Slow Train to Yucca Mountain

Will America's nuclear waste repository ever open, and, more important: should it?

Mon April 28, 2008 12:00 AM PST
High-level nuclear waste, the detritus of a half-century of civilian nuclear power in the United States, was supposed to have someplace to go by now. It was supposed to have a designated hole in the ground to contain it, according to the Nuclear Waste Policy Act of 1982, with infrastructure to transport and store it, staff to secure and protect it. In 2008, we were not supposed to still be debating where to put the fuel rods from nuclear reactors once they could no longer fission efficiently.

But we are.


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In 1987, after narrowing the sites for a geological repository for nuclear waste down to three, Congress settled on a dusty stretch of Nye County, Nevada, known as Yucca Mountain. With full faith that the repository would open in 1998 as mandated by law, the Department of Energy (DOE) forged ahead, drilling a five-mile tunnel out of the mountain and building a rail line through it. It brought in scientists from the country's top nuclear laboratories to study the rock; it began conducting tours of the site for media, legislators, and scientists; it even printed up T-shirts and coffee mugs for visitors to purchase at lunchtime.

But as the years went by, Yucca Mountain began to seem less like a grand public-works project than a colossal mistake. The latest opening date for the repository—which has cost $11 billion to date—was set for 2017, but as recently as February, the DOE's Ward Sproat, who oversees the agency's civilian nuclear waste program, admitted "a two- or three-year slip from that," in part due to a $108 million cut in the project's requested half-billion-dollar budget. As of April 2008, the Department of Energy had yet to apply for a license with the Nuclear Regulatory Commission (NRC) for the repository, which needs to be approved before construction can begin on the actual cubbyholes where the waste will be stored.

What went wrong? Part of the problem is certainly garden-variety NIMBYism: The State of Nevada has sued several times to stop the project, saying the state has absorbed enough radiation from the nation's atomic experiments. (Yucca Mountain bumps up against the Nevada Test Site.) But another part may just be that Yucca Mountain was a really bad choice: Rock at the site, known as "tuff" and laid down by ancient volcanic explosions, proved more porous than previously claimed by the DOE, raising the possibility that water could leach into the site, erode the metal-and-concrete casks that store the waste, and transport toxic waste into the groundwater. (Nevada's largest dairy is downgradient from the mountain.) Add to that an active fault, which produced a 5.6 earthquake in 1992 and a 4.4 in 2002, and climatic uncertainty—the Nevada desert may not always be a desert—and Yucca Mountain starts to seem like a less-than-sensible place to stash your decaying plutonium for 24,100 years, which is how long it takes for plutonium to shed half its toxicity. Depleted uranium, which accounts for the bulk of the waste, stays deadly for 4.5 billion years.

The DOE insists Yucca Mountain was never supposed to be a geologic repository, and that waste-containment casks, made of high-grade titanium, steel, and concrete, will do the job instead. But the casks may not last more than a few thousand years, and even if they do, the risk of exposure to the deadly isotopes inside will peak at 300,000 years. Which gets to the heart of the problem: How do we safely stow toxic materials for a period longer than the entire history of Homo sapiens?

The truth is that no piece of ground seems to deserve this stuff. But without a solution to the waste problem, the nuclear renaissance is effectively dead: Few energy companies will invest further in a technology plagued by a deadly and intractable problem. And with two out of three current presidential candidates dedicated to halting the project, this could be Yucca Mountain's last chance to move forward.

Which is why, some believe, Sproat suddenly announced in early March that the license application was just about ready and would go to the NRC by June 30. "Sproat knows he's leaving at the end of the year because it's the end of this administration," says Steve Frishman, technical policy coordinator for the Nevada's Agency for Nuclear Projects. "When he came on his job, his marching orders included getting a license application filed, and that's what he's going to do."
From the filing date, the NRC has three years to approve the license application, starting with a 90-day evaluation period to determine whether it's complete. If so, the commission will accept public petitions through October 2008 for the right to intervene in the process. Prehearing panels will commence a few months later, and hearings will continue through at least 2011. But the hearings are by invitation only, and the commission generally hears only from official interveners, such as local government leaders who hope to piggyback their own starved public-works projects on the Yucca construction. The rest of the public may find itself bleating at an impenetrable bureaucracy. Says Judy Treichel, executive director of the Nevada Nuclear Waste Task Force: "Public involvement basically means you have the right to watch."

