ML20062H961

Forwards Draft Philosophy Statement & Alternate Proposals for TMI Site Ofc,In Response to 800228 Request.Info Re Radiation Protection Plan Encl

ML20062H961
Person / Time
Site:	Crane
Issue date:	02/29/1980
From:	Crews J NRC OFFICE OF INSPECTION & ENFORCEMENT (IE REGION V)
To:	Harold Denton, Stello V NRC OFFICE OF INSPECTION & ENFORCEMENT (IE), Office of Nuclear Reactor Regulation
Shared Package
ML20062H959	List: ML20062H956 ML20062H961
References
NUDOCS 8009100151
Download: ML20062H961 (24)

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NUCLEAR REGULATORY cot.* /:SSION

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P.ZM]F.A!i]U.M FOR:

Victor Stallo, Jr., Director, Office of Inspection and Enforcement Harold R. Centon, Director, Office of fluclear Reactor Regulation FROM:

Jesse L. Crews, Chief, Reac:or Operations and Huclear Support Branch, Region V S'JEJE CT:

REGULATORY PHILOS 0PiiY hiD OFS.N12ATION - TMI-2 Attached are a draf t philosophy statemen: anc alternate propesals for the f;RC's TMI Site ')ffice by J. E. Gagliardo, L. H. Barrett and pyself per your reques at our r.ee:ing on February 28, 1950 We have also in:luded our assessment of :he :ros and cons of each of tne two altsrnative organizational procosals, and our recommendation is Alternative 1.

We have also examined and 'fcund a need f:r changes to the Director, NRR's order of.recruary 11, 1930 and the Technical Specifications imposed by the order t: e"ectively im:lement t' e ';;.C's review and approval of a:propriate prc:edures for TMI-2.

5:ecifically paragraph (3) of the ordar and t.e last sentence of Techr.ical 5;e:ificaticn 6.8.1 need to be revised to celete the requirement for Nr.C ap::roval of all the pro-cedures req; ired by Technical 5;ecification f.E.1.

We have also in:luded in Enclosure 3 -pro:esed " envelope" criteria which would clarify the staff's authority to approve stecific recovery operations cc.r.sistent with the Cc~.ission's prchibi-ions against the purcing or cther treatment of the reactor building a' osphere, the cischarge er other disposal of water de:ontaminated by the Epicor-II sys em and the treatment and dis-charge of the high-level radioactivity c:n ar.inated water now in the reactor building.

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R'enctor Operations and

!!uclear Support Branch Regicn V 0 bk

Enclosures:

see next pa.:e Q9N APPENDIX B to Enclosure 1

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Safety Philosoph.v ar.d Otjective of the i;?.C's Reg;1atory Fro.:rar. at TMI-2 2.

Organizetio.a1 Alterr.atives for tne ti:.C/IMI Site 3.

Safety and Enviror.msn:al Impac:

Envelope for TM: Unit 2 tiF.:

Staff Authority APPENDIX B to Enclosure 1 m**

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SAFETY FMILOSOFHY A.*;3 05JECTIVE OF T.iE NF.C'S REGULATORY FROGRAM AT TMI-2 The larce radicactivity ir.vsntory, uniq;e systems status and the recovery operations with wni:h the T!:1-2 reactor continues to be faced dictate the need for particular attin ion to assure that.a conservative margin of safety at least equivalsnt to that cf o;erating reactors licensed by the i

NRC is mair.tained.

Mai taining this margin of safety necessitates special focus on the adequacy of written procedures fcr the conduct of all activities which present even a small radiolc;ical risk to the public health and safety.

Of equal impor-i l

tan:e is the assurance cf strict cor.ferrence to the written procedures for su:h activities.

The criterion for assuring the adequacy of written procedur*es is that they in:lude cautice ar.d/cr stes soir.ts #or the engoing activities which are established at a sufficier.tly low safet) cor.:ern level and in terms of small devia: ion fron ex:ected trer.ds sucq that the deviation is readily detected ar.d th! activi:y termirate: wi:5 ths activity rer.aini,ng under-c or.troi.

Tne criterion for assuring strict ccr.formance to written procedures is that a dis:ipli,e es es.3:lisr.e: an: enf:rced that dees not permit depar-ture from tne prc:sfures e> cept ir. E:cordance with a predetermined process i

for pre er reviev; ar.d a: pro.al.

