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Non-LWR Regulatory Framework Modernization- Fiscal Year 2024

This report provides an end-of-year summary that reflects the progress and status of Idaho National Laboratory’s (INL’s) activities concerning the development of an advanced-reactor regulatory framework and its implementation in the United States (U.S.). The report also provides recommendations for work to be performed in Fiscal Year (FY)-25 and beyond. This work was completed in FY-24 and was supported by the U.S. Department of Energy (DOE) Regulatory Development sub-program. These activities are managed by INL on behalf of DOE.

22 - GENERAL STUDIES OF NUCLEAR REACTORS

Non-LWR Regulatory Framework Modernization

This report provides an end-of-year summary that reflects the progress and status of Idaho National Laboratory’s (INL) activities concerning the development of advanced reactor (AR) regulatory framework and its implementation in the United States (U.S.). The report also provides recommendations for work to be performed in Fiscal Year 2025 (FY-25) and beyond. This work was completed in Fiscal Year 2024 (FY-24) and was supported by the U.S. Department of Energy (DOE) Regulatory Development sub-program. These activities are managed by INL on behalf of DOE.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS

Non-LWR Regulatory Framework Modernization

This report provides a summary of Fiscal Year 2025 activities performed in the Regulatory Framework Modernization work package through July 2025. This reflects the progress and status of Idaho National Laboratory?s activities concerning the development of an advanced reactor regulatory framework and its implementation in the United States. This report includes discussions of the progress that NRC has made on the ADVANCE Act requirements as well as the newly issued Presidential Executive Orders from May 2025. It provides a summary of the additional work packages added in July 2025 because of the executive orders. The report also provides recommendations for work to be performed in Fiscal Year 2026. This work was supported by the U.S. Department of Energy Office of Nuclear Energy Regulatory Development subprogram. These activities are managed by Idaho National Laboratory on behalf of the Department of Energy.

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS

Identify and Assess Technical Challenges in Safeguards Measurements of Spent Advanced Reactor Fuels

Advanced reactor (AR) designs use various nuclear fuel types that can be significantly different than conventional light-water reactor (LWR) fuels, including differences in sizes, compositions, and chemical forms (e.g., oxide, carbide, metal). Nearly all the proposed AR fuels use high-assay low-enriched uranium (HALEU), which will have higher enrichments (5–20 wt% 235 U) than LWR fuels (currently limited to <5 wt% 235 U). In advance of the wide use of these new fuel types around the world, international safeguards organizations such as the International Atomic Energy Agency (IAEA]) are working with some of the AR vendors to formulate safeguards approaches for these AR fuel cycles. As part of the overall safeguards approach, it is important to identify the potential technical challenges in performing safeguards verification measurements of these AR fuels (both fresh and spent fuels) in advance of the widespread adoption of these new fuel types, because new safeguards technologies can take several years to develop, test, and approve for use. This report documents work performed in fiscal year 2024 based on modeling and simulation to assess the performance of the existing safeguards measurement technologies for irradiated or spent AR fuel elements or items. This work is a continuation of the work performed in fiscal year 2023 that focused on fresh AR fuels. Spent AR fuels have a distinct difference from their LWR counterparts: unlike the spent LWR fuels typically stored in a water-filled pool, some spent AR fuels—such as tristructural-isotropic (TRISO)-based fuels—will most likely be stored in air-filled hot cells. Because most safeguards measurements on spent fuel performed to date have been conducted under water, the air-filled hot cell environment could present unique challenges to safeguards measurements. Fork detector (FDET) and Cerenkov viewing device (CVD) systems have been the two primary instruments used by the IAEA for several decades to measure spent LWR fuel assemblies stored in pools for safeguards verification purposes. Because the lower refractive index of air causes Cerenkov light to be of lower intensity in air than in water, existing CVDs are likely unable to perform safeguards verification measurements for spent fuel stored in an air-filled hot cell, as is the case for the TRISO-based spent fuel elements (e.g., pebbles, graphite fuel blocks). Unlike FDET measurements, CVD measurements do not require fuel be moved, so they are a simpler and faster to take than FDET measurements. The inability to perform CVD measurements on the TRISO-based AR fuel types presents a major technical challenge in the effort to use existing technology to perform safeguards measurements on spent AR fuels. This study was mainly conducted through the modeling and simulation of an FDET or an FDET-like system on five spent AR fuel types, including one metallic fuel type and four TRISO-based fuel types in both pebble and graphite block forms in their respective storage configurations and environments. Because the various AR fuel types have significantly different dimensions, FDET systems must be adapted to accommodate them. Partial defect tests were also simulated in this study to assess the FDET’s ability to detect potential fuel diversions. The FDET measures the fuel’s total passive neutron and gamma emissions. The simulated FDET results from spent AR fuel items are compared against results from a typical spent pressurized water reactor (PWR) assembly. High-purity germanium (HPGe) gamma detector measurements were also simulated for the spent AR fuel types and the PWR assembly because the signature photopeaks have been used in LWR safeguards verifications, although HPGe is usually not used to detect diversions because of the fuel’s self-attenuation effects on those photopeaks. The results indicate that these detectors have significant challenges in performing safeguards measurements of the spent AR fuel items, including incompatibilities between AR fuel items and existing FDETs, lower neutron count rates, lower sensitivities to fuel diversions in certain AR fuel items, and significantly higher interference from a neighboring fuel item when the measurement is performed in air. These results suggest that an alternative technology or significant and timely technology development is needed to perform adequate safeguards measurements of some of these AR fuel items.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS

