[Federal Register Volume 76, Number 32 (Wednesday, February 16, 2011)]
[Rules and Regulations]
[Pages 8872-8892]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-3493]
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NUCLEAR REGULATORY COMMISSION
10 CFR Part 72
RIN 3150-AI09
[NRC-2008-0361]
License and Certificate of Compliance Terms
AGENCY: Nuclear Regulatory Commission.
ACTION: Final rule.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC or the Commission)
is amending its regulations that govern licensing requirements for the
independent storage of spent nuclear fuel. These amendments include
changes that enhance the effectiveness and efficiency of the licensing
process for spent nuclear fuel storage. Specifically, they extend and
clarify the term limits for storage cask Certificates of Compliance
(CoCs) and independent spent fuel storage installation (ISFSI) specific
licenses. The amendments also provide consistency between the general
and specific ISFSI license requirements, and allow general licensees
subject to these regulations to implement changes authorized by an
amended CoC to a cask loaded under the initial CoC or an earlier
amended CoC (a ``previously loaded cask'').
DATES: Effective Date: This final rule is effective on May 17, 2011.
ADDRESSES: You can access publicly available documents related to this
document using the following methods:
Federal rulemaking Web site: Go to http://www.regulations.gov and
search for documents filed under Docket ID NRC-2008-0361. Address
questions about NRC dockets to Carol Gallagher at 301-492-3668; e-mail:
[email protected].
NRC's Public Document Room (PDR): The public may examine and have
copied for a fee publicly available documents at the NRC's PDR, Room
O1-F21, One White Flint North, 11555 Rockville Pike, Rockville,
Maryland 20852.
NRC's Agencywide Documents Access and Management System (ADAMS):
Publicly available documents created or received at the NRC are
available electronically at the NRC's Electronic Reading Room at http://www.nrc.gov/reading-rm/adams.html. From this page, the public can gain
entry into ADAMS, which provides text and image files of NRC's public
documents. If you do not have access to ADAMS or if there are problems
in accessing the documents located in ADAMS, contact the NRC's PDR
reference staff at 1-899-397-4209, 301-415-4737, or by e-mail to
[email protected].
FOR FURTHER INFORMATION CONTACT: Keith McDaniel, Office of Federal and
State Materials and Environmental Management Programs, U.S. Nuclear
Regulatory Commission, Washington, DC 20555-0001, telephone: 301-415-
5252, e-mail: [email protected].
SUPPLEMENTARY INFORMATION:
I. Background
II. Discussion
A. What action is the NRC taking, and why?
B. Whom does this action affect?
[[Page 8873]]
C. Why is the NRC increasing initial terms and renewal terms for
specific ISFSI licenses from not to exceed 20 years to not to exceed
40 years?
D. Can applicants apply for an initial term or renewal term
greater than 40 years?
E. Why is the NRC changing the word ``reapproval'' to
``renewal''?
F. Why is the NRC adding a definition for the term ``time-
limited aging analyses'' (TLAAs)?
G. What is an ``aging management program'' (AMP)?
H. Why is the NRC requiring an AMP?
I. Why is the NRC changing the 20-year general license term for
cask designs approved for use under the general license provisions?
When would a general license term begin and end?
J. Are there possible conflicts that could arise for storage
cask designs that are granted a term extension that are also
approved for a different term limit as a transportation package?
K. How does the NRC track cask expiration dates?
L. Who is responsible for applying for CoC renewals?
M. Does the NRC have a definition for ``terms, conditions, and
specifications'' as they relate to the CoC?
N. Can a licensee apply CoC amendments to previously loaded
casks?
O. May a general licensee implement only some of the authorized
changes in a CoC amendment without prior NRC approval?
P. Do later CoC amendments encompass earlier CoC amendments?
Q. Why can't general licensees use the Sec. 72.48 process to
apply CoC amendment changes to previously loaded casks?
R. If a general licensee selects and purchases a cask fabricated
under an earlier CoC amendment, but does not load the cask, can the
general licensee adopt the most recent CoC amendment for the empty
cask before loading it?
S. What are the NRC's plans for providing guidance and examples
of aging analyses and AMPs to licensees?
T. Could the NRC maintain the current paragraph designations of
Sec. 72.212(b)?
U. When are licensees required to submit cask registration
letters?
V. If a CoC is not renewed, how long would general licensees
have to remove casks of that design from service?
W. When NRC renews a CoC, are all amendments to that CoC
simultaneously renewed as well?
X. If a general licensee applies for the renewal of a given CoC
(assuming the certificate holder went out of business or chose not
to apply for the renewal of a given CoC), and if the NRC approves
the renewal of that CoC, is the renewed CoC available only to that
general licensee or is it available to all general licensees?
Y. Can the requirements regarding TLAAs for CoC renewals be
based upon a ``current licensing basis'' (CLB) patterned after Title
10 of the Code of Federal Regulations (10 CFR) Part 54?
Z. What is the status of the draft NRC Regulatory Issue Summary
(RIS) 2007-26 which was issued on January 14, 2008 (73 FR 2281)?
III. Summary and Analysis of Public Comments on the Proposed Rule
IV. Discussion of Final Amendments by Section
V. Criminal Penalties
VI. Agreement State Compatibility
VII. Voluntary Consensus Standards
VIII. Environmental Assessment and Finding of No Significant
Environmental Impact
IX. Paperwork Reduction Act Statement
X. Regulatory Analysis
XI. Regulatory Flexibility Certification
XII. Backfit Analysis
XIII. Congressional Review Act
I. Background
On April 29, 2002, the Virginia Power and Electric Company
(Dominion) submitted an application to renew Special Nuclear Materials
(SNM) License SNM-2501 for the Surry ISFSI. SNM-2501 authorizes the
storage of spent nuclear fuel in casks at the Surry Nuclear Power
Plant. In the renewal application, Dominion requested an exemption from
the 20-year license renewal term specified in 10 CFR 72.42(a) and
sought approval for a 40-year license renewal term. Similarly, on
February 27, 2004, Progress Energy Carolinas, Inc. submitted an
application for the renewal of H. B. Robinson's ISFSI license which
requested an exemption from the provisions of Sec. 72.42(a), so that
the license renewal period for the H. B. Robinson's ISFSI could be
extended from 20 to 40 years.
The NRC staff determined the 40-year renewal exemption request to
be a policy decision, not a technical one, because the safety
evaluation indicated sufficient technical information had been provided
in the application to grant the 40-year renewal period. As a result, a
Commission paper (SECY-04-0175) entitled, ``Options for Addressing the
Surry Independent Spent Fuel Storage Installation License-Renewal
Period Exemption Request,'' was submitted on September 28, 2004, to
request Commission approval of the Surry 40-year renewal exemption
request.
On November 29, 2004, the Commission issued a Staff Requirements
Memorandum (SRM) for SECY-04-0175, which authorized the NRC staff to
approve a 40-year license renewal term for the Surry ISFSI, with
appropriate license conditions to manage the effects of aging. The SRM
further directed the NRC staff to: (1) Initiate a program to review the
technical basis for future rulemaking; (2) provide recommendations on
the license term for part 72 CoCs for spent nuclear fuel cask storage
systems; and (3) apply the Commission-approved guidance for part 72
renewals to future specific license exemption requests without further
Commission approval. In response to this direction, the staff submitted
a Commission paper (SECY-06-0152) entitled, ``Title 10 Code of Federal
Regulations part 72 License and Certificate of Compliance Terms,'' on
July 7, 2006, to recommend the scope of rulemaking.
In an SRM, dated August 14, 2006, the Commission authorized the
staff to proceed with rulemaking proposals described in SECY-06-0152.
In addition, the Commission specifically directed the staff to address
the following points in the rulemaking: (1) Clarify the start of the
20-year term limit for cask designs approved under general license
provisions; (2) identify whether the cask vendor or licensee is
responsible for applying for the CoC renewals; (3) discuss possible
conflicts that could arise for storage cask designs that are granted a
license term extension and that have been approved for transport with a
different license term; (4) discuss how the cask expiration dates are
tracked at each general license site so that it is clearly understood
when the CoC for each cask design must be renewed; and (5) clarify the
difference between CoC ``approval'' and ``renewal.''
As this rulemaking commenced, the NRC staff identified a related
issue regarding its approval of Amendment 4 to CoC 72-1026, which
revised cask monitoring and surveillance requirements for the BNG Fuel
Solutions W-150 storage cask. Subsequent to the approval, the
certificate holder requested guidance from the NRC on the
implementation of the changes authorized by the CoC amendment to
previously loaded casks. In addition to this request, the NRC staff
became aware of the belief among some general licensees that changes
authorized by CoC amendments can be applied to previously loaded casks
without prior NRC approval, if an analysis under Sec. 72.48 is
performed.
The NRC staff determined that under the current regulations,
changes authorized by CoC amendments cannot be applied to previously
loaded casks without express NRC approval, if such change results in a
change to the terms or conditions of the CoC under which the cask was
loaded. A previously loaded cask is bound by the terms and conditions
(including the technical specifications) of the CoC applicable to that
cask when the licensee loaded the cask. Therefore, under the current
regulations, general licensees that want to apply changes approved by a
CoC amendment to a previously loaded cask must request an exemption
from the
[[Page 8874]]
NRC if these changes alter the terms or conditions of the CoC under
which that cask was loaded.
In the SRM for COMSECY-07-0032, dated December 12, 2007, the
Commission stated that it did not object to the staff expanding the
scope of the proposed rulemaking to include the following two issues:
(1) To extend the terms of specific ISFSI licenses, for both initial
and renewal terms, to not to exceed 40 years; and (2) to allow a
general licensee to apply changes for a CoC amendment to a previously
loaded cask without express NRC approval, while still ensuring that
this action protects public health and safety.
In the August 14, 2006, SRM for SECY-06-0152, the Commission
directed the NRC staff to be as transparent as possible in developing
the proposed rule package, including making draft text available for
comment to stakeholders, and holding public meetings, if necessary,
before formal submission of the proposed rule to the Commission. In
response, the NRC staff held public meetings on November 7, 2006, and
February 29, 2008, to discuss the technical basis of the rulemaking
with stakeholders. In addition, on August 4, 2008, the NRC staff made
preliminary draft rule text available for comment to stakeholders on
Regulations.gov (Docket ID NRC-2008-0361). The only external
stakeholders that submitted comments were the Nuclear Energy Institute
and Florida Power and Light. The comments generally supported the
rulemaking. The ``Discussion'' section of this document includes NRC
responses to significant stakeholder comments.
The NRC published the proposed rule, ``License and Certificate of
Compliance Terms'' in the Federal Register on September 15, 2009 (74 FR
47126), for public comment. The NRC received five comment letters on
the proposed rule. These comments and the NRC responses are discussed
in Section III of this document, ``Summary and Analysis of Public
Comments on the Proposed Rule.''
II. Discussion
A. What action is the NRC taking, and why?
The NRC is revising part 72 requirements for specific and general
ISFSI licensees and part 72 requirements pertaining to CoCs to enhance
the effectiveness and efficiency of the licensing process.
For specific ISFSI licenses, the Commission is codifying a
technical approach consistent with that applied in granting the 40-year
exemptions for the Surry and H. B. Robinson specific ISFSI license
renewals, so that all specific ISFSI licensees will have the
flexibility to request initial and renewal terms not to exceed 40 years
while ensuring safe and secure storage of spent nuclear fuel.
For CoCs, the Commission is also allowing the flexibility for CoC
applicants and CoC holders to request, respectively, initial terms and
renewal terms not to exceed 40 years. The response to Question ``C'' of
this section discusses the technical basis for this change. Under this
change, applicants and CoC holders will be required to demonstrate that
design and operational programs are suitable for the requested term.
The NRC staff has developed a standard review plan (SRP) for renewal
applications. The final rule amendments also clarify the term (length)
of the general license, particularly as the general license term
relates to CoC renewals (see the response to Question ``I'' of this
section for further detail).
For both specific licenses and CoCs, the final rule adds a
requirement that renewal applicants must provide TLAAs and a
description of an AMP (see the responses to Questions ``F'', ``G'', and
``H'') to ensure that storage casks will perform as designed under
extended license terms.
The NRC is replacing the term ``reapproval,'' which is used to
describe the process of extending the CoC terms, to ``renewal'' for
consistency with specific license terminology. Question ``E'' of this
section discusses the rationale for this change.
The final rule will also allow general licensees to implement
changes authorized by a CoC amendment to a previously loaded cask,
provided that the loaded cask then conforms to the CoC amendment
codified by the NRC in Sec. 72.214 and thus, continues to ensure the
safe and secure storage of spent nuclear fuel. Question ``N'' of this
section discusses the rationale for this change.
B. Whom does this action affect?
The final rule will affect part 72 specific and general licensees
and CoC holders and applicants for a CoC.
C. Why is the NRC increasing initial terms and renewal terms for
specific ISFSI licenses from not to exceed 20 years to not to exceed 40
years?
The NRC is amending Sec. 72.42 to increase the initial terms and
renewal terms for specific ISFSI licenses from not to exceed 20 years
to not to exceed 40 years. This increase is consistent with the NRC
staff's findings regarding the safety of spent nuclear fuel storage, as
documented in the renewal exemptions issued to the Surry and H. B.
Robinson ISFSIs. During the review for the Surry and H. B. Robinson
renewal applications, the NRC staff evaluated the technical data
resulting from an NRC-supported research program at the Idaho National
Laboratory (INL), formerly Idaho National Engineering and Environmental
Laboratory, and also considered experience with spent fuel storage
casks used at Surry. Under the INL research program, INL opened a
storage cask after the fuel had been stored for approximately 15 years.
At Surry, several casks were also opened after less than 15 years of
storage as a result of some faulty weather covers, which were
corrected. Summaries of the findings regarding the condition of the
fuel and cask components follow:
(1) Cladding creep is a time-dependent change in the dimension of
the cladding resulting from high temperature and stress. It was
considered as a potential degradation mechanism during storage.
Confirmatory inspection of the spent fuel stored at INL verified that
no cladding creep had occurred. The spent fuel in storage at Surry also
supports this finding. The NRC staff expects very little to no fuel
degradation at the end of an extended licensing period. The established
limits for cladding temperature during storage accompanied by a
continually decreasing level of cladding stress and temperature,
further remove creep as a degradation mechanism. Assessment of these
factors indicates that cladding creep will not be an issue during a 40
year term.
(2) The NRC staff also expects limited degradation of other
internal components because there are no significant corrosive
influences in the inert environment, either for the fuel or for other
components. The INL inspection verified that there was no indication of
corrosion for any internal canister components. The NRC staff has also
concluded that radiation levels are too low to significantly alter the
properties of the metals for any storage canister components.
