ML20054D290

Supports Recommendation That Commission Approve Requirements Listed in Encl 1 of SECY-80-230 as Necessary Additions to pre-TMI Regulatory Requirements for Granting Full Power OLs

ML20054D290
Person / Time
Issue date:	05/15/1980
From:	Hanrahan E NRC
To:	Ahearne J, Gilinsky V, Kennedy R NRC COMMISSION (OCM)
Shared Package
ML19239A281	List: ML19239A278 ML19240C534 ML19248B826 ML19254G779 ML19254H032 ML19263F736 ML19268C845 ML19273D285 ML19275D944 ML19275D946 ML19275E268 ML19275E441 ML19275F826 ML20049A230 ML20049A258 ML20054D149 ML20054D230 ML20054D238 ML20054D284 ML20054D290
References
FOIA-81-405 NUDOCS 8204220538
Download: ML20054D290 (7)

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MEMORANDUM FOR:

Chairman Ahearne Commissioner Gilinsky Commissioner Kennedy Commissioner Hendrie CommisioVe Bradford FROM:

dwar J. Hanrahan

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' SUBJECT <

TMI-2 ACTION PLAN (SECY-80 230)

The latest draft of the THI-2 Action Plan takes into account the Commission's comments on earlier drafts as well as comments received from the ACRS. The staff has also incorporated revisions based on input 'from the nuclear industry on,the technical substance, resources and priorities of the Plan.

After review of the staff's pr~oposed disposition of the Action Plan, I support the staff's recommendation that the Commission approve the requirements listed in Enclosure 1 of SECY-80-230 as being'necessary and sufficient THI-related additions to the pre-TMI regul'atory requirements for' granting full-power operating licenses.

I recommend you approve the staff's proposed implementation schedule (Enclosure 2 of SECY-80-230) for Action Plan tasks, subject to the adjustments which may be necessitated by the practicalities of reprogramming and budget constraints. Further, I recommend that the.

Commission approve the proposed reprogramming and reorientation of resources for FY '80 (Enclosure 3 of SECY-80-230) as proposed by the staff -- but r

give only preliminary approval for the FY '81 reprogramming subject to Congressional actions in the weeks ahead on NRC's FY '81 budget requests.

Repro'gramming and icorientation of FY '81 resources should be decided as part of the FY '82 budget preparation and approval, with the benefit of.

Congressional action on the FY '80 supplemental request and the FY '81 budget.

A brief review and commentary on the ' staff paper is' pre'sented below.

Following the Friday meeting, OPE can prepare for your consideration a set of proposed Commission instructions to the staff.

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1.

Full-power operating license requirements.

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w4m 8 Since the TMI accident, substantial effort has been devoted to analyses gy of the accident's implications with respect to the need to impose additional 855 nio >.

Contacts:

l y'd Al Kenneke, OPE ggg 63-43295 -

Ts Dennis Rathbun, OPE. N coa.ui 63-43276

3 Comission requirements on other reactors.

The staff's analyses take into account the results of the NRC Task Forces on Lessons Learned, Bulletin and Orders, Siting Policy, 'and Emergency. Planning, as well as additional requirements from the Office of Nuclear Reactor Regulation and the Office of Inspection and Enforcement.

In addition, it responds to the recommendations of the President's Commission (and to the President's actions thereon), and to the recommendations of the NRC Special Inquiry Group.

At this stage, I believe that the Commission may be reasonably confident that those licensing requirements the staff has specified in Enclosure 1 of SECY-80-230 constitutes both a necessary and sufficient list.

Although the ACRS pointed out in its letter of March 11 to the Chairman that the term "necessary and sufficient" is subjective in this context, and that

" reasonable" might be a more appropriate characterization, I believe you should adopt the plan as " sufficient" for future purposes.

In this.

regard, the search for additional requirements to improve safety has

.been both diligent and earnest, and the likelihood of major new " discoveries" --

in this area seems small.

The larger concern that should be kept in

, mind is that the NRC may re-examine the desirability of some of the

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post-TMI-2 requirements.

