[Federal Register Volume 63, Number 208 (Wednesday, October 28, 1998)]
[Notices]
[Pages 57713-57715]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-28813]
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NUCLEAR REGULATORY COMMISSION
[Docket No.: 71-9271]
Portland General Electric Co.; Issuance of Environmental
Assessment and Finding of No Significant Impact Regarding the Proposed
Exemptions From Requirements of 10 CFR Part 71
Portland General Electric Company (PGE or applicant) has applied
for a package approval from the U.S. Nuclear Regulatory Commission
(NRC) for the one-time shipment of the Trojan Reactor Vessel Package
(TRVP), with internals intact, from the Trojan Nuclear Plant site at
Rainier, Oregon, to the US Ecology radioactive waste disposal facility
near Richland, Washington. As part of its application, PGE has
requested exemptions, pursuant to 10 CFR 71.8, from requirements 10 CFR
71.71(c)(7) and 10 CFR 71.73(c)(1). This Environmental Assessment (EA)
was prepared to assess the potential environmental impacts of granting
these exemptions as well as an exemption from 10 CFR 71.73(b) to the
extent it is needed to grant an exemption from 10 CFR 71.73(c)(1).
Identification of Proposed Action
By letter dated March 31, 1997, PGE requested, in part, approval
for the one-time shipment of the TRVP by means of two specific
exemptions, under 10 CFR 71.8, from the requirements of 10 CFR
71.71(c)(7) and 71.73(c)(1), in the 10 CFR part 71 regulations
governing the packaging and transportation of licensed materials.
The TRVP is the Trojan reactor vessel prepared for transport as a
shipping package. The reactor vessel is a large, thick-walled, steel
structure measuring approximately 13 m (42 feet, 6 inches) in length
and 5.2 m (17 feet, 1 inch) in outside diameter. The reactor vessel
void space, with internals installed and intact, will be filled with
low-density cellular concrete, to prevent movement of radioactive
material within the reactor vessel. The vessel will be sealed and
shielded as necessary to meet the dose limit requirements of 10 CFR
71.47 and 10 CFR 71.51. Impact limiters will be installed to minimize
reactor vessel stresses associated with the analyzed TRVP drops. The
impact limiters are each approximately 1.5 m (4 feet, 10 inches) in
width and 7.6 m (28 feet) in outside diameter. The maximum gross weight
of the TRVP is conservatively 925 metric tons (2.04 million pounds).
The TRVP will be shipped approximately 482 km (300 miles) as a one-
time, exclusive use, radioactive material transportation package for
the purpose of disposal at the US Ecology low-level radioactive waste
facility on the Hanford Nuclear Reservation near Richland, Washington.
During the shipment, the TRVP is expected to be outside the Trojan
Nuclear Plant site and US Ecology facility boundaries less than 72
hours.
Section 71.71(c)(7) requires an evaluation of the package design
under normal conditions of transport and must include a determination
of the effect, on that design, of a free drop of the specimen through a
distance of 0.3 m (1 foot) [for a package weighing more than 15000 kg
(33,100 pounds)] ``* * * onto a flat, essentially unyielding,
horizontal surface in a position for which maximum damage is
expected.''
Before shipment, the TRVP will be prepared as a shipping package
and will be loaded and tied down onto a specially designed transporter.
The loaded transporter will be moved onto
[[Page 57714]]
a specially selected barge and secured using an engineered tie-down
system. The barge will be grounded during this evolution. The TRVP
loaded transporter will be barged up the Columbia River to the Port of
Benton where a heavy-haul mover will connect to the transporter and
move it off the barge and overland to the disposal facility. The TRVP
will be off-loaded at the disposal facility.
The TRVP will be rotated to a horizontal position (i.e., the
centerline longitudinal axis of the package will be horizontal) during
preparation in the Trojan Nuclear Plant industrial area. During
transport, the TRVP will remain oriented in the horizontal position.
Because of the unique size and mass of the package and the method of
support of the package, no other orientation is reasonable during TRVP
transport. Once loaded onto the transporter, the TRVP will not be
removed from the transporter at any time during transport.
Based on the above conditions and the special handling and
operational controls to be exercised, PGE requested exemption from the
requirement to consider the 0.3 m (1 foot) drop (in any orientation) as
a normal condition of transport. PGE has, however, designed and
analyzed the TRVP with impact limiters to withstand the effects of a
0.3 m (1 foot) horizontal orientation drop.
