Free Response to Motion - District Court of Federal Claims - federal

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Case 1:98-cv-00126-JFM

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Document 792-17

Filed 04/16/2004

Page 1 of 6

Throughput Rate Study

Lawrence Ford William Bailey
Peter Gottlieb

Donald Robertson
fluor Daniel,

flora Emami .
Mark F1eming

Ioc:.

Civifian Radioactive
Waste Management SyStem

3333 Michelson Drive Imne, CA '2730. (714) 975-2000

Management and Operating Contractor 2650 Park Tower Drive, Suite 800

Vienna, VA 22180
(703) 204-8500
ABSTRACT
The Civilian Radioactive Waste Management System (CRWMS) Management and Operating (M&O) Contractor, has completed a study to analyze system wide impacts of operating the CRWMS at varying: throughput rates. including 3000 MTU/year rate which has been assumed in the past. Impacts of throughput rate

METIIODOLOGY

The M&O has defined a CRWMSReference System Design. (RSD). This reference design constitu~ one scenario of the
Reference Strategy (3000 MI'U1year is also assumed as the

phases of the CRWMS operations (acceptance. . transportation. storage and disposal) were evaluated. The results

on all

. thioughput rate). Four other scenarios were defll1Cll by assuming 2000, 4000, 5000, and 6000 MI'U/year. The key assumptions of

the Reference Stratefy are:

of the study indicate a range from 3000 to 5000 MTU/year Is preferred, based on system cost per MTU of SNF emplaced and logistics constraints.

INTRODUCTION
.
The primary objective preferred" rate or range of

oldest fuel first acceptance rights and SNF selection frQm utilities BfA 1990 projections of SNF discharges (40 year reactor lifetimes with no new orders) Generic eastern MRS, first fuel accepted in 1998, maximum inventory 10,000 MI'U until 2010, 15, 000 MI1J thereafter Pass-througb/flow-through at the MRS during steady-state

the study was to establish the rates at which to move spentnuCtear
of

operation

Rep()Sitol)' lOcated at candidate site in southern Nevada. fiist

fuel (SNF) and high level waste (IlL W) through the CRWMS. In iddition;tbC has developed data to provide ~itivities and trade-offs to guide design decisions and performance criteria for inclusion in specifications. The study bas also resulted in the

fuel accepted in 2010

RCjIOSitol)' nominal capacity: 63,000 MTU SNF and 7.CX1J

MTU(cqujvalent) ofHLW (defense and West Valley HLW from reprocessing)

development of. a . much improved methodology for rapid
. evaluation of alternative CRWMS scenarios which is being for Other studies and issue pape,rs.

A further reference case assumption was made for. the
purposes. of this study, namely that SNF from western would be shipped cprectly to the repository. (western skategy).

~rs

Sixteen strategies (sets of assumptions) were defined for the
Throughput Rate Study~ For each strategy, throughput tate was
varied. The combinations of

strategies and throughput rates

Since the exact design of the CRWMS is not yet finalized and since all assumptions made for theRSD may not become . reality, fifteen other strategies were defmed and scenarios were
cre8tcd by varying the throughput rate (see Table 1). By chansIng only one or a few independent assumptions at a time-the degree of impact from each change was more accurately measured, and results of the study are more likely to be appticablcin the future. Reality may resemble anyone or any combination of strategies analyzed. The preferred throughput rate should still be Valid. The key assumptions of the fifteen other strategies are defined
1207 0

simulation. The Wle number of scenarios better ~res that findings regarding the preferred rate or range of rates will be applicable In the future. when the currently unknown but .reaI"
strategy . is implemented. Also, the analysis of numerous scenarios yielded insight mto possible consCquences of changing . only one or a few independent assumptions at a time.

produced seventy scenarios which were analyzed using computer

02035

PA-222554

...

Case 1:98-cv-00126-JFM
1208

Document 792-17

Filed 04/16/2004

Page 2 of 6

RADIOACTIVE WASTE MANAGEMENT

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02036

P A-222555

~y
Case 1:98-cv-00126-JFM Document 792-17
THROUGHPUf RATB STUDY

Filed 04/16/2004

Page 3 of 6
1209

below and hlgbJigbts of their logistics impacts are descn'bed.

from tIuck transportation casks into rail casks for

sblpment to

the MODS without

going into long term

MRS storage.