As Commissioner Hendrie pointed out, two aspects of this are germane:

(a) individual requirements may need to be r'econsidered (e.g., reactor coolant pump trip, along with other issues which have be~en pointed out by the ACRS or the industry); (b) the aggregate impact of all requirements and the rate of their implementation may need reconsideration to assure that the result really will be improved safety. For example, the staff removed four actions from the January 5 version of the NT0L requirembnts list because they might in the aggregate result in a l'ess safe, rather than more safe operation (See Action Plan Append.ix A, page A-3).

However, the rev.iew teams that visited each site had concluded that no single near-term operating license requirement would, of itself, pro, duce a n'egative safety impact if implemented. Along that line, the AIF working group identified several items which in whole or in part, were considered by them to be, in some circumstances, potentially contrary to safety.

Staff responses to AIF on ten specific items that we tracked appeared reasonable, with most actions subject to further study ahd/or public comment.

I believe that the Commission should approve the staff's proposed list of licensing iequirements.

In particular, subject to specif,ic comments, the Commission should, as the staff recommends:

s Confirm the list of licensee actions previously approved (Decision Group A items).

Approve (as modified by the staff at the last meeting)'the 29 additional licensee actions not already approved (Decision Group B):

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17 items to be initiated in FY '80 and FY '81 (the latter subject to later reprogramming); and 12 items to be deferred to FY '82 or l'ater (I think you can defer your decision to implement, not merely the initiation of the action).

Approve undertaking the 31 studies (Decision Group C) in FY '80 and FY '81 (the latter subject to further reprograming), and defer to FY '82 or later your decision on 7 more studies.

Affirm the categorization of the Decision Group D items (i.e., those covered in the normal budget process) for initiation on the schedule '

. indicated in the table of Enclosure 2 to SECY-80-230.

In this regard, the Commission may want to provide explicit guidance for applicants, staff, and Licensing Boards on precisely how they are to.

deal with TMI issues and the Action Plan in individual licensing proceedings.

The General Counsel and OPE can draft for your cdnsideration an appropriate

, policy statement reflecting your decis' ions on the Action Plan.

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2.

Reprogramming.

The staff has identified in Enclosure 3 of-SECY-80-230 reprogramming and reorientation of resources for the' remainder of FY '80 Ad FY '81.

While not specifically addressed in the staff paper, some of the initiatives have resource implications which will carry over into FY '82 and perhaps beyond.

Several additional points should be made with regard to the staff's proposed reprogramming:

Reprogramming and reorientation affects only. the reactor-related portion of the NRC budget.

Although the staff has considered other e.

non-reactor program priorities, resourc'e impacts do not occur in the J

Office of Nuclear Materials Safety and Safeguards.

A substantial constraint on potential for reassignment of staff from non-reactor work was the degree of specialization of individudls (i.e., the' potential for reassignments from an area where there may be surplus -

of professional skills within the agency to areas wh'ere there are shortages, such as in electrical instrumentation.)

In the consideration of FY '81 reprogramming and FY '82 budget preparation, inter-office reallocation of resources should be considered.

Many of the candidate "give-ups" are, in fact, program s'tretch-outs.

and deferrals rather than dutright termination of ongoing activitiet.

The stretch-out of work on unresolved safety issues within the Office of Nuclear Reactor Regulation is an example.

Rather than continue to defer items, it may be better to decide that they w,ill never be done.

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The shift of funds within the Office of Nuclear Regulatory R'esearch which has already been accomplished is re-direction, not reprogramming, of ongoing programs, i.e., it is internal to the research decision -

units and is not larger than thresholds for agency reprogramming requiring Congressional approval.

Staff analysis indicates that there is no funds shortfall expected for FY '80; but a shortfall of 59.4 million is foreseen for FY '81.

All but $1 million of the FY '81 shortfall is expected to be in the funding for the Office of Nuclear Reactor Regulation, and the bulk

($7M) of that furiding requirement is for the Lab Loaner program which is needed to provide continuity of resources from FY '80 to FY,'81 to perform certain parts of OL and CP application reviews.

IE will be stretching its resources rather thin under the repro-gramming, as is evident from their intent to rely heavily on the use of overtime and on improvements in inspector efficiency.

