[Federal Register Volume 87, Number 247 (Tuesday, December 27, 2022)]
[Notices]
[Pages 79372-79375]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-28115]
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NUCLEAR REGULATORY COMMISSION
[Docket Nos. 50-219 and 72-15; NRC-2022-0192]
Holtec Decommissioning International, LLC; Oyster Creek Nuclear
Generating Station
AGENCY: Nuclear Regulatory Commission.
ACTION: Exemption; issuance.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) has issued an
exemption in response to an August 2, 2022 request from Holtec
Decommissioning International, LLC (HDI) that would permit HDI to
investigate and report to the NRC when the Oyster Creek Nuclear
Generating Station does not receive notification of receipt of a
shipment, or part of a shipment, of low-level radioactive waste within
90 days after transfer, instead of the 20-day investigation requirement
currently delineated in the NRC's regulations.
DATES: The exemption was issued on December 15, 2022, and was effective
upon issuance.
ADDRESSES: Please refer to Docket ID NRC-2022-0192 when contacting the
NRC about the availability of information regarding this document. You
may obtain publicly available information related to this document
using any of the following methods:
Federal Rulemaking website: Go to https://www.regulations.gov and search for Docket ID NRC-2022-0192. Address
questions about Docket IDs in Regulations.gov to Stacy Schumann;
telephone: 301-415-0624; email: [email protected]. For technical
questions, contact the individual listed in the For Further Information
Contact section of this document.
[[Page 79373]]
NRC's Agencywide Documents Access and Management System
(ADAMS): You may obtain publicly available documents online in the
ADAMS Public Documents collection at https://www.nrc.gov/reading-rm/adams.html. To begin the search, select ``Begin Web-based ADAMS
Search.'' For problems with ADAMS, please contact the NRC's Public
Document Room (PDR) reference staff at 1-800-397-4209, 301-415-4737, or
by email to [email protected]. The ADAMS accession number for each
document referenced (if it is available in ADAMS) is provided the first
time that it is mentioned in this document.
NRC's PDR: You may examine and purchase copies of public
documents, by appointment, at the NRC's PDR, Room P1 B35, One White
Flint North, 11555 Rockville Pike, Rockville, Maryland 20852. To make
an appointment to visit the PDR, please send an email to
[email protected] or call 1-800-397-4209 or 301-415-4737, between
8:00 a.m. and 4:00 p.m. Eastern Time (ET), Monday through Friday,
except Federal holidays.
FOR FURTHER INFORMATION CONTACT: Marlayna V. Doell, Office of Nuclear
Material Safety and Safeguards, U.S. Nuclear Regulatory Commission,
Washington, DC 20555-0001; telephone: 301-415-3178; email:
[email protected].
SUPPLEMENTARY INFORMATION: The text of the exemption is attached.
Dated: December 20, 2022.
For the Nuclear Regulatory Commission.
Marlayna V. Doell,
Project Manager, Reactor Decommissioning Branch, Division of
Decommissioning, Uranium Recovery and Waste Programs, Office of Nuclear
Material Safety and Safeguards.
Attachment--Exemption
NUCLEAR REGULATORY COMMISSION
Docket Nos. 50-219 and 72-15
Holtec Decommissioning International, LLC
Oyster Creek Nuclear Generating Station
Exemption from Certain Low-Level Waste Shipment Tracking Requirements
of 10 CFR part 20, Appendix G, Section III.E
I. Background.
The decommissioning Oyster Creek Nuclear Generating Station (Oyster
Creek) facility consists of a permanently shutdown and defueled
boiling-water reactor and a dry cask Independent Spent Fuel Storage
Installation (ISFSI) located in the town of Forked River in Ocean
County, New Jersey. By letter dated February 14, 2018 (Agencywide
Documents Access and Management System [ADAMS] Accession No.
ML18045A084), Exelon Generation Company, LLC (Exelon), which was the
licensee at the time, submitted certification to the U.S. Nuclear
Regulatory Commission (NRC or the Commission) indicating its intention
to permanently cease power operations at Oyster Creek pursuant to Title
10 of the Code of Federal Regulations (10 CFR) Section 50.82(a)(1)(i).
By letter dated September 25, 2018 (ML18268A258), Exelon certified
to the NRC that as of September 17, 2018, operations had ceased at
Oyster Creek, and that pursuant to 10 CFR 50.82(a)(1)(ii) all fuel had
been removed from the reactor vessel. Effective July 1, 2019, the
Oyster Creek Renewed Facility Operating License (RFOL) No. DPR-16, and
the general license for the Oyster Creek ISFSI were transferred from
Exelon to Oyster Creek Environmental Protection, LLC (OCEP), as the
licensed owner and to Holtec Decommissioning International, LLC (HDI),
as the licensed decommissioning operator.