(3) The other external components of the storage systems (which are
exposed to weathering effects) would already be covered by an
inspection and corrective action program, or routine maintenance, to
ensure that any degradation will be identified and assessed for its
importance to safety, and will be addressed through corrective actions
to ensure continued safe operation of the storage system.
Based on these findings, the Commission concludes that, with
[[Page 8875]]
appropriate aging management and maintenance programs, license terms
not to exceed 40 years are reasonable and protect public health and
safety.
D. Can applicants apply for an initial term or renewal term greater
than 40 years?
This final rule amends Sec. 72.42 by extending the term allowed
for specific ISFSI licenses from not to exceed 20 years to not to
exceed 40 years. This extension applies to both the initial terms and
renewal terms. Any request for a term greater than 40 years would be
processed as an exemption under Sec. 72.7. The NRC does not plan to
ordinarily grant license term requests for greater than 40 years. As
discussed in Question ``C'' of this section, the NRC believes that
terms that do not exceed 40 years are reasonable and provide adequate
protection of public health and safety, if the applicant demonstrates
to the NRC appropriate aging management and maintenance programs.
If an applicant requests a specific license term greater than 40
years, that applicant would have to provide information on the long-
term material degradation of spent fuel storage casks, as well as
associated aging management activities, to justify safe operation
during such an extended period, and the NRC would need to evaluate this
information.
E. Why is the NRC changing the word ``reapproval'' to ``renewal''?
The NRC is changing the word ``reapproval'' to ``renewal'' in the
final rule to be consistent with the terminology used in other license
requirements under part 72. Currently, Sec. 72.240 uses ``reapproval''
to describe the process of extending the terms of CoCs. However, this
terminology differs from other sections in part 72. For example, Sec.
72.42 uses the word ``renewal'' to define the process for extending the
term of specific ISFSI licenses, and Sec. 72.212(a)(3) uses
``renewals'' to define the process for the continued use of storage
casks of a particular design under a general license. Although
``reapproval'' and ``renewal'' are similar words, they are subject to
different regulatory interpretations. ``Renewal'' typically implies a
process whereby the term of an existing license or CoC is extended. As
such, a renewal reaffirms the original design basis, perhaps with some
modifications. ``Reapproval,'' on the other hand, implies a process to
reevaluate the original design basis in accordance with current review
standards, which may be different from the standards in place when the
cask design was initially certified.
In addition, the Statements of Consideration (SOC) for the final
rule (55 FR 29184; July 18, 1990) that added the general license
provisions to part 72 stated that ``the procedure for reapproval of
cask designs was not intended to repeat all the analyses required for
the original approval.'' The referenced SOC also reported that, ``the
Commission believes that the staff should review spent fuel storage
cask designs periodically to consider any new information, either
generic to spent fuel storage or specific cask designs, that may have
arisen since issuance of the Certificate of Compliance.'' Clearly,
measures would need to be taken if the ``new information'' involves
safety concerns. These measures would depend on the nature of the
safety concerns and the cask design. Requests for Additional
Information (RAIs) may be generated during the renewal process to
prompt applicants for CoC renewals to address such safety concerns.
The NRC recognizes that a cask design certified years ago may not
meet the latest standards, yet that design may be fully acceptable to
continue to store spent fuel already loaded into casks of that design.
If the cask design were subject to a reapproval process, and as such,
to current standards, there is the possibility that certain components
of the original design would not meet the current standards. Under this
scenario, general licensees would be forced to remove the cask from
service and repackage the spent fuel. Obviously, there are significant
safety considerations if spent fuel were to be repackaged. When
considering repackaging, safety considerations associated with the
repackaging operation should be weighed against any safety concerns
with leaving the spent fuel in its existing storage container. Although
the NRC continuously updates its review standards, no compelling safety
concerns have been identified to date that warrant the removal of spent
fuel from a cask design that does not meet the latest review standards.
Thus, the NRC concludes that the review of extending the term of a
currently approved cask design is more in the nature of a renewal,
because it is based on the cask design standards in effect at the time
the CoC was approved, rather than a reapproval, which is based on the
current standards. By replacing the word ``reapproval'' with the word
``renewal,'' the final rule revisions will remove ambiguity from the
process for extending the terms of CoCs.
F. Why is the NRC adding a definition for the term ``time-limited aging
analyses'' (TLAAs)?
Stakeholders asked for a definition of TLAAs when they reviewed the
initial guidance document for the Surry and H. B. Robinson specific
ISFSI license renewals. TLAA is a process to assess systems,
structures, and components (SSCs) important to safety which have a
time-dependent operating life. This final rule adds a definition of
TLAA to the part 72 definitions section, Sec. 72.3, and makes
revisions to Sec. Sec. 72.42(a)(1) and 72.240(c)(2), respectively,
because TLAAs will be required for the renewal of a specific license
and for the renewal of a spent fuel storage cask CoC.
G. What is an ``aging management program'' (AMP)?
An AMP is a program for addressing aging effects that may include
prevention, mitigation, condition monitoring, and performance
monitoring. The final rule adds a definition of AMP to the part 72
definitions section, Sec. 72.3, because SSCs must be evaluated to
demonstrate that aging effects will not compromise the SSCs' intended
functions during the renewal period.
H. Why is the NRC requiring an AMP?
The NRC is amending Sec. Sec. 72.42 and 72.240 to require that
applicants for specific license and CoC renewals describe a program, in
their applications, for the management of issues associated with aging
that could adversely affect SSCs. In this regard, degradation of the
SSCs at an ISFSI, such as degradation due to corrosion and radiation,
are time-dependent mechanisms and are expected to be addressed in
renewal applications. AMP requirements will ensure that SSCs will
perform as designers intended during the renewal period. AMP
requirements will be reflected in the terms, conditions and technical
specifications of the renewed CoC and thus made applicable to the
general licensee per Sec. 72.212(b). For specific licensees, AMP
requirements will be reflected in the terms and conditions of the
renewed specific license.
I. Why is the NRC changing the 20-year general license term for cask
designs approved for use under the general license provisions? When
would a general license term begin and end?
The final rule changes the 20-year general license term limit for
the storage of spent fuel in casks fabricated under a CoC to be
consistent with the revisions to CoC initial and renewal terms (which
[[Page 8876]]
establish a CoC term not to exceed 40 years).
Under Sec. 72.210, a general license for the storage of spent fuel
in an ISFSI at power reactor sites is issued to those persons
authorized to possess or operate nuclear power reactors under 10 CFR
parts 50 or 52. The general license is limited to that spent fuel which
the general licensee is authorized to possess at the site under the
part 50 or 52 license for the site. The general license is further
limited to storage of spent fuel in casks approved and fabricated under
the provisions of subpart L of part 72; the approved cask designs are
listed in Sec. 72.214. Currently, the general licensee's authority to
use a particular cask design under an approved CoC terminates 20 years
after the date that the general licensee first uses the particular cask
to store spent fuel, unless the cask's CoC is renewed, in which case
the general license terminates 20 years after the CoC renewal date. In
the event the cask's CoC were to expire, any loaded spent fuel storage
casks of that design will need to be removed from service after a
storage period not to exceed 20 years.
This final rule amends Sec. Sec. 72.3 and 72.212(a)(3) to clarify
the term of the general license and to match the term of the general
license to the term of the applicable CoC. The final rule also amends
Sec. 72.3 by adding a definition for the phrase ``the term certified
by the cask's Certificate of Compliance,'' which is defined to mean,
for a CoC that is not renewed, the period of time commencing with the
CoC effective date and ending with the CoC expiration date, and for a
renewed CoC, the period of time commencing with the most recent CoC
renewal date and ending with the CoC expiration date.
The final rule amends Sec. 72.212(a)(3) to clarify that the term
of the general license runs through any renewal periods, unless
otherwise specified in the CoC. In addition, the final rule also amends
Sec. 72.212(a)(3) to clarify that the general license term for those
casks placed into service during the final renewal term of a CoC (i.e.,
during the CoC term immediately preceding the expiration of the CoC),
or similarly, during the term of a CoC that is not renewed, begins when
the cask is first used (i.e., when the cask is loaded with spent fuel)
and expires after a storage period not to exceed the length of ``the
term certified by the cask's Certificate of Compliance.''
The following scenarios are provided as illustrative examples:
Scenario 1: The CoC has a term of 20 years. The general licensee
places a cask into service at the end of the 19th year of the CoC term.
The CoC is not renewed and expires at the end of the 20th year; that is
1 year after the general licensee loaded the cask. The term of a
general license for a cask shall be for a storage period not to exceed
the term certified by the cask's CoC (i.e., for a CoC that is not
renewed, the period of time commencing with the CoC effective date and
ending with the CoC expiration date). Thus, in this scenario, the
general license commences upon loading at the end of the 19th year and
runs for 20 years (terminating 19 years after the date of the CoC
expiration, giving a storage period of 20 years).
Scenario 2: The initial CoC has a term of 20 years. The CoC is
renewed (by rulemaking amending the appropriate entry in Sec. 72.214)
for 40 years. The general licensee places a cask into service at the
end of the 39th year of the renewal term. The CoC is not renewed a
second time and as such, expires 40 years after the effective date of
the renewal amendment to Sec. 72.214 (here, 1 year after the general
licensee loaded the cask). The term of a general license for a cask
shall be for a storage period not to exceed the term certified by the
cask's CoC (i.e., for a renewed CoC, that is the period of time
commencing with the most recent CoC renewal date and ending with the
CoC expiration date). Thus, in this scenario, the term of the general
license for the cask would commence upon loading and terminate 40 years
after loading (in this case, 39 years after expiration of the CoC,
giving a storage period of 40 years).
Scenario 3: The initial CoC has a term of 20 years. The CoC is then
renewed for 40 years. The general licensee places a cask into service
at the end of the 39th year of the renewal term. The CoC is then
renewed a second time for an additional 40 years. In this case, the
general license would run through the second renewal period. Thus, the
general license for that cask would commence upon loading and terminate
at the expiration of the CoC (giving a storage period of 41 years).
Scenario 4: The initial CoC has a term of 20 years. The CoC is then
renewed for 40 years. The general licensee places a cask into service
at the end of the 39th year of the renewal term. The CoC is then
renewed two more times, each additional CoC renewal term being for a
40-year period. In this case, the general license would run through
both renewal periods. Thus, the general license for that cask would
commence upon loading and terminate at the expiration of the CoC
(giving a storage period of 81 years).
Scenario 5: The initial CoC has a term of 20 years. The CoC is then
renewed for 40 years. The CoC is then renewed a second and final time,
but only for a 30 year period. The general licensee places a cask into
service at the end of the 29th year of the final renewal term. In this
scenario, the general license for that cask would be for a storage
period not to exceed the term certified by the cask's CoC (for a
renewed CoC, that is the period of time commencing with the most recent
CoC renewal date and ending with the CoC expiration date). Thus, in
this scenario, the general license for this cask would commence upon
loading and terminate 30 years after loading (in this case, 29 years
after expiration of the CoC, giving a storage period of 30 years).
In short, the general license term for any given cask will be, at a
minimum, for a storage period not to exceed ``the term certified by the
cask's CoC'' (as that term is defined in Sec. 72.3). The rationale for
extending the general license through any CoC renewal term is two-fold.
First, the extension of the general license through a CoC renewal term
is premised upon the licensee implementing all appropriate aging
management requirements. Second, the NRC concluded that the
occupational risks of taking a cask out of service and repackaging the
spent fuel into another storage cask exceed the risks of leaving the
spent fuel in the original cask.
J. Are there possible conflicts that could arise for storage cask
designs that are granted a term extension that are also approved for a
different term limit as a transportation package?
The Commission raised this issue in its SRM for SECY-06-0152, dated
August 14, 2006. The NRC staff does not foresee any possible conflicts.
The current regulations in part 72 encourage, but do not require,
storage cask designs to have a compatible, approved transportation
cask. So called ``dual use'' systems must be separately certified under
the requirements in 10 CFR part 71 (transportation) and part 72
(storage). Typically, the only common item between these systems is the
inner canister, which holds the spent fuel contents.
Part 71 certificates for transportation packages are issued for a
5-year term whereas part 72 CoCs are issued for much longer periods
(under the current regulations, all approved CoCs have 20-year terms;
under this final rule, the CoC term is extended to a not to exceed 40-
year term). For each transportation cask certified under 10 CFR part
71, the CoC specifies ``approved contents.'' The description of the
approved contents for a spent fuel transportation package defines the
acceptable fuel types and
[[Page 8877]]
characteristics and, typically, it is the condition of the fuel, not
its age, that determines its acceptability. Spent fuel stored in casks,
even for extended terms, is not expected to experience any significant
degradation that would affect its acceptability to be shipped in a
suitable transportation cask. The part 72 general design criteria
require fuel retrievability (Sec. 72.122(l)) and for CoC applications,
the design of the storage cask should consider, to the extent
practicable, compatibility with removal of the stored spent fuel from a
reactor site, transportation, and ultimate disposition by the
Department of Energy (Sec. 72.236(m)). Based upon the NRC-supported
INL research program and the Surry and H. B. Robinson ISFSI renewal
applications, the NRC staff has concluded that typical spent fuel can
be safely stored in casks without appreciable degradation.
If the condition of spent fuel, or its storage canister, was
believed to have degraded during extended storage such that it no
longer met the criteria for approved contents, a licensee would have
other alternatives for transport of that spent fuel. A new or modified
approved transportation cask might be used, or the fuel might be
repackaged, to place it in an acceptable configuration.
K. How does the NRC track cask expiration dates?
Section 72.212(b)(2) of the final rule will require general
licensees to register use of each cask with the Commission no later
than 30 days after using that cask to store spent fuel. To register
casks, licensees must submit their name and address, reactor license
and docket numbers, the name and title of a person responsible for
providing additional information concerning spent fuel storage under
the general license, the cask certificate number, the amendment number,
if applicable, cask model number, and the cask identification number.
With this information, the Commission will know the loading and
expiration dates of each cask. This information will also enable the
NRC to schedule any necessary inspections and will permit the NRC to
maintain an independent record of use for each cask.
L. Who is responsible for applying for CoC renewals?
The final rule retains the structure of the current rule, which
emphasizes that the certificate holder (the cask vendor) applies for
cask renewal. If the certificate holder chooses not to apply for the
renewal of a particular cask design or is no longer in business, a
licensee, a licensee's representative, or another certificate holder
may apply for renewal in its place. If the applicant for CoC renewal
seeks to fabricate this cask design, it must satisfy the applicable
requirements of part 72, including establishment and maintenance of the
requisite quality assurance (QA) program (general licensees may rely
upon previously established part 50 or 71 QA programs if they meet the
requirements of Sec. Sec. 72.140 and 72.174).
M. Does the NRC have a definition for ``terms, conditions, and
specifications'' as they relate to the CoC?