Moreover; meeting this schedule of agency commitments, such as in the area of.

resident inspection, may be a prob,lem given such realities as the current hiring freeze, relocation difficulties, training constraints,. ~

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and related budget uncertainties.

For example, it will be difficult to meet the goal of having a senior resident inspector at all ope. rating

, reactor sites (not just NTOL sites) by June 1980.

We ' understand that IE may have to accomplish this by resorting 'to as many as 18

" equivalent" senior resident inspectors.

3.

_ Specific reprogramming candidates in light of overall Commission policy.

In addition, the OPE staff has reviewed the proposed reprogramming against' the Commission-approved PPPG.

With the exceptions noted below, the staff's proposals appear to be consistent with the PPPG.

e ;- Nuclear Reactor Regulation NRR reprogramming is nominally consistent with thq PPPG in giving first priority to operating reactors-and, thus, in making almost all proposed resource adjustments for FY '80 and FY '81 from the technic'al projects and casework decision units.

However, the " operating reactors" category is not entirely made up of work of high safety significance

-- it includes safety-related matters of secondary importance, as,

well as environmental and administrative matters.

Some of these might be' considered for deferral instead of all NRR work on over 100 generic issues in FY '80 and expenditure of only half of the ' riginally o

planned effort in FY '81.

Deferring such safety-related work would-l' appear to be inconsistent with the PPPG, which calls for resolving, generic safety issues and implementing any changes (Section II.B.,

item 2.a(1)).

On the other hand, as I noted above, perhaps some items on the generic issue list should simply be dropped and not merely deferred.

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Inspection and Enforcement c

Although the PPPG calls (Section II.B., item 2.1) for strong enforcement measures with an aggressive enforcement strategy, for more rapid processing of enforcement cases, and for possible delegation of certain enforcement activities to the regions, nevertheless enforcement training sessions for the regions will be curtailed.

At a saving of only 0.5 PSY, regional inspections may be marginally less effective.

Although the PPPG (Section II.B., item 2.b) emphasizes greater NRC presence at plants, pre-planned surveillance and direct observa-tion by resident inspectors and inspections by region-based reactor inspectors would be reduced at operating reactors with records of no non-compliances.

I would observe, first. of all, that lack of a "non-compliance record" has little or no proven relation to the relative risks of nuclear facilities.

Furtherrrore, if as a result.

of the Action Plan IE shifts inspection resources to increase the..

emphasis on TMI-related concerns, then one would expect an increased

-- not reduced -- level of confideilce in overall safety, as opposed to literal compliance with rules.

(Recall the Kemeny and Rogovin admonitions on this).

" Civen the PPPG call for extending accountability of important safety functions to individual offices and employees of licensees in addition to the corporate entity (Section II.B., item 2.a(1)) and increased emphasis on licensee QA/QC programs at construction sites (Section II.B., item 2.a(2)), it seems inconsistent to reduce the performance appraisal team program which focuses on management performance.

Standards Development

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Deferral of work on two regulatory guides tends to go counter to O

emphases called for by PPPG provisions:

Qualification tests for electrica-1 cables.

The' PPPG guidance calls for increased emphasis on licensee QA/QC for reactors under-l construction (Section II.B., item.2.a.(2) of, the PPPG).

Reporting operating information.

The PPPG calls for improvement in.the collection of operational data (Sect. ion II.B., item 2.g).

On the other hand,'as the staff points out, the interim

• availability of existing regulatory guides that cover these areas should make l

these delays acceptable.

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Proposed re-orientation within the overall research program appears to be consistent with PPPG (Section II.A., item 3.f. and Section II.B'., item 2.j.) For instance, the PPPG calls for emphasis en

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research efforts that support the safety of operating reactors and specifically mentions analysis of small break LOCA's.

The large research projects -- 3D, LOFT, PBF -- and code development effort have all been redirected toward TMI-related work, particularly analysis of small-break LOCA's, operating transients, and degraded Moreover, in keeping with the PPPG directive to use,.

cores.

wherever possible, risk assessment techniques in estimating the relative importance'of potential accident sequences, RES has

. reor.iented substantial resources from methodology development to.-

more direct application of risk assessment techniques in the Integrated Reliability Evaluation Program for both FY '80 and FV

'81.

