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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↗

Characterization of Safeguards Implementation Schedules for Advanced Reactors

Advanced reactor designs differ from the traditional light-water reactor designs and operational requirements in nearly every facet, including the heat transfer fluids, operating temperatures and pressures, and fuel cycle requirements. To account for these differences, significant effort will be required to ensure appropriate safeguards implementation for US-based reactors intended for global deployment. This is the second in a series of three reports that examine facets of this issue. The first paper (ORNL/TM-2021/2142) examines potential construction schedules for advanced reactors to create a baseline understanding of the timeframes involved. This second report characterizes International Atomic Energy Agency (IAEA) safeguards implementation schedules for potential advanced reactors. Finally, the third report (ORNL/TM-2021/2208) examines existing gaps for safeguards implementation at advanced reactors.

21 SPECIFIC NUCLEAR REACTORS AND ASSOCIATED PLANTS↗

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↗

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↗

Cyber-Informed Engineering (CIE) Guide for States

The Cyber-Informed Engineering (CIE) Guide for States provides state energy offices, public utility commissions, and partner organizations with a structured framework for integrating cyber-resilient engineering practices into energy planning, grantmaking, interconnection processes, and workforce development. As grid digitalization and the adoption of distributed energy resources accelerate, states face expanding cyber-physical risks that traditional cybersecurity measures alone cannot fully address. CIE offers a proactive, consequence-focused engineering methodology that emphasizes eliminating or mitigating high-impact failure modes through design, physical controls, and operational safeguards. The guide outlines the 12 core CIE principles, demonstrates their application through state-focused use cases—including grant evaluation rubrics, interconnection reviews, allow-list development, and training programs—and provides practical tools such as scoring frameworks, impact assessment methods, and implementation checklists. It also highlights pathways for state–utility collaboration and opportunities for technical assistance from national laboratories. By adopting CIE, states can enhance grid reliability, reduce lifecycle costs, strengthen supply-chain assurance, and foster a security-aware engineering culture that aligns with broader resilience and modernization goals. November 2025

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

Cyber-Informed Engineering (CIE) Guide for States

The Cyber-Informed Engineering (CIE) Guide for States provides state energy offices, public utility commissions, and partner organizations with a structured framework for integrating cyber-resilient engineering practices into energy planning, grantmaking, interconnection processes, and workforce development. As grid digitalization and the adoption of distributed energy resources accelerate, states face expanding cyber-physical risks that traditional cybersecurity measures alone cannot fully address. CIE offers a proactive, consequence-focused engineering methodology that emphasizes eliminating or mitigating high-impact failure modes through design, physical controls, and operational safeguards. The guide outlines the 12 core CIE principles, demonstrates their application through state-focused use cases—including grant evaluation rubrics, interconnection reviews, allow-list development, and training programs—and provides practical tools such as scoring frameworks, impact assessment methods, and implementation checklists. It also highlights pathways for state–utility collaboration and opportunities for technical assistance from national laboratories. By adopting CIE, states can enhance grid reliability, reduce lifecycle costs, strengthen supply-chain assurance, and foster a security-aware engineering culture that aligns with broader resilience and modernization goals. November 2025

29 - ENERGY PLANNING, POLICY AND ECONOMY↗

Modeling and Simulation Supporting Material Control and Accounting for Advanced Reactors: Task 2: Safeguards Modeling and Simulation Assessment

Commercial interest in advanced reactors for power production in the United States is increasing. A variety of advanced reactor designs are being developed, and many of them use non-traditional fuel forms. Therefore, the material control and accounting (MC&A) methods that will be required for these advanced reactor systems also need to be developed to ensure that the necessary safeguards are implemented. To provide information that can be leveraged to explore different MC&A approaches, three representative advanced reactor types were evaluated from a technical safeguards perspective. These reactor designs were selected to encompass common materials and configurations that could affect safeguards considerations. The three designs evaluated were a molten salt reactor (MSR), a gas-cooled reactor (GCR), and a heat pipe-cooled microreactor.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗

Advanced Reactor Safeguards & Security 2024 Program Roadmap

The Advanced Reactor Safeguards and Security (ARSS) program was established to provide research support addressing near term challenges that advanced nuclear reactor vendors face in meeting domestic Material Control and Accounting (MC&A), Physical Protection System (PPS), and Cybersecurity requirements for U.S. construction. The technical work in the program is meant to (1) support nuclear reactor vendors with advanced MC&A, PPS, and Cybersecurity 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 ARSS 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 ARSS program, current research, and program plan for the next five years.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗

