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Western States Committed to
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In March 1999, the federal government began the first of what will eventually be tens of thousands of shipments of radioactive waste to a deep geologic disposal site in southeastern New Mexico. The magnitude of this shipping campaign is unprecedented for radioactive material transport in the United States. The U.S. Department of Energy (DOE) estimates there will be over 38,000 shipments from 10 major USDOE sites and several smaller facilities during a 35-year period. Shipments will travel through at least 22 states and the lands of at least 14 tribal governments.
While DOE is responsible for the safety of these shipments, Western states recognize their own responsibility to ensure the safety of their residents and protect the environment from potential hazards associated with these shipments. In 1989, the Western Governors' Association established a Technical Advisory Group to address transport safety issues and help ensure the "safe and uneventful" movement of this waste. This group consists of representatives from the seven states along the initial planned transportation corridors: New Mexico, Colorado, Wyoming, Utah, Idaho, Washington and Oregon. The group was later expanded to include California, Nevada and Arizona, states through which shipments will also occur. The Western states have been working with the federal government since 1989 to develop a transportation safety program. DOE coordinates similar activities with other states and Native American tribes along the shipping routes.
The Waste
The waste disposed of in New Mexico is called transuranic waste. Transuranic wastes are generated primarily during the research, development and production of nuclear weapons. The wastes consist of such things as laboratory clothing, tools, glove boxes, rubber gloves, glassware and air filters. This waste is contaminated with small amounts of radioactive materials, such as plutonium and americium, and small amounts of hazardous chemicals.
Prior to 1970, transuranic waste was buried at DOE sites in shallow landfills. Since then, newly-generated transuranic waste has been stored in metal drums and other temporary storage containers in anticipation of its eventual shipment to the permanent disposal site.
Most of the waste is "contact-handled," which means the radiation it emits does not require heavy lead or other shielding. Inhalation and ingestion are the primary radiation hazards posed by this waste. Even in very small quantities, certain transuranic materials - such as plutonium - can deliver significant internal radiation doses if taken into the body.
The remaining waste is called "remote-handled." The radiation this waste emits is very penetrating and requires heavy shielding. The transport safety plan described in this fact sheet was developed for contact-handled waste shipments. Additional planning and training will be required before remote-handled shipments begin. Those shipments are not expected to occur before 2003.
The Disposal Site
The disposal site is an underground repository in southeastern New Mexico called the Waste Isolation Pilot Plant (WIPP). The WIPP facility was mined 2,150 feet below the surface in an ancient salt formation. This provides a geologically stable, moisture-free environment. It was constructed as a research and development facility to demonstrate the safe disposal of transuranic waste. The WIPP is located about 30 miles southeast of Carlsbad, New Mexico.
The initial WIPP shipment originated from Los Alamos National Laboratory in New Mexico. Other DOE facilities in the West that have transuranic waste to ship to the WIPP are the Idaho National Engineering and Environmental Laboratory, Rocky Flats, Hanford, Lawrence Livermore National Laboratory and the Nevada Test Site.
Cask Safety
This fact sheet describes the transport safety program developed by the Technical Advisory Group. This program builds on the safety already inherent in the shipping container or "cask."
All contact-handled waste will be transported to the WIPP in the Transuranic Packaging Transporter (TRUPACT-II), an extremely sturdy, reusable shipping package or cask. Inside the TRUPACT-II, the waste will be sealed in 55-gallon steel drums or steel boxes. Each TRUPACT-II can hold up to fourteen 55-gallon drums or two boxes. Three TRUPACT-II containers make up a full shipment. Some shipments may consist of one or two TRUPACT-IIs.
In order to transport radioactive materials, the casks must meet certain standards established by the U.S. Nuclear Regulatory Commission (NRC). These standards were set to minimize damage to casks in severe accidents.
Unlike most radioactive material shipping containers previously certified by the NRC, the TRUPACT-II is a flexible rather than a rigid package. The surfaces were designed to move but still survive major impacts without losing their contents.
NRC regulations do not require actual testing of a full-scale cask to prove it can survive severe accident conditions. In most instances, the NRC accepts the results of computer simulations and physical tests on scale models (1/10 to 1/2 actual size). However, DOE agreed full-scale testing of TRUPACT-II prototypes was necessary because of the unique shape of the cask. The full-scale tests were designed to demonstrate the casks' ability to survive high-speed crashes and punctures followed by fires. Computer modeling was performed to satisfy NRC requirements for submersion in water. The state of New Mexico, the host state for the WIPP, helped design and review the tests. The test program identified several shortcomings in the original design, which were corrected.
Accident Prevention and Emergency Preparedness
Most truck accidents can be avoided by alert, skilled drivers using quality equipment, who avoid driving when road and weather conditions are particularly hazardous. These preventative measures were used to develop the accident prevention portion of the program. But even with these precautions, some accidents will likely occur. Therefore, an effective emergency preparedness program is also necessary and was developed by the Technical Advisory Group. The transportation safety program is described below.
High-Quality Drivers and Carrier Compliance
The U.S. Department of Transportation sets standards for drivers of trucks that carry hazardous cargo. DOE, recognizing the heightened public interest in radioactive material shipments, agreed to go beyond these regulations for its WIPP drivers and carrier. DOE adopted rigorous driver and carrier performance requirements to ensure that high-quality drivers and vehicles are used for WIPP shipments.
