regulatory Commission 
(NRC) (10 CFR part 71); those regulations remain in place. In the FRR 
ROD, DOE decided, consistent with the programmatic decision to 
consolidate storage by fuel type, to transport to and store aluminum-
clad SNF and target material at the SRS.

Supplement Analysis

    In accordance with DOE NEPA regulations at 10 CFR 1021.314, DOE 
prepared an SA for the SRS SNF EIS and the FRR EIS (DOE/EIS-0279-SA-01 
and DOE/EIS-0218-SA-06, March 2013) to consider a proposal to process 
the minimum quantity of SNF necessary to avoid the need for costly 
modifications to the L-Basin that would allow DOE to accommodate 
expected receipts of SNF for the foreseeable future. To do this, DOE 
estimated that processing approximately 1000 bundles of SNF and up to 
200 HFIR cores currently stored at SRS would provide the minimum 
necessary amount of storage space. This could be accomplished over 
approximately a four-year period and equates to approximately 3.3 MTHM 
of the currently projected 22 MTHM total inventory. DOE would continue 
to safely store the remaining SNF in L-Basin at SRS, pending future 
analysis and DOE decisions. DOE also evaluated plans to receive FRR 
target residue material from Canada in accordance with U.S. acceptance 
policy and consistent with U.S. nonproliferation objectives. The target 
material, containing U.S.-origin HEU in liquid form, would be shipped 
in Type B casks certified by NRC.
    The SA compared the proposal to the relevant NEPA reviews to 
determine whether the proposal would make substantial changes in the 
proposed actions identified in the SRS SNF EIS or FRR EIS, or whether 
there are significant new circumstances or information relevant to 
environmental concerns and bearing on the proposed action or its 
impacts, consistent with the Council on Environmental Quality NEPA 
implementing regulations at 40 CFR Parts 1502.9. DOE analyzed the use 
of conventional processing for SNF in lieu of the melt and dilute 
technology, which was never developed due to technical issues involving 
the off-gas system and funding limitations. The conventional processing 
approach is consistent with U.S. nuclear non-proliferation goals in 
that HEU would be eliminated and plutonium present in the SNF would not 
be separated from the fission products. Processing of the approximately 
3.3 MTHM of SNF and target residue materials in H-Canyon will result in 
plutonium-bearing high-level waste (HLW) that will be vitrified in the 
Defense Waste Processing Facility (DWPF) at SRS, creating up to 
approximately 24 canisters of vitrified, proliferation-resistant HLW. 
This increase is not significant in the context of the approximately 
7,000 canisters DOE estimates will be otherwise produced by the DWPF, 
and is within the DWPF production and SRS planned storage capabilities.
    In the SA, DOE evaluated the addition of a third dissolver in H-
Canyon to return the dissolving capacity for SNF to the level supported 
by H-Canyon's off-gas system and processing capability,\5\ which are 
the capacities evaluated in the SRS SNF EIS. Installation and operation 
of a third dissolver in H-Canyon will take place entirely within H-
Canyon and will not result in any land disturbance. Construction waste 
generated will be managed using existing SRS facilities and procedures. 
Operation of a third dissolver is within H-Canyon's dissolving capacity 
for SNF and is supported by existing systems, e.g., off-gas system. DOE 
would continue to use one existing dissolver to process plutonium 
material; plutonium dissolution does not require use of the off-gas 
treatment system or H-Canyon's solvent extraction capacity and 
raffinate systems. The air and liquid releases and other impacts of 
operating two dissolvers and the associated systems to process SNF 
would not significantly differ from those reported in the SRS SNF EIS, 
because the evaluation of the potential environmental impacts 
associated with conventional processing assumed the use of two 
dissolvers.
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    \5\ One H-Canyon dissolver currently supports dissolution of 
plutonium metal, preparatory to oxidizing it in the HB-Line to 
prepare plutonium oxide feed material for the Mixed Oxide Fuel 
Fabrication Facility (see Interim Action Determination, Use of H-
Canyon/HB-Line to Prepare Feed for Mixed Oxide Fuel Fabrication 
Facility at the Savannah River Site, June 2012).
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    In the SA, DOE also evaluated the transportation, receipt, and 
processing of target residue materials in liquid form (from Canada) 
rather than solid form and found that the potential environmental 
impacts would not significantly differ from results presented in the 
FRR EIS and the SRS SNF EIS. For this analysis, DOE assumed that the 
NRC would certify use of an existing Type-B cask for the target residue 
materials. NRC consideration of the certification request is ongoing. 
Based on conclusions reached in the SA, DOE determined that the 
preparation of a supplemental or new EIS is not required.

