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Progress Report SYNROC STUDY GROUP PROGRESS REPORT August 1991 SYNROC STUDY PROGRESS REPORT August 1991 The Broken Hill Proprietary Company Limited (A.CN. 004 028 077) CRA Limited (A.C.N. 004 458 404) Energy Resources of Australia Limited (A.C.N. 008 550 865) Western Mining Corporation Limited (A.C.N. 004 184 598) Australian Nuclear Science and Technology Organisation Australian National University OVERVIEW This Progress Report has been prepared by the Synroc Study Group (SSG), comprising staff members of The Australian Nuclear Science and Technology Organisation (ANSTO), The Australian National University (ANU), BHP, CRA, Energy Resources of Australia (ERA) and Western Mining Corporation (WMC). It also draws upon work undertaken for the SSG by consultants from Nuclear Assurance Corporation (market estimates), the Swedish Nuclear Fuel and Waste Management Company (SKB) (cost estimates and other data) and Wave Hill Associates (US and international perspectives). Synroc is applicable solely to the immobilisation of liquid high-level waste after such waste has been separated from spent fuel in a reprocessing operation; use of Synroc therefore requires prior construction of a reprocessing plant An alternative management strategy, based upon direct disposal of encapsulated spent nuclear fuel, does not require reprocessing, and therefore makes no use of Synroc. The SSG has examined both of these alternatives and also a third, which is to defer decision-making on reprocessing versus direct disposal for a lengthy period while spent fuel is held in interim storage. The SSG recognises that many utilities and countries have deferred decisions as between reprocessing and direct disposal of spent fuel. The construction of interim spent fuel storage facilities and related infrastructure appears to be a practical strategy in the short term, although for many utilities and countries this period of satisfactory and acceptable deferral may be starting to run out. Synroc is likely to find its principal commercial application in second generation reprocessing plants employing advanced technology, because existing reprocessing plants in France and the UK, and the prospective plant in Japan, are committed to the use of borosilicate glass for immobilisation. Decisions to construct second generation plants are unlikely to be made before 2005. It is possible, however, that new developments in partitioning technology (involving separation of shorter lived fission product waste from longer lived actinidc waste) will facilitate a role for Synroc even in existing reprocessing plants. The SSG has identified five separate ways in which Synroc could be commercialised, with varying economic benefits for Australia. These are: • licensing of Synroc overseas; • participation in overseas plant(s) using Synroc; • establishment of an international reprocessing plant in Australia with immobilisation of high-level waste in Synroc and return of waste to the customers; • establishment of an integrated spent fuel management industry outsiuc of Australia with international participation; • establishment of an integrated spent fuel management industry in Australia, with international participation, and with disposal of waste on an Australian territorial site either on the mainland or offshore. The concept of long-term storage and/or disposal in a country which is neither the original user of the fuel nor its reproccssor is not new, it was proposed by the Peoples' Republic of China in the early 1980s. However, the SSG has not yet approached prospective customers to establish whether there is a significant interest in such "third- party" nuclear waste management or any other potential applications of Synroc technology. This activity would be pursued in a future phase of the Study. To quantify the generalised concept of an integrated spent fuel management industry (not tied to any particular location), the SSG also examined several scenarios for commercial enterprises based upon the management of spent nuclear fuel. All of these reflect the extremely long lead times associated with this service industry and, at the same time, the potentially large revenue and earning streams relative to the expected capital requirements (see Appendix III). For example, an evaluation of the world inventory of spent fuel shows that the potential commercial value of its disposal is very large indeed, in the range of USSlOO billion to US$200 billion to the end of this century. For any centralised facilities likely to contemplated, the need to provide absolute guarantees for the safe storage and ultimate disposal of accepted spent fuel, and also for the security of any funds paid at an early stage and needed much later on, almost certainly requires the involvement of national Governments) and