Managing Nuclear Waste from Power Plants

National strategies to manage nuclear waste from commercial nuclear power plants are analyzed and compared. The current strategy is to try to operate a repository at Yucca Mountain, Nevada, to dispose of high-level nuclear waste underground. The main alternatives involve temporary above-ground storage at a centralized facility or next to nuclear power plants. If either of these is pursued now, the analysis assumes that a repository will be built in 2100 for waste not subsequently put to use. The analysis treats various uncertainties: whether a repository at Yucca Mountain would be licensed, possible theft and misuse of the waste, innovations in repository design and waste management, the potential availability of a cancer cure by 2100, and possible future uses of nuclear waste. The objectives used to compare alternatives include concerns for health and safety, environmental and socioeconomic impacts, and direct economic costs, as well as equity concerns (geographical, intergenerational, and procedural), indirect economic costs to electricity ratepayers, federal government responsibility to manage nuclear waste, and implications of theft and misuse of nuclear waste. The analysis shows that currently building an underground repository at Yucca Mountain is inferior to other available strategies by the equivalent of $10,000 million to $50,000 million. This strongly suggests that this policy should be reconsidered. A more detailed analysis using the framework presented would help to define a new national policy to manage nuclear waste.     

Decidedly Different: Expert and Public Views of Risks from a Radioactive Waste Repository

A questionnaire with items that had been used in a national survey of the general public was administered to persons attending an American Nuclear Society meeting. The items asked about risks associated with high-level nuclear waste (HLNW), trust in nuclear-waste program managers, costs and benefits of a repository project, and images of a HLNW repository. The results suggest that nuclear industry experts may have very different opinions from the general public about most of these items and their images of a repository indicate a vastly different conceptual framework within which their opinions are formed.     

A Comparison Between Probabilistic and Dempster‐Shafer Theory Approaches to Model Uncertainty Analysis in the Performance Assessment of Radioactive Waste Repositories

Model uncertainty is a primary source of uncertainty in the assessment of the performance of repositories for the disposal of nuclear wastes, due to the complexity of the system and the large spatial and temporal scales involved. This work considers multiple assumptions on the system behavior and corresponding alternative plausible modeling hypotheses. To characterize the uncertainty in the correctness of the different hypotheses, the opinions of different experts are treated probabilistically or, in alternative, by the belief and plausibility functions of the Dempster‐Shafer theory. A comparison is made with reference to a flow model for the evaluation of the hydraulic head distributions present at a radioactive waste repository site. Three experts are assumed available for the evaluation of the uncertainties associated with the hydrogeological properties of the repository and the groundwater flow mechanisms.     

Ramifications of Risk Measures in Implementing Quantitative Performance Assessment for the Proposed Radioactive Waste Repository at Yucca Mountain, Nevada, USA

As part of its preparation to review a potential license application from the U.S. Department of Energy (DOE), the U.S. Nuclear Regulatory Commission (NRC) is examining the performance of the proposed Yucca Mountain nuclear waste repository. In this regard, we evaluated postclosure repository performance using Monte Carlo analyses with an NRC-developed system model that has 950 input parameters, of which 330 are sampled to represent system uncertainties. The quantitative compliance criterion for dose was established by NRC to protect inhabitants who might be exposed to any releases from the repository. The NRC criterion limits the peak-of-the-mean dose, which in our analysis is estimated by averaging the potential exposure at any instant in time for all Monte Carlo realizations, and then determining the maximum value of the mean curve within 10000 years, the compliance period. This procedure contrasts in important ways with a more common measure of risk based on the mean of the ensemble of peaks from each Monte Carlo realization. The NRC chose the former (peak-of-the-mean) because it more correctly represents the risk to an exposed individual. Procedures for calculating risk in the expected case of slow repository degradation differ from those for low-probability cases of disruption by external forces such as volcanism. We also explored the possibility of risk dilution (i.e., lower calculated risk) that could result from arbitrarily defining wide probability distributions for certain parameters. Finally, our sensitivity analyses to identify influential parameters used two approaches: (1). the ensemble of doses from each Monte Carlo realization at the time of the peak risk (i.e., peak-of-the-mean) and (2). the ensemble of peak doses calculated from each realization within 10000 years. The latter measure appears to have more discriminatory power than the former for many parameters (based on the greater magnitude of the sensitivity coefficient), but can yield different rankings, especially for parameters that influence the timing of releases.     