The NRC does not include a definition for ``terms, conditions, and
specifications'' in the final rule because these words are generic in
nature, and are used in other parts of the NRC's regulations without
definition.
N. Can a licensee apply CoC amendments to previously loaded casks?
This final rule amends Sec. 72.212(b) to clarify that general
licensees may apply changes authorized by a CoC amendment to a
previously loaded cask provided that the licensee demonstrates, through
a written evaluation, that the cask meets the terms and conditions of
the subject CoC amendment (i.e., the loaded cask must conform to the
CoC amendment codified by the NRC in Sec. 72.214).
O. May a general licensee implement only some of the authorized changes
in a CoC amendment without prior NRC approval?
If a general licensee elects to apply the changes authorized by a
CoC amendment to a previously loaded cask, then the cask, after the
changes have been applied, must conform to the terms and conditions
(including the technical specifications) of the CoC amendment. Partial
or selective application of some of the authorized changes, but not
others, requires prior NRC approval (in this case, the general licensee
would apply for an exemption). The basis for allowing licensees to
apply the changes authorized by a CoC amendment to a previously loaded
cask without prior approval from the NRC is that the cask will remain
in an analyzed condition if, after the changes have been applied, it
conforms to the terms and conditions of the CoC amendment. The NRC has
previously stated, ``a spent fuel storage cask will be relied on to
provide safe confinement of radioactive material independent of a
nuclear power reactor's site, so long as conditions of the Certificate
of Compliance are met'' (54 FR 19381; May 5, 1989). However, partial or
selective application of a CoC amendment's changes could result in a
cask that would be in an unanalyzed condition.
In a related issue, the NRC agrees with an industry comment raised
in response to the publication of the draft preliminary rule text (73
FR 45173; August 4, 2008). The draft preliminary rule text required
that a general licensee ensure that once the changes authorized by a
CoC amendment had been applied to a previously loaded cask, that the
cask then ``fully conforms'' to the terms and conditions of the CoC
amendment. The industry comment raised the concern that the phrase
``fully conforms'' was overly restrictive and requiring conformance
with all the changes authorized by a CoC amendment would not be
feasible or logical in certain instances, namely, in those cases where
the amended CoC requirements do not apply to that particular general
licensee site or ISFSI (e.g., requirements for pressurized water
reactors (PWR) fuel at a boiling water reactor (BWR) plant).
In light of this comment, the final rule language now requires that
the cask, once CoC amendment changes have been applied, ``conforms'' to
the terms and conditions of the CoC amendment. Thus, CoC amendment
requirements for PWR fuel need not be met at a BWR plant.
Similarly, if the CoC amendment includes changes to the Technical
Specifications for loading, general licensees may have difficulty
demonstrating that the previously loaded cask complies with the new
loading requirements. As revised by this final rule, Sec. 72.212(b)(5)
will require general licensees to perform written evaluations prior to
applying the changes authorized by an amended CoC to a previously
loaded cask. If the evaluation indicates that the loading conditions
under the initial or older CoC amendment would not affect the ability
of the previously loaded cask to meet the storage or unloading
requirements of the newer CoC amendment, then the cask would be
considered as conforming with the terms and conditions of the newer CoC
amendment without having to meet the new loading requirements.
P. Do later CoC amendments encompass earlier CoC amendments?
No, later CoC amendments do not encompass earlier amendments unless
the language of the later CoC amendment expressly indicates otherwise.
Generally, when the NRC reviews an amendment to a CoC, the NRC staff
considers the changes associated with the amendment request only and
limits its review to the
[[Page 8878]]
bounding conditions of the analysis. Specific changes associated with
earlier CoC amendments for previously loaded casks are not considered
during the review process for a later amendment. Thus, depending on the
nature of the changes, later amendments do not necessarily encompass
earlier amendments and sometimes may be inconsistent with earlier
amendments.
Q. Why can't general licensees use the Sec. 72.48 process to apply CoC
amendment changes to previously loaded casks?
The principal requirement of Sec. 72.48 regarding changes to cask
designs is that the desired changes do not result in a change in the
terms, conditions, or specifications incorporated in the CoC. A
previously loaded cask is bound by the terms, conditions, and technical
specifications of the CoC applicable to that cask at the time the
licensee loaded the cask. Thus, under Sec. 72.48, a licensee may only
make those cask design changes that do not result in a change to the
terms, conditions, or specifications of the CoC under which the cask
was loaded. The final rule will not amend Sec. 72.48, but will amend
Sec. 72.212 by authorizing a general licensee to apply the changes
authorized by a CoC amendment to a previously loaded cask, provided
that after the changes have been applied, the cask conforms to the
terms and conditions, including the technical specifications, of the
CoC amendment.
R. If a general licensee selects and purchases a cask fabricated under
an earlier CoC amendment, but does not load the cask, can the general
licensee adopt the most recent CoC amendment for the empty cask before
loading it?
Adoption of the most recent CoC amendment depends on the nature of
the changes between the CoC amendment under which the cask system was
fabricated and the most recent amendment. CoC amendments are routinely
requested by cask manufacturers or vendors (also referred to as the
certificate holders) to account for advances in cask design and
technology. Some amendments will be associated with cask hardware
changes. A cask system that was purchased under an older amendment may
or may not be able to be modified to a cask system that meets the most
recent amendment.
As revised by this final rule, Sec. 72.212(b)(5) will require that
general licensees perform written evaluations demonstrating that the
cask, once loaded with spent fuel, will conform to the terms,
conditions and specifications of a CoC or an amended CoC listed in
Sec. 72.214. In the case of an unloaded cask fabricated under the
initial or earlier CoC amendment, the cask cannot be loaded under a
later CoC amendment if the Sec. 72.212(b)(5) evaluation shows that the
cask, once loaded, will fail to meet the terms, conditions and
specifications of the later CoC amendment. If the evaluation
demonstrates that the terms, conditions and specifications of the later
CoC amendment are met, then the cask can be loaded under the later CoC
amendment.
S. What are the NRC's plans for providing guidance and examples of
aging analyses and AMPs to licensees?
The NRC has developed NUREG-1927 ``Standard Review Plan for Renewal
of Independent Spent Fuel Storage Installation Licenses and Dry Cask
Storage System Certificates of Compliance.'' This SRP provides guidance
to the NRC staff in reviewing licensees' programs for managing the
effects of aging on spent fuel storage casks or ISFSI sites. Aging
analyses and AMPs are two components of an overall program for managing
the effects of aging. Because applicants will need to submit a TLAA and
a description of their program to manage the effects of aging when
applying for renewal of either CoCs or specific licenses under the
final rule, this SRP will also assist potential applicants in
identifying parameters to be included in a renewal application and
measures necessary to ensure that the cask or ISFSI can be operated
during the renewal period without undue risk to the public health and
safety. The SRP will be published following the publication of this
final rule.
T. Could the NRC maintain the current paragraph designations of Sec.
72.212(b)?
The NRC understands the burden arising from changing the paragraph
designations of a regulation. However, the NRC is rearranging the
provisions of Sec. 72.212(b) to better organize regulatory
requirements. For example, the final rule will group recordkeeping
requirements at the end of Sec. 72.212(b) rather than dispersing them
among other requirements, as is currently the case. The NRC's intent
for rearranging Sec. 72.212(b) is to make this provision more user-
friendly. These changes are documented in Table 1 located in Section IV
(Item 4) of this document (Discussion of Final Amendments by Section
under the discussion pertaining to Sec. 72.212).
U. When are licensees required to submit cask registration letters?
Under final Sec. 72.212(b)(2), general licensees must submit a
cask registration letter no later than 30 days after using that cask to
store spent fuel. One registration letter may be submitted for a
campaign that loads more than one cask, provided that the letter lists
the cask certificate number, the amendment number, the cask model
number, and the cask identification number of each cask covered by the
campaign.
In addition, under final Sec. 72.212(b)(4), general licensees must
submit a cask registration letter no later than 30 days after applying
the changes authorized by an amended CoC to a previously loaded cask.
One registration letter may be submitted for a campaign that applies
CoC amendment changes to more than one cask, provided that the letter
lists the cask certificate number, the amendment number to which the
cask will conform, the cask model number, and the cask identification
number of each cask covered by the campaign.
V. If a CoC is not renewed, how long would general licensees have to
remove casks of that design from service?
For those cask storage systems for which renewals are not planned,
general licensees should plan ahead to remove these cask storage
systems from service at or before the termination of the general
license (see the response to Question ``I'' above). Because users are
most aware of the general cask schedule and the number of casks to be
removed from service at their sites, users are in the best position to
develop a reasonable schedule for the removal.
W. When the NRC renews a CoC, are all amendments to that CoC
simultaneously renewed as well?
Section 72.214 lists one expiration date for each CoC. Amendments
under a CoC may have different effective dates; however, they share the
same certificate number and docket number. Therefore, when the NRC
renews a CoC, all amendments to that CoC are renewed as well.
X. If a general licensee applies for the renewal of a given CoC
(assuming the certificate holder went out of business or chose not to
apply for the renewal of a given CoC), and if the NRC approves the
renewal of that CoC, is the renewed CoC available only to that general
licensee or is it available to all general licensees?
CoCs are generic designs and approved by rulemaking. The renewed
CoC will be available to all persons who hold a general license under
Sec. 72.210.
[[Page 8879]]
Y. Can the requirements regarding TLAAs for CoC renewals be based upon
a ``current licensing basis'' (CLB) patterned after 10 CFR part 54?
The NRC does not believe that the part 54 CLB is the appropriate
basis for TLAAs in support of CoC renewals. The NRC does not believe
that it is appropriate for the CLB to be applied to cask CoC renewals,
which are generic. The CLB is typically the set of NRC requirements
applicable to a specific plant and a specific licensee's written
commitments for ensuring compliance with and operation within
applicable NRC requirements, including the plant specific design basis
(including all modifications and additions to regulatory commitments
over the life of the license) that are docketed and in effect.
Z. What is the status of the draft NRC Regulatory Issue Summary (RIS)
2007-26 which was issued on January 14, 2008 (73 FR 2281)?
The NRC decided not to finalize the draft RIS 2007-26 because Sec.
72.212(b) provides a path forward for implementation of later CoC
amendments to previously loaded casks. An Enforcement Guidance
Memorandum (EGM), dated September 15, 2009, was issued in conjunction
with the publication of the proposed rule to provide guidance to NRC
inspectors for exercising enforcement discretion concerning
deficiencies related to implementing changes, authorized by CoC
amendments to previously loaded casks, that occurred prior to issuance
of the EGM.
III. Summary and Analysis of Public Comments on the Proposed Rule
This section presents a summary of the public comments received on
the proposed rule and supporting documents, the NRC's response to the
comments, and changes made in the final rule and supporting documents
as a result of these comments.
The NRC received five comment letters on the proposed rule. These
comments came from the Nuclear Energy Institute, the U.S. Department of
Energy, Exelon Nuclear, Decommissioning Plant Coalition, and the
Prairie Island Indian Community. Three of the commenters supported the
new regulation, while two of the commenters expressed concern about the
proposed regulation. The commenters opposed to the proposed regulation
were primarily concerned about the increased license term extension
from 20 to 40 years for specific ISFSI licensees. One of these
commenters also had questions about the environmental review process.
The other commenters provided comments on different topics within the
proposed rule, including the proposed CoC terms, the CoC renewal
process, the CoC amendment process, TLAAs, and spent fuel storage in
general. These commenters made observations about these topics and
recommended areas within the proposed rule where the NRC could make
improvements. Two commenters suggested revisions to the proposed rule
language and the SOC.
Copies of the public comments are available for review in the NRC
Public Document Room, 11555 Rockville Pike, Rockville, MD 20852-2738. A
review of the comments and the NRC responses follow:
General Support
Comment 1
A commenter agreed with the proposed amendments and stated that
they are in the public interest and are consistent with scientific
evidence. The commenter also noted that the proposed regulation would
reduce the costs incurred by licensees and the NRC as a result of
preparing and reviewing applications and exemption requests. The
commenter stated that the proposed rule would provide the NRC and
regulated entities with greater regulatory certainty.
Response
The NRC agrees with the comment.
General Opposition
Comment 2
A commenter suggested that the proposed revisions would negatively
and directly impact their community and expressed opposition to
extending specific ISFSI licenses by 40 years. The commenter also
indicated that the proposed rule, along with the ``scrapping'' of Yucca
Mountain, would lead to permanent spent fuel storage at nuclear power
reactor sites. In addition, the commenter urged that the 20-year
initial and renewal terms should remain unchanged. The commenter
suggested that a 20-year term better protects the public because the
casks are monitored more frequently.
Response
The NRC acknowledges the concerns raised by the commenter. The
Commission believes there is reasonable assurance that spent fuel can
be stored safely and without significant environmental impacts at
ISFSIs during the extended license terms authorized by the final rule.
This reasonable assurance is partly based on the technical data gained
from an NRC supported research program and field data. Details are
discussed in the response to Question ``C'' of the ``Discussion''
section of this document. Furthermore, this final rule would require
all licensees to identify time-dependent degradations of the ISFSI SSCs
when they apply for license renewal. If any aging issues which could
adversely affect SSCs are identified, the final rule requires the
license renewal applicant to describe an AMP in its license renewal
application. The AMP will address the prevention and mitigation of
aging effects. The NRC staff will evaluate the AMP and will only
approve the renewal application if the AMP is deemed adequate.
An AMP would require licensees to monitor the casks and take other
measures to ensure public health and safety. AMP requirements will be
reflected in the terms and conditions of the renewed specific license,
which are enforceable by NRC. The NRC will monitor the licensee's
compliance with the terms and conditions of the license through the
NRC's inspection program. The NRC concluded that, with appropriate
aging management and maintenance programs, a license term up to 40
years is reasonable and provides adequate protection of public health
and safety.
Comment 3
A commenter stated that the proposed rule, ``like the proposed
revision of the Waste Confidence Rule,'' validated the commenter's
earlier concerns raised during the initial licensing process for the
ISFSI located near its Tribal boundary and ``exposes the false
assurances that the ISFSI is an interim or temporary solution.'' The
commenter added that the Commission's position is to ``simply
streamline approvals for extending the term that spent fuel can be
stored at either onsite or offsite ISFSIs.'' The commenter suggested
that ``regulatory requirements should be further enhanced rather than
relaxed.''
Response
The NRC has not made any regulatory or policy decision which states
that the storage of spent fuel at ISFSIs obviates the need for a
permanent repository of spent fuel and other high-level waste. The
establishment of such a repository is a national policy decision and is
beyond the scope of this rulemaking.