The TMI reprograming requirements were largely anticipated in Summer and Fall of.1979 and reflected in re-direction of the FY '80 program, the FY '80 Supplemental, pnd FY '81 budget requests.

4.

Internal NRC structural reforms.

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-. The TMI Action Plan Chapter V, NRC Policy, Organization, and Management, is in a unique category:- it' deals not with plans for staff or licensee action, but rather with intentions *of the Commission itself.

Seventeen separate items are identified as subjects for plans.

However, in keeping with your instructions, no specific plans are detailed, and in fact the items themselves are often not current.

On a number of items some actions have already b'een taken, set in motion, or recommended by the Commission (e.g., item f6, construction during adjudication; #12, delegations of authority; #15 and 16, consolidation of HRC locations).

Decisions concerning some are reflected in the President's reorgahization plan for NRC (e.g.,-

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1. 2, elimination of non-safety responsibilities; il3 ' roles of Chairman, Comission, ED0; #14, authority to deleg, ate emergency.

h response).

Some items have interrelationships that call for correlated planning -(e.g., #6, 9, and 17, involving construction t

during adjudication, reform of the licensing process, and Comission role in adjudication, along with f5, dealing with possible creation of an 0ffice of.Public Counsel).

Although Chapter V.is being published in its present form, the special status of Chapter V is recognized in a note being added before publication to the chapter's introduction.

The note reads: "

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The items in this chapter will be decided by the Commission.

The Commission staff will review the status of each and prepare the necessary decision papers for future action by the Comission..

I believe that an appropriate disposition of Chapter V would be for.

Y the Commission to proceed as follows:-

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Direct OGC/0PE, with staff assistance, to update the subject identifications, status, and remaining needs and opportunities

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for future Commission action, after -- and in the light of -- a final deci in the Reorganization Plan.

Thd update should. -

include r

_adations for near-term Commission actions.

Direct conduct of specific projects in the subject-matter areas a,d hoc as needed.

'It would be understood that' the Commission was committed to using-its best efforts.to take 'a hard look at the areas and items encompassed in Chapter'V, as staff resources became avaiTable and consistent with the prioritiss of other busin*ess.

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Leonard Bickwit Sam Chilk William Dircks

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Robert Budnitz Robert Minogue Howard Shapar Roger Mattson emm e

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June 10,1980

!!onorable Jchn F. Ahearne Chairman U.S. Nuclear Regulatory, Commission Washington, DC 20555 ADDITIONAL INFORMATION C0flCERNING NT0L ITEMS FROM DRAFT 3 0 a'

SUBJECT:

THE NRC ACTION PLAN

Dear Dr.,

Ahearne:

In your letter of April 1,1980 to the Advisory Committee on Reactor Safeguards, its

.you requested additional information on some of the Committee's com letter to you of March 11, 1980 items'from Draft 3 of the NRC Action Plan.

The following is in response to your inquiry:

Question Which t,f the items from the list in Part 1, Requiremegt (11), Item "1.

II.K.1 does the Committee consider to be useful, which to be of marginal merit, and which to be wrong?" and Which of the items from Part 2, Requirement (4), Item I.C.1 does "3.

the Committee consider to be useful, which to be of marginal merit, and which to be wrong?"

The Comaittee did not wish to imply that the referenced conclusions were wrong, but only that they "... may, upon deeper analysis, turn out to have been wrong."

The Committee believes that only after the recommended deliberate study will it be possible to appraise the merit of these proposals.

Question _

In commenting on Part 1, Requirement (13), Item III.D.3.4 the Com-

"2.

mittee noted, 'The TMI incident indicates that existing requirements to protect the occupants of the control. room against radiation may not be adequate, pa'rticularly with respect to leakage control and.

Does the Committee have any specific arrangement of air intakes.'

suggestions as to how these requirements should be upgraded?"

