ML20088A467
| ML20088A467 | |
| Person / Time | |
|---|---|
| Site: | Diablo Canyon  |
| Issue date: | 04/10/1984 |
| From: | Reynolds J CENTER FOR LAW IN THE PUBLIC INTEREST, JOINT INTERVENORS - DIABLO CANYON |
| To: | NRC COMMISSION (OCM) |
| References | |
| OL, NUDOCS 8404120072 | |
| Download: ML20088A467 (16) | |
Text
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DOCKETED USNRC UNITED STATES OF AMERICA NUCLEAR REGULATORY COMhkbSfBh11 P337 BEFORE THE COMMISSION
)
In the Matter of
)
)
PACIFIC GAS AND ELECTRIC COMPANY
)
Docket Nos. 50-275 0.L.
)
50-323 O.L.
(Diablo Canyon Nuclear Power
)
Plant, Units 1 and 2)
)
)
JOINT INTERVENORS' RENEWAL OF APPLICATION FOR STAY On October 31, 1983 and March 20, 1984, the Joint Intervenors requested a stay by this Commission of its expected order reinstating the suspended Diablo Canyon Nuclear Power Plant, Unit 1 ("Diablo Canyon") low power operating license.1/
For the record, the Joint Intervenors now reaffirm their request and supplement the basis for the request with significant new information recently received by the Joint Intervenors.
As was evident at the March 27, 1984 Commission meeting, one of the " area [s] that has been very high on the Commission's agenda recently" (Tr. 165) is operator experience and qualification for nuclear power plant applicants and licensees.
Specifically,.it 1/
~
More specifically, the Joint Intervenors have requested a stay of the principal NRC decisions underlying the issuance of a low power operating license for Diablo Canyon, as well as a stay of the Commission's expected April 13, 1984 decision.
See also Letter, Joint Intervenors to Commission (March 22,1984).
8404120072 840410 PDR ADOCK 05000275 G PDR b
1 has become increasingly apparent that certain facilities are being considered for licensing even in the absence of experienced personnel to operate the reactors consistent with the Commission's regulations.
Despite this recent concern and the respective applicants' commitments to acquire sufficient experienced operators, deficiencies still remain at some facilities.
As the Commission meeting made clear, one of those facilities is Diablo Canyon.
On March 27, 1984, the NRC Staff informed the Commission that significant deficiencies remained in the operator experience at Diablo Canyon:
MR. THOMPSON:
The numbers for Diablo is there is no hot operating experience for their senior operators or their operators, although they have had and met the training requirements for obtaining ---
COMMISSIONER GILINSKY:
When you say no hot operating experience, do you mean ---
MR. THOMPSON:
On a similar type facility.
COMMISSIONER GILINSKY:
As a licensed operator?
MR. THOMPSON:
As a licensed operator, and/or a significant role at another utility.
COMMISSIONER GILINSKY:
So, they don't meet that hot participation test, either?
i MR. THOMPSON:
They do not meet the six month hot participation test.
They did comply with our requirements for observation training in order to take a license.
COMMISSIONER GILINSKY:
What is the observation training?
MR.' THOMPSON:
The observation
. training, it is required that they observe the operations-at a similar type facility for.a period of up to two monthg7
'(Tr. 173-74.)
(Emphasis added. )-
Nonetheless, the NRC Staff has recommended low power licensing, choosing to defer until after 5% power the resolution of this conceded lack of actual operating experience and relying apparently on " observation training" or simulator experience of the Diablo Canyon operators as an adequate substitute.
This approach is in clear violation of the explicit terms of'the Commission's own regulations.
10 C.F.R. S 55.11 requires as a prerequisite to approval of an application for a reactor operator's license a Commission finding that, inter alia, "the applicant has passed'a written examination and operating test as may be prescribed by the Commission..
These requirements may'be waived if the Commission finds that the. applicant "[h]as had extensive actual operating experience at a. comparable facility within two years prior to the date of application."
10 C.F.R. S 55.24.
With respect to the use of a simulator as a substitute for an operating test, 10 C.F.R.