Conceptual Design of a Water Tank Critical Facility for SPARC

Critical experiments, sometimes referred to zero-power reactors, are crucial tools in developing and validating nuclear physics predictions and thus an indispensable capability to ensure criticality safety during all parts of the nuclear fuel cycle and in reducing uncertainties in reactor physics predictions toward optimizing nuclear energy production. The System Physics Advanced Reactor Facility (SPARC) project was recently initiated to enable large-scale criticality experiments using a horizontal split table machine well suited toward solid core materials systems (fuel, moderator, reflector). The facility selected for this mission was a former pool-type research reactor building and thus also well suited toward a second critical experiment capability able to house full-size light-water reactor (LWR) fuel bundles. A conceptual design study was undertaken to review past water tank critical experiments used for LWR physics experiments and to develop an early engineering design for a new critical assembly tank (CAT). The work described here shows that a relatively simple CAT concept can be constructed and deployed in the SPARC facility to meet the urgent demands for new critical experiments on advanced LWR fuel bundles designs. The SPARC facility layout is conducive to the receipt and upending of LWR fuel bundles using existing containers and equipment from the LWR industry. The facility’s overhead crane can then be used to handle fuel bundles and place them in a vertical storage rack or in the CAT for critical experiments, both of which fit within the building’s “open basement” alongside other equipment planned for SPARC and the horizontal split table. A slightly lower area in the basement can serve as a large drain tank so that fail-safe valves drain the CAT reactor tank for safe shutdown. Neutronic configurations were determined where a 3 × 3 array of fuel bundles can be surrounded by full-length “loose rods” to adjust reactivity so that critical is achieved when the bundles are fully submerged. Viable configurations were determined for both pressurized- and boiling-water-reactor-type fuel bundles. This design concept was used to develop an early planning basis for establishing the CAT capability alongside the otherwise planned SPARC project in order to help streamline the process. Recent presidential executive orders have highlighted the need to achieve power uprates in LWR plants and the CAT capability will be a crucial element of these initiatives. Based on the work described herein, it is recommended that an earnest and timely project begin in order to establish this urgently needed capability.