A Multiattribute Utility Analysis of Alternative Sites for the Disposal of Nuclear Waste

Five potential sites nominated for the Nation's first geologic repository for disposing of nuclear waste are evaluated using multiattribute utility analysis. The analysis was designed to aid the Department of Energy in its selection of 3 sites for characterization, a detailed data-gathering process that will involve the construction of exploratory shafts for underground testing and that may cost as much as $1 billion per site. The analysis produced insights into the relative advantages and disadvantages of the nominated sites and clarified current uncertainties regarding repository performance.     

Stigma Happens: Social Problems in the Siting of Nuclear Waste Facilities

The paper by Metz challenges the view that stigma associated with a nuclear waste repository might lead to significant economic losses to the host region. We have been invited to comment on the general issues raised by this paper. We find that much of the evidence presented in the paper consists of factual and conceptual errors and misrepresentations of the research literature. Based on our review of evidence documenting the social and economic impacts of perceived risk, we conclude that stigma is an important phenomenon that is symptomatic of fundamental problems with the way in which nuclear waste facilities are sited.     

Public Opposition to a Proposed Nuclear Waste Repository in Canada: An Investigation of Cultural and Economic Effects

Residents of four northern communities were surveyed about Atomic Energy of Canada Limited's proposal to site an underground repository for high-level nuclear waste somewhere in the Canadian Shield. Opposition to the repository was relatively strong in all communities, but was strongest among aboriginal respondents. Path analysis revealed that trust in nuclear regulators, faith in science and technology, and anticipated net costs were important mediators of this effect. Aboriginals were less trusting, exhibited less faith in science and technology, and perceived the costs associated with the repository to be higher than their nonaboriginal counterparts. No support was found for the hypothesis that, after controlling for aboriginal status, financially insecure individuals would display greater support for the nuclear waste repository than financially secure individuals. Policy implications for balancing perceived risks and siting needs are discussed.     

Public Attitudes Toward Siting a High-Level Nuclear Waste Repository in Nevada

This paper examines the sources of public opposition to a high-level nuclear waste repository among samples of 1001 residents of Nevada and a national sample of 1201 residents. Two models of choice are contrasted: A benefit-cost model and a risk-perception model of individual choice. The data suggest that the willingness of Nevada residents to accept a repository at Yucca Mountain depends upon subjective risk factors, especially the perceived seriousness of risk to future generations. Perceived risk depends in part on level of trust placed in the Department of Energy to manage a repository safely. Opposition to a local repository did not decrease significantly if compensation in the form of annual rebates, either ($1000, $3000, or $5000 per year for 20 years) were offered to residents. The public needs to be convinced before compensation is considered, that the repository will possess minimal risks to themselves as well as to future generations, and that the site currently targeted is suitable. One way to do this is through adoption of mitigation and control procedures such as strict federal standards and local control over the operation of the repository. The federal government should also consider returning to the fair procedure for selection between candidate sites specified in the initial Nuclear Waste Policy Act of 1982.     

Local Acceptance of a High-Level Nuclear Waste Repository

The siting of nuclear waste facilities has been very difficult in all countries. Recent experience in Sweden indicates, however, that it may be possible, under certain circumstances, to gain local support for the siting of a high-level nuclear waste (HLNW) repository. The article reports on a study of attitudes and risk perceptions of people living in four municipalities in Sweden where HLNW siting was being intensely discussed at the political level, in media, and among the public. Data showed a relatively high level of consensus on acceptability of at least further investigation of the issue; in two cases local councils have since voted in favor of a go-ahead, and in one case only a very small majority defeated the issue. Models of policy attitudes showed that these were related to attitude to nuclear power, attributes of the perceived HLNW risk, and trust. Factors responsible for acceptance are discussed at several levels. One is the attitude to nuclear power, which is becoming more positive, probably because no viable alternatives are in sight. Other factors have to do with the extensive information programs conducted in these municipalities, and with the logical nature of the conclusion that they would be good candidates for hosting the national HLNW repository.     

