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11
Comments of Particular Interest
During the Workshop Discussions
Glenn E. Schweitzer
The National Academies
The questions and discussions during the workshop clearly indicated that
the workshop achieved its primary objective of helping to clarify for specialists
interested in the disposition of spent nuclear fuel many of the legal, regulatory,
technical, and financial aspects of developing and operating international facili-
ties for storing spent nuclear fuel. A number of the issues that were raised had
been considered at previous meetings of the International Atomic Energy Agency
(IAEA) and in Europe, Asia, and the United States. All of the issues will undoubt-
edly be considered again in the future as many countries seek solutions to the
problems associated with the disposition of spent nuclear fuel—including interim
storage, recycling, and permanent disposal.
This workshop has made a unique and timely contribution to international
deliberations by focusing sharply on the Russian experience within the context
of more general considerations and relevant ongoing activities in a number of
countries. It is important to consider generic issues as has been done before, par-
ticularly by the IAEA, but discussions of the specific steps taken by Russia and of
the impediments in moving forward to transform its commitment to establishing a
facility into reality were very informative. Details are important, and many details
can best be considered when specific proposals are on the table.
THE RUSSIAN ExPERIENCE
Russian legislation authorizes the importation and storage of spent nuclear
fuel. But it does not permit the importation of waste, and Russia distinguishes
sharply between spent fuel that has intrinsic value and waste that has no recover-
able value. It authorizes the reprocessing of imported spent fuel. If the original
8
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8 SPENT NUCLEAR FUEL STORAGE FACILITIES
fuel was manufactured in Russia or the former Soviet Union, the wastes associ-
ated with reprocessing may be retained in Russia. If the original fuel was manu-
factured elsewhere, the waste cannot be retained in Russia. Of course, in time the
legislation could be modified, but at present the focus is on interim storage and
that was the theme of this workshop.
Russian specialists have in mind another scenario for the future in addition to
(a) import, store, and return to the sender and (b) import and reprocess either for
use in Russia or return to the sender. That option is to use breeder reactors, which
reduce the cleanup requirements. Russian specialists claim they have the technol-
ogy in hand to do this, but this topic should be the subject of another workshop.
Russian specialists have carried out many investigations of sites that might
be considered for an interim storage facility. Much of the attention has been
directed toward uranium mining areas at Krasnokamensk and to areas where Rus-
sian spent fuel is already stored at Krasnoyarsk. The investigations have included
consideration of the general characteristics of the locations, including earthquake
frequency and intensity and the likelihood of flooding. Also, more detailed studies
have been directed to the geological/geophysical conditions of the immediate area
under consideration. Russian specialists believe that the costs of above-ground
and subsurface interim storage at Krasnokamensk would be about the same, al-
though they do not have authoritative data in this regard.
Turning to packaging, shipping, and handling of international spent fuel,
since 1994 Russia has been developing a legal structure that is consistent with
requirements embodied in international law. In March 2005 Russia signed the
1963 Vienna Convention on responsibility for nuclear damage as nuclear mate-
rial changes hands, and this action has alleviated many concerns in Russia and
abroad about the commitment of the nation to undertake international spent fuel
activities. Also, in recent years an insurance industry has emerged in Russia
with a number of small companies slowly supplementing the capabilities of the
one major company that in the past provided most of the insurance coverage for
nuclear-related activities.
Russia also has considerable technological capabilities to carry out activi-
ties in compliance with these legal requirements and acceptable international
practices. As to technological aspects, Russian companies have considerable
experience in transporting spent fuel—internationally and within Russia. Of par-
ticular importance has been the transportation of spent fuel for research reactors
located in the former Soviet Union and Eastern Europe and the shipment of spent
fuel from both neighboring countries and internally to Mayak and Krasnoyarsk.
Russian specialists have also been actively exploring models for predicting spent
fuel behavior under different storage conditions in order to assist in selecting safe
conditions for dry storage.
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85
WORKSHOP DISCUSSION
ACTIVITIES IN ASIA
Both Japan and Taiwan have ambitious nuclear programs and plans. They
will generate considerable spent fuel. Both countries have populations concen-
trated in confined geographical areas with limited available territory for spent
fuel storage or disposal sites.
In Japan, plans are being developed to establish an interim dry storage facil-
ity by 2010. Meanwhile, a reprocessing facility is operating with plans to provide
plutonium for light water reactors. A range of technical codes and standards, as
well as laws and regulations, relevant to these activities are well developed. A
related development is the effort of the government to encourage municipalities
to consider hosting a high-level radioactive waste site.
Turning to Taiwan, the government has plans for dry storage for spent fuel,
which is currently stored in water at the reactor sites. The concept calls for
eventually commissioning a deep geological repository by 2050. In the immedi-
ate future, dry storage will be employed at NPP 1. But a multilateral spent fuel
storage facility is also an attractive option.
FINAL ObSERVATIONS
The theme of the workshop was consolidation of spent fuel at international
storage facilities. Indeed, consolidation of all types of nuclear material—inter-
nationally, nationally, and at facilities—is an important approach both for safety
and security. While different types of nuclear material—from highly enriched
uranium no longer needed at research reactors to radioactive waste—pose dif-
ferent types of threats and challenges, consolidation is an important crosscutting
concept that deserves the strong support of governments and nuclear operators.
In both the short and long terms, aggressive consolidation programs are important
in countering both proliferation and terrorism threats. Such an approach responds
directly to some of the principal observations on nuclear security made during the
Putin-Bush summit in Bratislava in May 2005.