S 55.25 is explicit:
The Commission may administer a simulated operating test to an applicant
.for a license to. operate a reactor prior to its initial criticality if a written I
See also Letter, PGandE to Denton (March 16,1984)
(attached hereto as an exhibit), in which PGandE informed the
- NRC that the reactor operators or senior reactor operators at Diablo Canyon had no hot participation experience and virtually no comparable commercial reactor experience.
. a
4 request by an authorized representative of the facility licensee is sufficient for the Commission to find that:
(b)
The applicant has had extensive actual operating experience at a comparable reactor.
There is no dispute that no " extensive actual operating experience at a comparable reactor" exists at Diablo Canyon.
Nor can there be any dispute that the observation or simulator training upon which the Staff seeks to rely is an adequate substitute.
Indeed, the Commission's Office of General Counsel ("OGC") has recently issued a written interpretation (attached hereto as an exhibit) of 10 C.F.R. S 55.25 (b) and has concluded that "the staff's interpretation.
. appears to contradict the-plain meaning of the regulation."
Memorandum, OGC to Commissioner Gilinsky, " Licensed Reactor Operator Examinations," at 1 (April 6,1984).
After reviewing the legislative history of the regulation, OGC concludes that "[nlo provision is made for simulator experience, equivalent experience, or comparable experience."
Id. at 2.
The Joint Intervenors submit that this requirement, which recognizes the importance of actual operating experience as a prerequisite to issuance of a license, is critical to safe
~
/
/
/
/
1 operation of a reactor and, in particular, of Diablo Canyon.E!
In the absence of qualified operators with valid licenses, the i
Commission cannot find (1) that the " facility will operate in conformity with the application as amended, the provisions of the'Act, and the rules and regulations of the Commission," or (2) that the " applicant is technically.
. qualified to engage
-in the activities authorized by the operating license in accordance with the regulations in this chapter."
10 C.F.R.
S 50.57 (a).
Accordingly, until the Commission can make the findings required by its regulations regarding. operator i
E!-
Commission Gilinsky has expressed clearly the j
significance of-this deficiency and the NRC Staff's apparent
)
intention to ignore it for low power operation:
You know, you would never launch a ship on this basis.
You would never put a Navy i
' ship out with no one who has ever operated a comparable plant and without peop'e on there, you know -- first of all, I just don't think you would do it, period.
And i.
second of all, if you did, I can't imagine that you wouldn't examine the people you were relying on.
(Commission Meeting Tr. 211 (March.27,1984).)
r i
e
[
i You know we held this plant down for many
(
years in order to be sure'that its ability l
to withstand the worst earthquake was what i
it was suppoed [ sic] to be.
That cost, I l
am sure, a billion dollars one way or
~ ',
another.
Here we are talking about a
~
relatively brief' period of time, a far smaller amount'of money, and something l
which is much more important and we are worried about a day here or a day there.
(
[
.I think you are adjusting the l
approach to the schedule.
(12. at 225.)
t-f a
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qualification and experience, no license may legally be issued for Diablo Canyon.
For the reasons stated herein and previously in support of their Application for Stay, the Joint Intervenors respectfully request that the requested stay be granted.
Dated:
April 10, 1984 Respectfully submitted, JOEL R. REYNOLDS, ESQ.
ETHAN P. SCHULMAN, ESQ.
ERIC R. HAVIAN, ESQ.
JOHN R. PHILLIPS, ESQ.
Center for Law in the Public Interest 10951 W. Pico Boulevard Los Angeles, CA 90064 (213)470-3000 DAVID S. FLEISCHAK.-. ESQ.
P. O. Box 1178 Oklahoma City, OK 73101 By N EL R. RgYt%fLDS Attorneys for Joint Intervenors SAN LUIS OBISPO MOTHERS FOR l
PEACE SCENIC SHORELINE PRESERVATION CONFERENCE, INC.
ECOLOGY ACTION CLUB i
SANDRA SILVER l
ELIZABETH APFELBERG JOHN J. FORSTER
_.v e
I i
LCOPV PACIFIC OAS AND E LE C T RIC C O M PANY 77 BEALE STREET, S AN FR ANCf SCO, C ALIFORNI A 94106 TELEPHONE (415) 781 4211 March 16, 1984 PGandE Letter No.: DCL-84-096 Mr. Harold R. Denton, Director Office of Nuclear Reactor Regulation U. S. Nuclear Regulatory Commission Washington D.C.