Based on the docketing of these certifications for permanent
cessation of operations and permanent removal of fuel from the reactor
vessel, as specified in 10 CFR 50.82(a)(2), the renewed facility
operating license for Oyster Creek no longer authorizes operation of
the reactor or emplacement or retention of fuel in the reactor vessel.
The facility is still authorized to possess and store irradiated (i.e.,
spent) nuclear fuel. Spent fuel is currently stored onsite at the
Oyster Creek facility in the ISFSI. By letter dated May 21, 2021
(ML21160A065), HDI certified that all spent nuclear fuel assemblies
were permanently transferred out of the Oyster Creek spent fuel pool
and placed in storage within the onsite ISFSI.
By letter dated May 21, 2018 (ML18141A775), as supplemented by
letter dated September 24, 2018 (ML18267A216), Exelon submitted to the
NRC the Post-Shutdown Decommissioning Activities Report (PSDAR),
including the site-specific Decommissioning Cost Estimate (DCE), for
Oyster Creek, pursuant to 10 CFR 50.82, ``Termination of license.'' The
PSDAR outlined the planned decommissioning activities for Oyster Creek,
and Exelon selected the SAFSTOR method for decommissioning. By letter
dated September 28, 2018 (ML18275A116), HDI submitted to the NRC a
revised PSDAR, including a revised site-specific DCE, for Oyster Creek,
pursuant to 10 CFR 50.82(a)(7) and contingent upon NRC approval of the
proposed license transfer from Exelon to HDI (ML18243A489). HDI
selected the DECON method for decommissioning Oyster Creek in the
revised PSDAR.
By letter dated December 17, 2018 (ML18241A068), the NRC staff
found that the Exelon-submitted SAFSTOR PSDAR, as supplemented,
contained the information required by 10 CFR 50.82(a)(4)(i). In that
letter, the NRC staff stated that it was treating the HDI-submitted
DECON PSDAR as a supplement to the Oyster Creek license transfer
application until such time as the NRC made a regulatory decision
regarding the license transfer application. On June 20, 2019
(ML19095A454), the NRC staff approved the Oyster Creek license transfer
application and the license transfer transaction was consummated on
July 1, 2019 (ML19182A342). Accordingly, the NRC staff commenced its
review of the HDI-submitted DECON PSDAR under 10 CFR 50.82(a)(4)(i). By
letter dated December 5, 2019 (ML19304A079), the NRC staff found that
the revised PSDAR contains the information required by 10 CFR
50.82(a)(4)(i) related to the plans for decommissioning the Oyster
Creek facility.
In accordance with the revised Oyster Creek PSDAR, by the end of
2035 the licensee is expected to complete all decommissioning work
necessary to obtain NRC approval to reduce the Part 50 license site
footprint to the ISFSI area only and to allow partial release of the
Oyster Creek site for unrestricted future use. Inherent to the plans
for this decommissioning process, large volumes of low-level
radioactive waste are generated. This low-level radioactive waste
requires processing and disposal or only disposal. HDI will transport,
by truck or by mixed mode shipments (for example, by a combination of
truck and rail), low-level radioactive waste from the facility to
locations such as the waste disposal facility operated by Waste Control
Specialists (WCS) in Andrews, Texas and the one operated by Energy
Solutions in Clive, Utah.
II. Request/Action
By letter dated August 2, 2022 (ML22214A173), HDI requested an
exemption from portions of Section III.E of Appendix G, ``Requirements
for Transfers of Low-Level Radioactive Waste Intended for Disposal at
Licensed Land Disposal Facilities and Manifests,'' to Part 20,
``Standards for Protection Against Radiation,'' of 10 CFR for transfers
of low-level radioactive waste from the Oyster Creek facility. Section
III.E requires that the shipper of any
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low-level radioactive waste to a licensed land disposal or processing
facility must investigate and trace the shipment if the shipper has not
received notification of the shipment's receipt by the disposal or
processing facility within 20 days after transfer. In addition, Section
III.E requires licensees to report such investigations to the NRC.
HDI is specifically requesting an exemption from the requirements
in 10 CFR part 20, Appendix G, Section III.E, under the provisions of
10 CFR 20.2301, ``Applications for exemptions.'' HDI seeks to extend
the 20 day time period for HDI to receive notification that the
shipment was received to 90 days after transfer for shipments from the
Oyster Creek facility to the intended recipient, before having to
investigate and report such shipments to the NRC. HDI's request states
that the ability to track the location of all shipments that are in
transit will remain in place, regardless of the longer transit times,
and are validated daily to monitor for potential diversion of the low-
level radioactive waste material. Therefore, this exemption would allow
a majority of the shipments to be processed as having arrived on time,
while ensuring that HDI will continue to perform an investigation and
report excessively long shipments to the NRC in accordance with the
intent of 10 CFR part 20, Appendix G.