The extension of specific license terms in Sec. 72.42 does not
relax any regulatory requirements. The rationale for extending the
terms for specific ISFSI licenses, for both initial terms and
[[Page 8880]]
renewals, is set forth in the responses to Questions ``C'', ``D'', and
``F-H'', in Section II of this document. The rule requires that any
applicant for license renewal demonstrate the safety of the continued
storage of spent fuel for the requested term through TLAAs and the
establishment of an AMP. If the applicant demonstrates to the NRC
appropriate aging management and maintenance programs, then the NRC has
concluded that a renewal term up to 40 years is reasonable and provides
adequate protection of public health and safety.
CoC Terms and Renewal Process
Comment 4
A commenter stated that the term ``unloaded cask'' in the fifth
paragraph of Section II, ``Discussion,'' Question ``E'', of the
proposed rule is unclear. The commenter asked whether the term
``unloaded cask'' is limited to a cask that has never been loaded or if
it also includes a cask that has been used but subsequently unloaded of
stored fuel. The commenter added that the review of a generic CoC
renewal should not depend on whether or not a particular cask is
unloaded. The commenter requested that the NRC delete the final
sentence of the fifth paragraph of Section II, ``Discussion,'' Question
``E.''
Response
In the context of the response to Question ``E'', the NRC
considered the term ``unloaded cask'' to be either a cask that has
never been loaded or one that was loaded and then subsequently
unloaded. In any event, the NRC agrees with the comment. When a CoC is
renewed by the NRC, it is the cask design that is being renewed. It
does not matter whether the cask is loaded or not. Therefore,
clarifying changes have been made to the response to Question ``E'',
including the deletion of the sentence which contains the term
``unloaded cask.''
Comment 5
Two commenters requested that NRC clarify Section II,
``Discussion,'' Questions ``I'' and ``V'' and Section III, ``Discussion
of Proposed Amendments by Section,'' Item 4 and Sec. 72.212(a)(3) of
the proposed rule. These sections of the SOC and Sec. 72.212(a)(3)
address the relationship between the term of a general license, the CoC
term and renewal, and the date an individual cask is loaded.
One of the commenters stated that ``[i]ndustry believes that each
individual cask should be permitted to be operated for the full design
life of the cask, including the full renewal period.'' The commenter
stated that aging management requirements would be implemented during
the renewal period. This commenter then provided two examples: the
first, ``a cask loaded under an active CoC with a 20-year initial term
and not renewed should be permitted to be operated under a general
license for 20 years from the date of initial use, no matter when that
cask is placed into service;'' and the second, ``a cask loaded under an
active CoC with a 20-year initial term and renewed for 40 years should
be permitted to be operated under a general license for 60 years from
the date of initial use, no matter when that cask is placed into
service.''
The commenter then asserted that each cask is fabricated to meet a
specific design life and that the ``successful renewal of the CoC
extends that design life provided all design and maintenance parameters
that were part of the renewal approval are met.'' The commenter further
asserts that the design life ``does not begin for each individual cask
until the cask is loaded, i.e., the cask is experiencing the conditions
contemplated in design.'' The commenter concluded that ``forcing casks
to be taken out of service at an arbitrary date would result in
unnecessary fuel repackaging and occupational radiation exposition with
no commensurate public health and safety benefit.''
The second commenter made a similar comment, stating that the
``cask life should be solely based on the qualification of the cask,
and not on the CoC expiration date.'' The commenter then suggested that
``the NRC consider evaluating the lifespan of the fuel storage system
based on date of loading (i.e., activation of the system) of the cask
system in compliance with all applicable terms, conditions, and
specification, and not based on other external factors.''
Response
The NRC agrees, in part, and disagrees, in part, with the comments.
The part 72 regulations do not define the term ``design life.'' Rather,
the part 72 regulatory scheme is based on licenses, specific and
general, and the terms of those licenses. The general license term is
premised upon the CoC in effect at the time the cask was placed into
service (i.e., loaded with spent fuel and deployed onto the ISFSI pad).
As explained in the response to Question ``I'' of Section II, the
general license term, for loaded casks, will run through any
consecutive CoC renewal terms as the occupational risk of unloading a
cask and repackaging the spent fuel into another storage cask exceeds
the risk of keeping the spent fuel in the original cask.
The NRC agrees with the first commenter's statement regarding the
implementation of aging management requirements during the renewal
period. The NRC further agrees with the first commenter's first example
regarding a cask fabricated under a 20-year CoC term, which is not
renewed. Under both the current regulation and the regulation as
revised by this final rule, the general license term for such a cask
would be 20 years, regardless of when during the 20-year CoC term the
cask is placed into service. Of course, after the CoC expires, casks of
that design could no longer be placed into service.
The NRC disagrees with the second example and the commenter's
rationale to support that example. The commenter states ``a cask loaded
under an active CoC with a 20-year initial term and renewed for 40
years should be permitted to be operated under a general license for 60
years from the date of initial use, no matter when that cask is placed
into service'' (emphasis added). The NRC does not agree that successful
renewals of the CoC cumulatively extend the general license term for
that cask (the commenter uses the term ``design life,'' which the NRC
assumes to be the equivalent of the general license term desired by the
commenter). The commenter uses the example of a CoC that has an initial
term of 20 years followed by a renewal term of 40 years. The commenter
then asserts that the design life of the cask would be 60 years. Thus,
under this reasoning, a cask placed into service the day before the
renewed CoC expires could be in service for 60 years. Essentially, the
commenter appears to be asserting that the regulatory scheme should
allow cumulative terms, such that each successive renewal of the CoC
adds to the design life of the cask, and thus, to the term of the
general license.
The intent of the amendments implemented by the final rule is that
the use of a cask is determined by the general license term, which in
turn is determined by the term specified in the applicable CoC in
effect at the time the cask is placed into service; the general license
term is not determined by adding all the successive CoC renewal terms
to the initial CoC term. The term of the general license for any cask
placed into service during a CoC renewal term is based upon the length
of the renewal term (renewal date to expiration). Thus, if a CoC is
renewed for 40 years and a cask fabricated under that CoC is placed
into service during the 39th year of the renewal term, the
[[Page 8881]]
general license for that cask would be 40 years.
According to the commenter, if the initial term of the CoC was 20
years, and the CoC was then renewed twice, each time for 40 years, then
a cask placed into service on the last day of the second renewal period
would have a general license of 100 years (essentially, 100 years
beyond the CoC expiration date). It is not the intent of the NRC to
allow for such extended, cumulative license terms.\1\ Such an
interpretation of the regulatory scheme implemented by this final rule
is well beyond the regulatory norm and is not aligned with the stated
purpose of this rulemaking, which was to extend specific license terms
from not to exceed 20 years to not to exceed 40 years and then to make
the terms of CoCs and general licenses equal with those of specific
licenses.
---------------------------------------------------------------------------
\1\ As background, see the response to Question 21 in the July
18, 1990 (55 FR 29186), final rule that promulgated subparts K and L
of part 72. In particular, the NRC stated that ``the 20-year storage
period will also apply to new casks put into use after a Certificate
of Compliance is reapproved.'' Clearly, there was no intent that the
storage period for a cask placed into service during the renewal
term was to be for a term that was equal to the initial term plus
the renewal term.
---------------------------------------------------------------------------
The NRC disagrees with the second commenter, who stated that ``cask
life should be solely based on the qualification of the cask, and not
on the CoC expiration date.'' In this regard, the NRC will allow for
casks already in service, i.e., those already loaded prior to any given
CoC renewal, to remain in service through any future renewal periods,
given that the occupational hazards associated with unloading a cask
and repackaging the spent fuel into another storage cask exceed the
risks of leaving that fuel in the original cask. However, this is not
the same as allowing an unloaded cask (i.e., either a new cask or one
formerly loaded and then subsequently unloaded) to be placed into
service for a cumulative term that is equal to the length of the
initial term and all renewal terms. The intent of this final rule is
that the general license term for any cask placed into service shall
not be longer than the term certified by the then effective CoC, unless
that CoC is renewed after that cask has been placed into service, in
which case, the general license will terminate at the expiration of the
CoC (i.e., at the end of the final CoC renewal term). Please see the
response to Question ``I'' of this document for additional details,
including examples of various general license scenarios.
In response to these comments, this final rule amends Sec.
72.212(a)(3) to include clarifying language regarding general license
terms and similarly, adds a definition of the phrase ``the term
certified by the cask's Certificate of Compliance'' to the part 72
definitions section, Sec. 72.3.
Comment 6
A commenter requested that the NRC clarify the QA program
requirements for general licensees that seek to fabricate casks (as
discussed in Section II, ``Discussion,'' Question ``L'' of the proposed
rule). The commenter asked whether a general licensee that seeks to
fabricate a cask under its part 50 QA program may apply its part 50 QA
program as long as it governs part 72 activities.
Response
Section 72.140 sets forth the requirements of a part 72 QA program.
Under Sec. 72.140(d), a QA program previously approved by the
Commission as satisfying the requirements of Appendix B to part 50 or
subpart H of part 71 will be accepted as satisfying the requirements of
Sec. 72.140(b), provided that the general licensee or other applicant
meets the recordkeeping requirements of Sec. 72.174. In filing the
description of the QA program required by Sec. 72.140(c), a general
licensee who seeks to fabricate casks under a renewed CoC must notify
the NRC, in accordance with Sec. 72.4, of its intent to apply its
previously-approved QA program to part 72 activities. The notification
shall identify the previously-approved QA program by date of submittal
to the Commission, docket number, and date of Commission approval.
Comment 7
A commenter suggested that the word ``terms'' in the phrase
``terms, conditions, and specifications'' may be confused with the word
``term'' as in the ``term certified in the cask CoC.'' The commenter
requested that the NRC revise Section III, ``Discussion of Proposed
Amendments by Section,'' Item 4 to address this issue. The commenter
requested that the NRC add a definition to Sec. 72.3 for the phrase
``term certified by the cask's Certificate of Compliance.''
Response
The NRC agrees that clarification is needed. The NRC added the
following definition to Sec. 72.3:
``Term certified by the cask's Certificate of Compliance, for the
purposes of this part, means, for an initial CoC, the period of time
commencing with the CoC effective date and ending with the CoC
expiration date, and for a renewed CoC, the period of time commencing
with the most recent CoC renewal date and ending with the CoC
expiration date.''
Comment 8
One commenter asked if a ``cask user or user's representative''
renews a CoC, then would that user or user's representative become the
CoC holder and, as a result, obtain all CoC holder responsibilities. In
particular, the commenter questioned whether the user or user's
representative would assume responsibility for cask Final Safety
Analysis Report (FSAR) updating and reporting requirements under Sec.
72.48.
Response
In the SOC for the July 18, 1990, final rule which promulgated
subparts K and L of part 72, the NRC stated its expectation that the
cask vendor, if still in business and fabricating the subject cask
design, would apply for cask renewal (55 FR 29184; July 18, 1990). If
the certificate holder is no longer in business or chooses not to apply
for the renewal of a particular cask design, then a cask user or user's
representative (i.e., the licensee or licensee's representative) could
apply to renew a CoC. If approved by the NRC, the cask user or
representative would then become the CoC holder. In this capacity, the
cask user or representative absorbs all CoC holder responsibilities,
such as cask FSAR updating and reporting requirements under Sec.
72.48.
CoC Amendment Process
Comment 9
A commenter objected to a sentence in the first paragraph of
Section II, ``Discussion,'' Question ``O'' that stated, ``However,
partial or selective application of a CoC amendment's changes would
result in a cask that would be in an unanalyzed condition.'' The
commenter asserted that this sentence was a ``significant
overstatement'' as not all partial or selective application of a CoC
amendment's changes would result in the cask being in an unanalyzed
condition. The commenter requested that the sentence be deleted or that
the first instance of ``would'' be replaced with the word ``could.''
Response
The NRC agrees with the comment that, depending on the nature of
changes in the amendment, partial or selective application of a CoC
amendment's changes may not always result in the cask being in an
unanalyzed condition. To minimize the possibility of the cask being in
an unanalyzed condition, however, the general licensee is required to
apply for
[[Page 8882]]
an exemption in those cases where the general licensee seeks such a
partial or selective application of the changes authorized by a later
CoC amendment to a previously loaded cask. The NRC has revised the
sentence in Section II, ``Discussion,'' Question ``O'' of this document
as follows:
``However, partial or selective application of a CoC amendment's
changes could result in a cask that would be in an unanalyzed
condition.''
Comment 10
A commenter suggested that the NRC should consider including in CoC
amendments language addressing whether or not the CoC amendment
encompasses all requirements of the initial CoC and previous
amendments. The commenter asserted that such CoC amendment language
would ``significantly simplify'' the adoption process for general
licensees, ``especially in cases where only the contents have changed
and no cask hardware modifications are involved.''
Response
The approach suggested by the commenter is not within the scope of
this rulemaking because the commenter's recommended language would be
placed within the text of the CoC amendment, not the NRC regulations.
Moreover, the NRC has considered a process that requires the
application of every part 72 CoC amendment to include a basis which
proposes the applicability of the proposed amendment to previously
loaded casks. The NRC staff's acceptance of the proposed applicability
and its basis would then be documented in the CoC amendment and in the
accompanying Safety Evaluation Report (SER). However, the NRC staff has
concluded that conducting the requisite analyses to evaluate each prior
CoC amendment in relation to the new amendment would impose more
burdens on both the NRC and applicants as compared to the process in
the final rule.
Comment 11
With respect to Section II, ``Discussion,'' Question ``W'' of the
proposed rule, a commenter asked whether, after the renewal of a CoC,
subsequent amendments to that CoC continue the existing amendment
numbering or if the numbering for these amendments ``start over'' as
the first amendment against the renewed CoC.
Response
After a CoC is renewed, subsequent amendments to that CoC will
continue with the existing numbering. For example, if there are seven
amendments under a CoC before renewal, the next amendment, under the
same CoC after renewal, will be Amendment No. 8.
Comment 12
A commenter provided comments as requested under Section II,
``Discussion,'' Question ``AA'' of the proposed rule. Question ``AA''
is not included in the SOC of this final rule because it was intended
only to solicit comments on the particular items identified. Question
``AA'' solicited public comment on whether or not the evaluation
required by proposed Sec. 72.212(b)(5) should be reviewed and approved
by the NRC. The commenter does not support NRC review of ``evaluations
performed pursuant to Sec. 72.212(b)(5) to apply a later CoC amendment
to previously loaded casks.'' The commenter suggested that NRC review
of these evaluations would be ``inappropriate and contrary to the
concept of a general licensee.'' The commenter stated that the NRC
approves CoC amendments and that Sec. 72.212 evaluations, and
revisions to these evaluations, ``are reviewed by NRC under the
inspection program, at NRC's discretion.''
Response
The NRC agrees with the comment. The amendments implemented by this
final rule do not require any prior NRC review or approval of the
evaluations conducted by a general licensee pursuant to Sec.
