ML20091Q816

Comment Opposing Draft NUREG-1022,Rev 1, Event Reporting Sys (10CFR50.72 & 50.73):Clarification of NRC Sys & Guidelines for Reporting

ML20091Q816
Person / Time
Site:	Sequoyah
Issue date:	01/29/1992
From:	Burzynski M TENNESSEE VALLEY AUTHORITY
To:	Meyer D NRC OFFICE OF ADMINISTRATION (ADM)
References
FRN-56FR50598, RTR-NUREG-1022 56FR50598, NUDOCS 9202050139
Download: ML20091Q816 (24)

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92 JM 30 n\\1:22 JAN 291992 l

U.S. Nuclear kegulstory Connission ATTN Mr. David h. Heyer, Chief Regulatory Publications Branch Division of Freedom of Information and publication Services offico of Administration Waahington, D.C. 20555

Dear Sir:

DRAFT NUREC 1022, REVISION 1 This letter la to provido connents as requested by HRC in the October 7, 1991, [ederaLilesinpr (50598) which announced the evallability f or public connent of Draf t NUREG-1022 Revision 1. " Event Reporting Syutems (10 CFR 50.72 and 30.73): Clarification of HRC Systems and Cuidelinos for Reporting."

On January 1, 1984, NRC rulemaking on 10 CFR 50.73 Licensee Event Reports (LERs) becan of f ective.

In 1989, the NRC staff cor ducted a survey among 13 nucioar power utilities regarding the impact of the NRC on ut! lit. ins.

Partially in response to conecene raised by the nuclear industry in the aurvey, four regional workshops were conducted which focused on ovent repor t.i nt.

Through thu survey and the workuhops, the industry expressed its concerns regarding reporting wh'ch, it believnd, while not specifically required by the language of t.ho rule was, in fact, being requested by the staff.

Industry also initiated efforts to reduce such unnecessary reporting through the Bolling W ter Reactor Owners Group.

As I

a result of thoso events, the staff "dotormined that additionni clarification was needed to further improve the u - Niness, quality, and threshold of reporting," and accordingly, publisW riosit NUREG 1022, i

Revision 1.

The language of the rule was not changa. The steff's stated intention was that the new guidanco provido " clarifications (thall i

do not change the scopo or intent. of the reporting requirements."

i The draft. NUREG does not provide the additional clarifications sought by the nuclear industry. Convorsely, it broadeniu ths scope of reporting beyond the Ihnguage and the intent of the rule. TVA views the guidance in this draft NUREC as clearly deviating from the interpretations l

and guidelines which have been previously catablished through interfaces I

with resident inspectors, Nr.C inspection toans, regional personnol, and 920h050139 900129 PDR NUREG 1022 C PDR

o' e

t 2

t U.S. Nucicar Regulatory Commission slAdi 29 7992 previcusly published NRC guidance.

The ptoposed guidanco clearly townes l

the threshold of reportability.

An examplo of thio lower threshold is illustrated by section 3.2.4(3) of the dratt NUREG, which indicatos that i

deviations from engineering design bauls are to be reported.

In contrast, the Statements of Consideration for the final tulo, as publiched in 1983, stated that "the LER will be a detailed narrativo description of potentially significant safety events." It now appears that this litnus test of "potentially significant cofoty events" is no longer being applied.

Also, contrary to the direction of NUREG 1022, the uso of "Engincoring Design Bases" au defined in NUREC 1397 is not appropriato for determining reportability under 10 CFR 50.72 and 50.73.

Since NURF.C 1397 itself states "the 10 CFR 50.2 definition of design bases lu used in determining immediato notification requiremonto under 10 CFR 50.72 and licensee event report requirements under 10 CFR 50.73.

Those regulaties require the licensoo to refort..any ovent or condition that results in a nuclear power plant being outsido its design basos."

TVA does not believe that this type of chango can be characterized as a clarification of requirements, but rather, that it is a direct chango in the threshold of reportability.- Another aron involving the lower 8.nt of i

thresholds exists in the contracting languago in Supplement 1 oi tha NUREG versus Rovision 1.

Supplomont 1. Question 2.9, of the original NUREC states that organizational changos not approved by Technical Specifications do not requiro LERo.

In contrast, Revision 1 states, "If a change in the plant's organizational structure is made that has not yst been soproved as a technical specificstion chango, un LER le required."

The examplos cited above, which are characteristic of examples throughout the draft NUREG, demonstrate the fact that this now guidence clearly lowers the threshold for reportability.

The stated goal of the Commission in the original rulo "was to assure that the scope of the rule would not increase tbo overall level of effort above that currently requircJ to comply with oxisting LER requirements."

The basis of-this concern was the impact the rule might have on the licensee's resources. The implomontation of the guidanco on LERs as rugsosted in tho' draft of NURCO 1022, Revision 1, will result in an increas'c in the number of LERs submitted by this licensoo, perhaps by orders of magnitudo.