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS

Advanced Fuels Campaign Execution Plan

The Advanced Fuels Campaign (AFC) Execution Plan outlines the strategy, mission, scope, near-term and long-term goals, structure, and organization associated with nuclear fuels and materials research, development, and demonstration activities within the Department of Energy’s (DOE) Nuclear Fuel Cycle and Supply Chain (NFCSC) program. NFCSC has been given responsibility to identify and mature advanced fuel technologies for the DOE using a science-based approach, focused on developing a fundamental understanding of nuclear fuels and materials to drive development of integrated nuclear fuel and materials technology. This science-based approach combines theory, experiments, and multiscale modeling and simulation to achieve a predictive understanding of relevant behaviors ranging from fuel fabrication processes (and their resulting fuel microstructures) through fuel/cladding performance under irradiation (in contrast to more empirical, observation-based approaches frequently used in fuel performance modeling and fuel qualification). The traditional scope of AFC includes the evaluation and development of multiple fuel forms to support two fuel cycle options: once-through and full recycle. The word “fuel” is used generically to include conventional fuels, transmutation targets, and any associated cladding or duct materials. The once-through fuel cycle addresses advanced light water reactor fuels with enhanced performance, extended burnup, and reduced waste generation. In fiscal year (FY) 2012, AFC’s scope expanded to include research, development, and demonstration (RD&D) for light water reactor (LWR) fuels with enhanced accident tolerance. Fuel fabrication activities include the development of innovative methods to enhance process efficiencies, reduce waste, and improve control over as-fabricated fuel microstructural properties to achieve desired in-reactor performance. Using modern modeling and simulation approaches, the objective is to predict fresh fuel properties given the feedstock characteristics and fabrication process parameters. The performance-related activities include small-scale, in-reactor, and out-of-reactor phenomenological testing (distinct from, but synergistic with, integral prototypic testing) and extensive, quantitative characterization (focusing on characterization of fuel and cladding materials at the scale of microstructure) both before and after testing. Larger-scale, prototypic experiments are conducted in concert with phenomenological testing to drive a Fuel Development and Qualification program, incorporating a fundamental understanding of fuel behavior performance characteristics. Then, using the tools developed under the productive science-based approach, fuels will be optimized to meet specific performance requirements, thereby minimizing the need to repeatedly perform large-scale, integral experiments over a wide parametric range as a means of experimental exploration. Two significant initiatives are underway within AFC. First, a gap analysis completed in early FY 2019 identified critical irradiation testing needs that are lacking within the national light water reactor (LWR) fuels testbed since the shutdown of the Halden Reactor in 2018. The identified gaps are for instrumented, prototypic testing of LWR fuels, especially under boiling water reactor conditions, ramp conditions, and conditions leading to fuel failure; these needs exist for supporting current LWR fuels and their possible extension to higher burnups, but are especially urgent relative to near-term development and qualification of accident-tolerant fuels. Recommendations that resulted from the Halden Gap Analysis focused on enhancements at Advanced Test Reactor (ATR) and Transient Reactor Test Facility (TREAT) to fill gaps in testing capabilities relative to these needs. Second, a concerted effort to develop and demonstrate a systematic approach to accelerating the development, testing, and qualification of new fuel systems has been initiated. This is highlighted by a test strategy that combines the considerable advances in multiscale, mechanistic fuel modeling of recent years with a MiniFuel separate effects test program in the High Flux Isotope Reactor (HFIR) and a Fission Accelerated Steady-state Testing (FAST) semi-integral accelerated test program in ATR. This approach is being tested/demonstrated using the metallic fuel system, but if successful it is expected to be extensible to multiple fuel types and diverse applications. This document includes an overview of the NFCSC program, a definition of science-based development of nuclear fuels, near-term goals for Advanced LWR fuels (ALFs), and longer-term goals for Advanced Reactor Fuels (ARFs) RD&D. This includes the activities that will be conducted to achieve success toward the grand challenge, as well as the goals and milestones to be achieved over the next few decades of research and development. Long-term goals are based on the DOE Office of Nuclear Energ

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Ceramic Composite Inert Matrix Fuel Forms in High-Temperature Gas-Cooled Microreactors