It is the coje:-ive of the ';RC's re.:;12::ry activities at TM!-2.to assure that tre at:ve criteria are met thrt;:n :he indeper. dent review and a;;reval of sele:ted written prc:ecures prior to -heir use, and by frequent and direct observation of procecure ir.p'.erer:i:icn.

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C OG'.'ilZATIO'iAL ALTEFliATI'.'ES FOR

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erfsr this f.nc; ion i:.vit have tutnerity to per.r.it licer.ses s

a t icas to :cr. tin;e rec:/e ry coerations.

.t is prcpesed that the staff te autr.orizid t: ce rr.i-li: ens ee cpera tions ithin the fello,.ing sa f ety a r.c e n s i r st. e r.t t i er.veic oe :

1) C:rslia.ce with all Ccarissior r;1es, re;ulations, and policy in:iudi.; t e pro'.ititicns a:airst :;r: ira or other treatren:

3 cf :r.e reac:or ruilcir.g at. csp.e e, :he cischarge or otner cit:csa: Of water et:cntariritec by ne E:iCC.11 sys.er, ar.d tne treitr.e t ard discnarse or o her dis:ssal of the hic.h-iavel i

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I"' SITE r/f CE::TP,-L TI LL MAR i 419e0 M ollins RHVollmer

!.RC/T;'l-GO-044 IA!! % ""

'KJConte Site Operations File i-;E110RAr;DU.i FOR:

Jesse L. Creus, Reactor Operations and ?!uclear Support branch, kegion V 1

FRO:1:

John T. Collins, Deputy Director, i;RC/Till Technical Support Staff SU3 JECT:

TECll!!ICAL SPECIFICATI0ft (TS), AllD ORDER, FEBRUARY 11, 1980, Teil-2, ADDRESSIi:G fiRC REVIElf A;;D APPROVAL OF APPROPRIATE PROCEbuf;ES FOR Tiil.2 EEFERE:;CE:

i.ei.:a ra ndu.. for Victor Stello and Harold R. Lenton from Jesse L. Creus; (

Subject:

Regulatory Philosophy-and Organization - Tril-2)

The referenced r..cmo addresses your concern about the implementation of the Ti:1-2 urder and Tect.nical Specification witi respect to !;RC's revic t and approval of appropriate procedurcs.

This is clarified as stated in the attached memorandum, frc. u. S. Drinknan, sarch ld,1000, subject:

Intent of Till-? Technical

$pecification L.L.1/6.U.2.

In essence, the licensee is required to submit j

those procedurcs required by TS 6.8.lb and 6.8.lg to the NRC prior to impleuentation for approval and/or receipt acknowledged.

If you have any further questions on this matter please do not hesitate to contact ac or my staff.

Sincerely, Original signed by JohnT. Collins John T. Collins Deputy Director flRC/ Tit! Technical Support Staff

Attachment:

i;c:.m for John T. Collins, I: arch 18, 1980 cc:

R. Vollmer g~

V. Stello M

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APPENDIX C to Enclosure 1

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' March 18,1980 dEMORAliDU;i FOR:

John T. Collins, Deputy Director, NRC/TMI Technical Support Staff FR0!!:

D. S. Brinkman, NRC/TIll Technical Support Staff

SUBJECT:

'f INTENT OF TMI-2 TECHNICAL. SPECIFICATION 6.8.1/6.8 In preparing the revised TMI-2 Technical Specifications which were imposed by the Order of February I

11, 1980, it was my intent that the cnly licensee procedures, and changes thereto, which required submittal Te:hr,ical Specifications 6.6.lb and 6.6.1.to the GRC prior to implementa 9

Furthern.cre, I intended to provide the NRC the option to " Receipt Acknowledge" procedures in these categories rather than being required to approve all proc'edures in these two categories.

I believe this option is provided for by Technical Eg:ificaticn 6.8.2 which requires that procecures required by Technical Specifications 6.8.lb and 6.8.lg be submitted to.the NRC prior to

' implementation rather than requiring that these procedures be approv,sd c; :%.*7 ricr 1: i:..S c..c:. m.....

