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Resolving Issues Regarding Disposal of Safeguarded Nuclear Materials: Concepts for Near Surface and Intermediate Depth Disposal sites

This document presents two case studies on nuclear waste disposal to explore the safeguards challenges and potential solutions present under each scenario. Both involve the disposal of nuclear materials, either for waste containing safeguarded nuclear materials or waste where safeguards on the nuclear materials have been previously terminated. The first case study is that of a low-level waste (LLW) repository that is situated near the surface. This facility will accept safeguarded nuclear materials for disposal. Examples of this type of activity are rare, but the potential for more facilities of this type is very possible as States become more comfortable with considering safeguards measures in perpetuity on deep geological repositories. The second study extends this to the case of terminated wastes at an intermediate depth disposal site. In this case, the reasons why terminated nuclear materials could be found in these disposal facilities and how obligations under the Comprehensive Safeguards Agreement (CSA) and Additional Protocol (AP) are met when the disposed waste items are intermediate level waste (ILW) or high-level waste (HLW).

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗

Crossroads of Nonproliferation and Safeguarding Technologies for Implementation in Molten Salt Reactors

Idaho National Laboratory (INL) recently conducted a workshop endorsed by the National Nuclear Security Administration (NNSA) under the auspices of the Defense Nuclear Nonproliferation R&D (DNN R&D) Office's Safeguards Portfolio. The workshop's primary objective was to foster an engaging dialogue among researchers, with a specialized emphasis on the safeguards pertaining to molten salt reactors. At INL, the installation of the state-of-the-art Molten Salt Thermophysical Examination Capability (MSTEC) is underway. This shielded argon glovebox facility, designed for both irradiated and non-irradiated actinide materials, represents the cutting edge of research infrastructure. MSTEC is poised to serve as a pivotal research platform in the realm of molten salt technology, with significant implications for safeguards applications. Participants of the workshop had the opportunity to tour the facilities, including the site where MSTEC is being installed, as well as to observe the INL's molten salt and pyroprocessing research hot cells. The event featured insightful presentations delving into molten salt chemistry and the MSTEC project. Each participating laboratory contributed to the discourse with presentations on their respective research efforts addressing safeguards in relation to molten salt reactors. The workshop culminated with a generative brainstorming session, where participants shared their thoughts on strategic integration with partner agencies, aiming to synergize efforts in advancing the field of nuclear safeguards.

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

Safeguards Modeling for Advanced Nuclear Facility Design.

Future nuclear fuel cycle facilities will see a significant benefit from considering materials accountancy requirements early in the design process. The Material Protection, Accounting, and Control Technologies (MPACT) working group is demonstrating Safeguards and Security by Design (SSBD) for a notional electrochemical reprocessing facility as part of a 2020 Milestone. The idea behind SSBD is to consider regulatory requirements early in the design process to provide more optimized systems and avoid costly retrofits later in the design process. Safeguards modeling, using single analyst tools, allows the designer to efficiently consider materials accountancy approaches that meet regulatory requirements. However, safeguards modeling also allows the facility designer to go beyond current regulations and work toward accountancy designs with rapid response and lower thresholds for detection of anomalies. This type of modeling enables new safeguards approaches and may inform future regulatory changes. The Separation and Safeguards Performance Model (SSPM) has been used for materials accountancy system design and analysis. This paper steps through the process of designing a Material Control and Accountancy (MC&A) system, presents the baseline system design for an electrochemical reprocessing facility, and provides performance metrics from the modeling analysis. The most critical measurements in the electrochemical facility are the spent fuel input, electrorefiner salt, and U/TRU product output measurements. Finally, material loss scenario analysis found that measurement uncertainties (relative standard deviations) for Pu would need to be at 1% (random and systematic error components) or better in order to meet domestic detection goals or as high as 3% in order to meet international detection goals, based on a 100 metric ton per year plant size.

