Midwestern Radioactive Materials Transportation Committee (MRMTC) Transportation Tabletop Workshop Reference Guide Table of Contents Department of Energy’s (DOE) Radioactive Transportation Practices Manual 460.2-1A .......................... 2 Nuclear Regulatory Commission’s (NRC) NUREG – 0561 .......................................................................... 67 Standard Contract for Disposal of Spent Nuclear Fuel and/or High-Level Radioactive Waste (10 CFR 961) ........................................................................................................................................................... 124 Federal Railroad Administration’s (FRA) Safety Compliance Oversight Plan (1998 Version) ................ 144 DOE’s 2004 “Mostly Rail” Record of Decision .................... ........................................................... .......... 1 77 Areva’s De-Inventory Report for Big Rock Point (BRP) ........................................................................... 18 9 Principles of Agreement 2015 .................................................................................................................. 3 81 Background on Section 180(c) ................................................................................................................. 3 82 Excerpt from BRP Shutdown Site Report ................................................................................................ 38 7 List of FRA – Certified State Inspectors and State Rail Safety Programs ................................................ 40 8 Reference Guide for the MRMTC Transportation Tabletop Workshop ....... .................................. ........ 41 6 DOE's 2005 Dedicated Train Decision ...................................................................................................... 186
MANUAL
DOE M 460.2-1A
Approved: 6-4-08
RADIOACTIVE MATERIAL TRANSPORTATION PRACTICES MANUAL for Use with DOE O 460.2A
U.S. DEPARTMENT OF ENERGY Office of Environmental Management
AVAILABLE ONLINE AT: www.directives.doe.gov
INITIATED BY:
Office of Environmental Management
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6-4-08 RADIOACTIVE MATERIAL TRANSPORTATION PRACTICES MANUAL 1. PURPOSE. This Manual establishes a set of standard transportation practices for U.S. Department of Energy (DOE), including National Nuclear Security Administration (NNSA) organizations to use in planning and executing offsite shipments of radioactive materials including radioactive waste. 2. CANCELLATION. DOE M 460.2-1, Radioactive Material Transportation Practices Manual for Use with DOE O 460.2A , dated 9-23-02. Cancellation of a directive does not, by itself, modify or otherwise affect any contractual obligation to comply with the directive. Contractor requirement documents (CRDs) that have been incorporated into or attached to a contract remain in effect until the contract is modified to either eliminate requirements that are no longer applicable or substitute a new set of requirements. 3. APPLICABILITY. a. DOE Elements. Except for the exclusions in paragraph 3c, this Manual applies to all Departmental elements responsible for transporting radioactive materials. Go to http://www.directives.doe.gov/pdfs/reftools/org-list.pdf for the current listing of Departmental elements. This list automatically includes all Departmental elements created after the Order is issued. Consistent with the responsibilities identified in Executive Order 12344, the Deputy Administrator, Naval Reactors, will determine the applicability of this Manual for activities and facilities under his control. Transuranic waste shipments to the Waste Isolation Pilot Plant (WIPP) or a consolidated certification facility and national security shipments of spent nuclear fuel under the cognizance of the Naval Nuclear Propulsion Program (NNPP) will be made in accordance with this Manual. The Administrator of the National Nuclear Security Administration (NNSA) will assure that NNSA employees and contractors meet their respective responsibilities under this Manual. Nothing in this Manual will be construed to interfere with the NNSA Administrator’s authority under section 3212(d) of Public Law (P.L.) 106-65 to establish Administration specific policies, unless disapproved by the Secretary. b. DOE Contractors. Except for the exclusions in paragraph 3c, the CRD (Attachment 1) sets forth requirements for contractors who transport and/or offer radioactive materials/wastes for transport. The CRD will apply to the extent set forth in each contract. c. Exclusions. Office of the Secretary, Office of the Chief Financial Officer, Office of the Chief Information Officer, Office of Congressional and Intergovernmental Affairs, Office of Economic Impact and Diversity, Office of Electricity Delivery and Energy Reliability, Office of Energy Efficiency and Renewable Energy,
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Energy Information Administration, Office of Fossil Energy, Office of the General Counsel, Office of Hearings and Appeals, Office of Human Capital Management, Office of Intelligence and Counterintelligence, Office of Legacy Management, Office of Management, Office of Policy and International Affairs, Office of Public Affairs, Office of Inspector General, Bonneville Power Administration, Southeastern Power Administration, Southwestern Power Administration, Western Area Power Administration.
