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This chapter discusses risks from unintentional or illicit movement of nuclear and radioactive material out of regulatory control through international border crossing points, summarizes international efforts to build capacity and support border security, and discusses how detection equipment can be used to screen for penetrating radiation at traditional border crossing points.
A multidisciplinary team at Argonne National Laboratory explores the application of advanced technologies to enhance knowledge transfer and retention within the nuclear safeguards domain. Specifically, it examines the feasibility of leveraging secure large language models (LLMs) to streamline the creation of e-learning modules for the U.S. National Nuclear Security Administration (NNSA) Office of International Nuclear Safeguards (NA-241). The initiative addresses the critical need for preserving institutional memory and accelerating skill development amidst the imminent retirement of senior professionals in the field in addition to supporting good knowledge management practices. The project integrates instructional design theory with cutting-edge AI technologies to transform curated document sets from the Safeguards Knowledge Repository (SKR) into modular online courses. By automating the generation of learning objectives and instructional content, the effort aims to reduce manual effort while maintaining high-quality educational outcomes. A limited measure of human supervision, however, ensures accuracy, relevance, and alignment with NNSA’s strategic priorities. Key findings highlight the potential of AI-assisted course generation to support safeguards professionals by creating structured, interactive learning experiences. The report underscores the importance of SME validation to address limitations in AI-generated content, such as terminology errors and gaps in coverage. Recommendations include adopting a structured workflow combining LLM acceleration with expert oversight to ensure accuracy, usability, and alignment with learner needs. This work demonstrates Argonne’s commitment to advancing national security and scientific excellence through innovative knowledge management solutions.
This document provides instructions for the use of the Safeguards Knowledge Repository (SKR). SKR was developed through a multi-laboratory collaboration funded by the Department of Energy's National Nuclear Security Administration's Office of International Nuclear Safeguards (NA-241).
The secure transportation of high-consequence materials, including nuclear and radiological assets, is a critical global priority in the face of escalating terrorism, security threats, and violent protests targeting these operations. Effective surveillance detection—the ability to identify, assess, and respond to potential threats across a continuum of scenarios—is paramount in addressing these challenges. This paper outlines a phased, multi-tiered training program designed to strengthen the surveillance detection capabilities of organizations responsible for nuclear material transport. The proposed training program adopts a progressive approach, gradually increasing in technical complexity to provide participants with comprehensive knowledge and tools for implementing robust security strategies. It targets a wide spectrum of stakeholders, including competent authorities, regulators, inspectors, shippers, carriers, law enforcement, and emergency response personnel, equipping them to plan, evaluate, and safeguard nuclear material transportation effectively. Each phase of the program emphasizes distinct elements of the surveillance detection continuum and transport security, focusing on critical topics such as threat identification, adversary task timelines, protective methodologies, and attack mitigation strategies. The training framework is anchored in technical exchanges and scenario-driven courses that reflect real-world complexities and challenges. By addressing the surveillance detection continuum comprehensively—from early threat assessment to active countermeasures—the program reinforces global efforts to secure nuclear assets. It aligns with international security objectives and fosters a strong security culture within participating organizations, ensuring personnel are prepared to counter potential threats and maintain the safe, secure movement of these materials. Ultimately, this initiative aims to enhance preparedness, security, and response capabilities, supporting the global mission to safeguard high-consequence materials against evolving threats.
