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DOE OSTI2026

Artificial Intelligence in Nuclear Safeguards; Evaluating Safeguards and Security Risks and Benefits for Advanced and Small Modular Reactor Deployments

Rapidly growing interest in advanced and small modular reactor (A/SMR) technologies presents challenges as well as opportunities for implementing international safeguards and security. A/SMR deployments are expected to be more numerous, more geographically dispersed, and more varied in their designs, placing new demands on the data systems and analytical tools used to support oversight (Alberti et al., 2023; Canadian Nuclear Safety Commission et al., 2024). Because of this variability, the importance and reliance on data systems for A/SMR deployments is expected to be higher than for previous reactor generations. Artificial Intelligence and Machine Learning (AI/ML) offer potential capabilities to address the high variability inherent in A/SMR technology. The beneficiaries of AI-assisted tools include facility operators, government regulators, IAEA inspectors, and A/SMR vendors. This report analyzes how AI/ML-assisted technologies can strengthen the implementation of IAEA safeguards and security measures. It also identifies AI-assisted tools to strengthen operator, facility, and regulator knowledge management practices and examines the potential risks AI/ML-based tools may introduce to IAEA safeguards and security efforts. It concludes with a set of hypothetical, standards-style requirements for AI/ML systems used in safeguards contexts, grounded in an inspector-centric view of system verification. Despite the potential benefits of AI/ML systems, understanding potential intentional and unintentional failure modes is critical for ensuring adequate protection of nuclear materials and facilities. Unique features of A/SMRs including sealed cores, remote and novel paradigms of operation, off-site reactor fabrication, novel fuel forms, and varied refueling requirements, introduce challenges for traditional safeguards technological approaches (Pensado et al., 2024; Federation of American Scientists, 2025). AI/ML systems deployed to address these challenges may introduce new risks requiring systematic evaluation rooted in both AI-specific risk frameworks, such as the NIST AI Risk Management Framework (NIST AI RMF), and established cyber risk management standards such as NIST SP 800-30 (National Institute of Standards and Technology [NIST], 2023; NIST, 2012).

97 MATHEMATICS AND COMPUTING↗
DOE OSTI2024

Challenges and Technology-Driven Opportunities for Safeguarding Microreactors

Nuclear microreactors (MRs) represent a new class of reactors characterized by their compactness, portability, and low power output. These features enable MRs to supply electricity and process heat to remote areas like military bases; inaccessible locations; small grids, such as on islands; or disaster impacted areas. Compared to traditional light water reactors, MRs have a unique set of attributes that need to be considered for the implementation of safeguard strategies. Current safeguard methodologies are reactor technology specific and are employed on large, stationary reactors where there is easy access by safeguards inspectors and where safeguard equipment can be easily installed and retrofitted. While there are numerous benefits to MRs, their compact size, portability, scalability, and operational lifetime create challenges to the traditional safeguard approaches, thus needing novel safeguard strategies. Here, this paper addresses the unique challenges posed by MRs to the international nuclear safeguards regime, including limited human resources, and explores how technology advancements can help mitigate these challenges. Specifically, it examines novel technologies that could contribute to establishing a comprehensive safeguards framework for MRs. These safeguards-enabling technologies encompass safeguards by design, remote sensing and monitoring technologies, applications of artificial intelligence and machine learning algorithms, utilization of digital twins, and system of systems assessments. While each of these safeguards-enabling technologies offers partial solutions to the challenges posed by MRs for the international safeguards regime, none of them alone can entirely address these challenges. Consequently, a combination of the safeguards-enabling technologies outlined in this paper is recommended to establish a robust safeguards regime for MRs.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗
DOE OSTI2024