4. SUMMARY. This Manual is composed of 14 transportation practices that establish a standardized process and framework for interacting with State, Tribal, and local authorities, other Federal agencies, and transportation contractors and carriers regarding DOE radioactive material shipments. The practices described in this Manual have been divided by mode (truck or rail) and by material type [classified versus non-classified, spent nuclear fuel (SNF), transuranic (TRU) waste, low level waste (LLW), etc.]. For some topics, such as emergency notification, a common approach can be applied to all modes and material types so such divisions were not necessary. For other topics, different approaches are applied to different modes and materials. Practices are described for the following topics: • Transportation Planning—the transportation planning activities that take place after the need for shipment has been identified; • Emergency Planning—DOE emergency planning activities with State and Tribal jurisdictions; • Projected Shipment Planning Information—provision of information regarding projected shipments; • Routing—practices to identify and select transportation routes; • Security—actions taken to ensure the security of shipments; • Carrier/Driver Requirements—practices to ensure that shipments use high quality carriers and drivers; • Shipment Prenotification—near term notification activities for pending shipments; • Transportation Operational Contingencies—operational contingencies that may interrupt normal transport operations; • Tracking—DOE practices for tracking the location of shipments and facilitating communication with the drivers/crew of the vehicles; • Inspections—inspections of shipments, including both verifications of vehicle roadworthiness and radiological condition of containers loaded on the vehicles;
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• Safe Parking—the criteria to be used in selecting appropriate parking locations in the event that transportation operational contingencies occur; • Emergency Notification—the process DOE uses to notify State and Tribal officials, after DOE itself has received notification, of a transportation emergency; • Emergency Response—DOE response to a transportation emergency; • Recovery and Cleanup—post emergency actions taken to recover and cleanup from an accident or incident. These topics have been arranged as one would generally address them in planning and conducting shipments. Following the 14 topics are a glossary of terms (Attachment 2) and a list of acronyms (Attachment 3). The practices in this Manual will be updated to cover programmatic changes and additional modes and materials as needed to support shipping programs. The practices also will be updated periodically to incorporate improvements and “lessons learned” from their application. 5. REFERENCES. a. Department of Transportation regulations in Title 49 of the Code of Federal Regulations (CFR); b. Nuclear Regulatory Commission regulations in Title 10 of the CFR; c. DOE O 460.1B, Packaging and Transportation Safety , dated 4-4-03; d. DOE O 460.2A, Departmental Materials Transportation and Packaging Management , dated 12-22-04; and e. DOE O 470.4A, Safeguards and Security Program , dated 5-25-07. 6. CONTACT. Questions concerning this Manual should be addressed to the Office of Transportation, EM-63, 301-903-7284. BY ORDER OF THE SECRETARY OF ENERGY:
JEFFREY F. KUPFER Acting Deputy Secretary
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CONTENTS
1. TRANSPORTATION PRACTICES ...................................................................................1 1.1 Introduction..............................................................................................................1 1.2 Background on DOE shipments...............................................................................1 1.3 Requirements ...........................................................................................................2 1.4 Shipments Covered by this Manual .........................................................................2 2. TRANSPORTATION PLANNING ....................................................................................5 2.1 Introduction..............................................................................................................5 2.2 Material Characterization and Classification...........................................................5 2.3 Identification of Programmatic Needs and Applicable Requirements ....................5 2.4 Packaging Selection .................................................................................................5 2.5 Mode and Carrier Selection .....................................................................................6 2.6 Transportation Plans ................................................................................................7 2.7 Communication Plans ..............................................................................................8 3. EMERGENCY PLANNING .............................................................................................10 3.1 Introduction............................................................................................................10 3.2 Emergency Planning ..............................................................................................10 3.3 Training..................................................................................................................12 4. PROJECTED SHIPMENT PLANNING INFORMATION..............................................14 4.1 Introduction............................................................................................................14 4.2 Planning Information .............................................................................................14 5. ROUTING ....................................................................................................................17 5.1 Introduction............................................................................................................17 5.2 Highway Routing ...................................................................................................17 5.3 Rail Routing ...........................................................................................................19 6. SECURITY........................................................................................................................21 6.1 Introduction............................................................................................................21 6.2 Non-Classified Shipments .....................................................................................22 6.3 Classified National Security Shipments ................................................................24 7. CARRIER/DRIVER REQUIREMENTS ..........................................................................25 7.1 Introduction............................................................................................................25 7.2 Non-Classified Shipments .....................................................................................25 7.3 Classified National Security Shipments ................................................................26 7.4 Rail Carrier Requirements .....................................................................................26 