A Decision Theory Perspective on the Disposal of High-Level Radioactive Waste

In this paper the problem of high-level nuclear waste disposal is viewed as a five-stage, cascaded decision problem. The first four of these decisions having essentially been made, the work of recent years has been focused on the fifth stage, which concerns specifics of the repository design. The probabilistic performance assessment (PPA) work is viewed as the outcome prediction for this stage, and the site characterization work as the information gathering option. This brief examination of the proposed Yucca Mountain repository through a decision analysis framework resulted in three conclusions: (1) A decision theory approach to the process of selecting and characterizing Yucca Mountain would enhance public understanding of the issues and solutions to high-level waste management; (2) engineered systems are an attractive alternative to offset uncertainties in the containment capability of the natural setting and should receive greater emphasis in the design of the repository; and (3) a strategy of waste management should be adopted, as opposed to waste disposal, as it allows for incremental confirmation and confidence building of a permanent solution to the high-level waste problem.     

Probabilistic Risk Analysis for a High-Level Radioactive Waste Repository

A probabilistic risk analysis (PRA) for a high-level radioactive waste repository is very important since it gives an estimate of its health impacts, allowing comparisons to be made with the health impacts of competing technologies. However, it is extremely difficult to develop a credible PRA for a specific repository site because of large uncertainties in future climate, hydrology, geological processes, etc. At best, such a PRA would not be understandable to the public. An alternative proposed here is to develop a PRA for an average U.S. site, taking all properties of the site to be the U.S. average. The results are equivalent to the average results for numerous randomly selected sites. Such a PRA is presented here; it is easy to understand, and it is not susceptible to substantial uncertainty. Applying the results to a specific repository site then requires only a simple, intuitively acceptable "leap of faith" in assuming that with large expenditures of effort and money, experts can select a site that would be at least as secure as a randomly selected site.     

Bounding Estimates for Critical Events When Directly Disposing Highly Enriched Spent Nuclear Fuel in Unsaturated Tuff

This paper examines the possibility of criticality in a nuclear waste repository. The estimated probabilities are rough bounds and do not entirely dismiss the possibility of a critical condition; however, they do point to the difficulty of creating conditions under which a critical mass could be assembled (i.e., corrosion of containers, separation of neutron absorbers from the fissile material, and collapse or precipitation of the fissile material). In addition, should a criticality occur in or near a container, the bounding consequence calculations showed that fissions from one critical event are quite small (<˜10²⁰ fissions, if similar to aqueous and metal accidents and experiments). Furthermore, a reasonable upper bound of total critical events of 10²⁸ fissions corresponds to only 0.1% of the number of fissions represented by the spent nuclear fuel inventory in a repository containing 70,000 metric tons of heavy metal (MTHM) (the expected size for the proposed repository at Yucca Mountain, Nevada).     

Improbability of Igneous Intrusion Promoting a Critical Event in Spent Nuclear Fuel Disposed in Unsaturated Tuff