I anticipatec !...c utilization of tilis option on procedures of minor safety significance.

intent that procedures required by the other portions of TechnicalIt was also my Specification 6.8.1 would not require submittal to the NRC prior to in;1e.entation.

ity intent of the last sentence of Technical Specification 6.8.1 was that tne licensee be required to follow previously approved (by licensee) procedures in the categories required by Technical Specifications 6.8.lb ar.d 6.E.lg if these procedures were still applicable rather than to infer a requirement for NRC approval of all procedures required by Technical Specification 6.8.1.

R. J. Conte, who participated in the preparation of these revised TMI-2 Technical Specifications, concurs in these positions.

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D. S. Brinkman HRC/TMI Technical Support Staff cc: R.

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b APPENDIX C to Enclosure 1

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ENCLOSURE 2 NRC MONITORING AND FEECBACK OF TMI-2 RADIATION PROTECTION PROGRAM INCLUDING ASSOCIATED QUARTERLY REPORTS

Reference:

Reference (1), Second, Third and Fourth Paragraphs, and Enclosure Question No. 1 The licensee submitted the following documents for NRC review / approval in this area.

Radiation Protection Program / Plan dated December 7,1979, and revised January 14, 1980; Radiation Safety Program Report (first quarterly status report) dated February 8,1980; Three Mile Island Unit 2 Recovery Quarterly Progress Report for the Period Ending March 31,1980 (which included th6 second quarterly status report on the Radiation Protection Program) dated April 15, 1980; and, Quarterly Progress Report for Period Ending June J0,1980, (as described above - third quarterly report) dated July 15, 1980.

NRC preliminary comments on the draft version of the Radiation Protection Plan were provided to the licensee and formalized on January 28, 1980,,

based on the final version of the plan.

A meeting on site occurred on March 25,1980, to resolve comments. On July 25, 1980, the licensee submitted Revision 2 for final approval by the NRC staff.

Staff review should be completed by August 15, 1980.

A consolidated approach to the NRC review of the quarterly status reports is being utilized.

In addition to the onsite review, each report is sent to the following offsite NRC organizations for review:

Radiological Assessment Branch, Division of Systems Inte-gration, NRR Division of Fuel Facility and Materials Safety Inspection, IE Region I, IE For the first status report, dated February 8,1980, the NRC reviewers were in general agreement that the licensee was responsive to the findings of NUREG 0640, and that if the action items were completed and properly implemented, the program should provide adequate radiological control to support recovery operations.

In addition, the licensee exhibited initiative by consolidating the NRC and consultant findings into one action list.

For the second report, dated April 15, 1980, the NRC reviewers again l

were in general agreement that little progress was made since the February 8,1980, report.

2 The latest report, dated July 15, 1980, is currently under review, however, preliminary indications are that substantial progress was made in the completion of outstanding items since January 1980.

l The proposed meeting on the first status report between J. Collins and H. Denton never materialized due to NRC overview on preparations for containment entry and reactor building purge.

The onsite staff did not provide formal feedback to the licensee on the i

quarterly status reports. Basically the format and content, as provided by the licensee, was considered acceptable for reporting status of the i

recovery operations.

It is understood that this report is followup to the Licensee Event Report on the March 28 accident; and, therefore, in keeping with the NRC's policy in this area, no receipt acknowledgement is issued for these reports. Any adverse trends noted as a result of NRC review of these reports will be formally identified in the IE periodic inspection reports.

Id l

i ENCLOSURE 3 CURRENT STATUS OF RADIATION PROTECTION PROGRAM CORRECTIVE ACTIONS COMPLETED AND PLANNED AND THE EFFECTIVENESS OF THESE MEASURES Reference (1), Enclosure Question Nos. 3 and 4

Reference:

Appendix A to Enclosure 3 Table-1, Management Plan Progress The appendix to this enclosure is an excerpt from the latest quarterly status report.

This indicates the quantity and quality of each of the outstanding items completed and planned.

It should be noted that actual manhours for each item are not equal and some are more extensive than others.

Equally extensive is the workload to followup on the completion of those items by the onsite TMI/P0 staff.

This responsibility is assumed by the onsite staff who must' also follow the day-to-day activities of the licensee.