During the 63rd regular session of the International Atomic Energy Agency (IAEA) General Conference, as part of Norway's statement to the General Conference, Mr. Auden Halvorsen, State Secretary for Norway, made the following statement about transportable nuclear power plants (TNPPs): "Deployment of transportable nuclear power plants—TNPPs—demands our attention. The Agency must intensify its conversations of all aspects of the safety and security of such facilities. . . . The scope and applicability of existing requirements and instruments need to be clarified and developed including dialogue with the International Maritime Organization [IMO]." Ensuring the security of TNPPs is essential for their deployment and implementation. TNPPs may be floating nuclear power plants (FNPPs), which bring together elements of nuclear security related to the nuclear power plant with elements of maritime security. Insofar as an FNPP weds the principles of nuclear and maritime security, it also weds the two domains, the ancient traditions and contemporary practices of maritime law with the contemporary practices of nuclear law. Fundamentally, this raises the question, what are the legal requirements for the security of a FNPP? Although both maritime law and nuclear law have established regimes for security through various legal instruments, does an FNPP expose gaps between the current international legal instruments? The previous question of whether international legal regimes define requirements for the security of FNPPs, but a threshold question remains: what is an FNPP? For purposes of nuclear and maritime security, is an FNPP a facility, is an FNPP a vessel and therefore a transport, or does an FNPP change its status based upon temporal and spatial considerations such as when it is docked at a port generating power or in transit to its destination? This set of questions, and others addressed later in this article, highlights that the issue is not merely a question about security but intersects elements of safety whether an FNPP is in uncharted waters of the international regime for both nuclear and maritime law. Here, this paper addresses many of the questions posed above related to the security regulations for an FNPP.
In 2009, the US Department of Energy National Nuclear Security Administration’s (NNSA’s) Defense Nuclear Nonproliferation Program initiated a new nuclear forensics outreach effort under its Confidence Building Measures Program. Little did they know that the timing could not have been better. This article focuses on the early years (2009–2015) of the NNSA’s international nuclear forensics outreach, specifically the efforts and experiences of the women who helped establish this program, building it from a fledgling, bilateral effort into an enduring technical capacity provider engaging with dozens of countries and multilateral organizations. At the onset of the program, nuclear forensics was an emerging priority within the US Government and receiving increased focus from international organizations through high-level diplomatic efforts such as the Nuclear Security Summit and Global Initiative to Combat Nuclear Terrorism. Additionally, working-level initiatives were gaining traction through the International Atomic Energy Agency and the Nuclear Forensics International Technical Working Group. Over the next 6 years, a small team comprising a uniquely large number of women NNSA federal, contract, and national laboratory staff served as key leaders engaging with the international community to strengthen global technical nuclear forensics capacity and best practices. The program continues today under the Nuclear Smuggling Detection and Deterrence Program as Investigation Support. The experiences shared here detail a unique time period when the new technical discipline of nuclear forensics was beginning to mature and gain international traction. The authors have made every effort to remember history correctly and be as inclusive as possible. A wealth of training, guidance, and exercise documentation was developed in the 2009–2015 time frame, much of which still serves as the foundation for today’s even more extensive program and community of dedicated technical and diplomatic practitioners.
The US Department of Energy is exploring the methods associated with probabilistic risk assessment (PRA) and how they could be used to enhance physical security evaluations for nuclear facilities. A brief review of both international and US Nuclear Regulatory Commission physical security assessment methods is presented. From this review, and with an understanding of the technical elements associated with a traditional nuclear safety PRA, several observations are made pertaining to where physical security analysis methods could be enhanced. These observations principally support and enhance the answers within a physical security context to the risk triplet: (1) What can go wrong? (2) What is the likelihood? and (3) What are the consequences? Finally, benefits and technical challenges toward the development of a full security PRA are presented.
A nuclear power programme has many benefits, but it is a major undertaking that requires careful planning and preparation as well as a substantial investment in time. It also necessitates the establishment of a sustainable national infrastructure with committed and sustained financial and human resources. While nuclear power is not unique in this respect, it is different from other sources of energy because of the risks associated with the use of nuclear material, as well as the need for compliance with international legal instruments, internationally accepted nuclear safety standards, nuclear security guidance, and safeguards requirements. The IAEA’s Milestones in the Development of a National Infrastructure for Nuclear Power, IAEA Nuclear Energy Series No. NG-G-3.1 (Rev. 1), defines a phased approach that identifies 19 infrastructure issues that should be addressed in each of the three phases of the development of a nuclear infrastructure for a nuclear power programme. The publication Evaluation of the Status of National Nuclear Infrastructure Development IAEA Nuclear Energy Series NG-T-3.2 (Rev. 2) provides a methodology to determine the status of the infrastructure conditions covering all 19 issues identified in the Milestones Approach. A companion IAEA Implementing Guide, Establishing the Nuclear Security Infrastructure for a Nuclear Power Programme, IAEA Nuclear Security Series No. 19, provides guidance on the recommended actions to be taken by a State to establish an effective national nuclear security infrastructure for a nuclear power programme using the Milestones Approach. This publication is intended to provide guidance based on the experiences and good practices of Member States with embarking nuclear power programmes as well as Member States that are expanding their nuclear power programmes. The guidance is in the form of case studies, which highlight challenges, issues, and solutions identified by Member States as lessons learned for new nuclear power programmes. This TECDOC is designed to present the experiences of Member States to assist other Member States in developing a nuclear security programme. It addresses the key actions necessary to establish an effective national nuclear security infrastructure for a nuclear power programme consistent with the three phases of the IAEA Milestones Approach. The Member States that provided case studies in this document are at different stages in the development of a nuclear power programme.