72.212(b)(5). After a general licensee has made the findings required
by Sec. 72.212(b)(5)(i)-(iii), it may apply the changes authorized by
a later CoC amendment to a previously loaded cask. Of course, the NRC
may review these evaluations through the NRC inspection program.
Comment 13
A commenter described the proposed language in Sec. 72.212(b)(7)
that states, ``and revise it to add a requirement to evaluate any
changes to the site parameters determination and analyses required by
Sec. 72.212(b)(6),'' as unnecessary and requested that the language of
Sec. 72.212(b)(7) be simplified. The commenter recommended that the
NRC revise Sec. 72.212(b)(7) from ``paragraph (b)(5) of this section''
to ``paragraphs (b)(5) and (b)(6) of this section.''
Response
The NRC agrees with the comment that Sec. 72.212(b)(7) could be
clarified by modifying the first sentence. Therefore, the NRC revised
the first sentence of Sec. 72.212(b)(7) as follows:
``Evaluate any changes to the written evaluations required by
paragraphs (b)(5) and (b)(6) of this section using the requirements
of Sec. 72.48(c).''
Comment 14
A commenter stated that the proposed 30-day timeframes for
licensees to notify the NRC of the initial use of a cask and the
application of a later CoC amendment to a previously loaded cask will
cause the licensee an ``unnecessary administrative burden.''
Specifically, the commenter argued that the proposed rule language
would require licensees to send two separate notifications into the
NRC: (1) For new casks, licensees would need to notify the NRC within
30 days of deployment; and (2) for previously loaded casks, licensees
would need to notify the NRC within 30 days of applying the changes
authorized by a CoC amendment to a previously loaded cask. The
commenter noted that applying the changes authorized by a CoC amendment
to previously loaded casks is usually part of a larger campaign that
includes deploying new casks. The commenter stated that allowing ``120
days for both notifications would allow general licensees to combine
these two notifications into one, in most cases.''
Response
The NRC does not agree that the requirement to prepare two letters,
one covering loading the new casks, and the second covering the
application of the changes authorized by a later CoC amendment to
previously loaded casks, is particularly burdensome. The NRC staff has
concluded that the 30-day timeframe is a reasonable requirement.
The NRC acknowledges that applying the changes authorized by a
later CoC amendment to previously loaded casks may be connected to a
cask loading campaign. If the general licensee is loading new casks
fabricated under a given CoC amendment and the changes authorized by
that CoC amendment are also applied to previously loaded casks at the
same time as explained by the commenter, one registration letter may be
sufficient for that whole campaign, provided that the letter lists the
cask certificate number, the appropriate CoC amendment number, the cask
model number, and the cask identification number of each cask, both new
and previously loaded.
The commenter states that the Sec. 72.212(b)(5) report, which
would cover both the loading of the new casks and the implementation of
the changes to the previously loaded casks, would
[[Page 8883]]
be prepared well in advance of the loading campaign. Sections
72.212(b)(2) and (4), however, require the registration of the use of
new casks and the application of changes authorized by a later CoC
amendment to previously loaded casks, no later than 30 days after the
action--not 30 days after the completion of the Sec. 72.212(b)(5)
report. Thus, even if the Sec. 72.212(b)(5) evaluation report was
completed well in advance of the campaign, the general licensee could
time its actions such that changes to the previously loaded casks would
be implemented at or near the same time that the new casks are
deployed; and as such, have both parts of the campaign covered in one
letter. In the event that the general licensee cannot time the loading
of the new casks with the implementation of the changes authorized by
the latter CoC amendment so as to have both actions covered by one 30-
day letter, the licensee will be required to prepare two letters.
Comment 15
A commenter requested that the NRC remove the word ``all'' from the
first sentence of Sec. 72.212(b)(4) to be consistent with the
discussion provided in Section II, Question ``O'' of the proposed rule.
Response
The NRC agrees with the comment that, in order to be consistent,
the word ``all'' should be removed in the first sentence of Sec.
72.212(b)(4). The NRC revised Sec. 72.212(b)(4) accordingly.
Comment 16
A commenter stated that Sec. 72.212(b)(4) is unclear with regard
to when the 30-day ``clock'' starts for licensees to notify the NRC.
The commenter added that Sec. 72.212(b)(4) is inconsistent with the
wording used in Sec. 72.212(b)(2). The commenter suggested the
following language to replace the first sentence in Sec. 72.212(b)(4):
``Register each cask with the Nuclear Regulatory Commission no later
than 30 days after applying the changes authorized by an amended CoC to
a cask loaded under the initial or an earlier amended CoC.''
Response
The NRC disagrees with the comment. The 30-day clock starts after
the application of changes authorized by the CoC amendment to the
previously loaded cask (a cask loaded under the initial CoC or an
earlier CoC amendment). The language suggested by the commenter is not
sufficient because there is no direct nexus between the phrase ``each
cask'' with the phrase ``the changes authorized by an amended CoC to a
cask loaded under the initial or an earlier amended CoC.'' The NRC
concludes that the regulatory language of Sec. 72.212(b)(4) is clear
and will not be revised other than the deletion of the word ``all''
from the first sentence (as described in the response to Comment No.
15).
Comment 17
A commenter stated that the proposed wording of Sec. 72.212(b)(7)
is unnecessarily complex and recommended the following language:
``Changes to the written evaluations required by Sec. 72.212(b)(5) of
this section shall be reviewed in accordance with Sec. 72.48(c), as
applicable.'' As an alternative, the commenter recommended that the NRC
change the first word of this section of the proposed rule from
``evaluate'' to ``review.'' The commenter suggested this revision
because some general licensees could interpret the word ``evaluate'' as
requiring a full Sec. 72.48 evaluation, regardless of the nature of
the change to the document.
Response
The NRC disagrees with the comment. In response to Comment 13 the
NRC revised Sec. 72.212(b)(7) to read as follows:
``Evaluate any changes to the written evaluations required by
paragraphs (b)(5) and (b)(6) of this section using the requirements
of Sec. 72.48(c).''
Both the language of the proposed rule and the above revised
language follow the same logic and pattern as the regulatory language
in effect before this final rule's effective date (Sec.
72.212(b)(2)(ii) (2009)). The intent of this amendment was only to
renumber the provision from Sec. 72.212(b)(2)(ii) to Sec.
72.212(b)(7) and make related clarifying changes (such as the reference
to Sec. 72.212(b)(6)). It is not the NRC's intent to change the
substantive meaning of this provision, and as such, the NRC does not
agree with changing the word ``evaluate'' to ``review.''
Comment 18
A commenter stated that the addition of the phrase ``and, for those
casks to which the licensee has applied the changes of an amended CoC,
the amended CoC'' to Sec. 72.212(b)(11) is unnecessary. The commenter
suggested the following language instead: ``Maintain a copy of the CoC
and each amended CoC(s) applicable to casks loaded and deployed at the
ISFSI, and the documents referenced in such Certificates for each cask
model used for the storage of spent fuel until use of the cask model is
discontinued.''
Response
The NRC disagrees with the comment because CoC amendments may have
a different design basis from the initial CoC as well as each other.
Consequently, it is necessary for general licensees to maintain the
initial CoC (along with documents referenced in the initial CoC) for
those casks operating under the terms and conditions of the initial CoC
and for those casks operating under the terms and conditions of a given
CoC amendment, to maintain that CoC amendment (along with documents
referenced in the amended CoC).
Comment 19
A commenter stated that the rule applies to facilities that have
one or more operating reactors. The commenter expressed concern that
the proposed regulation would create unneeded burdens for permanently
shut-down reactor sites. The commenter suggested that the NRC modify
the proposed language in Sec. 72.212(b) to address this issue, but did
not provide alternative language. Specifically, the commenter raised
concerns about the application of changes authorized by a later CoC
amendment to a cask loaded under the initial CoC amendment or an
earlier CoC amendment thereto (a ``previously loaded cask'').
Response
Part 72 does not draw a distinction between an operating facility
and a decommissioned facility. The part 72 regulations make a
distinction between specific licenses and general licenses. Under Sec.
72.210, a holder of a part 50 or 52 power reactor license holds a part
72 general license. Section 72.212 sets forth the conditions of a
general license. If a decommissioned facility does not have an active
part 50 or 52 license, it would then not have a part 72 general
license; most likely, the facility would be operating under a specific
part 72 license. The application of changes authorized by a CoC
amendment to a previously loaded cask is not applicable to a specific
license ISFSI, as those provisions of the final rule only apply to
general licenses.
In the case of a decommissioned facility that does operate under a
part 50 or 52 license, and thus, has a part 72 general license, this
rule would apply to the same extent as it would for any other part 50
or part 52 licensee. In this regard, there is no reason to treat a
generally licensed ISFSI at a decommissioned site any differently
[[Page 8884]]
than a generally licensed ISFSI at an active part 50 or 52 facility.
The commenter may have assumed that this rule requires general
licensees to apply the changes authorized by a CoC amendment to any
previously loaded casks within the licensee's control. This is not
correct. Under this final rule, the application of the changes
authorized by a CoC amendment to a previously loaded cask is at the
discretion of the general licensee; unless otherwise directed by the
NRC, the general licensee can choose to continue to use the cask in
accordance with the CoC under which the cask was loaded.
Time-Limited Aging Analyses and Aging Management Programs
Comment 20
A commenter asked the NRC to clarify when aging management
requirements apply to casks, such as a cask placed into service during
the renewal term of a CoC.
Response
Aging management requirements only apply after the cask is in
service for the length of time equal to the term certified by the
cask's initial CoC. For example, if the term of the initial CoC is 20
years, and a cask is placed into service at the end of the 19th year,
then the general licensee would need to begin implementing the
appropriate aging management requirements at the end of the 39th year,
assuming the CoC was renewed. The appropriate time to initiate the
aging management requirements will be identified in the NRC approval of
a CoC renewal application. Specifically, the aging management
requirements will be made conditions or specifications of the CoC and
thus applicable to general licensees per Sec. 72.212(b). The response
to Question ``H'' in Section II was revised in light of this comment.
Comment 21
A commenter stated that the TLAAs for CoC renewals should be based
on the CLB for the cask. The commenter described the CLB for the cask
as the ``original regulatory framework (i.e., the regulations, review
guidance, and the associated SER(s)) under which the cask design,
including amendments, was approved, plus any mandated or voluntary
changes applied thereafter, as tracked by the CoC holder and discussed
in the cask FSAR.'' The commenter requested that the NRC clarify that
at the time of renewal, the TLAAs do not have to adopt the latest
regulatory framework unless that is part of the cask's CLB.
Response
The amendments to this final rule do not include a definition for
CLB. The cask designs approved, both initially and for renewal, under
the provisions of subpart L of part 72 are generic in nature. The CLB
is appropriate for site specific licensing actions, not generic cask
designs.
The certificate holder must submit the TLAA when it applies for
renewal of a given CoC (for a CoC renewal that encompasses CoC
amendments that each may have different design basis, the certificate
holder will have to address how the TLAA applies to each CoC amendment
covered by the CoC). The TLAA is an implicit part of any new storage
canister evaluation even though it is not explicitly identified in the
existing regulations. This may be illustrated by consideration of
operationally induced degradation. Specifically, applicants must
consider operationally induced degradation and its effects as part of
the new design engineering process. Such an evaluation becomes part of
the applicants' demonstration that a new cask design will perform as
specified throughout its initial license period.
For a renewal, the applicant bears the same burden of showing that
the materials of construction (or components) will perform as required
during the extended operational period. This extended operational life
may not have been addressed in the original design consideration.
Consequently, TLAAs (and other issues) were explicitly identified in
the proposed regulations. The evaluation effort for renewal shifts its
focus from material selection, as would be the case for a new design
certification, to existing material condition/degradation assessment.
The NRC staff determined that this subtle but important distinction be
clearly identified.
Comment 22
A commenter requested that the NRC clarify what is meant by the
term ``site aging issues,'' as stated in Section II, ``Discussion,''
Question ``AA'' of the proposed rule. The commenter stated that CoC
holders should identify the cask design features that are subject to
age-related degradation and address them in a bounding manner for use
of a cask beyond the initial CoC term. The commenter suggested that
cask users review the CoC holder's aging analysis and perform their own
analyses to supplement or supersede the CoC holder's generic analysis.
Response
To clarify the NRC's intent, the statement in the response to
Section II, ``Discussion,'' Question ``AA'' of the proposed rule should
have read: ``Site specific aging issues'' rather than ``site aging
issues.'' The NRC asked whether the requirement for an AMP for CoC
renewals should fully address possible aging issues related to a
general licensee's specific site (e.g., different environmental
conditions).
The NRC agrees with the comment that CoC holders should identify
the cask design features that are subject to age-related degradation
and address them in a bounding manner for use of a cask beyond the
initial CoC term. The NRC further agrees that general licensees should
review the CoC holder's aging analysis and perform their own analyses
to supplement or impose upon themselves a more restrictive analysis,
but they cannot supersede the CoC holder's analysis. Therefore, the
general licensees' analyses would address possible aging issues at
their sites.
Question ``AA'' is not included in the SOC of this final rule
because it was intended only to solicit comments on the particular
items identified.
Comment 23
A commenter stated that AMP requirements, aging analyses, and other
technical documents should be evaluated for a 20-year license renewal
term instead of the proposed 40-year license renewal term.
Response
The basis for the NRC to increase specific ISFSI license terms from
not to exceed 20 years to not to exceed 40 years is discussed in
Question ``C'' of the ``Discussion'' section of the proposed rule. The
NRC staff concluded that, with appropriate aging management and
maintenance programs, license terms up to 40 years are reasonable and
provide adequate protection of public health and safety.
General Comments Regarding Spent Fuel Storage
Comment 24
A commenter disagreed with the proposed rule's allowance for
unlimited specific license renewals. The commenter expressed concern
that the ``indefinite nature of the length of time'' the NRC describes
for storage at an ISFSI could create a ``national landscape of ISFSIs''
at decommissioned sites. The commenter added that indefinite storage of
fuel at ISFSIs is in conflict with ``the Commission's long held policy
that it
[[Page 8885]]
`does not intend to support storage of spent fuel for an indefinitely
long period.' '' The commenter also suggested that the NRC clearly
state this policy in the Supplemental Information of the final rule
document so that the ``Commission's intent is clear and consistent
across its regulatory landscape, including its Waste Confidence
decision.'' The commenter stated that since 1998, the ``federal
government has had the obligation, by contract, to remove spent fuel
and greater than class C waste from'' nuclear power plant sites. The
commenter urged the NRC to maintain its expectation ``that these sites
and future like sites not proliferate and linger as de facto long-term
storage facilities.''
Response
Please see the response to Comment 3.
Comment 25
A commenter agreed with the NRC that, with appropriate aging
management and maintenance programs, 40-year licenses ``are reasonable
and protect public health and safety and the environment.''