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Sandia National Laboratories Early Career University Faculty Mentoring Program in International Safeguards

Recent years have seen a significantly increased focus in the areas of knowledge retention and mentoring of junior staff within the U.S. national laboratory complex. In order to involve the university community in this process, as well, an international safeguards mentoring program was established by Sandia National Laboratories (SNL) for early career university faculty. After a successful experience during 2019, the program continued into 2020 to include two new faculty members who were paired with SNL subject matter experts based on the topic of their individual projects: one to work on advanced laboratory work for physics, technology, and policy of nuclear safeguards and nonproliferation, and the other to look at machine learning applied to international safeguards and nonproliferation. There is a two-pronged purpose to the program: fostering the development of educational resources available for international safeguards and exploring new research topics stemming from the exchange of mentor and mentee. Further, the program as a whole allows for junior faculty members to establish and expand a relationship network within international safeguards. In addition, programs such as this build stronger connections between the academic and the national laboratory community. Thanks to the junior faculty members that now have new connections into the laboratory community and potential for collaboration projects with the laboratories in the future, safeguards knowledge can actually increase far beyond just individually engaging students using this new and efficient avenue.

96 KNOWLEDGE MANAGEMENT AND PRESERVATION↗

Identifying Challenges in Safeguards for Metallic Fuel Fabrication Facilities

As new advanced reactors gain popularity, there is an increasing interest in metallic fuel fabrication for fast reactors. While metallic fuels themselves are not a new idea, as many of the first reactors employed metallic fuels, new designs, compositions, and fabrication methods are appearing throughout the nuclear community. As the interest grows and facilities are constructed, both domestic and international safeguards will need to be heavily involved to support safeguards-by-design (SBD) measures from the start. This work compiles a review of historical and modern fuel types and fabrication methods, fabrication processes, safeguards gaps, and potential safeguards solutions. Metallic nuclear fuel types have been around for many decades and were included in some of the first reactors including the Experimental Breeder Reactor (EBR)-I and -II, the Fermi 1 reactor, the Integral Fast Reactor (IFR), and the Dounreay Fast Reactor (DFR). These reactors used various compositions including pure uranium (U) metal, U-zirconium (Zr) alloys, plutonium (Pu)-aluminum (Al) alloys, U-fissium (Fs) alloys, U-Pu-Zr alloys, and U-molybdenum (Mo) alloys [1, 2, 3, 4, 5]. These small alloying additions are included to improve the material properties of the pure U metal. The alpha-phase U (stable below 661C) suffers elongation in one direction causing grain boundary cracking and increasing creep rate due to irradiation growth, thermal cycling, and preferential crystal orientation. It is ideal to utilize the gamma-phase U (typically stable above 769C) by adding small amounts of alloying elements such as Zr or Mo to stabilize this phase down to room temperature [3]. Additionally, some research has been focused on U with transuranic (TRU) elements present, typically coming from the used fuel recycling process. Including these elements in fast reactor fuel can aid in the reduction of nuclear waste by burning minor long-lived actinides. However, the additions of TRU elements can cause concerns to arise when trying to fabrication or safeguard metallic fuels. A typical metallic fuel element is shown in Figure 1. Sodium is added into the cladding to create a thermal bond between the fuel slug and cladding wall. The fuel slug is then inserted and the end plug is welded on to the top of the fuel element. A gas plenum is left to create a headspace for gaseous fission products to escape rather than continue to build in the fuel itself [1, 5]. Other fuel element geometries exist as well, such as the Lightbridge twisted cruciform geometry shown in Figure 2 [6]. This design allows for better cooling performance and provides room for fuel rod swelling without impacting the fuel rod diameter. There are many different fabrication methods for metallic fuels, which is one of the many benefits of these fuel types. Many of these fabrication methods are relatively easy and cost-efficient. The most popular fabrication method is injection casting, sometimes called vacuum induction melting (VIM), shown in Figure 3 [4, 8, 9, 7, 10]. This method was largely used for EBR-II fuel fabrication. The injection casting system is contained inside of a vessel consisting of a Y2O3-coated graphite crucible surrounded by an induction coil with ZrO2-coated quartz molds suspended above the crucible. The fuel feedstock is placed inside of the graphite crucible and melted using the induction furnace. The induction furnace utilizes a dual frequency with the high frequency melting the feedstock and the low frequency causing stirring of the melted feedstock to form a homogeneous mixture. The mixture is heated to approximately 1600C in an argon environment. The vessel is evacuated and then the quartz molds are lowered into the graphite crucible containing the molten metal and the vessel is repressurized to inject the metal fuel upwards into the molds. The molds are removed and then shattered to release the fuel slugs. This fabrication method was used to fabricate 39,000 metallic fuel pins for EBR-II. While injection casting has been the most common metallic fuel fabrication method throughout the decades, many other methods have been explored including low-pressure gravity casting, microwave casting, continuous casting, centrifugal casting, coextrusion, and many others [11, 12, 8, 13, 14, 15]. Some of these methods aim to mitigate challenges that arise with americium (Am) volatilization during the casting process for TRU-containing fuel feedstocks, an issue with injection casting. Coextrusion is one of the methods explored at the Idaho National Laboratory (INL) and has been utilized for the initial fabrication tests of Lightbridge's unique fuels, as well as other metallic fuels with cladding coextruded. In this process, large billets are formed and machined and then inserted into a molten salt bath for approximately 30 minutes. The billets are then loaded into the extrusion press and extruded. This process can be seen in Figure 4 [15].