8. SHIPMENT PRENOTIFICATION ...................................................................................28 8.1 Introduction............................................................................................................28 8.2 Non-Classified Shipments .....................................................................................28 8.3 Classified National Security Shipments ................................................................29 9. TRANSPORTATION OPERATIONAL CONTINGENCIES ..........................................31 9.1 Introduction............................................................................................................31 9.2 Highway Contingencies .........................................................................................31 9.3 Rail Contingencies .................................................................................................33 10. TRACKING ......................................................................................................................34 10.1 Introduction............................................................................................................34
vi DOE M 460.2-1A 6-4-08 10.2 Highway and Rail Modes ......................................................................................34 11. INSPECTIONS ..................................................................................................................36 11.1 Introduction............................................................................................................36 11.2 Inspections–Highway.............................................................................................36 11.3 Classified and Non-Classified Rail Inspections.....................................................37 12. SAFE PARKING ...............................................................................................................39 12.1 Introduction............................................................................................................39 12.2 Safe Parking–Highway ..........................................................................................39 12.3 Safe Parking–Rail ..................................................................................................41 13. EMERGENCY NOTIFICATION .....................................................................................42 13.1 Introduction............................................................................................................42 13.2 Criteria for Emergency Notification ......................................................................42 13.3 Emergency Notification Responsibilities ..............................................................42 13.4 Type of Information to Be Provided..................................................................... 44 13.5 Maintenance of State/Tribal 24-Hour Point-of-Contact List.................................44 13.6 Non-Emergency Events .........................................................................................44 14. EMERGENCY RESPONSE..............................................................................................45 14.1 Introduction............................................................................................................45 14.2 DOE Assistance .....................................................................................................45 14.3 Emergency Response .............................................................................................45 15. RECOVERY AND CLEANUP .........................................................................................49 15.1 Introduction............................................................................................................49 15.2 Highway.................................................................................................................49 15.3 Rail.........................................................................................................................50 ATTACHMENTS 1. CONTRACTOR REQUIREMENTS DOCUMENT 2. GLOSSARY 3. ACRONYMS 4. SUMMARY OF RESOURCES
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1.0 TRANSPORTATION PRACTICES
1.1 Introduction This Manual establishes a set of standard transportation practices for U.S. Department of Energy (DOE) organizations to use in planning and executing offsite shipments of radioactive materials including radioactive waste. These practices establish a standardized process and framework for interacting with State, Tribal, and local authorities and transportation contractors and carriers regarding DOE radioactive material shipments. DOE organizations are responsible for implementing this Manual, as well as applicable agreements with State, Tribal, or local authorities. DOE is committed to meeting or exceeding all Nuclear Regulatory Commission (NRC) or Department of Transportation (DOT) requirements that apply to comparable commercial shipments and, therefore, all Federal and contractor entities subject to this Manual must act in accordance with this policy by performing transportation activities in a manner that meets or exceeds any such requirements, except as otherwise specified by this Manual. The Contractor Requirements Document in Attachment 1 of this Manual also specifies particular requirements that contractors must follow if this Manual is incorporated into their contract. The practices in this Manual provide a comprehensive basis for safely and securely shipping classified and unclassified radioactive materials. The Senior Executive Transportation Forum was established by the Secretary of Energy in January 1998 to coordinate the efforts of Departmental elements involved in the transportation of radioactive materials and waste. In response to recommendations from various DOE programs and external stakeholders, the Forum agreed to evaluate the shipping practices being used or planned for use throughout the Department, document them, and, where appropriate, standardize them. The results of that effort were reflected in the original issue of this Manual. This update reflects the ongoing and continuing collaboration of DOE organizations and outside organizations on transportation of radioactive material and waste. 1.2 Background on DOE Shipments DOE and its predecessor agencies have maintained a record of safe transportation of radioactive materials for more than 50 years. Of the thousands of shipments, none has resulted in an identifiable injury through release of radioactive material. Approximately 3 million packages of radioactive materials are shipped each year in the United States. Historically, DOE shipments constitute only a very small fraction (typically less than 1 percent) of the total radioactive material shipments; however, they comprise a significant portion (typically around 75 percent) of the curies (amount of radioactivity) shipped annually in the United States. In fulfilling its diverse civilian and defense missions, the Department transports various types of radioactive materials. These include isotopes for medical, industrial, and research purposes; weapons-related materials; spent nuclear fuel (SNF) and high-level waste (HLW); low-level waste (LLW) and mixed low-level waste (MLLW); transuranic (TRU) waste; and tritium-bearing reactor components.