Amended Decision

    DOE has decided to manage up to 200 HFIR cores, approximately 1,000 
bundles of SNF, and target residue materials containing HEU (including 
target residue materials containing liquid HEU from Canada) using 
conventional processing in H-Canyon at SRS. This SNF and these target 
residue materials, totaling approximately 3.3 MTHM, include material 
from Groups B, C, and D identified in the SRS SNF EIS. HEU recovered 
during conventional processing will be down-blended to create LEU 
feedstock for fuel fabrication for commercial nuclear reactors. The 
shipments of target residue materials in liquid form from Canada will 
comply with all applicable transportation regulations in both countries 
to ensure environmental protection and the safety of the involved 
workers and the general public. No target material or waste from 
processing target material will be returned to Canada. DOE will 
implement minor modifications to H-Canyon to receive liquid HEU as 
described in the SA.
    DOE anticipates processing these materials beginning as early as 
2014 and continuing approximately four years, consistent with program 
and policy priorities. DOE will install a third dissolver in H-Canyon 
in addition to two existing dissolvers, in order to cost-effectively 
utilize H-Canyon, and expeditiously complete the mission.
    The aluminum-clad SNF not addressed in this amended ROD will remain 
safely in wet storage in L-Basin at SRS, pending future analysis and 
DOE decisions. The water chemistry will continue to be rigorously 
controlled to prevent any corrosion reactions between the storage 
tubes, fuel, and the basin water.
    No environmental impacts resulting from operations under this 
amended decision would require specific mitigation measures. DOE will 
continue its current practices and policies to use all practicable 
means to avoid or minimize environmental harm and

[[Page 20628]]

impacts to workers when implementing the actions described herein. For 
example, DOE will continue to evaluate and implement, as appropriate, 
physical modifications to the H-Canyon facility and process chemistry 
changes that would reduce personnel exposure, facility effluents, and 
waste generation.

Basis for Decision

    This amended decision reduces the overall cost of managing the 
currently stored fuel by eliminating the need for additional SNF 
storage racks in the L-Basin SNF storage facility and allows for future 
receipt of foreign and domestic SNF, including continued receipt of 
HFIR cores from the Oak Ridge National Laboratory in support of DOE's 
research and development mission. In addition, this amended decision 
will maximize near-term utilization of H-Canyon and expeditiously 
complete the mission
    This amended decision supports DOE's ongoing approach for reducing 
the proliferation risks inherent in stocks of HEU by down-blending 
surplus HEU to LEU. The LEU would be available for use in commercial 
reactors such as those operated by TVA. In addition, operation of H-
Canyon to process the SNF is consistent with section 3137 of the Floyd 
D. Spence Defense Authorization Act for fiscal year (FY) 2001 (Pub. L. 
106-398), as amended by section 3115 of the National Defense 
Authorization Act for FY 2004 (Pub. L. 108-136), regarding the 
continued operation and maintenance of a high state of readiness of the 
H-Canyon facility at SRS.
    Given the expense involved in designing and constructing a new melt 
and dilute capability, and because an alternative processing technology 
(conventional processing) is readily available, DOE determined that 
melt and dilute is an unnecessarily costly duplication of treatment 
capability for aluminum-clad SNF. Conventional processing and down-
blending the HEU to LEU, with vitrification rather than the recovery of 
plutonium, furthers the Nation's non-proliferation goals.
    Although the Secretary of Energy has determined that Yucca Mountain 
is not a workable option for a geologic repository, DOE remains 
committed to meeting its obligations to safely dispose of SNF and 
HLW.\6\ While this Amended ROD will increase the number of canisters of 
vitrified HLW, this is not expected to significantly affect the 
quantity of vitrified HLW requiring management.
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    \6\ The Secretary's Strategy for the Management and Disposal of 
Used Nuclear Fuel and High-level Radioactive Waste, January 2013, 
endorses the key principles of the 2012 Blue Ribbon Commission on 
America's Nuclear Future report and represents an initial basis for 
discussions among the Administration, the Congress, and other 
stakeholders toward a sustainable path forward for disposition of 
nuclear waste.
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    Separately, the receipt of target residue materials from Canada in 
liquid form under the U.S. Foreign Research Reactor Acceptance Policy 
does not present significant new health or environmental concerns or 
impacts as described in the SA. The repatriation of U.S.-origin HEU 
from Canada will help ensure national and international safety and 
security by downblending this material to LEU that would be available 
for beneficial use in power reactors. This action is consistent with 
U.S. agreements regarding receipt of FRR materials in which involved 
countries with the economic ability to do so contribute to the costs of 
transportation and U.S. receipt, processing and disposition of the 
materials.
    In summary, the proposed use of conventional processing for a 
limited quantity of SNF as described in this amendment to DOE's 2000 
SNF ROD takes advantage of existing processes in existing facilities. 
It will allow near-term progress in processing a portion of the 
inventory analyzed in the SRS SNF EIS currently stored on the site, 
thus freeing storage space for expected material receipts and avoiding 
the cost of creating additional space. The activities encompassed by 
this amended decision will not incur potential health or environmental 
impacts significantly different from those analyzed in existing NEPA 
reviews. These activities will strongly contribute to DOE's commitment 
to the United States' nuclear non-proliferation goals and are 
consistent with the U.S. and Canadian agreement reached at the Nuclear 
Security Summit in March 2012 to expand efforts to return U.S.-origin 
HEU currently stored in Canada to the U.S. Further, the actions 
resulting from this Amended ROD will contribute to the production of 
material that can be put to beneficial energy production for public 
use, thereby dispositioning some HEU out of South Carolina; and will 
contribute to an overall safe, secure, and cost-effective strategy for 
ongoing management of SNF and target residue materials at SRS.

    Issued in Washington, DC on March 29, 2013.
David Huizenga,
Senior Advisor for Environmental Management.
[FR Doc. 2013-07994 Filed 4-4-13; 8:45 am]
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