11 - NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

A literature review of pyroprocessing safeguards

Pyroprocessing is a promising technology for reprocessing used nuclear fuel (UNF) from light water reactors (LWR) and sodium fast reactors (SFR). With the advancement of fast reactors with projects from companies such as TerraPower, the prospects of pyroprocessing are more promising than ever before, as fast reactors can consume all actinides, not just uranium and plutonium. Before pyroprocessing can be implemented commercially, pre-existing safeguards used for aqueous reprocessing must be adapted for pyroprocessing. Safeguards, as determined by both the Nuclear Regulatory Commission (NRC) and the International Atomic Energy Agency (IAEA), are discussed in this review as guidelines for approaches used in both domestic and international reprocessing plants. The implementation of safeguards in aqueous reprocessing was then reviewed based on the experience from existing aqueous facilities. The experimental pyroprocessing facilities were identified as pyroprocessing plants in the design stage with one operating exception of the Fuel Conditioning Facility (FCF). The safeguard methods implemented or designed for each and the accompanying challenges of utilizing existing safeguards in pyroprocessing are considered and a summary of applicable approaches is included.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

Machine Learning in Safeguards at Pebble Bed Reactors

The goal of this project is to investigate and demonstrate the applicability of machine learning (ML) in safeguards at pebble bed reactors (PBRs). The detailed scope of work includes working with DOE-Nuclear Energy and other domain experts to examine current safeguards approaches at PBRs, defining ML tasks that can potentially strengthen the safeguards at PBRs, selecting ML task(s) for proof of concept based on safeguards needs and availability of testbeds and datasets, and developing ML algorithm(s) to demonstrate the feasibility of ML in PBR safeguards.

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Analysis with the ORIGEN Module of PNAR Spent Fuel Measurements for Nuclear Safeguards Applications