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DOE Headquarters organizations provide policy direction and oversight for packaging and transportation activities for their respective offices. The DOE Headquarters organizations responsible for shipments are the Offices of Environmental Management; Nuclear Energy, Science and Technology; Civilian Radioactive Waste Management (OCRWM); and within National Nuclear Security Administration (NNSA), Defense Programs; Defense Nuclear Nonproliferation; and the Naval Nuclear Propulsion Program (NNPP). For most radioactive shipments, DOE field organizations are responsible for detailed planning and for ensuring that shipments are conducted in accordance with all applicable requirements and standards. The field organizations also serve as the primary points of contact for public and stakeholder interactions. 1.3 Requirements DOE works with DOT and NRC in developing requirements and standards for radioactive material transportation. DOT and NRC have the primary responsibility for Federal regulations governing commercial radioactive material transportation. DOE has broad authority under the Atomic Energy Act of 1954, as amended (AEA), to regulate all aspects of activities involving radioactive materials that are undertaken by DOE or on its behalf, including the transportation of radioactive materials. DOE exercises this authority to regulate certain DOE shipments, such as shipments undertaken by governmental employees or shipments involving special circumstances. In most cases that do not involve national security, DOE utilizes commercial carriers that undertake DOE shipments under the same terms and conditions as commercial shipments. These shipments are subject to regulation by DOT, NRC and other entities as appropriate. As a matter of policy, however, all DOE shipments will be undertaken in accordance with the requirements and standards that apply to comparable commercial shipments, except where there is a determination that national security or another critical interest requires different action. This policy is set forth in DOE Orders 460.1B, Packaging and Transportation Safety , 460.2A, Departmental Materials Transportation and Packaging Management , and 470.4A, Safeguards and Security Program . In implementing this policy, DOE will cooperate with Federal, State, local and Tribal entities and utilize existing expertise and resources to the extent practicable. In all cases, DOE will achieve a level of protection that meets or exceeds the level of protection associated with comparable commercial shipments. 1.4 Shipments Covered by this Manual This Manual covers the majority of DOE off-site radioactive material shipments but not all materials and modes. The practices apply to the DOE radioactive material/waste shipments that represent the greatest percentage of radioactivity placed in the nation’s transportation system by DOE. Included are highway and rail shipments of spent nuclear fuel, high-level waste, tritium-bearing reactor components, LLW and MLLW, isotopes, and classified national security shipments. National security shipments include Naval spent fuel rail shipments under the cognizance of the NNPP and highway shipments of classified materials made by OST. Truck shipments of TRU waste are also covered. The Carlsbad Field Office (CBFO) has reached agreement with the 30 states and 10 tribes from which or through which it ships TRU waste. These shipping protocols are institutionalized in five documents, as follows:
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• Memorandum of Agreement between the Southern States Energy Board and the Department of Energy. Signed by the Southern State Energy Board Chairman and Secretary of Energy. • Memorandum of Agreement between the Western Governors’ Association and the Department of Energy. Signed by the Chairman of the Western Governors’ Association and the Secretary of Energy. • Regional Protocol for the Safe Transport of Transuranic Waste to the Waste Isolation Pilot Plant. (Southern States Energy Board) • Waste Isolation Pilot Plant Transportation Safety Program Implementation Guide. (Western Governors’ Association) • Waste Isolation Pilot Plant Transportation Plan. The last three of these are considered living documents and are changed from time-to-time by mutual agreement. They are detailed documents for the sections covered by this manual which apply to the TRU waste shipments. All shipments to a repository under the Nuclear Waste Policy Act of 1982 (NWPA), as amended, are covered by this Manual. Shipments of commercial SNF, DOE SNF, commercial HLW and defense HLW to a repository at Yucca Mountain, Nevada are the responsibility of OCRWM. Prior to NWPA shipments of HLW and SNF, OCRWM will develop detailed operational plans in collaboration with OCRWM stakeholders. Although this Manual covers NWPA shipments, it does so without any detailed specificity since the operational plans have yet to be developed. When the detailed plans are developed, the Manual will be amended to reflect the commitments made in the plans. Shipments of Naval spent fuel are the responsibility of the NNPP. This Manual does not apply to a number of unique items: • shipments by barge or water vessel; • air shipments of medical and research isotopes which are lightweight and handled by commercial air express service to ensure quick delivery because of their short half-lives; • depleted uranium hexafluoride cylinders; • large-quantity sources; • classified materials moving by commercial carriers;
• fresh (new) nuclear fuel; • non-hazardous materials; • non-radioactive hazardous materials; and
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• onsite transfers of radioactive material. All of these shipments, however, are subject to applicable requirements and standards.