Ke1AssumptJons and Logistics Impacts

vmo - Youngest-Fuel-First (at least 10 years old)
The. kcy difference from the Reference Strategy is that SNF is assumed to be selected according to youngest-fuel-first (but at leaSt 10 years old) rather than oldest-fucl-fir.tt. As ' a

FIowthrough refers to the placement of rail casks arriving at the MRS direcdy on a dedicated train for shipment to the 140DS. without any assembly handling at the MaS. It also provides additional rationale to maintain a nearly constant size staff with nearly constant experience and training requirements. With the annual 700 MrU drawdown. a degree of proper' &eJection of
blinding can be accomplished in support o~ a thermal

target -

to be . hotterat the time of pickup. tOIISCqUCOCC. SNIt tends cauSing some transportation and/Or storagc casks to be derated

without requiring any additional assembly handlings.

(only partially filled); the number

of Shipments required

86050 MTU SNFin one MGDS
All SNF is assumea to be emplaced hi one . ~GDs instead
of only 63000 MTJJ assumed for the Reference stiategy.

IncreaseS, and the. size of the cask fleet required is. larger.

Faster MRS Ramp Up with Unconstrained MRs Storag
Cap~dt1
The key difference from the Reference Strategy is that (by either legislation or negotiation) the MRS is assumed to have the 10,(0) and 15;000 MI'U inventory limits removed; 1bc annual rate of aooeptance of SNF from reactors ramps-up. to a maximum .
in only four years after starting MRS oPerations. The purpose of the quick. ramp-up is to reduce post shutdown operations costs at

All of

these scenarios ~uire operation of all subsystelDs of CRWMS . until 2045 w~' the MODS goes into a caretaker phase. and the

MRS and Transportation subsystems may . go into a .
decommissioning pwc.- Por the Reference Strategy the

coniparable year was 2045, 2033, 2028, 2026, ' and 2024 for

scenarios with througbput rates 2000, 3000, 4000, 5000, and
6000, correspondingly.

reactorpoois in future years and to reduce the-fteed to build more dry storage at reactors in future years. The qu~ ramp-up and

86050 MTU SNF in-drift in one MGDS
This
is the same as . above except for the assumption
that SNF is' empiacedin-driftinstead of in boreholes and robust are, used With capacity 21PWR or. 52BWR, waste:

continued aooeptance at the maxbnum annual rate causes the MRS inventory to peak at between 24,700 and 54,000 M'IU.
depending on the annual acceptance rate (2000, 3000, 4000,
SOOO, or

~eS

be larger and operationS staffing must peak earlier than for the
Reference Strategy because the num\)erof assembly banc:iilngs is

6000 MI'U). As a consequence. MRS facifities must

blgber. More SNF is put into storage. casks and later drawn out for shipment to the IepOSllory than in the Reference Strategy wbichdoesn' t reach. maximum annual rate WtUI2014andthen uses pass-through and flow-through to reduce the number of
assembly handlings.

instep(iof the S(Ymixed 3PWR and 4BWR, 4 PWR or 10 BWR . onIj waste packages. Logistics consequences accounted for are: , the lacl(bfborebolc operations, ptrchase of a different-number of packages (each at a d11terent cost), change in the loading time per package and change in the number of packages emplaced in
the underground. Parameters for mining and excavation were

changed to include beat targets consistent with a hot and a cold thermal loading Strategy, and a minimum sp8cing of216 incIIes

between packages. Assumptions for equipment costs. the
performance monitoring of one package per

Concurrent DrawdoWn or MRS Storage During Passthro u gh/FI 0". th rori gh

month in. the

underground, and support staffing requirements at the MODS were not changed. No different impact on the MRS,
transportation. or waste aooeptance was assUmed.
Extended Reactor Lifetimes

drawdown of 14;1180 MTO SNFin

The. kcy difference from the Rcference Strategy is that. MRS inventory ~is done steadily over a longer period of time. begbuiing as soon as the .
M(JDS reaches its maximum annual emplacement rate. For