In light of this ar.d onsite staff's involvment with containment entry and reactor building purge evolutions, an audit was not performed to verify completed action.

Further, it was deemed premature to start a piecemeal approach to this audit effort in light of certain major action items not scheduled for completion until later this year.

The staff is planning a complete review of this area which is scheduled for completion one month (January 31,1981) after completion of the latest scheduled licensee corrective action.

Subsequent to this final

• inspection a report will be issued (approximately one month thereaf ter).

The monthly inspection reports, until that time, will document status of review in this area. The actual audit effort is scheduled to start Septe.-ber 1,1980.

As a part of this planning effort, the staff is aware of approximately 50 outstanding inspection items from post accident inspection reports and 12 items from the civil penalty on the March 28 accident.

The majority of these items resulted in the Special Panel Review of the TMI-2 Radiation Protection Program and, therefore, review of these items along with the Special Panel Findings is imperative.

i The staff classifies all outr,tanding issues into tiie following area.

i Organization / Staffing Quality Assurance Dosimetry (Internal and External)

Radiation Protection Instruments Radiological Material Control / Packaging / Shipment Area Control (Radiation / Contamination)

_ _ =. _

2 Respiratory Protection (an area not identified in the Special Panel Review)

The inspection will address these major areas to assure all outstanding issues are resolved or corrective action is sufficient to prevent recurrence of previously identified problems.

The effectiveness of completed licensee action items can not be judged until the above audit is performed. A review of licensee proposed j

actions along with verified implementation of the Radiation Protection Program should result in the correction of past problems.

A review of the quality of the implementing procedures and the adequacy j

of implementation provide the basis for judgement in terms of overall radiation protection effectiveness. Further, a high quality of licensee training on effective implementing procedures will complement the licensee's program.

• s

Page 1 of 9 l

TABl.E - 1 MANAGEMENT Pl.AN PROGRESS ^

i Finding Corrective Act ion Due Date Status i

1.

tianageme nt commitment a.

The senior vice president,

NA Action completed in support of Radiation Met-Ed, held policy statement Safety Program.

session with all TMI managerial.

(morale / attitude supervisory and vadiological control personnel.

problem, operations influence).

b.

Restructure the Radiological NA Action completed Control Department under a i

manager reporting directly to the senior vice president.

c.

Create an independent NA Action completed i

Radiological Assessment Group to monitor the Radio-logical Control Program.

u d.

Implement a Radiation 2 weeks Submitted to NRC in January Protection Plan which outlines after 1980. Resolution of comments the ph11osophy, basic ob.lectives, NRC in progress.

and policies relating to the act ion Radiological Control Program.

2, e.

Assign technician foremen NA Action complete exclusively to on-the-job i

E2 supervisory duties to provide l

E!

additional support and direction to technicians.

2 o

2 D.

8 5

W I

Page 2 of 9 TAllLE - 1 MANAGEMINT PLAN PROGRESS Finding Corrective Action Due Date Status i

l.

(Cont.)

f.

Establish supervisory 12/80 Action not initiated at this and management development time.

f training programs.

2.

Organizational Structure a.

Radiological Control Department NA Action complete.

(Responsibility, funct ion, re-organization.

assignment, and line of authority uncertainties.)

b.

Prepare a procedure defining 02/80 Action complete -- issued.

the Radiological Control Department organization, and responsibilities.

c.

Utilize only Radiological 07/31/80 Action complete -- all techni-Control technicians and clans and foremen employed at foremen trained in accor-THL-Il at the time of publica-dance with the revised tion have been trained in training program to provide accordance with the revised Radiological Control coverage training program.

for work at TM1 Unit II.

D A

55 R

2 O

m R

s' E

a w

l

- _ _ =

_~

Page 3 of 9 l

TABl.E - 1 MANAGI!!ENT Pl.AN PROGRESS Findinh Corrective Action Due Date Status 3.

Technical depth of a.

Initiate A recruitir ; program to 08/80 Continuing task, current status Radiat ion Saf ety reinforce the technical / super-indicated on TABLE -

Program visory expertise within the Radiological Controls organiza-Radiological Control Department.

tion chart.

l 4.

Training (Training for a.