Response
The NRC acknowledges the commenter's support for the not to exceed
40-year license terms.
Environmental Review
Comment 26
A commenter stated that it is unclear how the requirements of the
National Environmental Policy Act (NEPA) will be met. The commenter
asked if licensees are required to submit an environmental report with
their 40-year license renewal. The commenter concluded that license
renewals should include a public environmental review process, such as
a draft environmental assessment posted for public comment.
Response
The NRC implements its obligations under NEPA through its
regulations in 10 CFR part 51. When a licensee applies for the renewal
of a specific ISFSI license, the licensee is required to submit an
environmental report under Sec. 51.60(b)(1)(iii).
Under Sec. Sec. 51.26, 51.27, 51.28, 51.29, 51.73 and 51.74, if
the NRC prepares an environmental impact statement (EIS), the most
comprehensive of the NEPA analyses, public participation would be
required (the above provisions concern publication of a notice of
intent, scoping, a request for comments on the draft EIS, and
distribution of the draft EIS). If the NRC staff does not prepare an
EIS, as determined by NRC staff's environmental assessment (EA), it
will issue a finding of no significant impact (FONSI). The NRC may
issue the FONSI in draft form, which will include a request for public
comments (Sec. 51.33). Issuing a draft FONSI is discretionary with the
NRC. After a FONSI is finalized, it must be published in the Federal
Register (Sec. 51.35).
Miscellaneous Items and Rule Language Revisions
Comment 27
A commenter stated that, contrary to the first sentence of Section
II, ``Discussion,'' Question ``K'' of the proposed rule, the current
regulations do not require general licensees to maintain or submit a
cask loading schedule to the NRC. The commenter requested that the NRC
delete this language or revise the wording.
Response
The intent of the response to Question ``K'' of the proposed rule
was to inform readers that general licensees keep track of loading and
expiration dates of each loaded cask. The NRC understands, however,
that this is not an express regulatory requirement. As such, the NRC
has rephrased Question ``K'' to ask how the NRC tracks cask expiration
dates and has made clarifying changes to the response to Question
``K.'' The registration letters required by the regulations, as amended
by this final rule, provide the NRC with the requisite information to
track cask expiration dates.
Comment 28
A commenter suggested that in Section II, ``Discussion,'' Question
``T'' of the proposed rule, the regulation should include a provision
to permit licensees with existing Sec. 72.212 reports to maintain the
current regulatory numbering system and not have to revise these
reports to reflect the redesignated sections within the proposed
regulation.
Response
The NRC disagrees with the comment that a provision be added to the
regulations. There is no requirement to revise past Sec. 72.212
reports to reflect the redesignation of provisions in Sec. 72.212(b)
resulting from the amendments of this final rule. Past Sec. 72.212
reports can remain formatted to the regulation that was in effect at
the time the report was written. Section 72.212 reports written after
the effective date of this final rule must conform to the
redesignations in the final rule.
Comment 29
A commenter stated that the phrase ``no later than 30 days after
using (loading) that cask'' in Section II, ``Discussion,'' Question
``U'' of the proposed rule and Sec. 72.212(b)(2) is too vague. The
commenter suggested replacing the above language with the following:
``placing the cask in storage at the ISFSI'' to clearly establish a
start date.
Response
In response to the commenter, the NRC is not going to change the
rule text; this rule language has been in effect since 1990 without any
controversy. Rather, the NRC is clarifying its response to Question
``U'' of this document by removing the term ``loading'' from the
response. It is the NRC's position that the 30-day clock starts when
the loaded cask has been deployed in the ISFSI.
Comment 30
A commenter stated that the phrase ``casks of that design'' as used
in Sec. 72.212(a)(3) is unclear. The commenter recommended that the
phrase be clarified or revised to be consistent with the language used
earlier in the section, ``cask[s] fabricated under a Certificate of
Compliance.'' The commenter added that if the same meaning is not
intended, then the NRC should define the two phrases in Sec. 72.3.
Response
The NRC agrees with the comment that the terminology in Sec.
72.212(a)(3) is not consistent; the NRC intended for the meaning to be
the same in both instances. The NRC has revised Sec. 72.212(a)(3) and
it no longer contains the phrase ``casks of that design.''
Comment 31
A commenter asked whether ``cask user or user's representative,''
as used in Sec. 72.212(a)(3), is equivalent to the term ``any
licensee,'' as used in Sec. 72.240(a). The commenter concluded that if
these terms are equivalent, then the NRC should use the same term in
both sections of the rule.
Response
The final rule makes several revisions to Sec. 72.212(a)(3),
including deletion of the language referring to ``any cask user or
user's representative.'' The NRC staff concluded that this language was
redundant of the language in Sec. 72.240(a). This final rule also
revises Sec. 72.240(a) to allow a licensee, a licensee's
representative, or another certificate holder to apply for a cask
renewal in the event that the original
[[Page 8886]]
certificate holder is either no longer in business or chooses not to
apply for renewal of the cask.
Comment 32
A commenter requested that in Sec. 72.212(b)(8), the NRC change
``Sec. 50.59(c)(2)'' to ``Sec. 50.59(c).'' The commenter suggested
that the review of cask storage activities may require a full
evaluation under Sec. 50.59, which includes Sec. 50.59(c)(1).
Response
The NRC agrees with the comment. Section 72.212(b)(8) has been
changed accordingly.
Comment 33
A commenter asked whether the phrase ``a new protected area'' in
section Sec. 72.212(b)(9)(iii) only applies to an ISFSI located
outside a nuclear power plant's protected area. The commenter requested
that the NRC clarify this phrase.
Response
The phrase ``a new protected area'' in Sec. 72.212(b)(9)(iii)
applies only to an ISFSI that is physically separate from a reactor's
protected area. As a further point of clarification, all references to
``new protected area(s)'' in Sec. 72.212(b)(9) apply only to an ISFSI
physically separate from a reactor's protected area. The NRC notes that
the phrase ``new protected area'' has been part of the regulatory
language after the rule was promulgated in 1990. The intent of this
final rule is only to renumber Sec. 72.212(b)(5)(iii) to Sec.
72.212(b)(9)(iii). As additional background, the March 27, 2009, power
reactor security rule (74 FR 13926, 13970) revised Sec.
72.212(b)(5)(iii) to update the cross reference to the applicable part
73 section and add the word ``personnel'' before the word ``searches.''
Comment 34
A commenter stated that Sec. 72.212(b)(12) uses the terms ``cask
supplier'' and ``cask vendor.'' The commenter suggested that these
terms are inconsistent with the term ``CoC holder,'' which the NRC uses
elsewhere in the proposed rule. The commenter concluded that the
terminology should be consistent throughout the rule.
Response
The NRC agrees with the comment that the terminology should be
consistent. Therefore, the NRC has replaced the terms ``cask supplier''
and ``cask vendor'' in Sec. 72.212(b)(12) with the term ``CoC
holder.''
IV. Discussion of Final Amendments by Section
1. Section 72.3, Definitions
The final rule adds definitions for ``Aging management program,''
``Term certified by the cask's Certificate of Compliance,'' and ``Time-
limited aging analyses.''
2. Section 72.24, Contents of application; Technical information
The amendment to Sec. 72.24(c) requires applicants seeking initial
specific licenses or specific licensees seeking renewals to demonstrate
in sufficient detail that the design of the ISFSI or monitored
retrievable storage installation (MRS) is capable of performing the
intended functions for the term requested in the application.
3. Section 72.42, Duration of license; renewal
The amendment to Sec. 72.42(a) extends the term for both an
initial specific license and a license renewal from a term of not to
exceed 20 years to a term not to exceed 40 years. The final rule also
adds a requirement that specific licensees seeking renewals submit a
TLAA and a description of the AMP. Any license renewal application will
be required to include an analysis that considers the effects of aging
on SSCs important to safety for the requested renewal term.
The amendment to Sec. 72.42(b) requires license renewal
applications to include design bases information as documented in the
most recently updated FSAR, as required by Sec. 72.70.
4. Section 72.212, Conditions of general license issued under Sec.
72.210
The final rule makes several changes to Sec. 72.212. The final
rule revises Sec. 72.212(a)(3) to clarify the term of the general
license and to match the term of the general license to the term of the
applicable CoC. The final rule amendment also clarifies that the term
of the general license runs through any renewal periods, unless
otherwise specified in the CoC. In addition, the final rule also amends
Sec. 72.212(a)(3) to clarify the general license term for those casks
placed into service during the final renewal term of a CoC or during
the term of a CoC that was not renewed. The final rule amendment also
states that, upon expiration of the general license, all casks subject
to that general license must be removed from service.
The final rule amends Sec. 72.212(b) by redesignating and
reorganizing the provisions of that section. The following table cross
references the amended regulations with the regulations in effect
immediately prior to the effective date of this final rule. Use of
``modified'' in Table 1 refers to a section whose content has been
modified. Remaining table entries are either new provisions or
provisions that have been redesignated but whose content is unchanged.
Table 1--Cross Reference of Final Regulations With Prior Regulations
------------------------------------------------------------------------
Final rule Prior rule
------------------------------------------------------------------------
Sec. 72.212(b)(1).......... Sec. 72.212(b)(1)(i).
Sec. 72.212(b)(2).......... Sec. 72.212(b)(1)(ii) (modified).
Sec. 72.212(b)(3).......... New section not in prior rule.
Sec. 72.212(b)(4).......... New section not in prior rule.
Sec. 72.212(b)(5).......... Sec. 72.212(b)(2)(i) (modified).
Sec. 72.212(b)(5)(i)....... Sec. 72.212(b)(2)(i)(A).
Sec. 72.212(b)(5)(ii)...... Sec. 72.212(b)(2)(i)(B).
Sec. 72.212(b)(5)(iii)..... Sec. 72.212(b)(2)(i)(C).
Sec. 72.212(b)(6).......... Sec. 72.212(b)(3) (modified).
Sec. 72.212(b)(7).......... Sec. 72.212(b)(2)(ii) (modified).
Sec. 72.212(b)(8).......... Sec. 72.212(b)(4) (modified).
Sec. 72.212(b)(9).......... Sec. 72.212(b)(5).
Sec. 72.212(b)(9)(i)....... Sec. 72.212(b)(5)(i).
Sec. 72.212(b)(9)(ii)...... Sec. 72.212(b)(5)(ii).
Sec. 72.212(b)(9)(iii)..... Sec. 72.212(b)(5)(iii).
Sec. 72.212(b)(9)(iv)...... Sec. 72.212(b)(5)(iv).
Sec. 72.212(b)(9)(v)....... Sec. 72.212(b)(5)(v).
[[Page 8887]]
Sec. 72.212(b)(9)(vi)...... Sec. 72.212(b)(5)(vi).
Sec. 72.212(b)(10)......... Sec. 72.212(b)(6).
Sec. 72.212(b)(11)......... Sec. 72.212(b)(7) (modified).
Sec. 72.212(b)(12)......... Sec. 72.212(b)(8)(i).
Sec. 72.212(b)(12)(i)...... Sec. 72.212(b)(8)(i)(A).
Sec. 72.212(b)(12)(ii)..... Sec. 72.212(b)(8)(i)(B).
Sec. 72.212(b)(12)(iii).... Sec. 72.212(b)(8)(i)(C).
Sec. 72.212(b)(13)......... Sec. 72.212(b)(9).
Sec. 72.212(b)(14)......... Sec. 72.212(b)(10).
Sec. 72.212(c)............. Sec. 72.212(b)(8)(ii) (modified).
Sec. 72.212(d)............. Sec. 72.212(b)(8)(iii) (modified).
Sec. 72.212(e)............. Sec. 72.212(b)(1)(iii).
------------------------------------------------------------------------
The final rule redesignates current Sec. 72.212(b)(1)(i) as Sec.
72.212(b)(1) and makes minor editorial changes to this provision.
The final rule redesignates current Sec. 72.212(b)(1)(ii) as Sec.
72.212(b)(2) and further revises the provision to add a requirement
that general licensees, when registering a cask no later than 30 days
after loading, include the CoC amendment number, if applicable.
The final rule adds a new provision, Sec. 72.212(b)(3), that
requires general licensees to ensure that each cask used by the general
licensee conforms to the terms, conditions, and specifications of a CoC
or an amended CoC listed in Sec. 72.214. Partial or selective
application of the terms, conditions, and specifications of a CoC or an
amended CoC, without prior NRC approval, may result in a cask that is
in an unanalyzed condition and is therefore, prohibited.
The final rule adds a new provision, Sec. 72.212(b)(4), that
requires general licensees to register those previously loaded casks no
later than 30 days after applying the changes authorized by an amended
CoC.
The final rule revises Sec. 72.212(b)(2)(i) by requiring general
licensees to prepare written evaluations before applying the changes
authorized by an amended CoC to a previously loaded cask. Thus, the
revised rule requires a written evaluation before loading the cask with
spent fuel and an additional written evaluation before any changes
authorized by a CoC amendment are applied to a previously loaded cask.
The final rule redesignates current Sec. 72.212(b)(2)(i) as Sec.
72.212(b)(5).
The final rule revises Sec. 72.212(b)(2)(i) to state that the
written evaluation must establish that the cask, once loaded with spent
fuel or after changes authorized by an amended CoC have been applied,
will conform to the terms, conditions, and specifications of a CoC or
amended CoC listed in Sec. 72.214, and redesignates current Sec.
72.212(b)(2)(i)(A) as Sec. 72.212(b)(5)(i). The final rule
redesignates current Sec. Sec. 72.212(b)(2)(i)(B) and (C) as
Sec. Sec. 72.212(b)(5)(ii) and (iii), respectively.
The final rule redesignates current Sec. 72.212(b)(3) as Sec.
72.212(b)(6) and revises this provision to add a reference to an
amended CoC and to update the cross-reference to paragraph (b)(5).
The final rule redesignates current Sec. 72.212(b)(2)(ii) as Sec.
72.212(b)(7) and revises this provision to add a requirement to
evaluate any changes to the site parameters determination and analyses
required by Sec. 72.212(b)(6), using the requirements of Sec. 72.48.
The final rule redesignates current Sec. 72.212(b)(4) as Sec.
72.212(b)(8).
The final rule revises current Sec. 72.212(b)(5) to reflect
changes made by the final rulemakings dated October 24, 2008, and March
27, 2009, and redesignates current Sec. Sec. 72.212(b)(5) and (b)(6)
as Sec. Sec. 72.212(b)(9) and (b)(10), respectively (see ``Note on
October 24, 2008, and March 27, 2009, Final Rule Revisions to Sec.
72.212(b)(5), and Redesignation of Sec. 72.212(b)(5) to Sec.
72.212(b)(9)'' at the end of this Section IV, below).