3000 . MTU annual emplacement

rat~ the:

drawdownis

This strategy differs from the Reference strategy by
assuming that 70 percent of the reactors have their operating

accomplished with 700MTU per year beginning In 2014 whllc. MTU SNF. from 'JJ110 the MRS is concurrently accepting

licenses extended to permit 60 years of operation rather than 40
(81 accordance with BIA projections). A high pelCCDtagc was

reactors inpasstbrougb/fiowtluOugh opcrattom and westem
reactor sites are shipping 230 MI'U SNF directly to the MODS. This. contrasts with the Reference Strategy, which cJoesn' tstart drawdown until 2028. It was assumed that the drawdown would concluclehi 2033, the samc year that MOD$ acceptanCC is c:ompleted in the Reference Strategy. . The imPortant

assumed in older to have scenarios involving notable differences from the Reference strategy. Thus many potential post-shut- . . dOwn costs at reactoi's are defcJ;red for 20 yearS. Major cost
. . differences during the emplacement of the first 63000 MTU are

eoosequences are that theMRS can complete its mission with a
smaller facUlty (two transfer cells instead of three as for the 3000

. MTU/yeat Referenc;c Scenario)~

Tbi~ suggests tIiat fwther

not attributable to at-reactor costs. The total SNF dischaJges are 109,000 MrU. The projection is virtually the same as the BIA no-nCw-orders case for the years up to 2010; after that. extended life. projections are generally , higher and more than 1000
MTU/ycar higher In years 2030 through 2036. Since aa:eptancc for the flJ'St repository is . completed in 2028 this strategy showed

consl~onsbould be given
. c:onslstingof a linear

to a single phase of operation

drawdown during the years 2014 through

2033, instead of the. current twO phases of steady state
passthrougWflowlhrough and subsequent inventory withdrawal. Passthrough refers to the transferring of SNF arriving at the MRS

fewer differences In logistical consequences and cost then what might be expected for a second repository.

02037

P A-222556

Case 1:98-cv-00126-JFM
1210

Document 792-17

Filed 04/16/2004

Page 4 of 6

RADIOACTIVE WASTE MANAGEMENT

No Reactor Uretime Extensions to 40 years
- 1bis
strategy assumes that S9

Task B!

of the reactors in the: no-new-

Alternate storage tecJmologies (Wet? Vault. Horizontal.Metal Cast. andTSC) were examined but throUghput rate was varied only for dry vertical concrete casks (DVCC).

orders EtA projection will not have their licenses extended to future permit commercial operation beyond 40; years. Also. discbarges from the shutdown of the Yankee Rowe mu:tor,
Maine were deleted. Total discharges were reduced from

100% turnover
This strategy assumeS no passthrougb/ flowthrough at the MRS. . All SNF which arrives at the MRS is put into storage; an equal. amount of other SNFis-!1rawn out from storage ~n a firstin-first-out bases. The logistiCs consequence of this strategy is more assembly handlings. than for the reference strategy but blending lit 1he MRSin . support of !hermal targets is possible with no additional assembly handlings. 'Ibis strategy represents stressing woddoad that can be reasonably

86050

to 826S1 MTIJ. However since most of the difference occurs

aftei- the year 2026,

the

logistical consequences during

emplacement 0163000 MTIJ in the first repository are Dot very
different from the Reference Strategy.

PriOrity to Shutdown Readors

perhaps the most
assumed for the

This strategy assUmes that acceptanCe priority is given to sbut-down reactors. 1bis does not represent DOB polley. but rather. a sensitivity altemaJive. Logistic consequences at the
reacto.rs are important; shut-down reactors are able to avoid some reac:tors are forced post-shut-down operations of pools but o1hcr to keep more SNF in dry storage. Equity among utilities would have to be considered and agreements obtained for this priority

~S.

Reference Strategy with transportation derating
that transpOrtation cask deratings are includCd forthe cases where

This strategy is the same as the Reference Strategy except

to be implemented. 'Ibc scenario was run only for 3000
MTIJ/year.

very hot fuel was transported. High throughput rate scenarios are affected more than low throughput rate scenarios.
High Capac:ity Rail Cask

Delayed MRS and MGDS startup
This strategy assumes that the MRS starts operations in 2000

and the MODS starts operations in 2015. Some utilities must operate pools (iost-shut-down or store moreSNF in dry storage.
. The MRS and eMF must operate three +ears longer. and a few
be replaced.
G~eric Western'MRS location

'Ibis strategy uses . ISO-ton rail casks for shipments from the MRSto the MGDSinstead of the lOO-ton rail casks used in the Reference Strategy. Capacity is . assumed to be. 341)0 PWRlBWR. assemblies instead of 17/38. While fewer railcasks .

more transportation casks reach. their 25 . year life and have to .

need to be purchased. the cost of each was taken to be 25% higher than. for the . Ioo,ton cask. The number of casks per . dedicated train was optimized for this strategy. The most signifacant logistics difference is that there are 17% more .
asSembly handlings when cpmpared to the Reference Strategy
because assemblies which would have 1!ecn fJowedtJuough. are

westem location instead of

This strategy assumes that the MRS is located in a generic the generic eastern loCation. No

assunied to be transferred from 100 ton rail casks to ISO ton rail casks at the MRS.

