This document provides the framework for development of a business plan for establishing and operating the transportation system necessary to support a repository. Section I contains introductory material and defines the plan in terms of policy basis, purpose, and scope of business activities. Section II discusses the evolving strategy that will direct the Department's business actions and describes various strategy options that are under consideration. Also discussed in Section II is a process for the systematic development and acquisition of the transportation system. This process is based on a phased development approach with business activities divided into four stages: system definition; engineering development and certification; cask fleet procurement and carrier negotiations; and transportation operations. 8 figures, 2 tables.