20555 Re: Docket No. 50-275, OL-DPR-76 Docket No. 50-323 Diablo Canyon Units 1 and 2 Experience of Operations Personnel
Dear Mr. Denton:
As requested by the NRC in a meeting on January 25, 1984, the enclosed tables provide detailed operating experience for the licensed operating personnel as well as the licensed and non-licensed Shift Technical Advisors for Diablo Canyon.
Kindly acknowledge ;eceipt of this material on the enclosed copy of this letter and return it in the enclosed addressed envelope.
Sincerely, J. O. Schuyler l
by J. D. Shiffer Enclosures cc:
D. F. Schnell (Union Electric)
H. L. Thompson (NRC)
Service List l
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ENCLOSURE 2 PGandE Intter No.: DCL-84-096 OPERATING SHIFT EIPERIENCE
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DATE March 16. 1984 PLANT Diablo Canyon Unit 1 UTILITY Pacific Gas and Electric
- 0. L. DATE Septeater 21, 1981 JOB TITLE Shif t Technical Advisor (STA)
(NOTE 2)
NUCLEAR POER PLANT EXPERIENCE FOR OPERATING SHIFT POSITION (NOTE 1)
ENTER DATA: MONTHS / MONTHS x E IGHING FACTOR WEIGHING MAXIMUM TYPE OF EXPERIENCE FACTOR CREDIT 1
2 3
4 5
6 7
8 9
10 11 12 13 14 15 1.
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OTHER CO M RCIAL R0 0.75 NO LIMIT o
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NAVY (MILITARY) NUCLEAR 36 MONTHS 2
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(OTHER) 0.25 zes 24 1
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SIMULATOR 12 MONTHS e4
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(REFERENCE PLANT) 5.00 12 MONTHS (SIMILAR) 3.00 9 MONTHS 4
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NUCLEAR PLANT EXPERIENCE ON SHIFT (OWN PLAN D 24 MONTHS n
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4 (LESS THAN 1 1/2 YEARS PRIOR TO F.L.)
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0.50 12 MONTl;S 56 4
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LICENSED CLASSROOM TRAINING AND 0.50 9 MONTHS e/ s/ q.y 54feep,.g 4/ 6/
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et et et it TOTAL NUCLEAR PLANT LIFLKILNCE
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HOT PARTICIPATIUM LIVLKILNCL NO NO NO NO NO NO NO NO
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MONTHS ON SHIFT 0.0 NOTE 1: THE INSTRUCTIONS FOR USE OF NUCLEAR POWER PLANT EXPERIENCE FACTORS FOR
[x]a. Shift advisors must be used to satisfy the " hot OPERATING 5:{IFT POSITIONS WERE AGREE UFON BY THE UTILITY GROUP.
participation experience" of the utility plan.
NOTE 2: INCLUDE ALL SHIFT SUPERVISORS ($$). SHIFT SENIOR REACTOR OPERATORS (SRO).
[ ]b. Shift advisors will probably be required, at REACTOR OPERATORS (RO) AND SHIFT TECHNICAL ADVISORS (STA) least for some shifts.
[ ]c. Do not plan to use shift advisors unless some unforeseen circumstances arise.
C ENCLOSURE 3 PGandE Lctter No.: DCL-84-096 CPERATING SHIFT EYPERIENCE DATE March 16, 1984 PLANT Diablo Canyon Unit 1 UTILITY Pacific Gas and Electric
- 0. L. DATE September 21, 1981 JOB TITLE Senior Reactor Operator fsR0)
(NOTE 2)
NUCLEAR POER PLANT EXPERIENCE FOR OPERATING SHIFT POSITION (NOTE 1)
ENTER DATA: MONTHS / MONTHS x WEIGHING FACTOR EIGHING PEXIMUM TYPE OF EXPERIENCE FACTOR CREDIT 1
2 3
4 5
6 7
8 9
10 11 12 13 14 15 1.