[This is part of a hypothetical scenario-based exercise for workshop participants, based on the fictitious country "Centralia."] In prior years, as a part of efforts to strengthen and better sustain nuclear security within the State, Centralia requested through the Integrated Nuclear Security Support Plan (INSSP) framework that the International Atomic Energy Agency (IAEA) conduct an expert mission on establishing and operating a national nuclear security support centre (NSSC). After the IAEA conducted the NSSC expert mission, members of the Centralia Committee on Nuclear Security (CNS) agreed to initiate the feasibility determination phase of establishing an NSSC, in line with the systematic process recommended by the IAEA. Centralia Nuclear Regulatory Authority (CNRA), as the designated lead organization for coordinating the feasibility determination process, prepared a Feasibility Report in collaboration with members of the CNS and based on input gathered among relevant national stakeholders. The report was presented to the National Security Advisor (NSA), who reviewed and approved the proposal for Centralia to proceed with establishing an NSSC. After Centralia moved into the planning phase for the Centralia Nuclear Security Support Centre (CNSSC), per REF, the primary stakeholders of the centre jointly developed this strategy implementation plan, which provides an outline of the organizational structure, needs analysis, programme objectives, financial and project management, risk management, and other key aspects of the centre. This document will be reviewed and updated as necessary on a semi-annual basis during the project implementation period of establishing CNSSC.
Abstract not provided.
Sandia National Laboratories (Sandia) has hosted the International Training Course on the Physical Protection of Nuclear Materials and Nuclear Facilities since 1978. This course is the flagship training course of the International Atomic Energy Agency (IAEA). On behalf of the National Nuclear Security Administration (NNSA), Sandia manages, develops, and coordinates all course materials, and works closely with the IAEA to arrange all logistical details for the course ITC-29 incorporated some updates to the facility models, based on feedback received in ITC-28 and the ITC-29 dry run. In addition, all the graphics were refreshed after ITC-28 and implemented in the posters, data handbooks, etc. As in ITC-28, the ITC-29 staff worked closely with the IAEA on course materials, including a peer review process to ensure all course materials were aligned with Nuclear Security Series No. 13 and other relevant international guidance documentation from the IAEA. Due to the COVID-19 pandemic, ITC-29 was postponed twice and eventually took place in the late summer/early fall of 2022. Due to ongoing COVID-19 restrictions and safety requirements, the number of participants was reduced by about 31 percent from 59 participants in ITC-28 to 41 in ITC-29. As a result, the number of subgroups also decreased from eight in ITC-28 to six for ITC-29. This enabled the Sandia team to implement more opportunities for social distancing, particularly in the large classrooms. Despite the challenges, ITC-29 still passed a significant milestone, with the one-thousandth participant of the international training course attending during this event. Finally, the ITC staff continued the use of its improved method of evaluation to capture participants’ satisfaction with the updated course and to gather feedback concerning future improvements. This document provides a brief description of ITC-29, including a summary of lessons learned and key recommendations for future development efforts.