Here, this work optimizes micro-prismatic high-temperature gas reactor (HTGR) designs to reduce the energy-normalized mass of spent nuclear fuel (SNF) and high-level waste (HLW) produced. The optimization was performed for the current graphite moderator and an inert matrix fuel (IMF) concept employing different composite moderators in a prismatic design architecture. The fuel matrix is magnesium oxide (MgO) with entrained tristructural-isotropic (TRISO) fuel. The moderator materials, including beryllium oxide (MgO-BeO) and beryllium (MgO-Be) at 40 vol % loading and yttrium hydride (MgO-YH x=1.9 ) and zirconium hydride (MgO-ZrH x=1.9 ) at 15 vol % loading, were entrained within the MgO host matrix. A generic graphite micro-prismatic HTGR is used as the baseline point design where the external dimensions are held constant. The composite moderator designs use 19.9% enriched uranium nitride TRISO fuel and hexagonal assemblies. For each IMF concept, an optimization study was performed to maximize the discharge burnup of the fuel by varying the TRISO packing fraction and the lattice pitch of the assemblies. The mass of SNF and HLW, other waste metrics, fuel cost, environmental impact metrics, and the activity of the SNF and HLW at 100 years and 100 000 years were calculated for the optimized IMF and graphite reference designs. The IMF results were subsequently compared to those of the graphite reference and the values for a light water reactor (LWR) and a small modular LWR. For the SNF and HLW, all the IMF concepts and the graphite reference produced less waste compared to the traditional LWR designs. However, the IMF concepts outperformed the graphite reference regarding the mass of SNF and HLW. For the other waste metrics, the IMF concepts showed reductions in fuel cost with improved environmental metrics relative to the graphite reference. Overall, the IMF concepts significantly reduced the SNF and HLW produced per unit of energy generated compared to traditional LWR designs.

TRISO

Swiss chard: a salad crop for the space program

Salad greens will be among the first crops grown on lunar or planetary space stations. Swiss chard (Beta vulgaris L.) is an important candidate salad crop because it is high yielding and rich in vitamins and minerals. Five Swiss chard cultivars were grown in the greenhouse under two light levels for 13 weeks to compare cumulative yields from weekly harvests, mineral composition, and to evaluate sensory attributes as a salad green. The varieties Large White Ribbed (LWR) and Lucullus (LUC) were the highest yielding in both light regimes. LWR was the shortest of the cultivars requiring the least vertical space. LWR also received the highest sensory ratings of the five cultivars. LWR Swiss chard should be considered as an initial test variety in food production modules.

NASA Discipline Life Support Systems

Advanced Fuels Campaign Execution Plan

The Advanced Fuels Campaign (AFC) Execution Plan details the strategy, mission, scope, and goals—both near-term and long-term—along with the structure and organization of nuclear fuels and materials research, development, and demonstration (RD&D) activities within the Fuel Cycle Technologies (FCT) program. The FCT program, tasked by the U.S. Department of Energy (DOE), employs a science-based approach to advance fuel technologies. This approach integrates theory, experiments, and multi-scale modeling and simulation (M&S) to develop a predictive understanding of fuel fabrication processes and fuel/cladding performance under irradiation, moving beyond traditional empirical methods. The long-term goals of the AFC are guided by the AFC Strategic Plan and align with the DOE Office of Nuclear Energy (NE) Roadmap [1], which outlines a multi-decade vision for demonstrating and qualifying advanced fuel forms to support diverse fuel cycle options. Near-term goals focus on enhancing accident tolerant fuels (ATF) for Light Water Reactors (LWR), a significant challenge that demands balancing immediate objectives with ongoing progress toward advanced reactor missions. Accelerating the traditional fuel qualification process to meet ATF objectives is another critical challenge. A detailed set of 5-year goals, summarized below, has been developed in line with the overarching science-based fuel development approach: • Advanced LWR Fuel Technologies: By 2027, support the development of advanced LWR fuel technologies with improved performance and enhanced accident tolerance. This includes high burnup (HBu), low enriched uranium (LEU)+, coated cladding, and doped fuel, aimed at complementing industry-led significant LWR uprates and plant refurbishments. • Tristructural Isotropic (TRISO) Fuel: Achieve qualification by 2028 and develop improved designs for emerging markets. • Metal Fuel: Achieve qualification by 2028 and develop improved designs for emerging markets. • Molten Salt Fuel: By 2027, deploy a robust program that enables fuel salt qualification technologies needed to support fuel salt research and development (R&D), focusing on emergent needs to derisk fuel salt production and utilization in advanced reactors. • Long-Term ATF: Develop fuel technologies that enable significant power uprates (~50%) in refurbished or new LWRs while optimizing fissile material utilization and waste disposal. The 5-year milestones in the AFC Execution Plan are contingent on an assumed budget. This Execution Plan will be updated annually to reflect actual funding profiles as budget guidance becomes available, ensuring milestones are adjusted accordingly. In summary, the AFC Execution Plan presents a comprehensive strategy to advance nuclear fuel technologies through a science-based approach, addressing both near-term and long-term goals while adapting to funding realities.

