IAEA International Atomic Energy Agency SAFETY REQUIREMENTS FOR PREDISPOSAL MANAGEMENT OF RADIOACTIVE WASTE Luc Baekelandt Safety of radioactive waste management facilities Amman (Jordan), December 2014

International Atomic Energy Agency Introduction Predisposal management of radioactive waste means all waste management steps prior to disposal LB/GSR Part 5/Amman /01

International Atomic Energy Agency General approach Avoid or reduce waste generation Collect and segregate Release from regulatory control, if safe Reuse, recycle Process remaining waste according to national policy and strategy LB/GSR Part 5/Amman /02

International Atomic Energy Agency Safety Objective The objective of radioactive waste management is to deal with radioactive waste in a manner that protects human health and the environment now and in the future without imposing undue burdens on future generations. LB/GSR Part 5/Amman /03

International Atomic Energy Agency Protection of human health Protection of workers, public and the environment Protection beyond national borders Justification, optimization, individual dose limits Potential exposures Safety culture LB/GSR Part 5/Amman /04

International Atomic Energy Agency GSR part 5, Predisposal Management of Radioactive Waste 22 requirements 3 groups responsibilities (1-7) steps in predisposal management (8-12) development and operation of facilities and activities (13-22) LB/GSR Part 5/Amman /05

International Atomic Energy Agency Responsibilities associated with predisposal management of radioactive waste Introduction R 1 - Legal and regulatory framework R 2 - National policy and strategy R 3 - Responsibilities of the regulatory body R 4 - Responsibilities of the operator R 5 - Security measures R 6 - Interdependences between steps R 7 - Management systems LB/GSR Part 5/Amman /06

International Atomic Energy Agency Responsibilities - Introduction Clear allocation of responsibilities throughout the entire process Assurance and confidence within regulatory and legal framework Continuity of responsibility over time and location (e.g. central storage, extended storage periods) LB/GSR Part 5/Amman /07

International Atomic Energy Agency Requirement 1: Legal and regulatory framework The government shall provide for an appropriate national legal and regulatory framework within which radioactive waste management activities can be planned and safely carried out. This shall include the clear and unequivocal allocation of responsibilities, the securing of financial and other resources, and the provision of independent regulatory functions. Protection shall also be provided beyond national borders as appropriate and necessary for neighbouring States that may be affected. LB/GSR Part 5/Amman /08

International Atomic Energy Agency Requirement 2: National policy and strategy on radioactive waste management (1) To ensure the effective management and control of radioactive waste, the government shall ensure that a national policy and a strategy for radioactive waste management are established. The policy and strategy shall be appropriate for the nature and the amount of the radioactive waste in the State, shall indicate the regulatory control required, and shall consider relevant societal factors. The policy and strategy shall be compatible with the fundamental safety principles and with international instruments, conventions and codes that have been ratified by the State. The national policy and strategy shall form the basis for decision making with respect to the management of radioactive waste. LB/GSR Part 5/Amman /09

International Atomic Energy Agency Requirement 2: National policy and strategy on radioactive waste management (2) National Policy Set out preferred options for RW management; Reflect national priorities, available resources; Based on knowledge of current, future waste inventories/streams; Assign responsibilities for all aspects of RW management. National Strategy Ensures implementation of the national policy; Provide for coordination of responsibilities; Compatible with other national strategies (nuclear safety, radiation protection). LB/GSR Part 5/Amman /10

International Atomic Energy Agency Requirement 3: Responsibilities of the Regulatory Body (1) The regulatory body shall establish the requirements for the development of radioactive waste management facilities and activities and shall set out procedures for meeting the requirements for the various stages of the licensing process. The regulatory body shall review and assess the safety case and the environmental impact assessment for radioactive waste management facilities and activities, as prepared by the operator both prior to authorization and periodically during operation. The regulatory body shall provide for the issuing, amending, suspension or revoking of licences, subject to any necessary conditions. The regulatory body shall carry out activities to verify that the operator meets these conditions. Enforcement actions shall be taken as necessary by the regulatory body in the event of deviations from, or non- compliance with, requirements and conditions. LB/GSR Part 5/Amman /11

International Atomic Energy Agency Requirement 3: Responsibilities of the Regulatory Body (2) Establish appropriate classification scheme Establish safety requirements and criteria Handling, transport, storage Acceptance criteria for disposal Limits and conditions for removal of controls from material containing radionuclides (clearance), discharges Ensure that relevant documents and records are prepared Period of preservation, quality Verify that the operator meets established conditions; Take necessary enforcement actions LB/GSR Part 5/Amman /12