international organisations. New concepts for the joint operation of private enterprise and governmental bodies might need to be developed to deal with this need, possibly leading to the establishment of a regional facility with some form of international involvement Difficulties and delays have been noted in those countries where spent fuel management has remained exclusively in government hands. Proponents and backers of Synroc may need to contemplate an extended period before the technology is utilised, and may have to be prepared for periodic review of their strategies and forward planning to take account of national and international policy changes and developments affecting a range of energy matters. The SSG has evaluated the technology and safety issues relevant to an integrated commercial enterprise based on the management and safe disposal of spent nuclear fuel. It concluded that mature technology is already available for all stages of the handling of spent fuel and only final disposal has yet to be demonstrated. There already exists substantial experience to confirm that all operations involving spent fuel, including its reprocessing and the immobilisation of high level waste, can be conducted safely. The SSG believes that Australian participation in spent fuel management would give Australia significant additional influence towards the strengthening of the international nuclear non-proliferation regime. Such participation could also deliver more tangible benefits for Australia, including foreign exchange earnings, a high-technology industry base and employment opportunities. Public acceptance is a primary concern to be addressed in any nuclear waste management enterprise. A policy of continuing disclosure and accountability is essential to earn public acceptance, and has been adopted by the SSG from the outset of its work. The advantageous properties of Synroc as a wasteform, including its outstanding chemical durability and resistance to leaching at elevated temperatures, have been recognised throughout the world. However, a considerable effort is still required for production of Synroc under fully radioactive conditions. This development work would need to be continued by a commercially-oriented nuclear waste management enterprise for application to reprocessing if that option is maintained and/or chosen more widely in the future. In view of the long lead times in nuclear waste management, certain options were included in the study even though they are currently precluded either by Australian or overseas government policies. The SSG recommends to its principals that the study proceed to the next phase to include early discussions with overseas organisations dealing with spent fuel management to refine the alternatives that could be of commercial interest. n CONTENTS Overview i CHAPTER PAGE 1. Opportunities and Benefits 1-1 2. The Nuclear Fuel Cycle and Radioactive Waste Management 2.1 Introduction 2-2 2.2 The Nuclear Fuel Cycle 2-4 2.3 Spent Fuel 2-7 2.4 The Once-Through Fuel Cycle 2-10 2.5 The Reprocessing Cycle 2-11 2.6 Waste Conditioning 2-14 2.7 Waste Disposal 2-16 3. Safety Appraisal of Nuclear Waste Management 3.1 Introduction 3-2 3.2 Spent Fuel Storage 3-3 3.3 Transport 3-3 3.4 Reprocessing 3-5 3.5 Waste Conditioning 3-11 3.6 Waste Disposal 3-15 3.7 Institutional Support 3-21 3.8 Conclusions 3-27 3.9 References 3-30 4. NPT and International Safeguards 4.1 Introduction 4-2 4.2 IAEA Safeguards System 4-4 4.3 NPT and the Safeguards System 4-4 4.4 The Australian Example 4-6 4.5 Convention on Physical Protection 4-6 4.6 Safeguards Aspects 4-7 of Spent Fuel Disposal versus Reprocessing 5. The Market 5.1 Introduction 5-2 5.2 Prices 5-5 5.3 Volumes 5-7 5.4 Factors Affecting the Market 5-9 5.5 Conclusions 5-15 6. Issues Relating to Synroc Commercialisation 6.1 Introduction 6-2 6.2 Strategic Issues in Synroc Commercialisation 6-3 6.3 Requirements for Synroc Commercialisation 6-7 6.4 Options for Synroc Commercialisation 6-9 6.5 Criteria for Assessment of Options 6-11 6.6 Conclusions 6-13 Annexure A: Status of Reprocessing Today 6-15 Annexure B: Intrinsic Merits of an Integrated 6-17 International/Regional Facility Servicing the Back End of the Nuclear Fuel Cycle APPENDIX I Nuclear Waste Management and the Role of Synroc II Public Acceptance Activities III Economic Analysis GLOSSARY CHAPTER 1 OPPORTUNITIES AND BENEFITS 1.1 Because of its substantial endowment of natural resources, Australia has developed over many years a range of high-level technological skills in mining engineering, resource development, and the management of long lead-time projects. Now, as environmental problems of a global nature become an increasingly important component of business and public policy, this Australian skill base may have
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