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2.0
TRANSPORTATION PLANNING
2.1 Introduction Transportation planning activities include characterization and classification of the material to be shipped, identification of programmatic needs and applicable requirements, selection and procurement of appropriate packaging, evaluation and selection of modes and carriers to be used, and planning for needed public information. The objective of transportation planning is to arrange for safe, secure, timely, and cost-effective movement of the radioactive materials. Opportunities for stakeholder involvement in transportation planning activities will be provided through outreach activities conducted by the DOE organizations responsible for the materials to be transported. Each of these planning elements is addressed below. DOE obtains input on transportation planning activities from a broad range of stakeholder organizations through the Transportation External Coordination Working Group (TEC/WG) and through interaction with States, Tribes, local officials, carriers, regional groups, and site advisory boards. 2.2. Material Characterization and Classification Characterization and classification of the material to be shipped are necessary to ensure that the material is shipped safely and in accordance with applicable regulations and that the material is compatible with the packaging selected for shipment. Material characterization and classification are performed by DOE or contractor technical staff who possess detailed knowledge of the material and who have been properly trained on the DOT regulations pertaining to classification. Characterization and classification responsibilities for shipments to a repository under the NWPA are set forth in the Standard Contract for Disposal of Spent Nuclear Fuel and/or High-Level Radioactive Waste (10 CFR 961) for commercial sources of material and in MOUs between OCRWM and other DOE programs for DOE material. 2.3 Identification of Programmatic Needs and Applicable Requirements DOE identifies the need to ship, the materials to be shipped, the origin, the destination, the schedule, and other programmatic needs. In addition, DOE is responsible for identifying applicable requirements based on characterization of the material to be shipped. 2.4 Packaging Selection Packaging selection depends on the DOT material classification and the chemical and physical characteristics of the material. Packaging requirements may also be specified by statute. The Waste Isolation Pilot Plant (WIPP) Land Withdrawal Act and the NWPA both contain packaging certification requirements for WIPP and SNF/HLW repository shipments, respectively. The cognizant DOE organization is responsible for identifying the proper packaging and taking steps to ensure that the packagings are available when needed for shipment. For Type B packagings, the appropriate certificate of compliance must be checked to ensure that it is current and that the proposed contents have been approved. Packaging selection is performed by the shipper’s or
6 DOE M 460.2-1A 6-4-08 contractor’s technical staff that has been properly trained on DOT, NRC and/or international packaging regulations. For repository shipments of SNF and HLW, Section 180(a) of the NWPA requires that OCRWM only use packages that have been certified by the NRC for such purposes. 2.5 Mode and Carrier Selection Safety is the primary consideration in mode and carrier evaluation and selection. Shipments are typically planned using the mode of transportation and individual carriers within that mode that can safely provide the required service at the lowest overall cost to the Government. However, under certain circumstances where only a particular mode of transportation or a particular carrier within that mode can be used to meet specific program requirements and/or limitations, only that mode or carrier will be considered. Examples of valid reasons for considering only one particular mode or carrier are where only a certain mode of transportation or individual carrier is able to provide the needed service or is able to meet the required delivery date, or where the shipping or receiving facilities preclude or are not conducive to service by all modes of transportation. In such instances, consideration will be limited to modes and carriers that can meet program requirements. Some of the factors that should be considered in determining whether a carrier or mode of transportation can meet DOE’s transportation service requirements for each individual shipment are— • availability and suitability of carrier equipment for the weight and size of the cargo; • carrier terminal facilities at origin and destination; • pickup and delivery service, if required; • estimated time in transit; • record of past performance of the carrier; and • review of the carrier’s security measures and verification of the carrier’s employee hiring and review process, including background checks and ongoing security training program. 2.5.1 Spent Nuclear Fuel and High-Level Waste. The DOT study, “Identification of Factors for Selecting Modes and Routes for Shipping High-Level Radioactive Waste and Spent Nuclear Fuel” concluded the following: • The transport casks used for SNF and HLW are designed to the most stringent packaging standards. The cask design reduces much of the risk associated with the transport of the material. • Radiation exposure risks associated with incident-free shipments and with potential accident conditions are very low.
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• A shipping campaign using larger-capacity rail/barge casks, where practicable, can reduce the number of trips needed and consequently may result in lower overall risk. • Shipment duration is the most significant safety factor. • As a general rule, highway offers the fastest movement among the three modes (highway, rail, and water), and waterway is the slowest. DOE organizations will consider these DOT study conclusions when selecting modes and will consult with appropriate State and Tribal officials to ensure their concerns are considered. 2.5.2 OCRWM SNF and HLW shipments to a repository at Yucca Mountain, Nevada. The primary shipping mode will be by rail and use of special rail service (specifically dedicated trains) is anticipated for most shipments. 2.6 Transportation Plans 2.6.1 Non-Classified Spent Nuclear Fuel, High-Level Waste, Tritium-Bearing Reactor Components, and Transuranic Waste Shipments. The cognizant DOE organization will consult with State, Tribal, and carrier representatives when developing plans and will provide them, for comment, to those States and Tribes through whose jurisdictions the shipments are expected to be transported. Transuranic waste shipments will follow the WIPP Transportation Plan (DOE/CBFO 98-3103). If the carrier transportation plans are incorporated into the DOE plans as an appendix, States and Tribes will have an opportunity to review and comment on the plans. Transportation plans describe operational strategy and delineate steps that will be taken in accordance with applicable requirements. Specific contents of transportation plans are determined by the program office and/or operations office, and in general include information on 1 — • organizational roles and responsibilities, • material to be shipped, • projected shipping window (as appropriate, DOE organizations consider input from States and Tribes on holidays or special events that may impact shipping schedules), • estimated number of shipments,