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↗
DOE OSTI2021

Deep Learning Systems for Increased Safeguards Surveillance Review Productivity

Nuclear safeguards inspectors expend significant time and maintain intense focus in reviewing video surveillance for safeguards relevant events. To increase efficiency and reduce the time burden of safeguards inspectors performing surveillance data review, this paper presents a novel deep learning (DL) systems concept to integrate generalized DL models into the safeguards surveillance review workflow. The Agency is investigating several DL algorithms for object recognition, localization, tracking, and flagging relevant activities. The project team is working closely with nuclear safeguards inspectors to identify review use cases (based on specific safeguards objectives) and collect their associated requirements. We focused on CANDU and LWR Nuclear Power Plants (NPPs) and their associated dry storage areas as these present a particularly heavy burden on the inspector surveillance review process due to the number of these facilities under safeguards worldwide. Initial DL algorithm results on safeguards data are promising. Using a convolutional neural network, the team attained a mean average precision (mAP) of 92.9% identifying and localizing spent fuel (SF) casks from a 475 surveillance image dataset. Further, the team had initial success in training a recurrent neural network to identify reactor area activities in video clips, successfully indicating when SF casks enter or exit a pool. We discuss how such DL algorithms would be integrated into the Next Generation Surveillance Review (NGSR) software application. Another issue impacting review productivity is the long time inspectors may have to wait when running these algorithms in NGSR. We present a concept to pre-process remotely collected surveillance data with DL models as the data arrives to IAEA headquarters so that results are already available when starting a new review in NGSR. The proposed DL system concept shows a pathway and workflow for increasing an inspector’s surveillance review productivity by quickly and accurately identifying declared and undeclared safeguards relevant objects and activities in large quantities of surveillance imagery data.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗
DOE OSTI2020

Safeguards Technical Objectives for Thorium Molten Salt Reactor Fuel Cycles

China, Denmark, France, India, Indonesia, the United Kingdom, and the United States, among others, are exploring commercial thorium fuel cycles for domestic power production and/or international export. For any thorium fuel cycle facilities built and/or operated in a non-nuclear weapon State with a comprehensive safeguards agreement, those facilities and any associated nuclear material would be subject to international nuclear safeguards by the International Atomic Energy Agency (IAEA). Thorium fuel cycle facilities offered for the application of safeguards under a voluntary offer agreement by a nuclear weapon State would also be subject to safeguards, if selected by the IAEA. Compared to uranium/plutonium fuel cycle facilities, thorium fuel cycle facilities are comparatively diverse from an inspection and accounting perspective, differing greatly in material type, form, and design from uranium/plutonium fuel cycle facilities and also from each other. Of these, the most complex thorium fuel cycles – and therefore likely the most challenging to the implementation of international nuclear safeguards – are those that include thorium molten salt reactors. With thorium fuel cycles approaching near-term commercial deployment timelines, it is imperative that the international nuclear safeguards community begins to think about how to adapt existing international nuclear safeguards concepts and approaches to thorium fuel cycles, as well as mitigate any gaps that may exist. This paper focuses on the development of recommended safeguards technical objectives for efficient and effective application of international nuclear safeguards measures (e.g., containment / surveillance, non-destructive assay, destructive assay, environmental sampling) to thorium molten salt reactors.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗
DOE OSTI2022

Considerations for Safeguards Implementation in the Post-Operational Facility Life Cycle

Hundreds of facilities around the world under International Atomic Energy Agency (IAEA) safeguards are currently permanently shutdown or undergoing decommissioning. For facilities in States with a comprehensive safeguards agreement (CSA) in force, safeguards obligations under the CSA extend until the IAEA has determined for safeguards purposes that a facility has been decommissioned (i.e., the IAEA has verified that the nuclear material has been removed and residual structures and equipment essential for its use have been removed or rendered inoperable). The IAEA Department of Safeguards recently issued a report providing high-level guidance to States on IAEA safeguards implementation throughout the post-operational life cycle phases of facilities and locations outside facilities. These phases include permanent shutdown, closed-down, and decommissioned for safeguards purposes. Additional consideration is needed for how post-operational facilities might be consistently evaluated when developing State-level safeguards approaches. This work presents ideas about how the IAEA might implement the State-level concept and associated elements (e.g., State-specific factors) throughout the post-operational life cycle, focusing on maintaining effectiveness and gaining efficiencies where appropriate. Considerations include whether State-specific factors should influence facility status, how a change in a facility’s post-operational status might impact a State’s acquisition path analysis, and how rendering inoperable/removal of essential equipment could affect resources expended on safeguards implementation.