III. Discussion
A. The Exemption is Authorized by Law
The NRC's regulations in 10 CFR 20.2301 allow the Commission to
grant exemptions from the requirements of the regulations in 10 CFR
part 20 if it determines the exemption would be authorized by law and
would not result in undue hazard to life or property. There are no
provisions in the Atomic Energy Act of 1954, as amended (or in any
other Federal statute) that impose a requirement to investigate and
report on low-level radioactive waste shipments that have not been
acknowledged by the recipient within 20 days of transfer. Therefore,
the NRC staff concludes that there is no statutory prohibition on the
issuance of the requested exemption and the NRC is authorized to grant
the exemption by law.
B. The Exemption Presents no Undue Hazard to Life and Property
The purpose of 10 CFR part 20, Appendix G, Section III.E is to
require licensees to investigate, trace, and report radioactive
shipments that have not reached their destination, as scheduled, for
unknown reasons. HDI states that ``between December 2019 and February
2021, Oyster Creek shipped thirty-eight railcars worth of low-level
radioactive waste to the WCS disposal facility in Andrews, Texas. The
total transit time when the shipments were released from the Oyster
Creek facility until verification of receipt, varied from thirty (30)
to one hundred thirty-four (134) days.'' HDI's experience at Oyster
Creek demonstrates that rail and mixed mode shipments from Oyster Creek
to these facilities can routinely take longer than 20 days for various
reasons that cannot be anticipated nor avoided. Based on these past
reports and experiences, the NRC staff concludes that delays due to
rail scheduling are likely to recur.
Further, HDI notes that the requested exemption is similar to the
ones previously approved by the NRC, namely: San Onofre Nuclear
Generating Station on November 13, 2020 (ref. ML20287A358), Fort
Calhoun Station on June 30, 2020 (ref. ML20162A155), Vermont Yankee
Nuclear Power Station on February 5, 2020 (ref. ML20017A069), La Crosse
Boiling Water Reactor facility on May 2, 2017 (ref. ML17124A210), and
Zion Nuclear Power Station, Units 1 and 2, on January 30, 2015 (ref
ML15008A417). The NRC staff reviewed these other exemption requests and
notes that all of the facilities listed above are reactor facilities
undergoing decommissioning. The NRC staff agrees that these exemption
requests are similar to the exemption requested by HDI.
The NRC staff also notes that HDI is in the process of
decommissioning Oyster Creek. During reactor decommissioning, large
volumes of slightly contaminated debris are generated and require
disposal. Disposal of Oyster Creek's low-level radioactive waste will
require mixed mode (truck to rail to truck) shipments to waste disposal
facilities or processors. Oyster Creek does not have direct rail access
onsite and currently utilizes road shipments to intermodal transfer
terminals for transfer of containers onto rail as the primary transport
method. This transport method has the added benefit to reduce overall
highway miles traveled. As decommissioning continues, an increase in
truck to rail shipments is expected.
As explained by HDI, HDI takes actions during the preparation of
shipments of low-level radioactive waste from Oyster Creek to predict
and mitigate undesirable conditions as much as possible, but
unanticipated delays can often extend the shipping duration beyond the
requisite 20 days. Due to the complex scheduling and congestion on the
planned rail systems, delays beyond the estimated durations are often
encountered after the waste leaves site. Rail shipments may sit at a
remote railyard waiting for clearance to depart or for maintenance of a
railcar in need of repair; either of which creates delays that can
extend the estimated shipping durations from Oyster Creek and are
outside of the shipper's (i.e., HDI's) control. Administrative
processes at the disposal facility and mail delivery times can add
several additional days before notification of receipt is available.
HDI states that exceeding the 20-day shipment duration results in an
administrative burden as a result of the required investigations and
reporting, even though shipments continue to be under requisite
controls.
According to HDI, low-level radioactive waste shipments from the
Oyster Creek facility can take longer than 20 days to reach a waste
disposal facility; however, the delay is not the result of loss, but a
consequence of the complexity involved in shipping large components. In
addition, the NRC staff is aware of shipping industry practices that
could result in shipping durations exceeding 20 days due to issues not
specifically related to the transport of large components, such as rail
cars containing low-level radioactive waste waiting in switchyards to
be included in a complete train to the disposal facility.