This report documents the analysis of the Passive Neutron Albedo Reactivity (PNAR) measurements for 23 boiling water reactor spent fuel assemblies that were performed in Finland under Action Sheet 65, which is an international collaboration on spent fuel safeguards verification methods in the context of the Finnish spent fuel encapsulation/repository system. PNAR measures the passive neutron and gamma emission rates from each of the spent fuel assemblies like a Fork detector, and it also measures the PNAR ratio, which is expected to correlate with the net neutron multiplication of the measured fuel assembly. The analysis was performed with the Oak Ridge Isotope Generation and Depletion (ORIGEN) Data Analysis Module, which was originally developed for predicting Fork detector spent fuel measurement signals in real time and has been integrated into the Integrated Review and Analysis Package developed by Euratom and the International Atomic Energy Agency. The module includes the ORIGEN burnup analysis code and integrates detector response functions pregenerated using the MCNP Monte Carlo transport code to predict the detector signals in several seconds per assembly. In this study, new response functions specific to the analyzed PNAR measurements were generated for the ORIGEN Module. The study also analyzes the impact of using detailed fuel design and operation information vs. standard safeguards information on the results calculated with the ORIGEN Module. Using detailed information reduced the standard deviation of the relative differences between calculated and measured neutron count rates among the 23 assemblies from ~10% to ~4%. The results obtained using standard safeguards information for these PNAR measurements were similar to those obtained for the Fork detector. A clear trend was found between the calculated net neutron multiplications and the measured PNAR ratios of the 23 assemblies. An uncertainty assessment of the calculations was also performed to estimate the potential impact of the accuracy and the completeness of declaration information on the calculated results for the count rates and net neutron multiplications. The ORIGEN Module predictions for PNAR signals and net neutron multiplication are expected to directly support the safeguards inspectors’ efforts to verify operator declarations of a spent fuel assembly in real time in safeguards practices.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

Advanced Reactor Safeguards Program Roadmap

The Advanced Reactor Safeguards (ARS) program was established in 2020 as part of appropriations for the Advanced Reactor Demonstration Program (ARDP) through the Office of Nuclear Energy in the Department of Energy. The goal of this program is to help address near term challenges that advanced nuclear reactor vendors face in meeting domestic Material Control and Accountancy (MC&A) and Physical Protection System (PPS) requirements for U.S. construction. Existing regulations for safeguards and security, as outlined in the Code of Federal Regulations, were written for large light water reactors, and some of the requirements are not suited to smaller, safer advanced reactor designs. The ARS program seeks to remove roadblocks in the deployment of new and advanced reactors by solving regulatory challenges, reducing safeguards and security costs, and utilizing the latest technologies and approaches for robust plant monitoring and protection. Safeguards and Security by Design (SSBD), or the consideration of safeguards and security requirements early in the design process, is an overarching principle that guides this program. This roadmap discusses the goals of the ARS program, current research, and program plan for the next five years.

21 SPECIFIC NUCLEAR REACTORS AND ASSOCIATED PLANTS↗

Safeguards Considerations for Coated Particle Fuel Fabrication Facilities

This study aims to identify where existing fuel fabrication safeguards are limited in application to coated particle fuel fabrication facilities; perform a review of techniques that may be appropriate to address these limitations; and identify where further study is required. The purpose is to ensure the necessary technology and safeguards developments are established to facilitate safeguards-by-design for coated particle fuel fabrication facilities, analogous to the research and development (R&D) efforts in the advanced reactor space, including those requiring coated particle fuels and progress to higher technology readiness levels. Finally, this study will also help meet high priority objectives set forth by the IAEA in establishing safeguards R&D precedence and measurement/procedural standards at emerging fuel fabrication facilities. To achieve these objectives, the report is formatted to (1) distill relevant background information on fuel fabrication of oxide and coated particle fuels; (2) provide an overview of the fuel fabrication techniques for a reference oxide fuel fabrication facility and two selected TRISO fuel fabrication facilities; (3) develop facility models of safeguards approaches for the reference facility and the two TRISO facilities; and (4) identify any observed technology needs or gaps from this analysis.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

The research challenges in security and safeguards for nuclear fission batteries

This paper discusses the nuclear security and safeguards research challenges presented by the development and deployment of nuclear fission batteries. These are defined as easily transportable and deployable nuclear systems which are designed to operate either unattended or autonomously. We start by defining the current landscape of domestic and international safeguards and security and discuss how it can be affected by the introduction these new nuclear systems. We then specifically discuss the technology gaps and technologies to be developed to facilitate their practical deployment. We find that, as expected, we can leverage conclusions from existing security and safeguards studies for small modular rectors and develop bespoke target set analyses to inform security postures based on probabilistic risk assessment. We find also that specific fission battery security economic analysis tools are needed and security by design must be applied early. However, the most important finding is that these new systems will require a new comprehensive set of cyber tools covering transportation, installation, operation, maintenance security of the fission battery systems. Altogether, we find that the development of the necessary security and safeguards requirements at the design phase of such a technology will be of great benefit in the smooth deployment of this modern nuclear energy system.