The final rule redesignates current Sec. 72.212(b)(7) as Sec.
72.212(b)(11) and revises this provision to add references to an
amended CoC. The final rule also adds language to clarify that a
licensee must comply with the technical specifications of the CoC, in
addition to the terms and conditions of the CoC. Further, the revised
language requires the licensee to comply with the terms, conditions,
and specifications of the amended CoC for those casks to which the
licensee has applied the changes of an amended CoC. The revised
language further provides that licensees must also comply with the
requirements of any AMP put into effect as a condition of the NRC
approving a CoC renewal application.
The final rule redesignates current Sec. Sec. 72.212(b)(8)(i),
(b)(9), and (b)(10) as Sec. Sec. 72.212(b)(12), (b)(13), and (b)(14),
respectively.
The final rule redesignates current Sec. Sec. 72.212(b)(8)(ii),
(b)(8)(iii), and 72.212(b)(1)(iii) as Sec. Sec. 72.212(c), (d), and
(e), respectively, and makes conforming cross-reference changes.
5. Section 72.230, Procedures for spent fuel storage cask submittals
The final rule revises Sec. 72.230(b) by adding language that
establishes the term for a period not to exceed 40 years. The final
rule further amends Sec. 72.230(b) by replacing the words ``for a
period of at least 20 years'' with ``the term proposed in the
application.''
6. Section 72.236, Specific requirements for spent fuel storage cask
approval and fabrication
The final rule revises Sec. 72.236(g) by adding language that
requires spent fuel storage casks to be designed to store spent fuel
safely for the term proposed in the application, eliminating the
current language that requires the cask design to store spent fuel
safely for a minimum of 20 years.
7. Section 72.238, Issuance of an NRC Certificate of Compliance
The final rule revises Sec. 72.238 by adding language that
establishes the term for a CoC to be ``not to exceed 40 years.''
8. Section 72.240, Conditions for spent fuel storage cask renewal
The final rule revises the heading of Sec. 72.240 and the language
of Sec. Sec. 72.240(a), (b), and (d) by replacing the word
``reapproval'' with ``renewal.'' The final rule further revises Sec.
72.240(a) to establish that the CoC renewal term shall be ``not to
exceed 40 years.'' The final rule also revises Sec. 72.240(a) to
clarify that in the event that a certificate holder does not apply for
a CoC renewal, any general licensee that uses this cask model under the
general license issued under Sec. 72.210, any licensee's
representative, or another
[[Page 8888]]
certificate holder may apply for renewal of the CoC.
The final rule adds a new Sec. 72.240(c) to require the safety
analysis report accompanying the renewal application to include design
bases information as documented in the most recently updated FSAR, a
TLAA of SSCs important to safety, and a description of the program for
management of issues associated with aging that could adversely affect
structures, systems, and components important to safety. The final rule
redesignates Sec. 72.240(c) as Sec. 72.240(d) and revises this
provision to add a requirement that any CoC renewal application must
demonstrate compliance with the QA provisions of subpart G of part 72.
The final rule also revises the last sentence of the provision to
improve its readability.
The final rule adds a new Sec. 72.240(e) that states the NRC may,
as part of the approval of a CoC renewal application, revise the terms,
conditions, and specifications of the CoC to require that the licensee
implement an AMP.
Note on October 24, 2008, and March 27, 2009, Final Rule Revisions
to Sec. 72.212(b)(5), and Redesignation of Sec. 72.212(b)(5) to Sec.
72.212(b)(9):
This final rule redesignates Sec. 72.212(b)(5) as Sec.
72.212(b)(9). On October 24, 2008 (73 FR 63545, 63573), the NRC issued
a final rule, ``Protection of Safeguards Information,'' that revised
Sec. 72.212 by adding a new Sec. 72.212(b)(5)(v) and redesignated the
existing Sec. 72.212(b)(5)(v) as Sec. 72.212(b)(5)(vi). The new Sec.
72.212(b)(5)(v) added language requiring a general licensee to
``protect Safeguards Information against unauthorized disclosure in
accordance with the requirements of Sec. 73.21 and the requirements of
Sec. 73.22 or Sec. 73.23 of this chapter, as applicable.'' The
redesignated Sec. 72.212(b)(5)(vi) was otherwise unchanged and
continued to require ``for the purpose of this general license, the
licensee is exempt from Sec. Sec. 73.55(h)(4)(iii)(A) and 73.55(h)(5)
of this chapter.'' These two cross referenced paragraphs dealt with
reactor security requirements to (1) neutralize threats by interposing
armed security personnel between the adversaries and reactor vital
areas and (2) use force to prevent or impede attempted acts of theft of
special nuclear material or radiological sabotage; and the NRC has
historically not applied these requirements to ISFSI general licensees.
On March 27, 2009 (74 FR 13925, 13970), the NRC published a final
rule, ``Power Reactor Security Requirements,'' which included a
conforming change to the security requirements contained in Sec.
72.212(b)(5)(ii)-(v). The changes to Sec. 72.212(b)(5)(ii)-(v) in the
March 2009 final rule were intended to clarify these regulations to
better use plain language and to update the exemption cross references
to the reactor security regulations contained in Sec. 73.55, due to
the extensive revision of Sec. 73.55.
In the March 2009 final rule, the NRC revised Sec. 72.212(b)(5)(v)
to update the exemption language to read ``[f]or the purpose of this
general license, the licensee is exempt from requirements to interdict
and neutralize threats in Sec. 73.55 of this chapter.'' However, the
amendatory language in the 2009 final rule (74 FR 13970, Item 8) which
read ``[i]n Sec. 72.212, paragraphs (b)(5)(ii), (b)(5)(iii),
(b)(5)(iv), and (b)(5)(v) are revised to read as follows:'' should
instead have read ``[i]n Sec. 72.212, paragraphs (b)(5)(ii),
(b)(5)(iii), (b)(5)(iv), and (b)(5)(vi) are revised to read as
follows:'' (emphasis added). Consequently, the NRC staff in developing
the March 2009 final rule both (1) unintentionally eliminated language
that had been added by the Commission in the October 2008 final rule
that required general ISFSI licensees to protect Safeguards
Information; and (2) unintentionally retained the incorrect exemption
language in Sec. 72.212(b)(5)(vi) (referring to Sec. Sec.
73.55(h)(4)(iii)(A) and 73.55(h)(5)). The provision designated as Sec.
72.212(b)(5)(v) by the March 2009 final rule was intended to replace
Sec. 72.212(b)(5)(vi), but did not accomplish that because of the
above described mistake in the amendatory language.
Accordingly, to correct these errors, this final rule removes Sec.
72.212(b)(5)(vi) (which was put in place by the October 24, 2008, final
rule) and reinstates the provision added by the October 24, 2008, rule
and then deleted by the March 27, 2009, rule, as a new Sec.
72.212(b)(9)(vi). The remaining provisions of Sec. 72.212(b)(5) are
redesignated from Sec. 72.212(b)(5)(i)-(v) to Sec. 72.212(b)(9)(i)-
(v).
V. Criminal Penalties
For the purpose of Section 223 of the Atomic Energy Act (AEA), the
Commission is amending 10 CFR part 72 under one or more of Sections
161b, 161i, or 161o of the AEA. Willful violations of the rule would be
subject to criminal enforcement.
VI. Agreement State Compatibility
Under the ``Policy Statement on Adequacy and Compatibility of
Agreement State Programs'' approved by the Commission on June 30, 1997,
and published in the Federal Register (62 FR 46517; September 3, 1997),
this rule is classified as Compatibility Category ``NRC.''
Compatibility is not required for Category ``NRC'' regulations. The NRC
program elements in this category are those that relate directly to
areas of regulation reserved to the NRC by the AEA, as amended, or the
provisions of Title 10 of the CFR. Although an Agreement State may not
adopt program elements reserved to NRC, it may wish to inform its
licensees of certain requirements via a mechanism that is consistent
with the particular State's administrative procedure laws but does not
confer regulatory authority on the State.
VII. Voluntary Consensus Standards
The National Technology Transfer Act of 1995 (Pub. L. 104-113)
requires that Federal agencies use technical standards that are
developed or adopted by voluntary consensus standards bodies unless
using such a standard is inconsistent with applicable law or otherwise
impractical. In this final rule, the NRC is clarifying the terms for
spent fuel storage cask designs, or CoCs, and ISFSI licenses. In
addition, the final action also allows part 72 general licensees to
implement changes authorized by an amended CoC to a cask loaded under
the initial CoC or an earlier amended CoC (a ``previously loaded
cask''). This action does not constitute the establishment of a
standard that establishes generally applicable requirements. For this
reason, the NRC concludes that the Act does not apply to this final
rule.
VIII. Finding of No Significant Environmental Impact: Availability
The Commission has determined under the National Environmental
Policy Act of 1969, as amended, and the Commission's regulations in
subpart A of 10 CFR part 51, not to prepare an environmental impact
statement for this final rule because the Commission has concluded on
the basis of an environmental assessment that this final rule would not
be a major Federal action significantly affecting the quality of the
human environment. The NRC has prepared an environmental assessment
and, on the basis of this environmental assessment, has made a finding
of no significant impact. The amendments are procedural in nature
whereby extended license and CoC terms and the implementation of CoC
amendments to previously loaded casks could be achieved by exemptions
under the current regulations. They will not have a significant
incremental effect on the environment. Therefore, the NRC has
determined that an environmental
[[Page 8889]]
impact statement is not necessary for this rulemaking.
The determination of this environmental assessment is that there
will be no significant impact to the public from this action.
This conclusion was published in the environmental assessment that
was made available for comment for 75 days after publication of the
proposed rule at the NRC Public Document Room, Room O1-F21, 11555
Rockville Pike, Rockville, MD 20852. No comments were received on the
content of the environmental assessment. The environmental assessment
is also available in ADAMS, accession number ML100710441.
IX. Paperwork Reduction Act Statement
This rule contains new or amended information collection
requirements that are subject to the Paperwork Reduction Act of 1995
(44 U.S.C. 3501 et seq.). These requirements were approved by the
Office of Management and Budget, control number 3150-0132. The burden
to the public for these information collections is estimated to average
-0.33 hours per response (or a reduction of approximately 1 hour for
every three responses).
Send comments on any aspect of these information collections,
including suggestions for reducing the burden, to the Information
Services Branch (T-5 F52), U.S. Nuclear Regulatory Commission,
Washington, DC 20555-0001, or by Internet electronic mail to
[email protected] and to the Desk Officer, Christine Kymn,
Office of Information and Regulatory Affairs, NEOB-10202, (3150-0132),
Office of Management and Budget, Washington, DC 20503. You may also e-
mail comments to [email protected] or comment by telephone
at 202-395-4638.
Public Protection Notification
The NRC may not conduct or sponsor, and a person is not required to
respond to, a request for information or an information collection
requirement unless the requesting document displays a currently valid
OMB control number.
X. Regulatory Analysis
The Commission has prepared a regulatory analysis on this
regulation. The analysis examines the costs and benefits of the
alternatives considered by the Commission. The analysis is available in
the NRC Public Document Room, Room O1-F21, 11555 Rockville Pike,
Rockville, MD 20852, and in ADAMS, Accession Number ML100710139. As
part of the proposed rule, the NRC sought public comments on the draft
regulatory analysis. The NRC did not receive any comments that
addressed the regulatory analysis.
XI. Regulatory Flexibility Certification
Under the Regulatory Flexibility Act of 1980 (5 U.S.C. 605(b)), the
Commission certifies that this rule does not have a significant
economic impact on a substantial number of small entities. The majority
of companies that own these plants do not fall within the scope of the
definition of ``small entities'' set forth in the Regulatory
Flexibility Act or the size standards established by the NRC (10 CFR
2.810).
XII. Backfit Analysis
The NRC has determined that the backfit rule (Sec. Sec. 50.109,
72.62, and the finality provisions of 10 CFR part 52) does not apply to
this final rule because these amendments do not involve any provisions
that would impose backfits as defined in 10 CFR chapter I. These
amendments do not require the addition, elimination, or modification of
structures, systems, or components of an ISFSI or of the procedures or
organization required to operate an ISFSI. Therefore, a backfit
analysis is not required.
XIII. Congressional Review Act
Under the Congressional Review Act of 1996, the NRC has determined
that this action is not a major rule and has verified this
determination with the Office of Information and Regulatory Affairs of
OMB.
List of Subjects in 10 CFR Part 72
Administrative practice and procedure, Hazardous waste, Nuclear
materials, Occupational safety and health, Penalties, Radiation
protection, Reporting and recordkeeping requirements, Security
measures, Spent fuel, Whistle blowing.
For the reasons set out in the preamble and under the authority of
the Atomic Energy Act of 1954, as amended; the Energy Reorganization
Act of 1974, as amended; the Nuclear Waste Policy Act of 1982, as
amended; and 5 U.S.C. 552 and 553; the NRC is adopting the following
amendments to 10 CFR part 72.
PART 72--LICENSING REQUIREMENTS FOR THE INDEPENDENT STORAGE OF
SPENT NUCLEAR FUEL, HIGH-LEVEL RADIOACTIVE WASTE, AND REACTOR-
RELATED GREATER THAN CLASS C WASTE
0
1. The authority citation for part 72 continues to read as follows:
Authority: Secs. 51, 53, 57, 62, 63, 65, 69, 81, 161, 182, 183,
184, 186, 187, 189, 68 Stat. 929, 930, 932, 933, 934, 935, 948, 953,
954, 955, as amended, sec. 234, 83 Stat. 444, as amended (42 U.S.C.
2071, 2073, 2077, 2092, 2093, 2095, 2099, 2111, 2201, 2232, 2233,
2234, 2236, 2237, 2238, 2282); sec. 274, Pub. L. 86-373, 73 Stat.
688, as amended (42 U.S.C. 2021); sec. 201, as amended, 202, 206, 88
Stat. 1242, as amended, 1244, 1246 (42 U.S.C. 5841, 5842, 5846);
Pub. L. 95-601, sec. 10, 92 Stat. 2951 as amended by Pub. L. 102-
486, sec. 7902, 106 Stat. 3123 (42 U.S.C. 5851); sec. 102, Pub. L.
91-190, 83 Stat. 853 (42 U.S.C. 4332); secs. 131, 132, 133, 135,
137, 141, Pub. L. 97-425, 96 Stat. 2229, 2230, 2232, 2241, sec. 148,
Pub. L. 100-203, 101 Stat. 1330-235 (42 U.S.C. 10151, 10152, 10153,
10155, 10157, 10161, 10168); sec. 1704, 112 Stat. 2750 (44 U.S.C.
3504 note); sec. 651(e), Pub. L. 109-58, 119 Stat. 806-10 (42 U.S.C.
2014, 2021, 2021b, 2111).