1 Security needs may require that some information be subject to restricted access.
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• mode of transport and carriers to be used, • packages to be used, • preferred and/or alternative routes, • shipment pre-notifications, • safe parking arrangements, • tracking systems, • emergency preparedness and response, • recovery and cleanup, • security arrangements, and • public information.
2.6.2 Low-Level Waste, Mixed Low-Level Waste, and Other Radioactive Material. Transportation plans are not routinely written for shipments of these materials. The cognizant DOE program organization will determine if the shipping activities warrant the development of a written transportation plan. When a transportation plan is not developed, the DOE shipping organization may develop, in consultation with State and Tribal authorities, a detailed fact sheet to provide specific shipment information for a wide audience: public officials, media, state and local emergency response personnel, state and regional planners, etc. 2.7 Communications Plans Public information officers have standardized communications practices for providing general information to the public. General information on transportation of radioactive material is identified in Attachment 4. DOE program managers are encouraged to use this material whenever possible to address public concerns/questions. For some shipments, this general information may be sufficient. The cognizant DOE program organization is responsible for coordinating stakeholder interactions. 2.7.1. Non-Classified Spent Nuclear Fuel, High-Level Waste, Transuranic Waste Shipments, and Tritium-Bearing Reactor Components. If the cognizant DOE organization
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6-4-08 determines that the standardized communications practices are not sufficient, they will develop a communications plan appropriate for the particular shipments in consultation with State, Tribal, and carrier representatives. It will identify roles and responsibilities for exchanging accurate information between the Department, its shipper, carriers, affected States, Tribes, and other Federal agencies, the media, and the public. The plan will identify points of contact and public spokespersons within DOE Headquarters program offices, participating DOE operations/area offices, and other participating Federal, State, and Tribal agencies. The designated DOE operations/area office will prepare campaign or shipment-specific public information materials, as necessary (i.e., fact sheets, briefing packages, news releases, and questions and answers) and coordinate those materials with the DOE Offices of Congressional and Intergovernmental Affairs and Public Affairs. The cognizant DOE program organization will coordinate the draft information materials, where appropriate, with the affected State and Tribal agencies. When finalized, the materials will be shared with State and Tribal agencies for their use and distribution. As requested, DOE will assist and support State and Tribal agencies in responding to information requests from elected officials and the media. As indicated in OCRWM's Strategic Plan for the Safe Transportation of Spent Nuclear Fuel and High-Level Radioactive Waste to Yucca Mountain (November 18, 2003), OCRWM will develop and implement a communications plan with States, Tribes, local governments, industry and other parties participating in transportation planning. Interested parties will be asked to provide comments on a draft of the OCRWM Communications Plan. 2.7.2 Other Non-Classified Shipments Of Low-Level Waste, Mixed Low-Level Waste, And Other Radioactive Materials. In many instances, the general information available on programmatic web sites (see Attachment 4) may be sufficient. For some unique shipping activities, more detailed communications planning may be desired. The responsible DOE organization will decide whether to develop a communications plan. 2.7.3 Classified National Security Shipments. All inquiries regarding classified national security shipments should be directed to OST in Albuquerque, New Mexico. Requests for non-classified briefings on the conduct of classified shipments, including Naval spent fuel shipments, should be directed to the OST, which maintains a program to educate law enforcement and emergency response personnel about classified shipments.