Section 71.73(c)(1) concerns tests for hypothetical accident
conditions and requires: ``A free drop of the specimen through a
distance of 9 m (30 feet) onto a flat, essentially unyielding,
horizontal surface, striking the surface in a position for which
maximum damage is expected.'' Based on the Safety Analysis Report (SAR)
specified transportation route, method of shipment, and special
controls [including 18.5 km/h (10 knots) and 8 km/h (5 mi/h) speed
limits for river and road, respectively], the PGE contends the 9 m (30-
foot) drop should not be considered a hypothetical accident condition
for the TRVP shipment. PGE determined that the maximum postulated
distance that the TRVP could drop during a hypothetical transport
accident is 3.3 m (11 feet), based on the transportation system, route,
and operational controls. This drop height and horizontal orientation
were used as a design basis for the TRVP. Because the TRVP shipment is
conditioned on a minimum initial TRVP temperature of 50 deg.F, and on
a forecasted minimum daily low temperature during transport of 40
deg.F, the 11-foot drop and puncture were evaluated at 45 deg.F,
rather than the -20 deg.F which otherwise would be required by 10 CFR
71.73(b).
PGE designed the TRVP and analyzed its performance under accident
conditions that are not as rigorous as those specified in 10 CFR
71.73(c)(1), and therefore requested exemption from that requirement.
To assure comparable shipment safety, PGE has committed to the use of
stringent operational and administrative controls. The purpose of these
controls is to ensure that the probability of the TRVP encountering
accident conditions beyond those for which it has been analyzed is low.
Need for the Proposed Action
The Trojan Nuclear Plant was shut down in November 1992. On January
27, 1993, PGE notified the NRC of its decision to permanently cease
power operations and subsequently defueled the reactor, storing the
spent fuel in the Trojan spent fuel pool. Currently, PGE has a
possession-only license under 10 CFR part 50, and on January 25, 1995,
applied to terminate its license by submitting a decommissioning plan.
PGE proposed to decommission the facility using a dismantlement or
DECON approach as defined in the ``Final Generic Environmental Impact
Statement on Decommissioning of Nuclear Facilities,'' NUREG-0586, dated
August 1988.
In accordance with the NRC-approved decommissioning plan, PGE's
plans for decommissioning the Trojan Nuclear Plant include
decontamination and dismantlement of contaminated structures, systems,
and components. The removal of the Trojan reactor vessel and the
internals is an evolution that is discussed in the decommissioning
plan, and is necessary for completion of decommissioning and release of
the site for unrestricted use.
Certain normal- and accident-condition test requirements of 10 CFR
71 [i.e., 10 CFR 71.71(c)(7) and 71.73(c)(1)] are impractical for the
proposed shipment of the TRVP. They would significantly increase the
size and cost of impact limiters attached to the reactor vessel. Larger
impact limiters would raise the center of gravity of the TRVP in its
transport configuration, resulting in a larger actual drop height that
could occur during the shipment. Larger impact limiters could also make
the shipment by barge physically impossible because a slightly taller
package would not fit under the minimum overhead clearance point for
the shipment route. Furthermore, installation of larger impact limiters
would result in an increase in occupational dose to the workers
performing the installation, which is not in keeping with the as low as
reasonably achievable (ALARA) concept. Thus, exemptions from the
requirements of 10 CFR 71.71(c)(7), and 71.73(c)(1) and the related
exemption from 71.73(b), are needed to approve use of the TRVP for
transport.
Environmental Impacts of the Proposed Action
NRC has considered the impacts of radioactive material
transportation in general in its ``Final Environmental Statement on the
Transportation of Radioactive Material by Air and Other Modes,''
(NUREG-0170, December 1977). The one-time, short-duration shipment of
the TRVP will be made along a well-defined, favorable transportation
route to the U.S. Ecology licensed radioactive waste disposal facility.
The staff has established, by evaluation of the revised SAR and
transportation Probabilistic Safety Study (PSS) and by personal
interviews with the U.S. Coast Guard and the U.S. Department of
Transportation (DOT), that the operational and administrative controls
provide reasonable assurance that the TRVP will not encounter accident
conditions during the shipment beyond those for which it has been
analyzed. Therefore, any stress to the TRVP from normal or credible
accidents is not expected to have impacts that would lead to
radiological releases.
The PSS shows that the most likely of the accident scenarios is a
TRVP barge collision, with the TRVP lost overboard (probability of
10-\6\ for the shipment). PGE has developed a recovery plan for this
scenario that indicates that the TRVP would be recovered in about 30
days. Since the probability of accidents that could damage the package
and lead to potential health impacts is less than 10-\6\, these
accidents were not evaluated by the staff. The staff concluded that the
TRVP shipment will not significantly affect the public health and
safety, or adversely impact the environment.
Alternative to the Proposed Action
The alternative to the proposed action is to not grant the
exemptions from 10 CFR part 71, which would then require other
approaches to disposition of the Trojan reactor vessel and evaluation
of its environmental impacts. Three other disposition scenarios were
considered for the disposal of the reactor vessel and internals from
the Trojan Nuclear Plant:
A. No Action
Storage of the reactor vessel on site. On-site storage of the
reactor vessel with its internals intact is not considered to be a
viable alternative. Federal regulations (10 CFR 50.82(a)) provide for
decommissioning within 60 years, unless a longer period is approved by
[[Page 57715]]
the Commission, in accordance with the regulations. Storing the vessel
on-site for 50 years before removal is similar to the SAFSTOR
decommissioning alternative, which was addressed in NUREG-0586, ``Final
Generic Environmental Impact Statement on Decommissioning of Nuclear
Facilities.'' On-site storage for 50 years is not consistent with the
DECON decommissioning alternative that was selected by PGE and approved
by NRC. The DECON decommissioning alternative has also been accepted
and approved by the State of Oregon for the decommissioning of the
Trojan Nuclear Plant. On-site storage of the reactor vessel would
result in retaining the part 50 license and necessary staff to maintain
radiological controls and other part 50 required programs. Other
results include, but are not limited to, performance of required
periodic surveys, increased exposure to workers, and increased cost.