In addition, in terms of potential effects on a member of the
public, the primary cause of low-level radioactive waste shipment
delays is coordination with the rail carriers. When these delays
happen, the shipment is generally within a railyard and not near a
member of the public or a public place. The only way a low-level
radioactive waste shipment would remain in a public place for an
unusual amount of time is if there was a problem with the transport
vehicle or the rail system itself. In that instance, the NRC staff
notes that all low-level radioactive waste shipments from Oyster Creek
are required to be compliant with the U.S. Department of Transportation
(DOT) and NRC requirements for transportation of low-level radioactive
packaging, placarding, and allowable radiation levels at the surface of
the package for health and safety purposes during transit, including
during switchyard staging. Furthermore, the shipments are required to
be under control of the shipper at all times, tracked by the licensee,
and periodically monitored by the licensee, as needed. Therefore, there
are no potential health and safety concerns associated with this
material sitting in a switchyard for an extended period of time. In the
unlikely event that a low-level waste shipment were to remain in a
public place for an
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extended period of time, adherence to the DOT transportation
requirements would also ensure that there would be no health and safety
concerns regarding potential dose to the public.
Based on the history of low-level radioactive waste shipments from
Oyster Creek and the lack of potential health and safety concerns
associated with this material sitting in a switchyard for extended
period of time, the need to investigate, trace, and report on low-level
radioactive waste shipments that take longer than 90 days is therefore
appropriate.
As indicated in the request for exemption, for rail and truck
shipments from Oyster Creek, HDI will use a tracking system that allows
daily monitoring of a shipments' progress to its destination and the
Oyster Creek shipping procedures prescribe the expectations for
tracking and communications during transit. The NRC staff believes
these steps will allow for monitoring the progress of the shipments by
the rail or truck carrier on a daily basis, if needed, in lieu of the
20-day requirement and will initiate an investigation as provided for
in Section III.E of Appendix G to 10 CFR part 20 after 90 days. Because
of the oversight and ability to monitor low-level radioactive waste
shipments throughout the entire journey from Oyster Creek to a disposal
or processing site as noted above, the NRC staff concludes that it is
unlikely that a shipment could be lost, misdirected, or diverted
without the knowledge of the carrier or HDI and there is no potential
health and safety concern presented by the requested exemption.
Furthermore, by extending the elapsed time for receipt acknowledgment
to 90 days before requiring investigations, tracing, and reporting, a
reasonable upper limit on shipment duration is maintained if a
breakdown of normal tracking systems were to occur.
Consequently, the NRC staff finds that extending the receipt of
notification period from 20 to 90 days after transfer of the low-level
radioactive waste as described by HDI in its August 2, 2022, letter
would not result in an undue hazard to life or property.
C. The Exemption is Subject to a Categorical Exclusion
With respect to compliance with Section 102(2) of the National
Environmental Policy Act, 42 U.S.C. 4332(2) (NEPA), the NRC staff has
determined that the proposed action, the approval of the HDI exemption
request, is within the scope of the categorical exclusion listed at 10
CFR 51.22(c)(25). The proposed action presents (i) no significant
hazards considerations; (ii) would not result in a significant change
in the types or significant increase in the amounts of any effluents
that may be released offsite; (iii) would not result in a significant
increase in individual or cumulative public or occupational radiation
exposure; (iv) has no significant construction impact; (v) does not
present a significant increase in the potential for or consequences
from radiological accidents. The requirements from which an exemption
is sought involves reporting requirements under 10 CFR
51.22(c)(25)(vi)(B) as well as inspection or surveillance requirements
under 10 CFR 51.22(c)(25)(vi)(C). Given the applicability of relevant
categorical exclusions, no further analysis is required under NEPA.
IV. Conclusions
Accordingly, the Commission has determined that, pursuant to 10 CFR
20.2301, the exemption is authorized by law and will not result in
undue hazard to life or property. Therefore, effective immediately, the
Commission hereby grants HDI an exemption from 10 CFR part 20, Appendix
G, Section III.E to extend the receipt of notification period from 20
days to 90 days after transfer of low-level radioactive waste shipments
from the Oyster Creek Nuclear Generating Station facility to a licensed
land disposal or processing facility.
Dated this 15th day of December, 2022
For the Nuclear Regulatory Commission.
Jane E. Marshall, Director,
Division of Decommissioning, Uranium Recovery, and Waste Programs,
Office of Nuclear Material Safety and Safeguards.
[FR Doc. 2022-28115 Filed 12-23-22; 8:45 am]
BILLING CODE 7590-01-P