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↗

Validating the autonomous EO-1 science agent

This paper describes the validation process for the Autonomous Science Agent, a software agent that is currently flying onboard NASA EO-1 spacecraft. The agent autonomously collects, analyzes, and reacts to onboard science data. The Autonomous Science Agent has been designed using a layered architectural approach with specific redundant safeguards to reduce the risk of an agent malfunction to the EO-1 spacecraft. This safe design has been thoroughly validated by informal validation methods supplemented by sub-system and system-level testing. This paper describes the analysis used to define agent safety, elements of the design that increase the safety of the agent, and the process used to validate agent safety.

software↗

Validating the Autonomous Science Agent

This paper describes the validation process for the Autonomous Science Agent, a software agent that will fly onboard the EO-1 spacecraft from 2003-2004. This agent will recognize science events, retarget the spacecraft to respond to the science events, and reduce data downlink to only the highest value science data. The autonomous science agent has been designed using a layered architectural approach with specific redundant safeguards to reduce the risk of an agent malfunction to the EO-1 spacecraft. This 'safe' design is also in the process of being thoroughly validated by informal validation methods and extensive testing. This paper describes the analysis used to define agent safety, elements of the design that increase the safety of the agent, and the process being used to validate agent safety prior to the agent software controlling the spacecraft.

agent safety↗

Analysis of PNAR Spent Fuel Safeguards Measurements using the ORIGEN Data Analysis Module

This paper summarizes the analysis of the Passive Neutron Albedo Reactivity (PNAR) measurements using the ORIGEN data analysis module for 23 boiling water reactor spent fuel assemblies that were performed in Finland under an international collaboration on spent fuel safeguards verification methods. PNAR is part of the proposed integrated nondestructive system to be used for safeguards verifications at the planned Finnish encapsulation facility. Besides measuring passive neutron and gamma emission rates from an assembly like a Fork detector, PNAR also measures the PNAR ratio, which is expected to correlate with the fissile content in the assembly. The emission rates and PNAR ratio can be used to verify the operator declarations and the fissile content of an assembly, respectively. The analysis was performed using the ORIGEN Data Analysis Module, which was originally developed for predicting Fork detector neutron and gamma signals for spent fuel measurements and has been integrated into the Integrated Review and Analysis Package developed by Euratom and the IAEA. The Module includes the ORIGEN burnup analysis code and integrates detector response functions pre-generated using MCNP to predict detector signals in several seconds per assembly. In this study, new response functions specific to PNAR measurements were generated for ORIGEN Module. The study also analyzes impacts of using detailed fuel design and operation information vs. standard safeguards information on results calculated by ORIGEN Module. Using detailed information reduced the standard deviation of 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. This paper describes how ORIGEN Module calculates the expected PNAR neutron and gamma signals and PNAR ratio and how they compare with corresponding measured values.

Ilas, Germina↗

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↗

Inspecta Technical Report

Sandia National Laboratories (SNL) is in the process of creating Inspecta (International Nuclear Safeguards Personal Examination and Containment Tracking Assistant), an Artificial Intelligence (AI)-powered smart digital assistant (SDA) with robotic capabilities, aimed at enhancing the effectiveness, efficiency, and safety of international nuclear safeguards inspections. This innovative tool is designed to assist inspectors on-site by supporting or automating tasks that are typically mundane, hazardous, or susceptible to errors. In 2021, the development team established the specifications for Inspecta by analyzing International Atomic Energy Agency (IAEA) documents and consulting with former IAEA inspectors and subject matter experts. This process involved aligning in-field inspection tasks with existing commercial or open-source technologies to outline a roadmap for the initial prototype of Inspecta, while also identifying areas needing further research and development. From 2022 – 2024, the focus has shifted to integrating a critical inspection activity, the examination of seals, into an early version of Inspecta. This has involved developing both the software and hardware capabilities necessary for this task. This report outlines the ongoing advancements in Inspecta's functionalities, specifically those supporting the seal examination process.

97 MATHEMATICS AND COMPUTING↗

Validation and demonstration of the AEFC as a practical safeguards tool for inventory verification

The Advanced Experimental Fuel Counter (AEFC) is a nondestructive assay (NDA) instrument designed to determine the residual fissile mass in irradiated fuel assemblies for safeguards verification purposes. This is done by actively interrogating an assembly with a neutron source and measuring the total (Singles) and correlated (Doubles) neutron count rates resulting from induced fissions in the irradiated nuclear fuel and relating those rates to the residual fissile mass using calibration curves. Comprehensive NDA measurements of the irradiated fuel inventory at Israeli Research Reactor 1 (IRR-1) were taken with the AEFC to validate a set of previously developed calibration curves. During the campaign, measurements were acquired of 32 standard fuel assemblies and three control assemblies in just nine days. This is a significant majority of the research reactor's irradiated fuel inventory and the largest data set gathered by the AEFC to date. Many of the fuel assemblies measured during the campaign had much shorter cooling times than those assemblies previously measured with the instrument. Calibration curves developed from previous AEFC deployments were used to determine the residual 235 U mass in the measured standard fuel assemblies. The results of the campaign demonstrated that the AEFC can be used to estimate the 235 U mass remaining in a large number of irradiated fuel assemblies with 1%–5% uncertainty in a reasonable amount of time despite operating in a high dose environment.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗

Strengthening Technical Safeguards of Fresh Fuel Through International Cooperation

Over time, nuclear fuel designs have shifted towards having higher initial enrichments and a greater number of burnable poison rods. This enables increased burnup for commercial reasons. These changes have made safeguards measurements of the 235 U content in modern fresh fuel more challenging.This is addressed here through a re-evaluation of the UNCL (Uranium Neutron Collar–Light Water Reactor Fuel)poison rod correction factor. Coefficients of the poison rod correction factor were updated by simulating response of AngraII PWR fuel with a wide range of both burnable poison rods and Gd 2 O 3 contentper rod. Benchmark comparisons are made to experiments performed at Resende (Brazil) and CNEN/LASAL in Brazil. By updating these coefficients, while maintaining the same mathematical form to allow INCC to be used without software modification,it was possible to reduce error in experimental 235 U linear density assay by an order of magnitude.

11 NUCLEAR FUEL CYCLE AND FUEL MATERIALS↗

dGPredictor: Automated fragmentation method for metabolic reaction free energy prediction and de novo pathway design

Group contribution (GC) methods are conventionally used in thermodynamics analysis of metabolic pathways to estimate the standard Gibbs energy change ( Δ r G ′ o ) of enzymatic reactions from limited experimental measurements. However, these methods are limited by their dependence on manually curated groups and inability to capture stereochemical information, leading to low reaction coverage. Herein, we introduce an automated molecular fingerprint-based thermodynamic analysis tool called dGPredictor that enables the consideration of stereochemistry within metabolite structures and thus increases reaction coverage. dGPredictor has comparable prediction accuracy compared to existing GC methods and can capture Gibbs energy changes for isomerase and transferase reactions, which exhibit no overall group changes. We also demonstrate dGPredictor’s ability to predict the Gibbs energy change for novel reactions and seamless integration within de novo metabolic pathway design tools such as novoStoic for safeguarding against the inclusion of reaction steps with infeasible directionalities. To facilitate easy access to dGPredictor, we developed a graphical user interface to predict the standard Gibbs energy change for reactions at various pH and ionic strengths. The tool allows customized user input of known metabolites as KEGG IDs and novel metabolites as InChI strings ( https://github.com/maranasgroup/dGPredictor ).

59 BASIC BIOLOGICAL SCIENCES↗

Virtual Reality for Shoot/No-Shoot Decision Training in Law Enforcement: A Literature Review and Research Agenda

Virtual reality (VR) can materially improve “shoot / no-shoot” (SNS) training by giving officers realistic, repeatable practice making high-stakes decisions under pressure. Traditional tools—live-fire ranges and video simulators—build basics, but they cannot adapt to each officer in real time or fully mirror the complexity of the field. VR closes that gap by creating immersive scenarios that are safer, more flexible, easier to scale across units, and able to capture objective performance data. SNS decisions are not just about marksmanship; they rely on perception, judgment, memory, and the ability to hold fire when a threat is uncertain. Effective training therefore needs realism, decision complexity, and branching outcomes that reflect the true consequences of choices. These elements strengthen recognition of hostile intent while reducing false positives and building the self-control required in ambiguous situations. VR brings specific advantages: dynamic environments, full-body interaction, and the ability to measure performance with precision—enabling targeted feedback and better transfer of learning to the street. At the same time, responsible deployment must address scenario quality (credible environments and behaviors), lawful decision models, and user wellbeing (appropriate stress levels, comfort, and safety). Sandia’s VIPER Lab is positioned to lead this work. The team combines human-performance science, AI/ML, and VR/AR development with a deep equipment bench (e.g., omnidirectional treadmill, eye-tracking, haptics, multiple HMDs). This ecosystem supports building and validating next-generation SNS training that is immersive, measurable, and trustworthy. Bottom line: Investment in VR-enabled SNS training that blends evidence-based design with careful validation and legal safeguards is expected to pay off in safer, more consistent decision-making and improved community trust, delivered through training that is practical to deploy at scale.

45 MILITARY TECHNOLOGY, WEAPONRY, AND NATIONAL DEF↗