Although radioactive decay would reduce shielding requirements, the
reactor vessel would still have to be disposed of using one of the
alternatives described below. Since insignificant gain would be
realized, this scenario was not evaluated further.
B. Modified Reactor Vessel and Internals Removal (Modified TRVP)
Disposal of the reactor vessel in one piece with only the non-
greater than Class C (non-GTCC) internals left inside. The TRVP, with
all internals included, is classified as Class C waste. Certain
internals, if removed from the TRVP, would likely be classified as GTCC
waste. The GTCC internals would have to be segmented underwater, placed
into containers, and stored in the spent fuel pool or the independent
spent fuel storage installation (ISFSI) at the Trojan Site. The vessel
and remaining internals would be shipped via barge in a single package
similar to the TRVP alternative. Depending on the package shipped, NRC
and/or DOT exemptions might still be required. The GTCC internals would
be shipped at an unknown date in the future when a suitable repository
becomes available to accept the waste.
C. Separate Disposal
Separate disposal of the reactor vessel and internals. The reactor
vessel internals would be segmented underwater. The non-GTCC internals
would be placed in shielded casks and shipped to the US Ecology
disposal facility via truck. The GTCC internals would be stored in the
spent fuel pool or the ISFSI at the Trojan site. The reactor vessel
would be disposed of separately from the internals and either shipped
whole, via barge, or segmented and shipped, via truck, to the disposal
facility. Depending on the package shipped, NRC and/or DOT exemptions
might still be required. The GTCC internals would be shipped at an
unknown date in the future when a suitable repository becomes available
to accept the waste.
Radiation exposures for the proposed action and the other
disposition options were analyzed for on-site personnel, transportation
personnel, general public, and disposal facility workers. The number of
radioactive waste shipments for each scenario was based on the amount
and configuration of the waste produced. Dose estimates do not include
doses resulting from on-site storage and future shipment of GTCC waste
to a waste repository (date and site unknown).
The proposed TRVP action has one radioactive waste shipment and a
total exposure of 0.674 person-Sv (67.4 person-rem) [0.671 person-Sv
(67.1 person-rem) of occupational exposure to on-site personnel].
Alternative A is inconsistent with the NRC-approved decommissioning
plan for the site, and the impacts do not differ significantly from the
proposed action. Alternative B would entail three radioactive waste
shipments and a total exposure of 0.881 person-Sv (88.1 person-rem)
[0.878 person-Sv (87.8 person-rem) of occupational exposure to on-site
personnel]. Alternative C would involve 47 radioactive waste shipments
and a total exposure of 1.389 to 1.399 person-Sv (138.9 to 139.9
person-rem) (1.332 person-Sv (133.2 person-rem) of occupational
exposure to on-site personnel).
Agencies and Persons Contacted
Officials from the DOT Office of Hazardous Materials Technology,
and the U.S. Coast Guard, Marine Safety Office/Group Portland, were
contacted regarding impacts of the proposed action and had no concerns.
Finding of No Significant Impact
The environmental impacts of the proposed action have been reviewed
in accordance with the requirements of part 51. Based on the foregoing
EA, the Commission finds that the proposed action of: (1) Granting an
exemption from 10 CFR 71.71(c)(7), so that PGE need not evaluate a free
drop of 0.3 m (1 foot) under normal conditions of transport; and (2)
granting an exemption from 10 CFR 71.73(c)(1) and 71.73(b), so that PGE
need not evaluate a free drop of 9 m (30 feet) under hypothetical
accident conditions, will not significantly impact the quality of the
human environment. Accordingly, the Commission has determined not to
prepare an environmental impact statement for the proposed exemption.
This application was docketed under part 71, Docket 71-9271. For
further details about this action, see Dockets 50-344 and 72-017, which
are available for public inspection at the Commission's Public Document
Room, 2120 L Street, NW, Washington, DC 20555, and the Local Public
Document Room at Portland State University Library, Science Library,
951 Southwest Hall Street, Portland, Oregon 97201.
Dated at Rockville, MD, this 22nd day of October 1998.
For the Nuclear Regulatory Commission.
M. Wayne Hodges,
Acting Director, Spent Fuel Project Office, Office of Nuclear Material
Safety and Safeguards.
[FR Doc. 98-28813 Filed 10-27-98; 8:45 am]
BILLING CODE 7590-01-P