Establish training program f or 07/31/80 Training status presented in Radiation Safety all current technicians and 2-c, page 2.

j

& Operations Personnel foremen.

was inadequa te) b.

Establish a Radiological 05/01/80 Program implemented and in pro-training program for all gress. Procedure defining pro-workers at THI-II.

gram is currently in the approval cycle. Action complete.

I c.

Establish Criteria for special 07/01/80 Action not started.

training on "high risk tasks".

1 sa

=

C3 0

72 C

w O

G

~

Page 4 of 9 Tali!.E - 1 MANAGIMENT Pt.AN PROGRESS Finding Carrective Action Due Date Status

'4 s5.

Resolution of audit

.a.

Establish an audit response.

03/15/80 Action complete.

findings.

procedure!

i b.

Assign responsibility 1 02/15/80 Ac t. ton 'comple te.

~

for stating and completing

.. ~

corrective, actions on previous t,

NRC and the latest 0A audit

-findings.

s-

~.

c.

Re-evaluate a11' previous 03/01/80 Action complete.

audit-findings for applica-bility. - Re-is' sue applicable

_ ~,

open itemb.

r d.

Establish an in-house defi-

.04/15/80 Act ion complete.

ciency reporting prodran.

.=

\\

d d

i A

=

x D

N g'

2.

10 C

rD w

e e

=

9

-3 Page 5 of 9 TAMt.E - 1 MANACFMENT P'.AN PROGRESS Finding Corrective Action Due Date Status 6.

Preparation and a.

Revise all Radiological implementation of Procedures compatible pr oc edu r es.

with verbatim compliance objectives.

1) Five (5) initial procedure 04/01/80 One (1) of the initial procedures revisions appli.able to was issued (Investigative Report l

current activities.

Procedure); the remaining procc-dures have been developed and are currrently in the approval cycle.

2) Complete a Radiological 12/01/80 Continuing effort based on Control Proceduce Manual.

priority list issued 01/22/80.

b.

Criteria for action sign oft 08/01/80 Action not started.

steps in work procedures.

c.

Chany.e tech specs to expedite open Awaiting NRC resolution.

revitu.

7.

External Dosimetry a.

1; valuate dos tmetry n or 02/15/80 Action complete.

R. B. re-entry.

pm f

b.

Evaluate T1.D system and 12/01/80 Evaluation initiated, action 3

Implement modifications.

not complete.

x o

T2 8

C w

9 e

e Page 6 of 9 TABLE - 1 MANAGEMENT PLAN PROGRESS Finding Corrective Action Due Date Status 7.

(Cont.)

c.

Coordinate and direct contracted 02/80 The technical expertise for technical expert ise in assess-as sessment of external exposures ment of external exposures.

is currently being coordinated and directed by the Manager of Radiological Technical Support. The organization and responsibility procedure defining the current organiza-tion was issued in May 1980.

The committed action for this finding is considered complete.

d.

QA program for TLD system 04/30/80 Procedure defining program has been developed and is currently in the review cycle.

e.

Computerized exposure 04/01/80 Action complete.

(system tracking by work group capability) and unjor task.

f.

Computerized exposure tracking 12/31/80 Action in progress to meet 2,

by specific tasks.

committed date.

E

'a S

x 2,

O T

n

-a

.i W

4

Page 7 of 9 TABLE - 1 MANACt:!!ENT Pl.AN PROGRl:SS Finding Corrective Action Due Date Status Coordinat,e ava ilable te chnic al NA Action complete.

8.

Internal Dosimetry a.

Program expertise in evaluation of internal exposures.

b.

Revise the Bioassay Program.

04/01/80 Procedure defining program has been developed and is currently in the approval cycle.

9 Instrument Program a.

R.B. re-ent ry instrument 03/01/80 Action complete.

evaluatLon.

b.

Coordinate ins t rume n t selection, NA Action complete.

calibration, and ma int enance

. activities.

c.

Develop a QA program for Instru- 07/01/80 Action in progress.

nent calib ra t ion.

d.

Upgrade the TML Instrument cali-12/31/80 Action complete.

bration f acility.

e.

Make recommendations for 02/15/80 Submitted and being evaluated llealth Physics counting Lab action complete.

=

improvements.