SNP is shipped directly to the MODS as is done for western reactOr sites in . the. Reference Strategy.. All SNF is shipped to the MR8. For eastem reactor sites transportation distances are greater caUSing longer cask tum- around times and . greater
shipment miles.

Max Rail
" 'Ibis strategy

assumes that 32 bUck reactor sites in

the

The benefits of passthrough (transferring aSsemblies from tnICIt casks to rail. casks at the MRS) are
diminished because the western MRS is closer to theMGDS and thcmorc, fewer shipment miles are saved. Surface operations at tbcMGDS are simpler since all receipts of SNF uc by railbut Reterenre. Strategy. . transportation costs are higher than for the

Reference Strategy are converted to rail sites.

Utilities would

have to

obtain licensing changes. make minor plant.

modifications. add railspurs.and!or add heaVy haul and barge to

YFFS

fuel causes more . deiatings of transportation casks than for-

~IO.
MRS CDR (storage technologies)

rail line capabilities. 'Ibis assumption has the effect of changing thelllOdal split to 14 truckJlOO rail sites. The logistics benefits of ran transportatiOn are Jess cask handling and less shipments at . reactors. the MRS. the Repository, the CMF; and smallcrMRS . and repository facinties. Reactor sites can complete campaigns in less time. and less effort than with trucks.

This strategy is the same asYFFIO except that SNF must be at least flveyears oid to be accepted by DOE. 'Ibis younger

RESULTS

The evaluation of resultS. particularly when com~g
sccn3rios which only diffmd. by the assumed throughput rate. was based on evaluation . of selected measures of effectiveness (MOF8). 1'he MOF8 included:
life cYcle cost per M1'U SNF emphiced (total CRWMS life cycle costs excluding second repository costs bUt

11IIs strategy includes the conceptual design . and scaling algorithm developed by the M&O for the MRS. AD other

Strategies included the previous MRS design as described by

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.!! ...

:! ..,...,...,..,.,...............,....,..,.......... $. ""' "'-""""""""'-""""""""""'" :.....,.....,..,.....,....""""""
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12tJ

Case 1:98-cv-00126-JFM

Document 792-17
TItROUGHPUT RATE STUDY

including u~iUty costs of post-shutdown spent fuel storage and at- reactor dry storage)

number of shipments and shipment-miles as indicators of
number of occupational safety

public safety handlings as an indicator . of and acceptance assembly
number onabor intensive shipments as an indicator of the diffICulty of. SNF acceptance at reactors. Labor

cost VS. throughput. That is. a fairly Oat profile with a weak minimum near the middle of the range. Within the accuracy of the data. costs in the 3000-S000 range cannot be separated. consequently these results indicate a range of acceptable throughputs. In particular, system cost per MTU SNF emplaced varies only one percent in the throughput range 3000 to 5000. ThIs small variance occurrence because when the throughput rate is increased. capital costs increase for higher capacity facilities

intensive shipments are those shipments vom reactors
which can not be completed in a campaign if constrmned
by nominal assumptions: five days per work week, imC
shift per day , three days per cask loading. four

-but the number of yeatS

for operations decreases. . thereby

reducing operational costs which results in an off-setting net "

effect as shown in Figure 2. .

mQnth9-

per outage. The measure was calculated by simill~ .
scheduling of campaign shipments from all reactors. for

all years in the scenario.
Analysis of results showed that costs per MfU for the 2000
M'rU/yr

Tolal Cost

3000 MTU to 5000 MTU range. as shown in Figure I. The Delayed MRS and MODS strategy is clWty the most costly. Next most costly is the Reference Strategy; seven other strategies are so closely clustered that there appeaB to be 110
significant difference between them. Below these strategies is the exte!1ded reactor life strategy Which has a lower cost because waste generator costs are deferred .20 years for 70% of the reactor sites. The lowest cost per MI'U emplaced over all strategies is the case where 86050MTUemplaced in one MODS. The key feature of these data is that all strategies have the same trend of

and 6000 MTU/yr scenarios are higher than those in the

!u.
~10 ....,...,.,..
Facilities (lncludn Engineering. Construction. Decontaminations 8.
Dacommlsslonlng Cosio)