21 SPECIFIC NUCLEAR REACTORS AND ASSOCIATED PLANTS↗

Validation of ORIGEN for VVER-440 Spent Fuel with Application to Fork Detector Safeguards Measurements

The US Department of Energy National Nuclear Security Administration and the European Atomic Energy Community (Euratom) are collaborating with the Radiation and Nuclear Safety Authority in Finland to assess spent fuel verification methods for potential application to measurements at the planned spent fuel encapsulation plant and geological repository prior to final disposal in Finland. The fork detector (FDET) used to measure the neutron and gamma radiation from a given spent fuel assembly is an existing technology widely used by the International Atomic Energy Agency (IAEA) and Euratom for the safeguards verification of spent fuel operator declaration. Recently, an FDET data analysis software, referred to as the ORIGEN module, was developed and incorporated into the IAEA/Euratom Integrated Review and Analysis Program. This module uses the ORIGEN burnup code to calculate the nuclide concentrations and the neutron and gamma source terms in the spent fuel based on operator declarations. Then, to predict the expected FDET signals for a given fuel assembly, the module combines the source terms calculated by ORIGEN with FDET response functions that were pre-generated using MCNP models. The inspector can compare the calculated signals to the measured values in real time to identify possible anomalies in fuel assembly’s operator declaration, integrity, or measurement. In this work, the capability of the ORIGEN module was extended from application to typical light water reactor fuels to use for VVER-440 assembly types. The accuracy of ORIGEN for this type of fuel assembly calculations was assessed by comparing calculated nuclide concentrations against destructive assay measurements for VVER-440 spent fuel. The performance of the ORIGEN module for FDET safeguards verification in routine inspections was assessed using FDET measurement data for 13 spent VVER-440 assemblies that were measured at the Loviisa Nuclear Power Plant in Finland, by comparing the calculated signals to the measured quantities. The results show that the calculated FDET neutron and gamma detector signals are generally within 12% of the measurements except for one assembly. Thus, these results are applicable to future safeguards verification in the planned Finland encapsulation plant, such as for passive neutron albedo reactivity safeguards measurements.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗

Safeguards Facility Model for Lead-cooled and Gas-cooled Fast Reactors

Efforts have been underway for many years on the development of safeguards for fast neutron reactors. The efforts have been primarily for sodium-cooled fast reactors (SFRs) in cooperation with Japan, to properly implement these safeguards as the reactors are conceptualized and ultimately commercialized. The primary challenge to development of adequate safeguard approaches for fast reactors has been in understanding how to apply different aspects of safeguards when facilities widely vary from one type of fast reactor to another and is largely dependent on several key aspects of the specific reactor type. For this report, the following key areas were identified for further analysis to determine where Lead-cooled Fast Reactors (LFRs) and Gas-Cooled Fast Reactors (GCFR) fuel material flow and key measurement points would differ from previously studied SFR safeguards.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗

Safeguards Considerations for Salt Fuel Fabrication

Molten salt reactors (MSR) with liquid fuel present a unique safeguards challenge whereby the current verification techniques have not been evaluated for effectiveness and applicability. While MSR operations have been the subject of prior studies, the front-end liquid fuel preparation activities have not been extensively evaluated. Reviewing the existing resources on fuel fabrication and evaluating the range of fuel fabrication process options available will allow safeguards analysts to identify the applicability of existing safeguards practices, identify gaps in capability, and identify opportunities where safeguards may be applied. There is no existing supplier of fuel salt for MSRs. In an extensive review of MSR technology, the International Atomic Energy Agency’s (IAEA's) Nuclear Power Technology Development Section acknowledges the gap in existing capabilities for fuel salt fabrication, noting, simply, “if demand exists, supply will appear.” Salt reactor fuel has not been previously produced on an industrial scale in a non-nuclear weapon state. These characteristics of MSR fuel fabrication present high levels of uncertainty, but they also represent an opportunity to mature safeguards techniques alongside liquid fuel preparation technologies.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