B f.

Implement improvements to 06/01/80 Action not complete.

counting lab.

T 2.

C 2

w O

~ - -

Page 8 of 9 TABl,E - 1 MANAGE' TENT Fl.AN PROGRESS Finding Correct ive Act ion Due Date Status 9.

(Cont.)

g.

Improve air sampling capabilities.

NA Action complete h.

Improve air sampling practices.

NA Action complete.

i.

Improve Radio-lodine sampling NA Action complete.

capabilities.

j.

Implement an improved survey 02/01/80 Procedure developed, currently f requency schedule in procedural in approval cycle.

f o rma t.

Revise all procedures addressing NA Action complete.

10.

Radioact ive Material a.

shipping and labeling the packaging, handling, shipping, and receipt of Radioactive material.

-b.

Develop guidelines for curie 04/01/80,

PCR to existing procedure estimations.

submitted and approved.

Action complete.

Improve decontamination NA Action complete.

11.

Improve decontamination-a.

procedures for equipment practices from pre-accident y

and tools.

conditions.

3 x

Tw O

T 2

S C

w

c Page 9 of 9 1 Anl.E - 1 11AtlACEMEt: r PLA!! PROGRESS-

'..;)

Correct ive Act ton Dur Date Status Finding a.

Implement a Radiation piotection IJA Program in effect, Radiation i

12.

Implement a program which Protection Plan awaiting NRC emphasizes the reduction plan which stresses THI-II's g

commitment to a strong radiological resolution.

of personnel exposures to control program within the Concept Al. ARA.

of ALARA.

b.

Implement a pronram for exposure 09/01/80 Action not started tracking.

!!A Continuing effort upon imple-c.

Iscue reports ou exposure ret urns mentation of exposure tracking to supervision as an atil in tracking exposure f o r t h e.L r pe r-program ident if ied above.

sonnel.

a.

delegate responsibility for resolv-t1A Continuing action, initiated in I

13.

lloid personnel account-able for the actions they ing audit f indings to supervi sory February 1980.

take.

Establish an under-personnel responsible f or the area standing of responsi-in which the finding occurs.

l bilities and expectations associated with achieving b.

Insert action sign of f steps in 08/01/80 Action not started.

a sound Radiological Con-operat ional work proce 'ures t o ensure proper at tentio is p,iven trol Program.

3 to radiological consid rations.

~m Prepare guidelines for conduc-17/01/80 Action (guidelines) not z

f 53 c.

started.

tance of critiques for unusual radiological occurrences.

f cI EL S

C w

4

EfiCLOSURE 4 NRC ROLE IN CONTAINMENT ENTRY - SPECIAL EFFORT VERSUS REAL RE-ENTRY

Reference:

Reference (1) Enclosure Questions Nos. 5 and 6 The NRC's role in association with the containment entry can best be described by what has been accomplished in the past.

On March 21, 1980, the licensee requested the onsite NRC staff to approve the entry into the reactor building without building atmosphere purging. The staff's review of the submitted plans for this entry indicated that further study by the flRC was warranted to assess the hazard associated with such an entry. Therefore, a task force composed of various experts from f1RR and IE was fomed.

The results of this review was that adequate radiological protection (including the use of instruments) was to be utilized and the more significant hazard was to be nonradiological (relatively low oxygen content).

On that basis, the procedure governing the entry was reviewed and a;;mved by the ensite staff prior to the May 20 attempt to enter the building.

Selected licensee training sessions for the licensee's entry and support teams ware observed.

Problems identified during this review were adequately resolved.

During the entry attempt on fiay 20, 1980, a majority of the onsite staff was onsite or available to insure proper implementation of the entry rrccedure.

Implementation problems did occur and were the subject of '-

subsequent enforcement action.

In summary, for the containment entry and any other special evolution at T"I, the t'RC's role onsite is tnat of monitoring in the interest of public health and safety,, not one of participation. No plans are made as yet for sending f!RC personnel into the reactor building.

As far as the NRC staff is concerned, each entry into the reactor builcing will be a special entry until extensive decontamination in the reactor building is accomplished. With respect to special instrumentation and other protective equipment it appears that the " state of the art" is adecuate to protect individuals making these entries.

I l

I

(