Current Storage Policy
When a nuclear powered submarine leaves naval service, its fuel is removed for storage at Nuclear Decommissioning Authority (NDA) Sellafield and the remaining radioactive material, which is contained securely in the Reactor Compartment, remains in the submarine. The submarines are currently then stored afloat.
The Defuel, De-equip and Lay-up Preparation (DDLP) process is conducted as soon as practicable after the vessel leaves service. During the DDLP all the submarine systems are depressurised and drained, including the reactor systems, and the hull openings are secured to prevent water ingress. Preservation and corrosion protection is undertaken to ensure the watertight integrity of the vessel. Daily inspections and regular maintenance periods are also carried out to ensure the vessel is maintained to a high standard of preservation and safety.
Background
There are currently 11 defuelled nuclear-powered submarines that have left naval service stored safely afloat at Rosyth (seven) and Devonport (four), and a further three awaiting defuel at Devonport. While this has proved to be a very safe arrangement for over 20 years it does not fulfil Government and MOD policy, which requires that nuclear decommissioning and disposal operations should be carried out as soon as reasonably practicable. In addition, current afloat storage capacity will run out before 2020.
ISOLUS Investigation
In 1998 Ministers approved an internal MOD study (known as the ISOLUS Investigation) to consider the options for interim storage of radioactive material from decommissioned nuclear powered submarines until a final national waste management facility becomes available. The study concluded that the bulk of the material in the submarines can be recycled, with the remaining Reactor Compartment – either complete or reduced to packaged waste – stored safely on land.
Proposal for Dismantling Renown
In May 2000 it was announced that Babcock Rosyth Defence Limited (BRDL) (now Babcock Marine), owners of Rosyth Dockyard, had made an unsolicited commercial proposal to dismantle the Reactor Compartment of the submarine Renown. Seen as a useful test of the feasibility of one of the possible land storage methods, BRDL were asked to proceed with planning and feasibility work. Ministers made clear that a decision on implementation of the proposal would depend on BRDL gaining necessary safety approvals from the independent regulators (the Nuclear Installations Inspectorate and the Scottish Environment Protection Agency).
A MOD produced Environmental Impact Assessment found the effects to the environment of the proposed work would be low, and although there was no reason to doubt that the necessary safety approvals would be given, Ministers decided not to proceed with their proposal. This was because the process of inviting industry to submit proposals under Project ISOLUS had already started, and any knowledge to be gained from dismantling Renown would not be available in time to inform industry’s proposals.
Project ISOLUS
Project ISOLUS was established by MOD in 2000 to define, develop and procure a timely solution for the dismantling of the UK's defuelled nuclear powered submarines which inspires public confidence, is safe, environmentally responsible, secure and cost-effective. The project, which extends over a 60 year period, encompasses the provision of facilities to dismantle 27 defuelled nuclear submarines (past and current classes), reducing them to achieve radioactive and non-radioactive waste streams, and recyclable materials; interim storage on land of the resultant intermediate level waste (ILW) until at least 2040; and the eventual decommissioning of the dismantling and storage facilities themselves.
Consultation
The project activities are underpinned by previous Ministerial commitments to public consultation before major decisions are made. Two major public consultations on the project have been held to date. More information on the consultation process is available on the Lancaster University run independent website in the related links section of this page. The site includes unclassified versions of the outline proposals submitted by industry in 2003.
Front-End Consultation (2001)
In November 2000 Lancaster University was engaged to carry out the first of three planned independent consultations. They set up a Project Consultation Steering Group, with independent members to review the consultation process and its findings, and to make recommendations regarding subsequent stages in the consultation process. This group included representatives from academia, interested external parties, the UK’s independent regulators and industry.
A series of Focus Groups were held at various locations around the UK, and Stakeholders’ Workshops and a Citizens’ Panel were created. The results of these indicate public support for storing the radioactive material from out of service submarines on land, and acceptance that consultation is a positive step.
Some 65 recommendations were put forward from this first period of consultation (available under the related documents section of this page); MOD has accepted 57 of these and is considering another five as the project progresses.
Consultation on ISOLUS Outline Proposals (CIOP) (2003)
The second of the three planned public consultations was undertaken in late 2003 by Lancaster University, to consider the issues about finding the best interim storage solution and to gauge the public’s reaction to the proposals received from industry. The University published a report of the consultation’s findings in May 2004, in the form of 50 recommendations (available under the related documents section of this page). In addition, the Committee on Radioactive Waste Management (CoRWM) was set up by Government in November 2003 as an independent body to recommend a strategy for the long term management of UK higher activity solid radioactive waste. In response to the CIOP and in order to ensure a cohesive cross-Government approach to radioactive waste management, the ISOLUS programme was aligned with CoRWM’s deliberations and work on potential ILW storage sites was suspended. In the meantime, technical and other studies were to be undertaken to inform future decision making.
MOD Review of Coastal Sites
This exercise, which was separate to the public consultation that was carried out on industry’s outline proposals, was undertaken to assess the suitability of MOD owned coastal sites for storage of intact Reactor Compartments. It was carried out following a commitment made to industry at a briefing day in February 2003 and a subsequent request for MOD site options from one of the four industry bidders, SERCO Assurance (in partnership with Parsons Brinckerhoff Ltd and RWE Nukem Ltd). A total of 118 MOD owned coastal sites were considered. Coastal sites were considered on the basis that moving intact Reactor Compartments inland was ruled out due to their size (750 tonnes and the size of two double-decker buses). The results of the review have been published on the ISOLUS website. It lists all 118 sites that were considered and also provides details of the assessment criteria used in the down selection process.
CoRWM’s Report
CoRWM’s report was issued on 31 July 2006 and the Government and Devolved Administrations responded on 25 October 2006. CoRWM’s recommendation that a programme of robust, safe and secure long term interim storage of ILW is required until the geological disposal facility is established aligns with the ISOLUS requirement, enabling the project team to develop the siting strategy for processing submarine waste and the interim storage of the resultant ILW (noting that these are separate activities which do not necessarily take place at the same site).
Current work
Since then, work has concentrated on the following areas:
- Two key stakeholder groups have been created to progress the project and to provide vehicles for ongoing stakeholder engagement:
- The MOD ISOLUS Steering Group, comprising representatives from Other Government Departments and the Devolved Administrations, Local Government, Nuclear Regulators, the Naval Bases, and consultants on nuclear matters
- The ISOLUS Advisory Group, made up of representatives from the MOD, nuclear industry, the Regulators, academics, independent specialists, a member of the public, and Non Governmental Organisations with an interest in the disposal of submarines.
- A programme of environmental and technical studies is in progress.
- A technical options study to review options for the interim storage of ILW arising from submarine dismantling is being conducted to inform future decision making.
- An assessment is to be conducted of types of sites which would be suitable for dismantling submarines and processing wastes.
- A Memorandum of Understanding has been signed between MOD and the Nuclear Decommissioning Authority to provide a framework for dialogue on issues associated with interim storage of ILW.
- The project procurement strategy is being developed.
In conducting this work, we will draw heavily on the recommendations from the previous public consultations. Further consultation will be carried out as appropriate, in accordance with the MOD’s commitment to openness and transparency on Project ISOLUS.