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3.0
EMERGENCY PLANNING
3.1 Introduction This section addresses DOE emergency planning activities with State and Tribal jurisdictions for the transportation of DOE radioactive material/wastes. It does not affect specific mutual aid agreements that DOE may have with State, Tribal, local, or county organizations. Emergency planning will include identification of hazards and threats, hazard mitigation, development and preparation of emergency plans and procedures, and identification of personnel, training, equipment, and other resources needed for an effective response. Planning covers activities that assist organizations to prepare for an incident/accident. The DOE Transportation Emergency Preparedness Program (TEPP) provides tools to State and Tribal authorities to assist in preparing for response to a transportation incident involving DOE shipments of radioactive material. TEPP provides technical assistance to State and Tribal governments in obtaining a greater understanding of radiological risks, identifying planning deficiencies, updating plans, training first responders, and stimulating and testing the system for strengths and needed improvements through drills and exercises. TEPP will focus its efforts with the States and Tribes initially along identified DOE transportation corridors. The goal of TEPP is to establish consistent policies and implementing procedures, build public and institutional confidence, and demonstrate the ability to respond effectively. DOE contact will be at the State and Tribal levels; States will work with the local authorities as necessary to implement their programs. 3.2 Emergency Planning Federal regulations set forth requirements for Federal, State, local, and Tribal emergency planning activities. In addition, DOE Orders, Guides, and Manuals specify planning activities (including emergency planning) for the DOE shipper and other parties involved with shipping activities. DOE emergency planning will be consistent with the National Incident Management System, the National Response Plan and other current federal emergency response programs. A TEPP coordinator has been designated for each of the eight regional coordinating offices to serve as the interface with State and Tribal organizations for emergency planning for DOE transportation of radioactive material/wastes (see Figure 1). A current listing of TEPP coordinator names and phone numbers along with additional information on TEPP is available online atwww.em.doe.gov/otem. 3.2.1 The regional TEPP coordinator will— • Discuss emergency response roles, responsibilities, capabilities, notification procedures, and information needs with State and Tribal governments along transportation corridors used for DOE radioactive material/waste shipments. DOE Regional TEPP Coordinators are available to provide planning information and
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assistance to State and Tribal contacts within their region. (Also see the sections on Emergency Notification and Emergency Response.) • Provide TEPP planning tools to State and Tribal authorities to assist them in planning and preparing for response to transportation accidents/incidents involving DOE radioactive material and performing needs assessments. • Coordinate with site transportation programs to identify planned radioactive material shipments to assist State and Tribal organizations in planning for the various shipments. (See the sections on Transportation Planning and Projected Shipment Planning Information.) • Coordinate information with TEPP coordinators in other regions affected by shipping routes that traverse more than one region. • Coordinate with program offices, transportation managers, and public information officers during development of transportation plans and develop the emergency plans for shipping campaigns originating in their region. (See the section on Transportation Planning).
Figure 1 DOE Radiological Assistance Program Regions
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3.2.3 Program-specific planning activities include the following. a. The OST Emergency Management Plan documents the emergency planning process for any type of operational emergency involving OST personnel and vehicles. b. OCRWM will require its carriers to develop an emergency response plan that addresses activities to be conducted in an accident or incident. Carriers are responsible for providing all drivers/crews and security personnel with specific written procedures that are consistent with the plan and clearly define actions to be taken in the event of any emergency. States and Tribes will have an opportunity to comment on the plans. Training 3.3.1 Transportation Emergency Preparedness Program. TEPP developed the Modular Emergency Response Radiological Transportation Training (MERRTT) to address concerns from States, Tribes, and local jurisdictions about shipments of radioactive material by the U.S. Department of Energy. MERRTT provides fundamental knowledge for responding to transportation incidents involving radioactive material and builds on training in existing hazardous materials curricula. MERRTT satisfies the training requirements outlined in the WIPP Land Withdrawal Act, and is used to train responders along the WIPP corridor. The training includes a module on the OST shipments and is largely applicable to Naval spent fuel rail shipments. MERRTT has a modular design, consisting of 18 concise, easy to understand modules and 4 hands-on practical exercises. This design allows a jurisdiction to integrate the modules into existing hazardous material training programs. The modular format allows instructors to tailor the training to specific emergency response audiences. MERRTT is designed to provide instructor-led or self-paced instruction. The training objectives and sequence of the modules have been structured to align the modules with the hazardous material training competencies outlined in OSHA 29 CFR 1910.120(q) and the National Fire Protection Association standards. 3.3.2 Program-specific training activities include the following: a. Office of Secure Transportation conducts drills and exercises regularly. In-service tests are conducted annually with DOE response elements and with State law enforcement and response agencies. The OST invites States to participate in its annual in-service training security and emergency response joint training exercises. b. WIPP uses the TEPP/MERRTT to train responders along the WIPP corridors. In addition, WIPP uses the State, Tribal Education Program for training in matters 3.3
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such as National Incident Management System, etc., and conducts training exercises along WIPP corridors. c. Office of Civilian Radioactive Waste Management. Section 180(c) of the NWPA provides for technical and financial assistance for training of local public safety officials to States and Tribes through whose jurisdictions DOE plans to transport SNF or HLW to the proposed Yucca Mountain repository. The training is to cover both safe routine transportation and emergency response procedures. A detailed discussion of the 180(c) training grant program can be found in DOE’s proposed policy published in the Federal Register on July 23, 2007 at 72 FR 40139-01. DOE intends to revise and finalize the policy for issuing 180(c) training grants prior to the commencement of shipments. d. The Naval Nuclear Propulsion Program conducts periodic Naval spent fuel shipment briefings and exercises. State, Tribal, and local emergency services personnel participate or observe to familiarize themselves with Naval spent fuel shipments, the escorts who accompany the shipments, and the coordination required for response to an emergency.