International Atomic Energy Agency Requirement 3: Responsibilities of the Regulatory Body (3) To facilitate compliance with requirements, the regulatory body has to: provide guidance on interpretation of national standards and regulatory requirements encourage/participate in dialogue between operator and other parties establish RW definition/classification, clearance criteria document the procedures (licensing, verification, enforcement) establish mechanisms for dissemination of information agree / delineate areas of responsibility / cooperation ensure that consideration is given to non-radiological hazards Carry out verification activities that are supported by an effective management system and strong safety culture LB/GSR Part 5/Amman /13

International Atomic Energy Agency Requirement 4 :Responsibilities of the operator (1) Operators shall be responsible for the safety of predisposal radioactive waste management facilities or activities. The operator shall carry out safety assessments and shall develop a safety case, and shall ensure that the necessary activities for siting, design, construction, commissioning, operation, shutdown and decommissioning are carried out in compliance with legal and regulatory requirements. LB/GSR Part 5/Amman /14

International Atomic Energy Agency Requirement 4 :Responsibilities of the operator (2) Demonstration of safety by means of the safety case, and for an existing facility or activity by means of periodic safety reviews Demonstration of environmental protection by means of an assessment of environmental impacts Derivation of operational limits, conditions and controls, including waste acceptance criteria, to assist with ensuring that the predisposal radioactive waste management facility is operated in accordance with the safety case Preparation and implementation of appropriate operating procedures, including monitoring Application of good engineering practice LB/GSR Part 5/Amman /15

International Atomic Energy Agency Requirement 4 :Responsibilities of the operator (3) Ensuring that staff are trained, qualified and competent, and, where applicable, licensed by the regulatory body Establishment and implementation of a management system Maintenance of records and reporting as required by the regulatory body, including those records and reports necessary to guarantee the accountability for and traceability of radioactive waste throughout the different processes of radioactive waste management Establishment and maintenance of a mechanism to provide and ensure adequate financial resources to discharge his responsibilities LB/GSR Part 5/Amman /16

International Atomic Energy Agency Requirement 5: Security Measures. Measures shall be implemented to ensure an integrated approach to safety and security in the predisposal management of radioactive waste. LB/GSR Part 5/Amman /17

International Atomic Energy Agency Requirement 6: Interdependences (1) Interdependences among all steps in the generation and management of radioactive waste, as well as the impact of the anticipated disposal option, shall be appropriately taken into account. LB/GSR Part 5/Amman /18

International Atomic Energy Agency Requirement 6: Interdependences (2) It is particularly important to consider the established acceptance criteria for disposal of the waste or the criteria that are anticipated for the most probable disposal option It is not consistent with an integrated approach to optimize one step in the predisposal management of radioactive waste in such a way that it imposes significant constraints on the subsequent steps or forecloses viable options LB/GSR Part 5/Amman /19

International Atomic Energy Agency Requirement 7: Management systems Management systems shall be applied for all steps and elements of the predisposal management of radioactive waste. LB/GSR Part 5/Amman /20

International Atomic Energy Agency Steps in predisposal management of radioactive waste R 8 - Generation and control of radioactive waste R 9 - Characterization and classification R 10 - Processing of radioactive waste R 11 - Storage of radioactive waste R 12 - Radioactive waste acceptance criteria LB/GSR Part 5/Amman /21

International Atomic Energy Agency Principal Approaches in the management of radioactive waste Delay and decay - (processing), storage, authorized discharge Concentrate and contain - processing, storage, disposal Dilute and disperse - authorized discharge LB/GSR Part 5/Amman /22

International Atomic Energy Agency Steps in the predisposal management of radioactive waste Generation Processing pre-treatment (collection, segregation, chemical adjustment) treatment (change of the characteristics of the waste, e.g. volume, chemical composition) Conditioning (immobilisation, packaging) Storage + Transport LB/GSR Part 5/Amman /23

International Atomic Energy Agency Requirement 8: Radioactive waste generation and control (1) All radioactive waste shall be identified and controlled. Radioactive waste arising shall be kept to the minimum practicable. LB/GSR Part 5/Amman /24