Hogue, Karen↗
DOE OSTI2020

The MPACT 2020 Milestone: Safeguards and Security by Design of Future Nuclear Fuel Cycle Facilities.

The Materials Protection, Accounting, and Control Technologies (MPACT) campaign, within the U.S. Department of Energy Office of Nuclear Energy, has developed a Virtual Facility Distributed Test Bed for safeguards and security design for future nuclear fuel cycle facilities. The purpose of the Virtual Test Bed is to bring together experimental and modeling capabilities across the U.S. national laboratory and university complex to provide a one-stop-shop for advanced Safeguards and Security by Design (SSBD). Experimental testing alone of safeguards and security technologies would be cost prohibitive, but testbeds and laboratory processing facilities with safeguards measurement opportunities, coupled with modeling and simulation, provide the ability to generate modern, efficient safeguards and security systems for new facilities. This Virtual Test Bed concept has been demonstrated using a generic electrochemical reprocessing facility as an example, but the concept can be extended to other facilities. While much of the recent work in the MPACT program has focused on electrochemical safeguards and security technologies, the laboratory capabilities have been applied to other facilities in the past (including aqueous reprocessing, fuel fabrication, and molten salt reactors as examples). This paper provides an overview of the Virtual Test Bed concept, a description of the design process, and a baseline safeguards and security design for the example facility. Parallel papers in this issue go into more detail on the various technologies, experimental testing, modeling capabilities, and performance testing.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗
DOE OSTI2022

Outreach to Industry on Safeguards by Design Concept for Small Modular Reactors

"Safeguards by Design" (SBD) is the process of incorporating safeguards features into the design of a nuclear facility during the design stage. The goal of SBD is to increase the safeguardability of a facility, which is a qualitative measure of the degree of ease with which a nuclear energy system can be effectively and efficiently placed under international safeguards. During the past decade, the National Nuclear Security Administration's (NNSA) Next Generation Safeguards Initiative funded the Pacific Northwest National Laboratory (PNNL), Brookhaven National Laboratory, and several consultants to develop the Facility Safeguardability Assessment (FSA) process. FSA is a screening process used by a facility designer to focus attention on the aspects of their facility or process design that would most benefit from application of SBD principles and practices. The process identifies the most relevant guidance within the SBD tools for enhancing the safeguardability of the design. During FY 2014, NNSA sponsored BNL and LANL to introduce the FSA to Westinghouse designers of their small modular nuclear power plant design. This report documents the interactions with Westinghouse Electric Company LLC ("Westinghouse") staff. The report describes the Westinghouse safeguards design concept with a view towards eventual application of the FSA to their design.

21 SPECIFIC NUCLEAR REACTORS AND ASSOCIATED PLANTS↗
DOE OSTI2025

Knowledge Transfer Program for International Nuclear Safeguards

Nuclear safeguards were first announced in 1945 by the U.S., Canadian and British governments as a means to exchange scientific information about peaceful uses of atomic energy and prevent the use of nuclear material for weapons. International nuclear safeguards, now under the provision of the International Atomic Energy Agency (IAEA), serves to hold accountable the 140 member countries (States) that have entered into treaties and agreements against the spread of nuclear weapons. Most notably, the IAEA acts as a nuclear materials inspectorate under the global Nuclear Non-Proliferation Treaty, brought about in 1968, that specifies commitments member States make to the world?s non-proliferation regime. The Office of International Nuclear Safeguards (OINS) is part of the National Nuclear Security Administration, a semi-autonomous agency within the U.S. Department of Energy. Within OINS, the Human Capital Development program recognizes the need to build workforce capacity and safeguards expertise. This includes supporting the education and training of younger generations working in international nuclear safeguards. One of the program?s main concerns is core competencies being lost to retirement or attrition and building knowledge retention pipelines from senior to new professionals. One identified core competency is knowledge gained by individuals who have completed IAEA assignments such as missions to member States to conduct safeguards inspections. Such individuals possess unique knowledge, and efforts are being put forth to effectively capture this knowledge within the national laboratories complex. To this end, we report findings from a one-year mentor-mentee knowledge retention program in which an international safeguards subject matter expert imparted knowledge and skills to a willing professional mentee. The knowledge and skills stem from the mentor?s multi-year assignment at the IAEA in Vienna, Austria.