The Meaning of Risk for Safety, Security, and Safeguards in the Design of Advanced Nuclear Reactors

What is the meaning of risk as it applies to the design of advanced reactors in the disciplines of safety, security, and safeguards? How can we find common terminology for the concept of risk and how can we find interfaces between these disciplines? These are important questions that should be explored in order that they may be applied in an integrated manner for the most effective and efficient design approaches. Eliminating or minimizing risks is a key design driver that motivates and informs the development of nuclear reactors. For safety, risk is well understood and applied in Probabilistic Risk Assessments. For security, the risk-based concepts of vulnerability assessments and vital areas are all considered in designing security systems. For safeguards, the concept of risk is not formally defined, as it relates to the design and operation of nuclear reactors. International nuclear safeguards seek to reduce the risk of proliferation in the nuclear fuel cycle and as such the concept of risk does exist. Therefore, the current understanding of the “3S’ approach, which seeks to find the interfaces and conflicts between safety, security, and safeguards requires a thorough understanding of the role that the reduction of risk plays in all three disciplines. The intersection of risk for safety and security is now being developed as there is a strong correlation between reactor design and operations and their vulnerability to sabotage. The intersection of risk for security and safeguards has to date chiefly been focused on the nuclear material control and accounting systems, which are relied on by both the operator (State) and the IAEA. This paper explores the concept of risk in each of the three disciplines, how they interact, potential conflicts and interfaces , how these might be addressed and leveraged, and a notional framework for how this could be achieved.

Kovacic, Donald N↗

Safeguards by Design Projects (Final Report FY2021)

This University Engagement project challenged engineering students at universities, that do not have Bachelor degrees in nuclear engineering but do have research reactors and some nuclear engineering coursework, to incorporate Safeguards by Design concepts into their Senior Capstone Design Project. This University Engagement project was part of the U. S. Department of Energy’s (DOE) National Nuclear Security Administration (NNSA), Office of Defense Nuclear Nonproliferation, Office of International Nuclear Safeguards, Next Generation Safeguards Initiative, Human Capital Development: University Engagement Program. This program exposed university students with Mechanical Engineering majors and Nuclear Engineering minors to the concepts of international nuclear safeguards.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗

Blockchain Applications for Nuclear Safeguards

This chapter discusses the benefits and challenges of using distributed ledger technology (DLT) for international nuclear safeguards purposes. The chap-ter introduces the international safeguards system and the role of the Inter-national Atomic Energy Agency. The chapter describes the evolution of the safeguards system, the IAEA’s core functions and the technical objectives it seeks to achieve. The chapter explains the benefits and drawbacks of deploying DLT for safeguards and presents potential use cases where the technology could be deployed. It ends with a description of the international com-munity’s current perspectives on deployment.

DLT, blockchain technology, international safeguar↗

Advanced Reactor Safeguards: 2022 Program Roadmap

The Advanced Reactor Safeguards (ARS) program was established in 2020 as part of appropriations for the Advanced Reactor Demonstration Program (ARDP) through the Office of Nuclear Energy in the Department of Energy. The goal of this program is to help address near term challenges that advanced nuclear reactor vendors face in meeting domestic Material Control and Accountancy (MC&A) and Physical Protection System (PPS) requirements for U.S. construction. The technical work in the program is meant to (1) support nuclear reactor vendors with advanced MC&A and PPS designs for next generation reactors, (2) provide technical bases for the regulator, and (3) promote the integration of Safeguards and Security by Design early in the design process. Existing domestic regulations for safeguards and security, as outlined in the Code of Federal Regulations, were written for large light water reactors, and rule-making efforts are underway to develop regulations more suited to different reactor designs. The ARS program seeks to remove roadblocks in the deployment of new and advanced reactors by solving regulatory challenges, reducing safeguards and security costs, and utilizing the latest technologies and approaches for robust plant monitoring and protection. This roadmap discusses the goals of the ARS program, current research, and program plan for the next five years.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