International Atomic Energy Agency Requirement 8: Radioactive waste generation and control (2) Reduce waste generation - volume and radioactivity content has to be considered before the construction of a facility, beginning with the design phase, and throughout the lifetime of the facility Reuse and recycling Authorized discharge of effluents, clearance of materials in compliance with conditions and criteria established by the regulatory body Ensure due consideration to non-radiological hazards LB/GSR Part 5/Amman /25

International Atomic Energy Agency Requirement 9: Characterization and classification of radioactive waste (1) At various stages in the process of management of radioactive waste, the radioactive waste shall be classified and characterized in accordance with the requirements established or approved by the Regulatory Body. LB/GSR Part 5/Amman /26

International Atomic Energy Agency Requirement 9: Characterization and classification of radioactive waste (2) Radioactive waste has to be characterized in terms of physical, mechanical, chemical, radiological and biological properties; The characterization serves to provide information relevant to process control and assurance that waste will meet the Waste Acceptance Criteria/ Requirements for processing, storage, transport and disposal; The relevant characteristics of the waste have to be recorded to facilitate its further management; Most common classification scheme: future disposal. LB/GSR Part 5/Amman /27

International Atomic Energy Agency Requirement 10: Processing of radioactive waste (1) Radioactive material for which no further use is foreseen, and with characteristics that make it unsuitable for authorized discharge, authorized use or clearance from regulatory control, shall be processed as radioactive waste. The processing of radioactive waste shall be based on appropriate consideration of the characteristics of the waste and of the demands imposed by the different steps in its management (pretreatment, treatment, conditioning, transport, storage and disposal). Waste packages shall be designed and produced so that the radioactive material is appropriately contained both during normal operation and in accident conditions that could occur in the handling, storage, transport and disposal of waste. LB/GSR Part 5/Amman /28

International Atomic Energy Agency Requirement 10: Processing of radioactive waste (2) Main purpose of processing is to enhance safety by producing a waste form that fulfills the acceptance criteria for safe transport, storage and disposal; Safety is ensured during normal operation, measures are taken to prevent occurrence of incidents or accidents, and provisions are made to mitigate consequences of accidents; Consistency with the waste type, possible storage, (anticipated) disposal option is established in the safety case and assessment of environmental impact. LB/GSR Part 5/Amman /29

International Atomic Energy Agency Requirement 10: Processing of radioactive waste (3) Resulting waste form should be such that it can be safely stored and retrieved up until its ultimate disposal Provisions for identifying, assessing and dealing with waste that does not meet process specifications shall be provided Consideration is to be given to consequences of dealing with secondary waste generated during processing Processing of waste can yield effluents suitable for authorized discharge or material that is suitable for clearance LB/GSR Part 5/Amman /30

International Atomic Energy Agency Requirement 10: Processing of radioactive waste (4) In the absence of known disposal option Conflicting processing requirements – safety vs. flexibility Storage may have to be extended in time Risk of additional processing and higher cost LB/GSR Part 5/Amman /31

International Atomic Energy Agency Requirement 11: Storage of radioactive waste (1) Waste shall be stored in such a manner that it can be inspected, monitored, retrieved and preserved in a condition suitable for its subsequent management. Due account shall be taken of the expected period of storage, and, to the extent possible, passive safety features shall be applied. For long term storage in particular, measures shall be taken to prevent degradation of the waste containment. LB/GSR Part 5/Amman /32

International Atomic Energy Agency Requirement 11: Storage of radioactive waste (2) Design of storage facility depends on the type of radioactive waste, its characteristics and associated hazards, radioactive inventory, and anticipated period of storage; Regular monitoring, inspection and maintenance of the waste and of the storage facility is required to ensure their continued integrity; Adequacy of the storage capacity has to be periodically reviewed (prediction in waste arising, availability of disposal options). LB/GSR Part 5/Amman /33

International Atomic Energy Agency Requirement 12: Radioactive waste acceptance criteria (1) Waste packages and unpackaged waste accepted for processing, storage and/or disposal shall conform to criteria consistent with the approved safety case LB/GSR Part 5/Amman /34

International Atomic Energy Agency Requirement 12: Radioactive waste acceptance criteria (2) Radioactive waste destined for disposal shall be processed to meet the acceptance criteria for disposal established with the approval of the regulatory body. WAC define the radiological, mechanical, physical, chemical and biological properties of the waste package and unpackaged waste WAC are essential for the safe handling and storage of waste during normal operation, ensuring safety during possible accidents, and long term safety during subsequent disposal LB/GSR Part 5/Amman /35