Nuclear technology has been pivotal in addressing some of the most pressing global challenges, ranging from energy production to combatting infectious diseases to agricultural security. Oak Ridge National Laboratory (ORNL), as a leader in nuclear research and development including in the field of radioisotopes, is well situated to share lessons learned and enhance global collaboration from years of discoveries in the field. Accordingly, the U.S. Department of Energy’s National Nuclear Security Administration (NNSA) sponsors specialized educational programs at ORNL, with support from the IAEA, focused on advancing peaceful nuclear applications and associated industries while upholding strong nuclear safety, security, and safeguards standards. The Joint U.S./IAEA International School on Peaceful Uses of Nuclear Applications, launched in 2024, is a cornerstone of this collaboration. The school provides an opportunity for early-career professionals from around the globe to gain practical knowledge and skills in utilizing nuclear technologies for peaceful purposes. This initiative demonstrates the United States’ commitment to its obligations under the Treaty on the Non-Proliferation of Nuclear Weapons (NPT), specifically Article IV, which calls on nuclear-weapon states to facilitate access to the peaceful uses of nuclear energy while guarding against the proliferation of nuclear weapons. In this paper, we explore the curriculum, objectives, and global impact of the program. Participants of the ICARST-2025 conference are invited to learn more about this program, contribute to its development, and explore opportunities for collaboration. This school exemplifies how strategic partnerships, and educational initiatives can drive the peaceful and beneficial use of nuclear technology worldwide
Tamper-indicating devices (TIDs), also known as seals, play a crucial role in various sectors including international nuclear safeguards, arms control, domestic security, and commercial products, by ensuring that monitored or high-value items are not accessed undetected. These devices do not block access but alert to unauthorized tampering. With adversaries' capabilities evolving, there's a pressing need for seals to advance in terms of effectiveness (e.g., better tamper indication and unique identification), and new technology can improve the efficiency of installation and verification. Passive loop seals, widely used in international nuclear safeguards to ensure that continuity of knowledge is maintained on declared items, face stringent International Atomic Energy Agency (IAEA) requirements that surpass those met by commercial products. The metal cup seal (Figure 1, left), a staple IAEA seal, is robust but requires significant resources for post-use verification – specifically, the seal’s unique identity can only be verified at IAEA headquarters after removal from facilities. Further, the seal has been in use for decades and seal types should periodically be replaced to counter adversarial efforts for defeating seals. In 2020, the IAEA outlined about 40 requirements for a new passive loop seal, aiming for in-situ verification, minimal external tool use, unique identification (UID), and clear tamper indication. In response, research and development efforts focused on creating a new passive loop seal that meets these criteria and in 2022 the IAEA announced the completion of the Field Verifiable Passive Loop Seal (FVPS) (Figure 1, right). Concurrently to the IAEA’s efforts, Sandia National Laboratories (SNL) and Oak Ridge National Laboratory (ORNL) designed, developed, and tested two seal versions – Puck and Puck/SAW, with Puck based on the IAEA’s requirements and including a novel visually-obvious tamper response, and Puck/SAW adding additional beneficial capabilities like the ability to receive a unique identifier from a standoff distance and monitoring the wire integrity. Puck/SAW was specifically designed and developed to address sealing applications in dry spent fuel storage facilities, where the number of sealed spent fuel containers results in heavy verification burden and inspector safety issues related to radiation exposure. These efforts are described in this Executive Summary.
This module will provide a basic overview of radiological/nuclear search operations, including the application of radiological detection instrumentation and best practices for operational tactics, techniques and procedures. This module will introduce basic radiological/nuclear search operations and include the following: (1) A review of the principles of optimizing detection, (2) An understanding of radiation hazards and alarms, and (3) An examination of nuclear security measures best practices for buildings and stadium complexes, large areas, roadways and parking areas, and pedestrian and vehicle entrance portals.
This module will provide an overview of best practices for nuclear security planning requirements to include building a nuclear security plan and a concept of operations. It will introduce best practices for nuclear security planning to include the following: (1) Develop a Nuclear Security Plan, (2) Review 10 key elements of a Concept of Operations, (3) Estimate resources for an MPE, and (4) Capture lessons learned and best practices.