In their regulations, the U.S. Environmental Protection Agency and the U.S. Nuclear Regulatory Commission permit the omission of features, events, or processes with probabilities of <10(-4) in 10(4) yr (e.g., a constant frequency of <10(-8) per yr) in assessments of the performance of radioactive waste disposal systems. Igneous intrusion (or "volcanism") of a geologic repository at Yucca Mountain for radioactive waste is one disruptive event that has a probability with a range of uncertainty that straddles this regulatory criterion and is considered directly in performance assessment calculations. A self-sustained nuclear chain reaction (or "criticality") is another potentially disruptive event to consider, although it was never found to be important when evaluating the efficacy of radioactive waste disposal since the early 1970s. The thesis of this article is that the consideration of the joint event--volcanism and criticality--occurring in any 10,000-year period following closure can be eliminated from performance calculations at Yucca Mountain. The probability of the joint event must be less than the fairly well-accepted but low probability of volcanism. Furthermore, volcanism does not "remove" or "fail" existing hydrologic or geochemical constraints at Yucca Mountain that tend to prevent concentration of fissile material. Prior to general corrosion failure of waste packages, the mean release of fissile mass caused by a low-probability, igneous intrusive event is so small that the probability of a critical event is remote, even for highly enriched spent nuclear fuel owned by the U.S. Department of Energy. After widespread failure of packages occurs, the probability of the joint event is less than the probability of criticality because of the very small influence of volcanism on the mean fissile mass release. Hence, volcanism plays an insignificant role in inducing criticality over any 10(4)-yr period. We also argue that the Oklo reactors serve as a natural analogue and provide a rough bound on probability of criticality given favorable hydrologic or geochemical conditions on the scale of the repository that is less than 0.10. Because the product of this bound with the probability of volcanism represents the probability of the joint event and the product is less than 10(-4) in 10(4) yr, consideration of the joint event can be eliminated from performance calculations.     

Performance Assessments of Nuclear Waste Repositories: A Dialogue on Their Value and Limitations

Performance Assessment (PA) is the use of mathematical models to simulate the long-term behavior of engineered and geologic barriers in a nuclear waste repository; methods of uncertainty analysis are used to assess effects of parametric and conceptual uncertainties associated with the model system upon the uncertainty in outcomes of the simulation. PA is required by the U.S. Environmental Protection Agency as part of its certification process for geologic repositories for nuclear waste. This paper is a dialogue to explore the value and limitations of PA. Two skeptics acknowledge the utility of PA in organizing the scientific investigations that are necessary for confident siting and licensing of a repository; however, they maintain that the PA process, at least as it is currently implemented, is an essentially unscientific process with shortcomings that may provide results of limited use in evaluating actual effects on public health and safety. Conceptual uncertainties in a PA analysis can be so great that results can be confidently applied only over short time ranges, the antithesis of the purpose behind long-term, geologic disposal. Two proponents of PA agree that performance assessment is unscientific, but only in the sense that PA is an engineering analysis that uses existing scientific knowledge to support public policy decisions, rather than an investigation intended to increase fundamental knowledge of nature; PA has different goals and constraints than a typical scientific study. The proponents describe an ideal, six-step process for conducting generalized PA, here called probabilistic systems analysis (PSA); they note that virtually all scientific content of a PA is introduced during the model-building steps of a PSA; they contend that a PA based on simple but scientifically acceptable mathematical models can provide useful and objective input to regulatory decision makers. The value of the results of any PA must lie between these two views and will depend on the level of knowledge of the site, the degree to which models capture actual physical and chemical processes, the time over which extrapolations are made, and the proper evaluation of health risks attending implementation of the repository. The challenge is in evaluating whether the quality of the PA matches the needs of decision makers charged with protecting the health and safety of the public.     

Perceived Risk, Stigma, and Potential Economic Impacts of a High-Level Nuclear Waste Repository in Nevada

This study investigates the potential impacts of the proposed nuclear waste repository at Yucca Mountain, Nevada, upon tourism, retirement and job-related migration, and business development in Las Vegas and the state. Adverse impacts may be expected to result from perceptions of risk, stigmatization, and socially amplified reactions to "unfortunate events" associated with the repository (major and minor accidents, discoveries of radiation releases, evidence of mismanagement, attempts to sabotage or disrupt the facility, etc.). The conceptual underpinnings of risk perception, stigmatization, and social amplification are discussed and empirical data are presented to demonstrate how nuclear images associated with Las Vegas and the State of Nevada might trigger adverse economic effects. The possibility that intense negative imagery associated with the repository may cause significant harm to Nevada's economy can no longer be ignored by serious attempts to assess the risks and impacts of this unique facility. The behavioral processes described here appear relevant as well to the social impact assessment of any proposed facility that produces, uses, transports, or disposes of hazardous materials.     