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ionor*able John F. Ahearne June 10,1980 Item III.D.3.4 deals with, " Control Room Habitability" and Table A.1 gives the following charge to NT0L applicants:

" Confirm compliance with existing Regulatory Guides and Standard Review Plan or establish schedule for neces-sary modifications to achieve compliance." The general sense of the Com-mittee's comment was to encourage a look beyond existing criteria to pro-tect the occupants of the control room against radiation' Consideration of the effects of greater than currently assumed containment leakage and/or a larger source term due to a degraded core was envisaged.

In the area of control room ventilation, the Committee would encourage the placing of air intakes in such a way that they could be used selectively during an accident to take advantage of prevailing wind direction and radiation source locations.

Recall that during the TMI-2 accident, control room operators actually used respirators for a time.

The Committee takes note of Item 7 in William Dircks' April 1,1980 memorandum to you in response to the ACRS NTOL letter in which concerns -like those mentioned above are scheduled-for ~ review in the longer term.

Sincerely, Milton S. Plesset Chai rman

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MEMORANDUM FOR: Roger J. Mattson, Director TMI-2 Action Plan Steering Group JamesL.'MTlhoan,MemberTechnicalSupportStaff FROM:

to the THI-2 Action Plan Steering Group

SUBJECT:

REVIEW 0F THI-2 ACTION PLAN (DRAFT NUREG 0660) FOR INCOR00 RATION OF RECOMMENDATIONS OF NUREG 0578, f

NUREG 0585 AND SECY 79-330E:

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I have reviewed the TMI-2 Action Plan to determine whether the recommendations of NUREG 0578, NUREG 0585, and SECY 79-330E had been incorporated. Attached

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are Tables 1, 2, and 3 indicating sections of NUREG 0660 which I believe are responsive to the recomendations of these documents.

In my review of NUREG 0660 I found the_ references to NUREG 0578, NUREG 0585 and SECY 79-330E at the end of each section were not correctJn all instances. Task Managers will be requested to verify the correctness of' aTl' references-in.their particular sections during the next redraft.' '

.s In my effort I noted the following discrepancies:

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Recommendation.2.1.3a, " Direct Indication of Power-0perated Relief Valve',

1.

and Safety Valve Position for PWRs and BWRs" of NUREG 0578 not reflected in NUREG 0660.

2.

Recommendation 13, "NRR Emergency RCsponse Team" of NUREG 0585 does not appear to be fully incorporated in h0 REG 0660.

Recommendation 1.4 (3), "NRC one week courses for licensed operators" of 3.

NUREG 0585 is not reflected in NUREG 0660.

Recommendation 5 " Verification of Correct Performance of Operating 4.

Activities" of NUREG 0585, while addressed.in two separate sections of t'UREG 0660, is not tied together.

(Human verification and automatic status monitoring should be addressed as one subject.)-

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1.f' James L. Hilhoan, Member Technical d

Plan Steering Group,;,. ; ~

~j['3 Support Staff to the TMI-2 Action g.

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cc: Steering Group Members.

0 DISTRIBUTION: Cer.tra File SS R/F/JMilhoan/ NRR R/F

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NUREG 0578 Cross Reference in Draft Recommendation (Section)

NUREG 0660 dated 12/10/79 (Section # and Item within section if applicable) 2.1.1 I I.G-1 II.D - 1 and 2-2.1.2 2.1.3a

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2.1.3b I.C-1, 5, and 6; II.F-2, III.A.3 2.1.4 II.E.4-3 2.1.5a II. E.4-1 2.1.5b (combined with Recommendation 10 of-NUREG 0585) 2.1.Sc 2.1.6a III.D.2 and III.E.1 2.1.6b II.B-2, III.A.2-4 (1),.III.D.2 2.1.7a I I.E.1 -1 2.7.7b II.E.1-1 '

2.1.8a II.B-3, III. A.2-4 (3), III. A.3, III.D.2-5 2.1.8b II.F-1, III.A.3, III.E.2 2.1.8c III.A.2-4 (2), III.A.3 2.1.9 I.C-1 2.2.la I. A.1-2, I. A.2-1 (2 ), I.C-3 (step 1) 2.2.lb I.A.1-1, I.B.1, I.B.3, I.E-1 2.2.lc I.C-2 (step 1) 2.2.2a I.C-4 (step 1), III.A.3, III.A.4 2.2.2b III.A.2-1, III.A.3, III.A.4 2.2.2c III.A.2-2, III.A.3, III.A.4 2.2.3 I.B.3 t