SAE TYPE C0fetERCIAL SRO 1.00 NO LIMIT k
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NAVY (MILITARY) NUCLEAR 36 MONTHS q,
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MONTHS ON SHIFT 0.0 NOTE 1: THE INSTRUCTIONS FOR USE OF NUCLEAR POWER PLANT EXPERIENCE FACTORS FOR
[x]a. Shift advisors must be used to satisfy the ' hot OPERATING SHIFT POSITIONS WERE AGREE UPON BY THE UTILITY GROUP.
participation experience
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NOTE 2: INCLUDE ALL SHIFT StPERVISORS (SS), SHIFT SENIOR REACTOR OPERATORS (SRO),
[ ]b. Shift advisers wt11 probably be required, at REACTOR OPERATORS (RO) AND SHIFT TECHNICAL ADVISORS (STA) least for some shifts.
[ ]c. Do not plan to use shift advisors unless some unforeseen circumstances arise.
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.'c, UNITED STATES ff3
- e.. g i NUCLEAR REGULATORY COMMISSION
, gW.*-
3 V. A.SH WGTON. D. C. 20555
,.,,g.--
t :waCa; ?i
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.s April 6, 19E4
'84 APR -9 P2 :15 ME".ORANDUM FOR:
Commissicner Gilinsky Fitzgeralo;Q O 6G'l"~'Y FROM:
James A.
j Assistant General Counsel ecm --
~ ~... :
SUBJECT:
LICE 1: SED REACTOR OPERATOR EXAMINATIONS During the March 10, 1984 Commission briefing on c full-power operatin'g license ~for WPPSS-2, you raised the question of whether the staff's interpretation of 10 CFR 5 55.25 (b) is consistent with the terms of that regulation.y Both during the briefing and in a letter dated April 3, 1984, you sought the vie *.;s of the Gen 3ral Counsel.
The staff's interpretation as stated in Ni] REG-0094, in our view, appears to centradict the plain meaningioi'the regulation.
10 CFR S 55.25.tb), entitled " Administration of operating test prior t.o initial criticality," reads:
The Commission may administer a simulated operating test to an applicant for a license to operate a reactor prior to its initial criticality if a written request by an authorized representative of the facility licensee is sufficient for the Commission to find that:
kb) The applicant has had extensive actual operating experience at a comparable reactor.
In 1976 the Operator Licensing. Branch, NRR, issued NUREG-0094,'an NRC licensing guide entitled "A Guide for the Licensing of Facility Operators, Including Senior Opera-tors."
This guide was designed to revise and replace WASH 1094, the AEC licensing guide.
Section XI of NUREG-0094, entitled " Administration of Operaf:1ng Test Prior to Initial Criticality," defines what is meant in S 55. 2,5 (b) by the term " extensive actual cpcrating experie,nce at'c comparable reactor."
A June 28,.1976 letter from Ben C.
- Rusche, Director of NRR, to the Commission 2rs indicates that one of
..v 1 Tr. 43-45.
Contact:
Carole'F; Kagan, OGC X41493 N
.l'i.
2 the revision.s made was to define " extensive actual operatinc experience" to include "participaticn ir traiging pr' grams '
o that utilize nuclear power plant simulators."-
Commissioner Gilinsky pointed out during the March 30, 19E4 Commission briefing that this i.nterpretation of S 55.25 (b) seems to be inconsistent with the plain meaning of the reculation, which calls for actual, not simulator, operatine
~
experience.#
Mr. Thompson of NRR explained that the staff '
had used the NUREG-0094 guidelines since their promulgation, and considered simulatcr experience adequate to ensure safe plant operation.'
A brief review of the legislative history of 9 55.25 (b) yields nothing that would contradict the plain meaning of the regulation.
The Statement of Consideration for the promulgation of 5 55.25 states that S 55.25 was added to Part 55 to provide for the administration of an operating test "provided the conditions stated in the section are met."
26 Fed. Reg. 9654 (Oct. 12, 1961).
The condition stated in S 55.25 (b) is " actual operating experience" (emphasis added).
No provision is made for simulator experience, equivalent experience, or comparable experience.
A provision similar to S 55.25 (b) is contained in S 55. 24 (a).