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS

SCALE Shielding Calculations for Advanced Reactor Accident Scenarios

The study results presented in this paper demonstrate the capabilities of the SCALE computer code for non–light water reactor (non-LWR) radiation source term and shielding calculations in support of the U.S. Nuclear Regulatory Commission non-LWR fuel cycle demonstration project. Representative non-LWR types, including the sodium-cooled fast reactor (SFR), the molten salt reactor (MSR), and the heat pipe microreactor (HPMR), were analyzed to evaluate dose rates associated with postulated accident scenarios (SFR and MSR), reactor operation (MSR and HPMR), and fuel self-protecting characteristics (HPMR). New features were implemented in SCALE depletion codes to better simulate MSR operation.

MSR

Radiation-induced bowing of SiC/SiC composites under neutron flux gradients—integral experimental data for model validation

Here, the radiation-induced swelling of SiC and its composites, including strong dependencies on temperature and dose, can drive significant lateral bowing in the presence of temperature and/or dose gradients. In recent years, simulations have been performed to assess the extent of bowing in SiC composite light-water reactor (LWR) fuel cladding and boiling water reactor (BWR) channel boxes. However, to date, no integral experimental data exist to validate these models. This work provides the first experimental bowing evaluation of three ∼380 mm long SiC composite specimens irradiated under varying neutron dose gradients (∼50°C–60°C, 0.03–0.06 dpa): two tubes (∼9.8 mm diameter) and a miniature BWR channel box (∼30 mm square). The measured radiation-induced length swelling (∼0.3%–0.7% linear) was consistently 10%–21% higher than values obtained from 3D finite element structural analyses with inputs from 3D radiation transport calculations. This discrepancy could be at least partially explained by differences in dose rate (∼10 -8 dpa/s) compared to the literature data (∼10-6 dpa/s) used to establish the dose-to-swelling correlations in the model. Nevertheless, the modeled bowing magnitudes (<2 mm) obtained from finite element analyses and simple analytical equations were within the bounds of the experimental measurements for all specimens. With improved confidence in the ability to predict the structural response and measure the macroscopic deformations, future experiments will target transient bowing under neutron flux gradients at representative LWR temperatures and assess whether grid spacers can mitigate the tens of millimeters of bowing that would otherwise be expected in ∼4 m long LWR components.

bowing

Design of a separate effects MiniFuel irradiation experiment investigating microstructure evolution in high burnup UO 2

The microstructural evolution of UO 2 fuel pellets during commercial operation in light water reactors (LWRs) is known to vary significantly across the pellet radius due to spatial variations in local temperature and burnup. The primary obstacle to extending LWR refueling cycles to 24-month intervals is the susceptibility of certain high burnup fuel microstructures to fuel fragmentation, relocation, and dispersal (FFRD) during a loss of coolant accident (LOCA). Although FFRD of the high burnup structure in the rim region of a pellet is well studied, the fine fragmentation that has been observed in a second region, near the midradius of the pellet (termed the “dark zone”) following mock LOCA testing of high burnup commercial fuel rods is less understood. This paper describes the design, analysis, and execution of a separate effects MiniFuel irradiation experiment that aims to identify the specific temperature and burnup regimes under which FFRD-susceptible dark zone microstructures form. The small disc specimens (3 mm diameter by ∼0.3 mm thick) enable more precise control of the relatively uniform temperature and burnup conditions. A total of 42 specimens were fabricated with typical LWR fuel densities (∼96%–98% of theoretical density) and grain sizes (∼12 μm) and are being irradiated over a range of temperatures (600°C–1000°C) and discharge burnups (50–72 MWd/kg-U) that bound the midradius region of high burnup LWR fuel. Fuel specimens with identical 235 U enrichments were inserted in two irradiation locations in the High Flux Isotope Reactor and are currently undergoing irradiation to further evaluate the impact of rate effects (fission rate, time at temperature) on the microstructural evolution. The fuel fabrication and the thermal and neutronic simulations used for designing the experiment are detailed in this paper. A secondary objective of the experiment is to observe fission gas release (FGR) under the various irradiation conditions, and this work provides first-order predictions of FGR from all fuel specimens. The insights gained from these experiments will inform future high burnup core designs that could minimize the formation of susceptible microstructures and ultimately enable 24-month refueling cycles while minimizing the fraction of the fuel susceptible to FFRD.