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CROSS REFERENCE TABLE-2 NUREG 0585 Cross Reference in Draft Recommendation (section)

NUREG 0660 dated 12/10/79 1.1 I.A.2-1 1.2 I.A.2-2 1.3 I.A.2-5 1.4 (1)

I.A.2-4 1.4 (2)

I.A.3-3 1.4 (3)

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1.4 (4)

I.A.3 1.4 (5)

I.A.2-6 (4) 1.4 (6)

I.A.2-3 1.4 (7)

I.A.3-3 1.5 IV.B.1-1 1.6 I.A.2-1 (1), I.A.2-6 (6) 1.7 I.B.1, III.A.2-7 1.8 I.A.3-5 and 6 2

1.A.1-3 3

I.A.1-3 4

I.C - Step 3 and 4 5

I.C - Step 4 and I.D-4 6.1 I.B.2, I.E-7 6.2 I.E-2 7.1 I. 0-1 7.2 I.D-3 7.3 I.0-10 7.4 I. A.4-3 7.5 I.D-5 8

II.C.1 -1, 2, 3, 9 9

II.C.1-4, 5, 6 and II.C.2 10 II.B-8 11

. IV.D.1 r s.

l 12 IV.D.3 13 III.A.1 (not fully incorporated)

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CROSS REFEREfJCE TABLE-3 SECY 330E Cross Reference in Draft.

Recommendation flVREG 0660 dated 12/10/79 1

I.A.2-1 (1) 2 I. A.2-1 (1) 3 I.A.2-1 (2) 4 I.A.2-6 (3) 5 I.A.2-3 6

I.A.2-3 7

I.A.3-3 8

I.A.3-3 9

I.A.3-3 10 I. A.3-1 11 I. A.3-3 12 I.A.3-1 13 I. A.3-1 14 I.A.3-3 15 I.A.4 16 I.A.3 9

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MEMORANDUM FOR: Roger J. Mattson, Director TMI-2 Action Plan Steering Group FROM:

James L. Milhoan, Member, Technical Support Staff TMI-2 Action Plan Steering Group

SUBJECT:

AIF PROPOSED SCHEDULES FOR ACTION PLAN LINE ITEMS APPLICABLE TO LICENSEES Attached are schedules developed by R. Gilbert and T. Heitman, Members of the AIF Working Group on Action Plan Priorities and Resources, for each lige item from Draft 2 of NUREG-0660 that was a licensee action f

and haddeen made a requirement by th'e NRC (Items that went Part 2 of-the February 6,1980 NT0L list approved by the Comission). Schedule'

, durations were estimated as applicable, for the engineering, procure-ment, installation, procedure development, staffing, and training activities associated with each line item.

R. Gilbert and T. Heitman indicated the following assumptions and conditions were used in develop-ing the schedules:

1.

Schedules are based on the scope description contained'i'n the-February 22, 1980 AIF Report on Draft 2 of the Action Plan.

2.

It was assumed all requirements were issued March 1980 unless NRC study was required for criteria development. Where an NRC study was required for criteria development, the schedule shows an estimate of the length of NRC study and its completion date.

3 '. f It was assumed that each line item would be started and completed as if it was the only activity under consideration. That is, schedules were developed assuming virtually unlimited resources and the absence of competition for those resources among line items.

4.

Refueling outages are assumed to be two months in length. 'Where a 3 month or greater outage was required for installation this would require additional outage delay or work be performed during two re-fueling outages.

The attached schedules silould be useful to the Steering Group and Task Managers in refinement of Draft 3a of the Action Plan, k.

' James L. Milhoan j 006 o To 6 d IMember, Technical Support Staff r

0 TMI-2 Action Plan Steering Group

Enclosures:

Att:W d AIF Schedules cc: Steering Group Members Technical Support Staff e

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