Under that section, the " extensive actual operating experience," within two years of application, can contribute to the basis for waiver of any or all of the written examinations and operating test.
It is interesting to note that when read in light of Sect on X of NUREG-0094 and 5 55. 24 (b) this phraseology contemplates hands-on operating experience rather than some substitute.
cc:
Chairman Palladino Commissioner Roberts Commissioner Asselstine Commissioner Bernthal SECY GPE EDO ELD 2 SECY-76-341, June 28, 1976, Enclosure 1.
3 Tr. 43-45.
4 Tr. 44-45.
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00tKETED USTSC UNITED STATES OF AMERICA g FR 11 P357 NUCLEAR REGULATORY COMMISSION BEFORE THE COMMISSION
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In the Matter of
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PACIFIC GAS AND ELECTRIC COMPANY )
Docket Nos. 50-275 0.L.
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50-323:0.L.
(Diablo Canyon Nuclear Power
)
Plant,. Units 1 and 2)
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CERTIFICATE OF SERVICE I hereby certify that on this 10th day of April, 1984, I have served copies of the foregoing JOINT'INTERVENORS' RENEWAL'OF APPLICATION FOR STAY, mailing them through the U.S. mails, first class, postage prepaid, to the attached list.
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CHRISTINA CONCEPCION
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SERVICE LIST
- Nunzio Palladino, Chairman
- James Asselstine, Commissioner U;S. Nuclear Regulatory U.S. Nuclear Regulatory Commission Commission Washington, D.C.
20555 Washington, D.C.
20555
- Victor Gilinsky, Commissioner
- Frederick Bernthal, Commissioner U.S. Nuclear Regulatory U.S. Nuclear Regulatory Commission Commission Washington, D.C.
20555 Washington, D.C.
20555
- Thomas Roberts, Commissioner
- Samuel J. Chilk, Secretary U.S. Nuclear Regulatory U.S. Nuclear Regulatory Commission Commission Washington, D.C.
20555 Washington, D.C.
20555 Thomas S. Moore, Chairman Dr. W. Reed Johnson Atomic Safety & Licensing Atomic Safety & Licensing Appeal Board Appeal Board U.S. Nuclear Regulatory U.S. Nuclear Regulatory Commission Commission Washington, D.C.
20555 Washington, D.C.
20555 Dr. John H. Buck
- Docket and Service Branch Atomic Safety & Licensing Office of the Secretary Appeal Board U.S. Nuclear Regulatory U.S. Nuclear Regulatory Commission Commission-Washington, D.C.
20555 Washington, D.C.
20555
- Lawrence Chandler, Esq.
Office of the Executive Legal Director - BETH 042 U.S. Nuclear Regulatory Commission Washington,.D.C.
20555 David S. Fleischaker, Esq.
Post Office Box 1178 Oklahoma City, OK 73101
- Bruce Norton, Esq.
Norton, Burke, Berry & French l
2002 E. Osborn Phoenix, AZ 85064
- Malcolm H. Furbush, Esq.
Vice President & General Counsel Philip A. Crane, Esq.
Pacific Gas and Electric Company 7'7 Beale Street San Francisco, CA 94106]
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John' Van de Kamp, Attorney General Andrea Sheridan Ordin, Chief Attorney General Michael J. Strumwasser, i
Special Counsel to the Attorney General Office of the Attorney General State of California 3580 Wilshire Bculevard, Suite 800 Los Angeles, CA 90010 Richard B. Hubbard MHB Technical Associates 1723 Hamilton Avenue Suite K San Jose, CA 95125 Virginia and Gordon Bruno Pecho Ranch Post Office Box 6289 Los Osos, CA 93402 Sandra'and Gordon Silver 1760 Alisal Street San Luis Obispo, CA 93401 Carl Neiburger Telegram Tribune
. Post Office Box 112 San Luis Obispo, CA 93402 Tom Devine Government Accountability Project 1901 Que Street, N.W.
Washington, D.C.
20009 Eric Havian, Esq.
Heller, Ehrman, White & McAuliffe 44 Montgomery Street., 31st Floor San Francisco, CA 94104 Via Express Mail
,