If and when the repository opens, it will already be full. Existing commercial reactor waste, plus radioactive detritus left over from government programs, will occupy every last cubby. If long-term storage is the goal, the nuclear renaissance will require another Yucca Mountain very soon. Watch out: Your back yard may be next.

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Comments
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Nevada's opposition to Yucca Mountain must be viewed from the perspective of other activities that create potential long term hazards. In particular, Nevada's gold mining industry as caused environmental damage with deep open pit mines that will cause vastly larger hazards than Yucca ever could, and it is revealing that neither Nevada nor antinuclear organizations either make this comparison or fight to end the this mining. The most recent DOE analysis of Yucca Mountain's most likely long term performance show that the potential doses to people over the next million years will be less than 1% of their natural background exposure, a value that easily complies with the EPA safety standard. If the Nuclear Regulatory Commission finds that the DOE predictions are technically and scientifically sound, then it will issue a license. The article is misleading in saying that the repository would be full any time soon, since this is due to a statutory limit that could be easily changed. The actual capacity of the site for spent fuel is much larger, and if that fuel were recycled and the heavy elements transmuted in reactors, the capacity would become vastly larger. The article also never mentions that the cost of the repository is fully funded by fees paid by electricity consumers, and thus nuclear's waste costs are fully internalized in contrast to fossil fuels. Our most important goal now is to move forward with the license application submission and NRC review, and to allow the NRC to reach its independent scientific and technical assessment of whether the application demonstrates compliance with the EPA safety requirements.

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What should we be more concerned about regarding the soundness of Yucca Mountain? The moving forward of independent and technical assessments per the NRC, DOE, EPA, GOV, - or ANY moving of Bow Ridge?

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This article has serious factual problems that call the author's credibility into question. 1. Spent fuel is enriched uranium, not depleted uranium. 2. The sentence that alleges "DOE insists Yucca Mountain was never supposed to be a geologic repository" is simply false. It's a mountain, and all scientific safety studies rely on geology as well as engineering (as required by law). Finally, the only two people quoted are longtime anti-nuclear activists with little, if any, scientific credibility. Why nothing from the DOE, or at least someone with scientific qualifications? I believe your readers are skeptical, if nothing else. These questions should give them pause, and hopefully send them looking for facts.

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To TFD: Spent fuel consists of a lot of things (tiny amounts of fissionable U-235 and plutonium, for instance), but most of it is "fertile" U-238, which is also the primary component of depleted uranium. Countries that reprocess turn it into plutonium, but we store it as waste. It's not the most dangerous isotope in spent fuel, but it's still there.

It was a DOE spokesperson, Allen Benson, who told me that the storage casks would contain the waste at Yucca Mountain, not the rock around it, and as such, it's not, technically, a geologic repository. This argument began circulating around the time that it became clear the rock was porous. I quoted Benson and other DOE officials in a longer story, which you can find here online.

-Judith

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Judith - If you would bear with me for a moment, perhaps I can clear up a couple of misunderstandings here.

First of all, depleted uranium is not synonymous with uranium-238. A quantity of uranium is considered to be "depleted" only when the ratio of U-235 to U-238 is less than that of natural uranium (i.e., U-235/U-238 is less than 0.0072). Even weapons-grade uranium has a substantial amount of U-238 in it (up to 10% or more), but one wouldn't refer to it as "depleted uranium" -- that would be ridiculous.

Next, U-238 is converted to plutonium in substantial quantities only in reactors that are specially designed for that purpose. Reprocessing is not the process of turning U-238 into plutonium; it is the process of separating the plutonium and the uranium from the other materials (fission and decay products) coming out of a reactor. Today, in places like France, the plutonium is used to generate more electricity in their reactors by turning it into a type of fuel called MOX. The uranium is stored and could be used as fuel sometime in the future.