The Nevada Initiative: A Risk Communication Fiasco

The U.S. Congress has designated Yucca Mountain, Nevada as the only potential site to be studied for the nation's first high-level nuclear waste repository. People in Nevada strongly oppose the program, managed by the U.S. Department of Energy. Survey research shows that the public believes there are great risks from a repository program, in contrast to a majority of scientists who feel the risks are acceptably small. Delays in the repository program resulting in part from public opposition in Nevada have concerned the nuclear power industry, which collects the fees for the federal repository program and believes it needs the repository as a final disposal facility for its high-level nuclear wastes. To assist the repository program, the American Nuclear Energy Council (ANEC), an industry group, sponsored a massive advertising campaign in Nevada. The campaign attempted to assure people that the risks of a repository were small and that the repository studies should proceed. The campaign failed because its managers misunderstood the issues underlying the controversy, attempted a covert manipulation of public opinion that was revealed, and most importantly, lacked the public trust that was necessary to communicate credibly about the risks of a nuclear waste facility.     

Resolution of the Long-Term Performance Issues at the Waste Isolation Pilot Plant

The Waste Isolation Pilot Plant (WIPP) is a geological repository for disposal of U.S. defense transuranic radioactive waste. Built and operated by the U.S. Department of Energy (DOE), it is located in the Permian age salt beds in southeastern New Mexico at a depth of 655 m. Performance assessment for the repository's compliance with the 10,000-year containment standards was completed in 1996 and the U.S. Environmental Protection Agency (EPA) certified in 1998 that the repository meets compliance with the EPA standards 40 CFR 191 and 40 CFR 194. The Environmental Evaluation Group (EEG) review of the DOE's application for certification identified a number of issues. These related to the scenarios, conceptual models, and values of the input parameters used in the calculations. It is expected that these issues will be addressed and resolved during the first 5-year recertification process that began with the first receipt of waste at WIPP on March 26, 1999, and scheduled to be completed in March 2004.     

Scenario Analysis for the Safety Assessment of Nuclear Waste Repositories: A Critical Review

A major challenge in scenario analysis for the safety assessment of nuclear waste repositories pertains to the comprehensiveness of the set of scenarios selected for assessing the safety of the repository. Motivated by this challenge, we discuss the aspects of scenario analysis relevant to comprehensiveness. Specifically, we note that (1) it is necessary to make it clear why scenarios usually focus on a restricted set of features, events, and processes; (2) there is not yet consensus on the interpretation of comprehensiveness for guiding the generation of scenarios; and (3) there is a need for sound approaches to the treatment of epistemic uncertainties.     

A Review of the High-Level Nuclear Waste Repository Siting Analysis

We critique two 1986 Department of Energy reports concerning the selection of sites for characterization as the nation's first high-level nuclear waste repository. We find that the multiattribute utility analysis of the five nominated sites was well done, although we express concern about the assessed probabilities, question the construction of two important attribute scales, and disagree with some of the value tradeoffs that were used. In contrast, we find the logic of the recommendations report to be weak and unconvincing.     

Trust as a Determinant of Opposition to a High-Level Radioactive Waste Repository: Analysis of a Structural Model

Residents in the State of Nevada hold strong opinions about the federal government's proposal to site the nation's first high-level radioactive waste repository at Yucca Mountain. The model developed in this study is designed to examine the relationship between public perceptions of risk, trust in risk management, and potential economic impacts of the current repository program using a confirmatory multivariate method known as covariance structure analysis. The data used to test the model was collected in a 1989 statewide survey of Nevada residents. The results indicate that, for a statewide sample, perceptions of potential economic benefits do not have a significant role in predicting support or opposition to the repository program. On the other hand, risk perceptions and the level of trust in repository management are closely related to each other and to positions on Yucca Mountain. Trust directly influences risk perceptions which, in turn, have a direct effect on the attitude toward the repository, and an indirect effect through perceived stigma effects.