FFRD

Review of ECCS Acceptance Criteria and Experimental Basis Evolution Toward Fuel Fragmentation, Relocation, and Dispersal Studies

The U.S. nuclear industry is pursuing extensions of light water reactor (LWR) fuel burnup and enrichment limits to approximately 75 GWd/t and 10 wt.% 235 U to achieve economic and operational benefits. A central safety consideration in this effort is the behavior of high burnup (HBu) fuel during loss-of-coolant accidents (LOCAs), particularly fuel fragmentation, relocation, and dispersal (FFRD). Here, this work provides a historical and technical review of U.S. LOCA regulation and experimentation, clarifying how the evolution of Emergency Core Cooling System (ECCS) acceptance criteria in 10 CFR 50.46 has shaped both testing approaches and interpretations of fuel safety. The study revisits the original intent of the ECCS criteria, showing that the peak cladding temperature and equivalent cladding reacted limits were developed as surrogates to preserve a coolable geometry. The explicit inclusion of the coolable geometry criterion in the regulation was intended to emphasize the underlying safety philosophy and as a safeguard against unforeseen failure modes, an intent that remains directly relevant to modern concerns regarding FFRD. The review traces the lineage of HBu LOCA experiments to the Argonne National Laboratory furnace tests, from which subsequent programs at Studsvik, Halden, and Oak Ridge National Laboratory were derived. These tests employed a 5 °C/s heating rate inherited from early embrittlement studies, a stylized temperature history that does not represent actual LWR LOCA thermal-hydraulics. Comparison of these test conditions to pressurized water reactor large break LOCAs and separate effects data indicates that the existing HBu LOCA database may not be fully applicable to all LWR LOCA scenarios, from which a qualitative framework for applicability is proposed.

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS

Irradiation Vehicles for Evaluating SiC/SiC Cladding Bowing Under Neutron Flux Gradients

Silicon carbide fiber–reinforced silicon carbide matrix (SiC/SiC) composites are among the most promising candidates for long term accident-tolerant nuclear fuel cladding. A key challenge related to their deployment is lateral bowing caused by differential radiation-induced swelling under dose or temperature gradients, which could obstruct coolant flow or interfere with control rod/blade movements. Although previous modeling efforts have predicted bowing behavior in light-water reactor (LWR) environments, experimental validation remains limited, especially at prototypic LWR temperatures. This study addresses that gap by irradiating six reduced-length SiC/SiC cladding tubes (~600 mm) in the High Flux Isotope Reactor (HFIR) at ~300°C, which is representative of LWR conditions. The tubes will be housed in a sealed vessel with an inert gas gap to maintain target temperatures and prevent direct coolant contact. Arranged in three pairs, each set will receive a different radiation dose (low, medium, high), with the central pair receiving ~0.1 displacements per atom (dpa)—the expected dose for peak bowing. The experiment will determine the dose-dependent bowing behavior and validate predictive finite element models. In this work, the tubes are freely suspended from pins to allow for unconstrained bowing; however, we present a concept for introducing localized constraints to represent grid spacer effects. Post-irradiation examination will include swelling measurements and profilometry to assess bowing and compare the results with model predictions. This work aims to confirm the conditions under which maximum bowing occurs so as to improve the reliability of SiC/SiC performance models in nuclear applications.

Russell, Nick [ORNL] (ORCID:0000000296099820)