Although depleted uranium is not simply U-238, you have greatly underestimated the length of time that it remains "deadly." Uranium is a heavy metal, and so like some other heavy metals -- such as mercury or lead -- it is chemically toxic (in sufficient quantities in the body) essentially forever. Uranium 238's half-life of over four billion years, while impressively long, is not a reasonable measure of how long the material is hazardous; rather it indicates that U-238's level radioactivity is very very very low. U-238's radiological hazards are vanishingly small; its chemical hazards are on par with something like lead.

Finally, just because the DOE has decided to use a combination of natural and engineered barriers as the basis for its licensing plan for Yucca Mountain, that does not disqualify it from being called a "geological repository." It would be called by this term in any country in the world. After all, if the storage casks are the only factor that matters, why put them deep underground at all?

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Just wondering - what's the half-life of gold and gold mining waste? I wasn't aware that gold mined in Nevada might be radioactive. If things shift towards "interim" storage of spent fuel at a site to be used for reprocessing (GNEP) includes the Savannah River Site in South Carolina, get ready for a big fight. The struggle to close the Barnwell, SC low-level dump will pale in comparison to what will happen if DOE aims to dump spent fuel at SRS as part of thinly disguised and misguided program sold as "recycling."

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Pluto Boy

You are in outer space, my friend.

Per never said that gold was radioactive. What he said was "...Nevada's gold mining industry has caused environmental damage with deep open pit mines that will cause vastly larger hazards than Yucca ever could..." Environmental damage includes such things as loss of wildlife habitat, stream damage, leaching of heavy metals, etc.

Secondly, you sound opposed to recycling used nuclear fuel. Are you against recycling in general or just nuclear fuel? Recycling nuclear fuel can reclaim 90% of the used material. This reduces the waste volume and provides another source for powering nuclear power plants.

One thing we are doing you might appreciate. We are recycling nuclear weapons from the Soviet Union to produce fuel for nuclear power plants. Now, a BIG caution here. The concentration of "bomb grade" uranium and plutonium (hey...your name is in there Pluto Boy!) is much much higher than that used for nuclear power. The fuel we use to make electricity cannot blow up like a bomb.

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Brian: Thanks for the precise explanation about MOX and U-238.

I have a DOE spokesperson on tape saying "It was never supposed to be a geologic repository!" With the exclamation point. So the DOE does in fact respond to the criticism by saying that Yucca Mountain was never supposed to be a geologic repository. It may be called that in other countries; it may not be disqualified from that designation because of its storage casks. But the DOE uses that argument.

Judith

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Most of what I read about Yucca Mountain and other nuclear waste repositories implies that the waste will be left there forever, as in geologic time. There's probably nowhere on earth that is immune from disruptive changes in water table or geology if one looks ahead far enough. We should look at waste repositories as a means to buy time until we find another strategy to deal with nuclear waste. Yucca Mountain looks one way if we look ahead many thousand or millions of years, and it looks like something different, like a good safe way to store waste, if we look ahead for some decades or hundreds of years. In that time, we'll either find a new way to store waste, blast it into space, or most likely reuse it. Isn't this the most likely thing that will happen, especially when we consider that it's already being done elsewhere?
Yucca Mountain may not be flawless, but it's paid for and already built. Nuclear power may not be flawless, by any means, but as we consider climate change from use of fossil fuel and environmental degradation brought on by mining for it, isn't it our most innocuous alternative? If lack of a waste repository is impeding development of our most innocuous alternative, shouldn't we get real about what needs to be done?

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If we used closed-cycle nuclear plants, as is done in many other countries, the amount of "waste" would be reduced to a small fraction -- say 5% -- of that which is produced by the open-cycle system used here. Unfortunately, President Carter stopped all use of the closed-cycle system.

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Please read, Power to Save the World which is a book by a former adamant protesting journalist and mother who grew up near the testing sites. It explains that the military has a storage facility within the salt deposits near Los Alamos. It is very safe and could hold all of our commercial waste past and future.

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