The drivers must have extensive, accident-free experience. They are tested for drug and alcohol abuse. The state in which the carrier is based conducts regular safety audits to ensure the drivers and carrier are in compliance with all regulations and with the contract requirements.
Safety Inspections
All transuranic waste shipments are inspected by state personnel using enhanced truck safety inspection standards. These inspections take place before the trucks leave the DOE sites and periodically along the route. Trucks must be in top working order. The comprehensive inspection includes brakes, tires, lights, turn signals and cask tie downs, as well as many other items. Drivers' logs are checked to ensure drivers have not been at the wheel more hours than are allowed. Radiation surveys of the shipping containers are taken to ensure radiological standards are met. State inspectors are trained and certified by the Commercial Vehicle Safety Alliance, a North American organization of commercial vehicle inspection agencies. The inspection requirements for WIPP shipments are more stringent than for most other hazardous material shipments.Bad Weather and Road Conditions
The states and DOE have agreed on procedures to monitor weather and road conditions so that transuranic shipments can avoid particularly hazardous road conditions. Shipments do not depart DOE facilities if they are likely to encounter severe weather. Shipment schedules also avoid places and times where there is heavy traffic (such as rush hours through major metropolitan areas and holiday weekends).Safe Parking
If shipments encounter unexpected bad weather or road conditions, the drivers either select a safe parking area based upon criteria developed by the states, or the state will direct the shipment to a pre-selected safe parking area. Some initial route states identified specific safe parking areas, such as ports-of-entry, highway department yards and National Guard facilities. The U.S. Department of Defense has agreed that federal military facilities along the routes can also be used as safe parking areas. The states developed maps and directions to each of the pre-designated sites.Advance Notice of Shipments/Access to Shipment Status
All transuranic waste shipments are monitored and tracked through a satellite system called the Transportation Tracking and Communications System (TRANSCOM). Initial corridor states have direct access to this system. TRANSCOM displays schedules of upcoming shipments and provides real-time tracking of shipments on the road. TRANSCOM supports two-way satellite communication with the drivers, the carrier and DOE. It also provides immediate emergency response guidance information.Highway Routing
The routes used are predominantly Interstate System highways. Shipments use beltways, where available, around urban areas. DOE selected routes early in the process and committed to directing the WIPP carrier to use these routes. This early route selection allowed states to focus their training efforts along the routes where the shipments occur. Several states have designated or are considering designating alternate routes, which they believe will enhance the shipment safety. This is being done in accordance with U.S. Department of Transportation regulations.Mutual Aid Agreements
Neighboring states developed written agreements to provide assistance across state borders if needed to respond to an incident involving a transuranic waste shipment. Agreements have also been completed between the states and DOE area offices to provide additional support and resources.Emergency Response Plans and Procedures
A well organized, coordinated effort is needed to make response to an accident swift and effective. Plans and procedures, specifically designed to deal with transportation incidents involving the WIPP shipments, have been developed and tested in the initial corridor states.Training
DOE and the states provide training to state and local emergency responders along the initial WIPP shipping routes. Those trained include fire fighters, police, emergency medical staff, highway crews and others who could be the first at an incident scene. Drills and exercises supplement the training.Emergency Response Equipment
Radiation detection and personnel protective equipment have been provided to selected emergency responders and hospitals along the initial planned shipping routes.Medical Preparedness
Emergency medical personnel along the initial routes have received training. This includes both the emergency medical technicians and paramedics who may respond to an incident scene, and hospital emergency room personnel who may be required to handle and treat incident victims. Hospital radiological plans and procedures have been developed and refined. Equipment and supplies have been provided to some hospitals. Emergency medical personnel also participate in the drills and exercises.
Safety Program is Proven
As the transportation safety program was being developed, it was thought that shipments to WIPP could begin at any time. However, a variety of technical, regulatory and political issues delayed WIPP's opening until March 1999.
Other DOE radioactive material shipping campaigns provided opportunities to test key elements of the WIPP safety program. In 1994-95, DOE made 20 shipments of highly radioactive cesium 137 capsules from Colorado to Hanford, Washington. In 1995, DOE made 50 truck shipments of radioactively contaminated nitric acid from Hanford to the East Coast. Two additional cesium capsule shipments were made in 1996. DOE has also moved some transuranic waste between facilities at the Idaho National Engineering and Environmental Laboratory.
These shipping campaigns provided opportunities to test the inspection, shipment tracking and bad weather/safe parking procedures developed for the WIPP shipments. Procedures were then evaluated, and in some cases, modified for improvement.
WIPP transportation planning to date has been based on the assumption that all waste shipments will be by truck. However, the WIPP is accessible by rail, and Congress directed DOE to evaluate the feasibility and impacts of shipping transuranic wastes to the WIPP by rail. If DOE should decide to ship transuranic waste by rail, the Western states would significantly revise the transportation safety program.
To Learn More
For more information, contact the following:
Western Governors' Association
303-623-9378
www.westgov.org/wipp/
WIPP Site
WIPP Information Center
U.S. Department of Energy
1-800-336-9477
www.wipp.carlsbad.nm.us