:t

625
600 :i;. 575
.!!SSO

2000

3000

4000

5000

6000

MTU/yr. Emplac_nt Aata

Figura aoUfa Cycla Coa", Inclucllnlt WaataOanarator Coate and Excluding D8.E, 8_11" and Sacond . Aapoaltory eoate

;525
hOG
'i 475

The above results

assume copstant dollars

with 110

discounting. The effects of discounting. at two and four percent
are shown in Figure 3. Higher discount rates favor delayilig
. capital costs..res1ilting in lowering the minimum coSt throughput. . With discounting. lower thfougbputrates become less and less expensive relative to high throughput

=450
to-

425

2000

3000

4000

5000

6000

Non-cost MOBs were consideied to refine the selection of preferred throughput. . Shipment miles and assembly handlings data were examined but tI1ese results did not justify any
narrowing of the preferred range of throughput rates. There are

MTU/1' Emplacam.nt Rata

M_FIgura 1.-s,atam

differences in, shipment miles caused by changing the MRS
loCation and by potential de-rating of transportation casks when

"'.... 8--Coat par MTU. SNF

very hot fuel is required to be shipped, but there was 110 strong

Emplaced for hlactacl Strate...

dependence on throughput. numberS of handlings increased when fuel selection (blending) was employed.

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Case 1:98-cv-00126-JFM
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Document 792-17

Filed 04/16/2004

Page 6 of 6

RAD10AC11~ W ASTEMANAGEMENT

GOO

logistically streSSeS the system. Three shift. seven day per week
operation are required. at ieast for certain times.

In addition, operation at the high end of the throughput range

IntenSive

550
::t

operations increase costs and. based on comparative industrial
No DIscounting

and transportation experience, increase accident rates.

~5oo
. ii450
400 350
DIscounling

A particular concern is occupational and public safety. Not all truck campaigns can be processed using nominal processing rates and nonnal work schedules, e.g., at reactor operations

using one shift/day, five days/week, through a single cask
preparation facility. processing one cask every three work days

- on average, and not processing during power generation outage periods. The higher the throughput rate, the larger the number of shipments per campaign and hence the more difficult it becomes .
to complete campaigns using nominal processing rates and

nonna! work schedules. Remedies such as woddng overtime.
. woddng extra shifts, working week ends. hiring additional crews.
or accelerating the processing rate historically have been found
to be contributing factors to the cause of accidents.

:300
250

CONCLUSIONS
Based on the life cycle cost analysis, 3000 -5000 MI'U/year . the preferred range of throughput rates for moving SNF
at high throughpUtS (5000 -

2000

3000

4000

5000

6000

is

MTU/yr Emplacament Ral.

through the CRWMS. Operation

Flgur. .ElfK18 or Dlecount Ratea on S1'8I.m Coat

po' MTU 8NF Emplaced

Some uiilities have indicated a preference for high throughput

6000 MTU/yr). is considered undesirable because it slightly increases total system life cycle cost and because if significantly stresses the system, which reduces contingency allowances and increases progrom risk. Discounting of costs particularly favors the low end of the throughPut range. I.n. total, the
system at a recommendation of this study is to operate. the

rates. The rationale is that after a reattor ceases to generate electricity and is penn;mently shut-down, post-shutdown storage

throughput rate at, or near, 3000 MTU/yr.

costs will be Incurred by the utilities until all spent fuel is
removed. The costs are significant and therefore utilities have an

iricentlve to prefer higher throughput rates which. will remove
spent fuel at a faster rate. Since post-shutdown

RE~RENCE
I. Woods. W D., Jowdy, A. K., Keehan, c.H., Gale, R.M.,

costs are not

considered part of the CRWMS program, these costs would be bome separately by the utilities. If payments to the Waste FUnd . are regarded by the utilities as sunk costs, then costs of shutdown storage might be viewed as additional costs. However, total system costs, including post-shutdown storage costs, were Shown to be higher for the high end of the throughput range, as shown in Figure 1.

Smith, R.I., 1988. MRS Action Plan Task B Reoort. PNL-

6710 UC10, Pacific. Northwest Laboratory,
Washington.

Richland,

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