98 - NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL↗
DOE OSTI2022

Knowledge Transfer and Training in Safeguards for Decommissioned Nuclear Facilities (Project Final Report for FY2022)

The International Atomic Energy Agency (IAEA) applies safeguards to nuclear facilities that are not operating, including those undergoing decommissioning, and the IAEA’s effort in this area is both considerable and increasing. Specifically, the IAEA Department of Safeguards’ Division of Concepts and Planning (SGCP-003: Safeguards Approaches) identified an R&D need to “Develop safeguards implementation guidelines for facilities under decommissioning and safeguards concepts for post-accident facilities under decommissioning”. Nuclear facilities undergoing decommissioning are not exempt from safeguards agreements between the IAEA and Host State, and, accordingly, the requirement for verification of no diversion of nuclear material and detection of undeclared activities at decommissioned facilities remain even after facility shutdown. However, the effort required to meet safeguards objectives diminishes as nuclear material and essential equipment are removed during the decommissioning process which shifts the emphasis from verification of ever-diminishing fissile or source material inventories to verification of changes in facility design and equipment operability.

96 KNOWLEDGE MANAGEMENT AND PRESERVATION↗
DOE OSTI2021

Design Considerations for the Field Use of International Nuclear Safeguards Technology

The process of developing and deploying safeguards technology should be carried out in such a way that it supports the International Atomic Energy Agency’s (IAEA’s) international safeguards verification mission, while also being efficient in terms of both cost and time. This process, however, may be hindered by a general lack of nuclear facility operating experience among the scientists or engineers designing safeguards technology, or the inability to interact with the IAEA inspector end user. As a result, equipment designers may have difficulty understanding inspector needs and the limitations of using safeguards technology in the field, often leading to inefficiencies (in the form of increased cost and time spent) in the safeguards technology design process. Here, to mitigate this knowledge gap, the Y-12 National Security Complex in Oak Ridge, Tennessee, has developed design considerations that should be incorporated into safeguards technologies, focusing on non-destructive assay equipment. Timelines for integration of these considerations into the design process are also discussed.

98 NUCLEAR DISARMAMENT, SAFEGUARDS, AND PHYSICAL P↗
DOE OSTI2021

Development of MCNP Training Modules for Safeguards Practitioners [Abstract]

The Monte-Carlo N-Particle (MCNP) software developed at LANL is the most widely used neutron transport code in the world. It is an essential tool for a variety of applications including detector development and design, nuclear fuel burnup simulation, criticality safety, and nondestructive assay system optimization. For this reason, it is indispensable within the safeguards and materials control & accountability (MC&A) communities. Multiple MCNP training courses have been created and taught over the last several decades by the MCNP development team at LANL, however there are no existing courses that cover specialized topics considered fundamental to NDA and safeguards models. To fill this gap, the MCNP team and Safeguards Science and Technology group at LANL have co-created a set of training modules customized to meet the specialized needs of the safeguards and MC&A communities. The basic modules cover concepts such as NDA system optimization, He-specific and other capture tallies, and tools for improved theoretical understanding. An advanced module was also created to cover topics including variance reduction for active interrogation simulations, use of the LANL MCNPTools post-processor, PTRAC (particle tracking) and list-mode data simulations, and fuel burnup simulations. The training modules teach to the latest and most state-of-the-art MCNP features and tools released by the development team at LANL and are intended to be taught jointly by the developers and safeguards experts. Ultimately, we hope that creation of these modules will serve to capture and convey the safeguards modeling and MCNP expertise at LANL, and that we will be able to share the modules more broadly with the MC&A and safeguards communities.