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4.0
PROJECTED SHIPMENT PLANNING INFORMATION
4.1 Introduction This section addresses the provision of information regarding projected shipments of DOE radioactive materials/wastes. The information to be provided and the timing of it will be determined by the responsible DOE organization to permit each Headquarters organization to determine, in concert with stakeholders, the appropriate schedule for providing information. 4.2 Planning Information Planning information is the general information regarding projected shipments that is shared with State and Tribal authorities to allow them to adequately plan resources for inspections, emergency response, accident prevention, and public information/outreach activities. The cognizant DOE organization, field office and shippers will establish an ongoing dialogue, consistent with security considerations, with State and Tribal agencies that demonstrate an interest in shipments traveling through their jurisdictions. 4.2.1 Non-Classified Shipments a. General information will be provided for shipment of—
• spent nuclear fuel; • high-level waste; • high-volume shipments of LLW and MLLW; 2 • TRU waste; and • tritium-bearing reactor components.
b. General information may include the following 3 (as determined by the responsible DOE organization, in consultation with State and Tribal authorities): • when shipments are anticipated; • origin; • destination; • projected pass-through State and Tribal lands;
2 For the purposes of this Manual, high-volume truckload shipments are those that a shipper schedules for an average of five or more truckload shipments per week between a given origin and destination for a period of 3 or more months; high-volume rail shipments are those that a shipper schedules for an average of 60 railcars or more per
month between a given origin and destination for a period of 3 or more months. 3 Security needs may require that some information be subject to restricted access.
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• expected number of shipments; • operational specifics (e.g., whether shipments are escorted); • description of material to be shipped; • packaging descriptions; • shipping modes; • potential routes; • DOE/contractor point of contact; • list of applicable reference documents (e.g., environmental impact statement, environmental assessment, record of decision); and • emergency response guidance. Recipients of the information include the following: • State and Tribal agency officials/points of contact (Note: States may pass on information to local governments as they deem appropriate) and • other parties as deemed appropriate by the responsible DOE organization, in consultation with State and Tribal authorities (e.g., regional groups). d. Frequency of updates. In consultation with State and Tribal authorities, the responsible DOE organization will determine the frequency of updates based on changes in the shipment planning parameters. e. Method of providing information. (1) In consultation with State and Tribal authorities, the responsible DOE organization will determine the most appropriate method for providing and updating the information. c.
(2)
DOE programs may use the Prospective Shipments Module for SNF, highway route-controlled quantity, and other campaigns, after the NEPA process is completed.
4.2.2 Classified National Security Shipments a.
General information on both highway shipments of classified materials made by the OST and on Naval spent fuel shipments are discussed with State and Tribal officials.
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b.
DOE works with contacts, designated by States and Tribes, with need for information about classified national security shipments.
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5.0
ROUTING
5.1 Introduction This section addresses the identification and selection of highway and rail transportation routes for shipments of DOE radioactive materials, but does not change agreements between DOE and States and Tribes regarding the routing of DOE shipments. 5.2 Highway Routing 5.2.1 Non-Classified Shipments a. Spent Nuclear Fuel, High-Level Waste, and Tritium-Bearing Reactor Components (1) Highway routes are selected in accordance with 49 CFR 397.101(b) for highway route-controlled quantity shipments. (2) DOE organizations (along with the operating contractors) analyze proposed routes using transportation models such as the Transportation Routing Analysis Geographic Information System (TRAGIS). States and Tribes may designate highway routes in accordance with the regulations set forth in 49 CFR 397.103. Additional input resulting from stakeholder review of projected shipment planning information is considered. Routes are documented in specific shipment transportation plans. For safeguards and security purposes, the following practices apply: (a) For shipments subject to an NRC license (e.g., university and research reactor spent nuclear fuel shipments), the shipper or transportation contractor submits routes for NRC approval in accordance with 10 CFR 73.37. For shipments not subject to an NRC license, DOE will be responsible for stakeholder interactions, final route approval, and other applicable safeguards and security requirements. DOE will meet or exceed the requirements prescribed by DOT and NRC for comparable commercial transportation. Transuranic Waste Shipments DOE Carlsbad Field Office negotiates routes with States and Tribes on behalf of the carrier. Specific routes to WIPP will be identified from each waste generator site. In developing these routes, DOE CBFO — (4) (b) b. (3)
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