International Atomic Energy Agency Requirement 12: Radioactive waste acceptance criteria (3) Provision must be made for the management of waste that fails to meet the WAC (e.g. remedial actions or return of waste) LB/GSR Part 5/Amman /36

International Atomic Energy Agency Development and Operation of facilities and activities R 13 - Preparation of the safety case R 14 - Scope of the safety case R 15 - Documentation of the safety case R 16 - Periodic safety reviews R 17 - Siting and design of the facility R 18 - Construction and commissioning of the facility R 19 - Operation of the facility R 20 - Shutdown and decommissioning of the facility R 21 - Nuclear safeguards R 22 - Existing facilities LB/GSR Part 5/Amman /37

International Atomic Energy Agency Development and Operation of Predisposal radioactive waste management facilities Approach to safety Safety case Periodic safety reviews Development of facilities Location and design Construction and commissioning Operation Shutdown and decommissioning Other provisions LB/GSR Part 5/Amman /38

International Atomic Energy Agency Safety Case (1) Definition (IAEA Safety Glossary) A collection of arguments and evidence in support of a facility or activity. This will normally include the findings of a safety assessment and a statement of confidence in these findings. For a repository, the safety case may relate to a given stage of development. In such cases, the safety case should acknowledge the existence of any unresolved issues and should provide guidance for work to resolve these issues in further development stages. LB/GSR Part 5/Amman /39

International Atomic Energy Agency Safety Case (2) the safety covers the suitability of the site and the design, construction and operation of the facility, the assessment of radiation risks and assurance of the quality of all the safety related work the safety analysis report (SAR) and the environmental impact assessment (IEA) report are the ‘top level’ of the safety case LB/GSR Part 5/Amman /40

International Atomic Energy Agency Safety Case (3a) judge lawyer supporting documentation plea (the lawyer argues the case) LB/GSR Part 5/Amman /41

International Atomic Energy Agency Safety Case (3b) judge lawyer supporting documentation plea (the lawyer argues the case) regulatory body operator supporting documentation SAR + EIA LB/GSR Part 5/Amman /42

International Atomic Energy Agency Safety Case (4) judge lawyer supporting documentation plea (the lawyer argues the case) regulatory body operator supporting documentation SAR + EIA Safety case LB/GSR Part 5/Amman /43

International Atomic Energy Agency Requirement 13: Preparation of the safety case and supporting safety assessment (1) The operator shall prepare a safety case and a supporting safety assessment. In the case of a step by step development, or in the event of modification of the facility or activity, the safety case and its supporting safety assessment shall be reviewed and updated as necessary. LB/GSR Part 5/Amman /44

International Atomic Energy Agency Requirement 13: Preparation of the safety case and supporting safety assessment (2) In the case of a step by step development, or in the event of modification of the facility or activity, the safety case and its supporting safety assessment shall be reviewed and updated as necessary. The review and update ensure the quality of the technical programme and the associated decision making, and provide a framework in which confidence in the technical feasibility and safety of the facility can be established at each stage of its development. LB/GSR Part 5/Amman /45

International Atomic Energy Agency Requirement 14: Scope of the safety case and supporting safety assessment (1) The safety case for a predisposal radioactive waste management facility shall include a description of how all the safety aspects of the site, the design, operation, shutdown and decommissioning of the facility, and the managerial controls satisfy the regulatory requirements. The safety case and its supporting safety assessment shall demonstrate the level of protection provided and shall provide assurance to the regulatory body that safety requirements will be met. LB/GSR Part 5/Amman /46

International Atomic Energy Agency Requirement 14: Scope of the safety case and supporting safety assessment (2)  Considers and justifies the design, systems, processes and arrangements for operational management;  Identifies waste arising, establishes programme to minimize the generation of waste;  Determines design and operational basis for: Treatment of effluents; Control of discharges; Clearance procedures. LB/GSR Part 5/Amman /47

International Atomic Energy Agency Requirement 14: Scope of the safety case and supporting safety assessment (3) The SC and SA shall demonstrate the level of protection provided and shall provide assurance to the regulatory body that safety requirements will be met. Primary aim is to ensure that safety objectives and criteria set by regulatory body are met SC and SA address operational safety and all safety aspects of the facility and activities SC and SA include consideration for reducing hazards to workers, public and environment during normal operations and possible accident conditions Extent and detail of SC and SA are commensurate with complexity of the operations and the magnitude of the hazards LB/GSR Part 5/Amman /48