73 NUCLEAR PHYSICS AND RADIATION PHYSICS↗
DOE OSTI2020

Safeguards by Design Projects (FY2020 Final Report)

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. FY20, three teams at the University of Rhode Island and one team at the University of Texas - Austin participated in researching, designing, building, and testing projects to support international nuclear safeguards measurements or verification. The projects involved engaging in activities at the university’s research reactors. All the projects engaged students with prototyping a design and/or tool for application at the Universities’ reactor. At the end of the course, most of the students expressed the experience was a positive and they learned more about international nuclear safeguards and applying requirements than they had previously encountered. This school year the projects were further complicated by the COVID-19 pandemic. Both universities cancelled in class room classes, and limited direct student/professor interactions. Furthermore, Los Alamos National Laboratory (LANL) greatly restricted travel, therefore making it impossible to visit the students at the end of the semester for the review of their design projects. The final design and review meeting for the projects happened via the internet. Additionally, while the teams planned to build prototypes this did not happen since there was a social distancing ban on students meeting in person.

21 SPECIFIC NUCLEAR REACTORS AND ASSOCIATED PLANTS↗
DOE OSTI2022

Safeguards by Design Projects (Final Report-FY-22)

This University Engagement project challenged engineering students at universities, that do not have Bachelor degree programs 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 (NGSI), Human Capital Development (HCD): University Engagement Program. This program exposed university students with Mechanical Engineering majors and Nuclear Engineering minors to the concepts of international nuclear safeguards. In FY22, three teams at the University of Rhode Island and two teams at the University of Texas - Austin participated in researching, designing, building, and testing projects to support international nuclear safeguards measurements or verification. The projects involved engaging in activities at the university’s research reactors. All the projects engaged students with prototyping a design and/or tool for application at the Universities’ reactor. At the end of the course, most of the students expressed the experience was positive and they learned more about international nuclear safeguards and applying requirements than they had previously encountered. This school year the projects were further complicated by the COVID-19 pandemic. Both universities had limited in classes on campus, still relying on Zoom classes, and limited direct student/professor interactions. Furthermore, Los Alamos National Laboratory (LANL) greatly restricted travel, therefore making it impossible to visit the students at the end of the semester for the review of their design projects. The final design and review meeting for the projects happened via meetings over the internet. Additionally, the teams did build and test some prototypes but could only do so in a limited capacity.

42 ENGINEERING↗
DOE OSTI2023

Safeguards by Design Table Top Exercises Final Report (FY 2023)

This University Engagement project challenged engineering students at universities, that do not have bachelor’s degree programs in nuclear engineering but do have research reactors and some nuclear engineering coursework, to develop capacity in Safeguards by Design concepts through the application of Tabletop Exercises. 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 (NGSI), Human Capital Development (HCD): University Engagement Program. This program exposed university students with Mechanical Engineering majors and Nuclear Engineering minors to the concepts of international nuclear safeguards. In FY22, three teams at the University of Rhode Island and two teams at the University of Texas Austin participated in researching, designing, building, and testing projects to support international nuclear safeguards measurements or verification. The projects involved engaging in activities at the university’s research reactors. All the projects engaged students with prototyping a design and/or tool for application at the Universities’ reactor. However, for FY23, the direction of the HCD project had changed to implementing a Tabletop Exercise in Safeguards by Design (SBD). A Tabletop Exercise was not executed during FY23, but relationships with both Universities was maintained and how to integrate the exercise into the curriculum of both programs was determined.

22 GENERAL STUDIES OF NUCLEAR REACTORS↗