In 2009, the U.S. Department of Energy / National Nuclear Security Administration’s (DOE/NNSA) Defense Nuclear Nonproliferation (DNN) Program initiated a new nuclear forensics outreach effort under its Confidence Building Measures Program. Little did they know that the timing could not have been better. This article focuses on the early years (2009-2015) of the NNSA’s international nuclear forensics outreach, specifically the efforts and experiences of the women who helped establish this program, building it from a fledgling bilateral effort into an enduring technical capacity provider engaging with dozens of countries and multilateral organizations. At the onset of the program, nuclear forensics was an emerging priority within the U.S. Government and receiving increased focus from international organizations through high-level diplomatic efforts such as the Nuclear Security Summit and Global Initiative to Combat Nuclear Terrorism. Additionally, working-level initiatives were gaining traction through the International Atomic Energy Agency and the Nuclear Forensics International Technical Working Group. Over the next six years, a small team comprised of a uniquely large number of women NNSA federal, contract, and national laboratory staff served as key leaders engaging with the international community to strengthen global technical nuclear forensics capacity and best practices. The program continues today under the Nuclear Smuggling Detection and Deterrence Program as Investigation Support. The experiences shared here detail a unique time period when the new technical discipline of nuclear forensics was beginning to mature and gain international traction. The authors have made every effort to remember history correctly and be as inclusive as possible. A wealth of training, guidance, and exercises documentation was developed in the 2009-2015 timeframe, much of which still serves as the foundation for today’s even more extensive program and community of dedicated technical and diplomatic practitioners.
This presentation, Risk-Based, Graded Approach to Insider Threat Mitigation: Human Measures, introduces a structured framework for managing insider threat risk using internationally recognized guidance from the International Atomic Energy Agency (IAEA) Nuclear Security Series No. 8-G (Rev. 1) and the Joint Statement on Mitigating Insider Threats (INFCIRC/908). The presentation emphasizes that effective insider threat mitigation (ITM) depends on both positional controls, which manage inherent risk based on access, authority, and knowledge, and human measures, which address residual risk reflected in behavior, motivation, and reliability. Using a risk-informed and graded approach, the presentation outlines methods for identifying and prioritizing high-risk positions, applying layered organizational controls, and integrating human reliability mechanisms such as the Behavior Observation Program (BOP), Fitness-for-Duty (FFD) evaluations, Employee Assistance Programs (EAP), and Nuclear Security Culture (NSC). The human-focused portion examines behavioral and organizational indicators of opportunity, vulnerability, motivation, and crisis, demonstrating how early detection, deterrence, and response can prevent insider events. The session concludes with a case review of the Millstone Nuclear Power Station incident involving engineer George Galatis. The case illustrates how weak leadership and a poor safety culture can create conditions for failure and how a comprehensive ITM framework could have altered the outcome. The objective of this presentation is to help practitioners apply a risk-based, graded philosophy to human factors and promote a culture of accountability, communication, and resilience within nuclear organizations.
Growing interest in compact, easily transportable sources of baseload electricity has manifested in the proposal and early deployment of portable nuclear reactors (PNRs). PNRs are sought because they are scalable, efficient, and cost-effective for meeting energy demands in unique, remote, or contested areas. For example, Russia's KLT-40S Akademik Lomonosov is a floating nuclear power plant (FNPP) that successfully reached the Arctic coastal city of Pevek. It began providing power to the local grid in December 2019. While providing such key advantages as having a highly flexible power generation mechanism, FNPPs appear to directly challenge international norms and conventions for nuclear safety, safeguards, and security. FNPPs are neither a purely fixed nuclear fuel cycle activity nor a purely transportation-based nuclear fuel cycle activity. In response, Sandia's Mitigating International Nuclear Enogy Risks (MINER) research perspective frames this discussion in terms of risk complexity and the interdependencies between safety, safeguards, and security in FNPPs, and PNRs more generally. This systems study is a technically rigorous analysis of the safety, safeguards, and security risks of FNPP technologies. This research's aims are three-fold. The first aim is to provide analytical evidence to support safety, safeguards, and security claims related to PNRs and FNPPs (Study Report Volume I). Second, this study aims to introduce a systems- theoretic approach for exploring interdependencies between the technical evaluations (Study Report Volume II). The third aim is to show Sandia's ability for prompt, rigorous, and technical analysis to support emerging complex MINER mission objectives.