Section 72.44(g) also issued under secs. 142(b) and 148(c), (d),
Pub. L. 100-203, 101 Stat. 1330-232, 1330-236 (42 U.S.C. 10162(b),
10168(c), (d)). Section 72.46 also issued under sec. 189, 68 Stat.
955 (42 U.S.C. 2239); sec. 134, Pub. L. 97-425, 96 Stat. 2230 (42
U.S.C. 10154). Section 72.96(d) also issued under sec. 145(g), Pub.
L. 100-203, 101 Stat. 1330-235 (42 U.S.C. 10165(g)). Subpart J also
issued under secs. 2(2), 2(15), 2(19), 117(a), 141(h), Pub. L. 97-
425, 96 Stat. 2202, 2203, 2204, 2222, 2224 (42 U.S.C. 10101,
10137(a), 10161(h)). Subparts K and L are also issued under sec.
133, 98 Stat. 2230 (42 U.S.C. 10153) and sec. 218(a), 96 Stat. 2252
(42 U.S.C. 10198).
0
2. In Sec. 72.3, definitions for AMP, Term certified by the cask's
Certificate of Compliance, and TLAAs are added in alphabetical order to
read as follows:
Sec. 72.3 Definitions.
* * * * *
AMP, for the purposes of this part, means a program for addressing
aging effects that may include prevention, mitigation, condition
monitoring, and performance monitoring.
* * * * *
Term certified by the cask's Certificate of Compliance, for the
purposes of this part, means, for an initial CoC, the period of time
commencing with the CoC effective date and ending with the CoC
expiration date, and for a renewed CoC, the period of time commencing
with the most recent CoC renewal date and ending with the CoC
expiration date.
[[Page 8890]]
TLAAs, for the purposes of this part, means those licensee or
certificate holder calculations and analyses that:
(1) Involve structures, systems, and components important to safety
within the scope of the license renewal, as delineated in subpart F of
this part, or within the scope of the spent fuel storage certificate
renewal, as delineated in subpart L of this part, respectively;
(2) Consider the effects of aging;
(3) Involve time-limited assumptions defined by the current
operating term, for example, 40 years;
(4) Were determined to be relevant by the licensee or certificate
holder in making a safety determination;
(5) Involve conclusions or provide the basis for conclusions
related to the capability of structures, systems, and components to
perform their intended safety functions; and
(6) Are contained or incorporated by reference in the design bases.
0
3. In Sec. 72.24, revise the introductory text of paragraph (c) to
read as follows:
Sec. 72.24 Contents of application: Technical information.
* * * * *
(c) The design of the ISFSI or MRS in sufficient detail to support
the findings in Sec. 72.40 for the term requested in the application,
including:
* * * * *
0
4. In Sec. 72.42, revise paragraphs (a) and (b) to read as follows:
Sec. 72.42 Duration of license; renewal.
(a) Each license issued under this part must be for a fixed period
of time to be specified in the license. The license term for an ISFSI
must not exceed 40 years from the date of issuance. The license term
for an MRS must not exceed 40 years from the date of issuance. Licenses
for either type of installation may be renewed by the Commission at the
expiration of the license term upon application by the licensee for a
period not to exceed 40 years and under the requirements of this rule.
Application for ISFSI license renewals must include the following:
(1) TLAAs that demonstrate that structures, systems, and components
important to safety will continue to perform their intended function
for the requested period of extended operation; and
(2) A description of the AMP for management of issues associated
with aging that could adversely affect structures, systems, and
components important to safety.
(b) Applications for renewal of a license should be filed in
accordance with the applicable provisions of subpart B of this part at
least 2 years before the expiration of the existing license. The
application must also include design bases information as documented in
the most recently updated FSAR as required by Sec. 72.70. Information
contained in previous applications, statements, or reports filed with
the Commission under the license may be incorporated by reference
provided that these references are clear and specific.
* * * * *
5. In Sec. 72.212, revise paragraphs (a)(3) and (b) and add
paragraphs (c), (d), and (e) to read as follows:
Sec. 72.212 Conditions of general license issued under Sec. 72.210.
(a) * * *
(3) The general license for the storage of spent fuel in each cask
fabricated under a Certificate of Compliance shall commence upon the
date that the particular cask is first used by the general licensee to
store spent fuel, shall continue through any renewals of the
Certificate of Compliance, unless otherwise specified in the
Certificate of Compliance, and shall terminate when the cask's
Certificate of Compliance expires. For any cask placed into service
during the final renewal term of a Certificate of Compliance, or during
the term of a Certificate of Compliance that was not renewed, the
general license for that cask shall terminate after a storage period
not to exceed the length of the term certified by the cask's
Certificate of Compliance. Upon expiration of the general license, all
casks subject to that general license must be removed from service.
(b) The general licensee must:
(1) Notify the Nuclear Regulatory Commission using instructions in
Sec. 72.4 at least 90 days before first storage of spent fuel under
this general license. The notice may be in the form of a letter, but
must contain the licensee's name, address, reactor license and docket
numbers, and the name and means of contacting a person responsible for
providing additional information concerning spent fuel under this
general license. A copy of the submittal must be sent to the
administrator of the appropriate Nuclear Regulatory Commission regional
office listed in appendix D to part 20 of this chapter.
(2) Register use of each cask with the Nuclear Regulatory
Commission no later than 30 days after using that cask to store spent
fuel. This registration may be accomplished by submitting a letter
using instructions in Sec. 72.4 containing the following information:
the licensee's name and address, the licensee's reactor license and
docket numbers, the name and title of a person responsible for
providing additional information concerning spent fuel storage under
this general license, the cask certificate number, the CoC amendment
number to which the cask conforms, unless loaded under the initial
certificate, cask model number, and the cask identification number. A
copy of each submittal must be sent to the administrator of the
appropriate Nuclear Regulatory Commission regional office listed in
appendix D to part 20 of this chapter.
(3) Ensure that each cask used by the general licensee conforms to
the terms, conditions, and specifications of a CoC or an amended CoC
listed in Sec. 72.214.
(4) In applying the changes authorized by an amended CoC to a cask
loaded under the initial CoC or an earlier amended CoC, register each
such cask with the Nuclear Regulatory Commission no later than 30 days
after applying the changes authorized by the amended CoC. This
registration may be accomplished by submitting a letter using
instructions in Sec. 72.4 containing the following information: the
licensee's name and address, the licensee's reactor license and docket
numbers, the name and title of a person responsible for providing
additional information concerning spent fuel storage under this general
license, the cask certificate number, the CoC amendment number to which
the cask conforms, cask model number, and the cask identification
number. A copy of each submittal must be sent to the administrator of
the appropriate Nuclear Regulatory Commission regional office listed in
appendix D to part 20 of this chapter.
(5) Perform written evaluations, before use and before applying the
changes authorized by an amended CoC to a cask loaded under the initial
CoC or an earlier amended CoC, which establish that:
(i) The cask, once loaded with spent fuel or once the changes
authorized by an amended CoC have been applied, will conform to the
terms, conditions, and specifications of a CoC or an amended CoC listed
in Sec. 72.214;
(ii) Cask storage pads and areas have been designed to adequately
support the static and dynamic loads of the stored casks, considering
potential amplification of earthquakes through soil-structure
interaction, and soil liquefaction potential or other soil instability
due to vibratory ground motion; and
(iii) The requirements of Sec. 72.104 have been met. A copy of
this record shall be retained until spent fuel is no longer stored
under the general license issued under Sec. 72.210.
[[Page 8891]]
(6) Review the Safety Analysis Report referenced in the CoC or
amended CoC and the related NRC Safety Evaluation Report, prior to use
of the general license, to determine whether or not the reactor site
parameters, including analyses of earthquake intensity and tornado
missiles, are enveloped by the cask design bases considered in these
reports. The results of this review must be documented in the
evaluation made in paragraph (b)(5) of this section.
(7) Evaluate any changes to the written evaluations required by
paragraphs (b)(5) and (b)(6) of this section using the requirements of
Sec. 72.48(c). A copy of this record shall be retained until spent
fuel is no longer stored under the general license issued under Sec.
72.210.
(8) Before use of the general license, determine whether activities
related to storage of spent fuel under this general license involve a
change in the facility Technical Specifications or require a license
amendment for the facility pursuant to Sec. 50.59(c) of this chapter.
Results of this determination must be documented in the evaluations
made in paragraph (b)(5) of this section.
(9) Protect the spent fuel against the design basis threat of
radiological sabotage in accordance with the same provisions and
requirements as are set forth in the licensee's physical security plan
pursuant to Sec. 73.55 of this chapter with the following additional
conditions and exceptions:
(i) The physical security organization and program for the facility
must be modified as necessary to assure that activities conducted under
this general license do not decrease the effectiveness of the
protection of vital equipment in accordance with Sec. 73.55 of this
chapter;
(ii) Storage of spent fuel must be within a protected area, in
accordance with Sec. 73.55(e) of this chapter, but need not be within
a separate vital area. Existing protected areas may be expanded or new
protected areas added for the purpose of storage of spent fuel in
accordance with this general license;
(iii) For the purpose of this general license, personnel searches
required by Sec. 73.55(h) of this chapter before admission to a new
protected area may be performed by physical pat-down searches of
persons in lieu of firearms and explosives detection equipment;
(iv) The observational capability required by Sec. 73.55(i)(3) of
this chapter as applied to a new protected area may be provided by a
guard or watchman on patrol in lieu of video surveillance technology;
(v) For the purpose of this general license, the licensee is exempt
from requirements to interdict and neutralize threats in Sec. 73.55 of
this chapter; and
(vi) Each general licensee that receives and possesses power
reactor spent fuel and other radioactive materials associated with
spent fuel storage shall protect Safeguards Information against
unauthorized disclosure in accordance with the requirements of Sec.
73.21 and the requirements of Sec. 73.22 or Sec. 73.23 of this
chapter, as applicable.
(10) Review the reactor emergency plan, quality assurance program,
training program, and radiation protection program to determine if
their effectiveness is decreased and, if so, prepare the necessary
changes and seek and obtain the necessary approvals.
(11) Maintain a copy of the CoC and, for those casks to which the
licensee has applied the changes of an amended CoC, the amended CoC,
and the documents referenced in such Certificates, for each cask model
used for storage of spent fuel, until use of the cask model is
discontinued. The licensee shall comply with the terms, conditions, and
specifications of the CoC and, for those casks to which the licensee
has applied the changes of an amended CoC, the terms, conditions, and
specifications of the amended CoC, including but not limited to, the
requirements of any AMP put into effect as a condition of the NRC
approval of a CoC renewal application in accordance with Sec. 72.240.
(12) Accurately maintain the record provided by the CoC holder for
each cask that shows, in addition to the information provided by the
CoC holder, the following:
(i) The name and address of the CoC holder or lessor;
(ii) The listing of spent fuel stored in the cask; and
(iii) Any maintenance performed on the cask.
(13) Conduct activities related to storage of spent fuel under this
general license only in accordance with written procedures.
(14) Make records and casks available to the Commission for
inspection.
(c) The record described in paragraph (b)(12) of this section must
include sufficient information to furnish documentary evidence that any
testing and maintenance of the cask has been conducted under an NRC-
approved quality assurance program.
(d) In the event that a cask is sold, leased, loaned, or otherwise
transferred to another registered user, the record described in
paragraph (b)(12) of this section must also be transferred to and must
be accurately maintained by the new registered user. This record must
be maintained by the current cask user during the period that the cask
is used for storage of spent fuel and retained by the last user until
decommissioning of the cask is complete.
(e) Fees for inspections related to spent fuel storage under this
general license are those shown in Sec. 170.31 of this chapter.
0
6. In Sec. 72.230, revise paragraph (b) to read as follows:
Sec. 72.230 Procedures for spent fuel storage cask submittals.
* * * * *
(b) Casks that have been certified for transportation of spent fuel
under part 71 of this chapter may be approved for storage of spent fuel
under this subpart. An application must be submitted in accordance with
the instructions contained in Sec. 72.4, for a proposed term not to
exceed 40 years. A copy of the CoC issued for the cask under part 71 of
this chapter, and drawings and other documents referenced in the
certificate, must be included with the application. A safety analysis
report showing that the cask is suitable for storage of spent fuel, for
the term proposed in the application, must also be included.
* * * * *
0
7. In Sec. 72.236, revise paragraph (g) to read as follows:
Sec. 72.236 Specific requirements for spent fuel storage cask
approval and fabrication.
* * * * *
(g) The spent fuel storage cask must be designed to store the spent
fuel safely for the term proposed in the application, and permit
maintenance as required.
* * * * *
0
8. Revise Sec. 72.238 to read as follows:
Sec. 72.238 Issuance of an NRC Certificate of Compliance.
A Certificate of Compliance for a cask model will be issued by NRC
for a term not to exceed 40 years on a finding that the requirements in
Sec. 72.236(a) through (i) are met.
0
9. Revise Sec. 72.240 to read as follows:
Sec. 72.240 Conditions for spent fuel storage cask renewal.
(a) The certificate holder may apply for renewal of the design of a
spent fuel storage cask for a term not to exceed 40 years. In the event
that the certificate holder does not apply for a cask design renewal,
any licensee using a spent fuel storage cask, a representative of such
licensee, or another certificate holder may apply for a renewal of that
cask design for a term not to exceed 40 years.
(b) The application for renewal of the design of a spent fuel
storage cask must be submitted not less than 30 days before the
expiration date of the CoC.
[[Page 8892]]
When the applicant has submitted a timely application for renewal, the
existing CoC will not expire until the application for renewal has been
determined by the NRC.
(c) The application must be accompanied by a safety analysis report
(SAR). The SAR must include the following:
(1) Design bases information as documented in the most recently
updated final safety analysis report (FSAR) as required by Sec.
72.248;
(2) Time-limited aging analyses that demonstrate that structures,
systems, and components important to safety will continue to perform
their intended function for the requested period of extended operation;
and
(3) A description of the AMP for management of issues associated
with aging that could adversely affect structures, systems, and
components important to safety.
(d) The design of a spent fuel storage cask will be renewed if the
conditions in subpart G of this part and Sec. 72.238 are met, and the
application includes a demonstration that the storage of spent fuel has
not, in a significant manner, adversely affected structures, systems,
and components important to safety.
(e) In approving the renewal of the design of a spent fuel storage
cask, the NRC may revise the CoC to include terms, conditions, and
specifications that will ensure the safe operation of the cask during
the renewal term, including but not limited to, terms, conditions, and
specifications that will require the implementation of an AMP.
Dated at Rockville, Maryland this 10th day of February, 2011.
For the Nuclear Regulatory Commission.
Annette Vietti-Cook,
Secretary of the Commission.
[FR Doc. 2011-3493 Filed 2-15-11; 8:45 am]
BILLING CODE 7590-01-P