International Atomic Energy Agency Requirement 15: Documentation of the safety case and supporting safety assessment (1) The safety case and its supporting safety assessment shall be documented at a level of detail and to a quality sufficient to demonstrate safety, to support the decision at each stage and to allow for the independent review and approval of the safety case and safety assessment. The documentation shall be clearly written and shall include arguments justifying the approaches taken in the safety case on the basis of information that is traceable. LB/GSR Part 5/Amman /49

International Atomic Energy Agency Requirement 15: Documentation of the safety case and supporting safety assessment (2) Justification explaining choices, stating arguments for/against decisions made (especially main approaches taken) Traceability ability to follow information that is provided in the documentation and used in developing the SC Clarity good structure, presentation allows for understanding of the safety arguments and their bases LB/GSR Part 5/Amman /50

International Atomic Energy Agency Requirement 16: Periodic safety reviews The operator shall carry out periodic safety reviews and shall implement any safety upgrades required by the regulatory body following this review. The results of the periodic safety review shall be reflected in the updated version of the safety case for the facility. LB/GSR Part 5/Amman /51

International Atomic Energy Agency Requirement 17: Location and design of facilities (1) Predisposal radioactive waste management facilities shall be located and designed so as to ensure safety for the expected operating lifetime under both normal and possible accident conditions, and for their decommissioning. LB/GSR Part 5/Amman /52

International Atomic Energy Agency Requirement 17: Location and design of facilities (2) Design features depend on: Waste properties, total inventory and potential radiological and non-radiological hazards Requirements of the regulatory body Need to address maintenance, testing, examination and inspection LB/GSR Part 5/Amman /53

International Atomic Energy Agency Requirement 18: Construction and commissioning of the facilities Predisposal radioactive waste management facilities shall be constructed in accordance with the design as described in the safety case and approved by the regulatory body. Commissioning of the facility shall be carried out to verify that the equipment, structures, systems and components, and the facility as a whole, perform as planned. LB/GSR Part 5/Amman /54

International Atomic Energy Agency Requirement 19: Facility operation (1) Predisposal radioactive waste management facilities shall be operated in accordance with national regulations and with the conditions imposed by the regulatory body. Operations shall be based on documented procedures. Due consideration shall be given to the maintenance of the facility to ensure its safe performance. Emergency preparedness and response plans, if developed by the operator, are subject to the approval of the regulatory body. LB/GSR Part 5/Amman /55

International Atomic Energy Agency Requirement 19: Facility operation (2) Operational limits, conditions and controls may be provided in the authorization, or may be in a separate document (technical specifications) All operations and activities important to safety have to be subject to documented limits, conditions and controls, and have to be carried out by trained, qualified and competent personnel All safety related criteria and documented operating procedures required by the regulatory body have to be submitted to the regulatory body for approval LB/GSR Part 5/Amman /56

International Atomic Energy Agency Requirement 20: Shutdown and decommissioning of facilities The operator shall develop, in the design stage, an initial plan for the shutdown and decommissioning of the predisposal radioactive waste management facility and shall periodically update it throughout the operational period. The decommissioning of the facility shall be carried out on the basis of the final decommissioning plan, as approved by the regulatory body. In addition, assurance shall be provided that sufficient funds will be available to carry out shutdown and decommissioning LB/GSR Part 5/Amman /57

International Atomic Energy Agency Requirement 21: System of accounting for and control of nuclear material For facilities subject to agreements on nuclear material accounting, in the design and operation of predisposal radioactive waste management facilities the system of accounting for and control of nuclear material shall be implemented in such a way as not to compromise the safety of the facility. LB/GSR Part 5/Amman /58

International Atomic Energy Agency Requirement 22: Existing facilities The safety at existing facilities shall be reviewed to verify compliance with requirements. Safety related upgrades shall be made by the operator in line with national policies and as required by the regulatory body. LB/GSR Part 5/Amman /59

International Atomic Energy Agency Summary Safety in predisposal management of radioactive waste is based on a broad spectrum of safety requirements, which are governed by the objective and principles of the Safety Fundamentals. Safety requirements must be met to ensure the protection of people and the environment, both now and in the future. All safety requirements are important, none of them has to be ignored. Safety cases are reviewed and updated. Checking and updating of knowledge is important. LB/GSR Part 5/Amman /60

International Atomic Energy Agency Relevant Safety Guides LB/GSR Part 5/Amman /

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