Tide will havo a significant impact on the resources required to generate those reports.

NRC should also consider the potentist impact that such an increase would have on the NRC's and the public's percoption of rucicar plant safety.

Another consideration is that the overwhelming quantity of reports generated end submitted could tend to dilute the quality of the review by licensees and NHC

-alike. - This potential sido of fect. has tha tendency to obscure the true significant safety events in a cloud of insignificant reports, t

l l

L

f 3

U.S. Nuclear Reguintory Conunloalon JAN 29 W

\\

TVA recorntnends that af ter the staf f pludloo the comments it reco1vos. It j

consider.,*1thdrawing the NUHka, oc alternutively, solicit addit ional industry input to the draf t HURE0 by conducting enore workshopo to gain a I

more thorouf,h underotundtnr, of the induotry's peropoetivo and the i

potentini irnpact on tho indualry before revising the draf t NUREG for i

final publication. TVA imdorson NUMARC'u coments on this WUREG and additionally, providos dotatied coments includod no an enclosure to thin letter.

Sincerely, I t' L.

h fM l M.J.!rryns[t ki Acting anager Nuclear Licenoint, arid Regulatory Af f airs Enclosuro cc (Enclosure):

Mt% Thornas H. Novak. Director Divis. ion af Safety programo, AE09 U.S. Nucinar Regulatt,ry Cortunission Maryland Natiottel Bank Building 7735 Old Geor,otown Poad r

Rockvilio, Maryland 20852 Mr. B. A. Wilson, l'roject. Chief U.S. Nuclear Regulatory Commission Hecion 11 101 Mariotta Street,, NW, Culto 2900 Atlanta, Georgia 30323 I

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N'JREG-1022 TVA CCHMENTS i

I weather response pr ocedures, evacuating buildings for personnel protection and the like do not j

constitute actions which significantly hampered personnel in the performance of duties necessary

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for safe operation of the plant.

In addition, in this example the NRL again uses l

the term "significant." Please see comment 7.

with respect to the use of this term.

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13.

If a sncustorm, hurricane, or similar event The Staff proposes to int.oduce the "could" test L

could significantly. hamper or is expected to to the interpretation.

10 CFR 50.73(2)(ii) simply significantly hamper personnel in the conduct states that licensees should report any "catural of their activities,'the event is reportable.

phenomenon or other external condition that posed l

{Page $3]

an actual threat... or significantly hampered site personnel in the performance of duties..

l

." The Statements of Consideration clarify that j

the rule only " requires-[ reporting of] those events... vhere there is.an actual tnreat to the plant..." TVA considers that the

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introduction of the word "could" o'oscures rather i

than clarifies the interpretation. TVA considers that the (xistin-language in the rule and i

NUREG-1022 and its supplements is adequate to i

provide consistent reporting.

l 4

j 14 A " threat" i; a potential or imminent source TVA considers that the Staff's conslusion is l

of peril. The known physical phenomenon o-incorrect.and is a disincentive for conservative condition that may catse'the peril does not management actions as the Statements of j

have to exist at the site for the actual Consideration state, "the licensee is to decide if j

threat to exist. An actual threat generates a phenomenon or condition actually threatened the 2 1

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TVA LO!?'ENTS NUREO-1022 are utilized. They noted that these events are f airly coccon and should not be reportable unless the required evacuation affe-ts the entire facili*- or a =ajor part of it.

The Commission f

agreer."

(Sec 48 FR 39041) l l

I l

20.

Significant in plcat spills in excess of 55 The '*are of interest' test is not stipulated in gallons or floods have been under reported by the regulaticns. While at times l i c e'is ee s l

licensees in some instances.

These events are voluntarily rtrort these events due to the l

of interest to the NFC because of the specifics of the event, the Staff requesting that potential for equipment damage. significant every spill be reported is not warranted.

The l

hampering of site personnel in the performance a*1y sp:lls that should be reported are those the of duties, implications for environmental licensee ceec-r..<e a significant impact on plant qualifscation. intersystem loss-of-coolant safety.

accidents (LOCAs), precursors to more serious events, or the potential for fuel becoming uncovered. [Page 69J

- The leaking system is a safety system and potentially invcives an intersystem LOCA.

- The intent is to have significant spills and floods reported.

The leaking fluid is radioactive and contaminates a significant area, contaminates several individuals. or significantly contaminates one individual.

The leaking fluid is not radioactive, but is in a vital area, and potentially af fects vital equipment....

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NUPIG-1022.

TVA M fEhr3 H

.-t j

t Electrical equipment was vetted down. such j

l as frnm the containment spray headers.

i Flooding hampers operations personnel H

~ -

performance of their duties (e.g.,

f lot,oing L

in. excess of sump pump capability, a depth i

of seteral inches on the floor, contamination requiring new access control measures, or electrical h =ards).

I i

+

IVA disagrees with the Staff's rationale as

[

t 21.

A fire occurred in the three electrical 460+V, j

240-V, and 120 'I power trays in a boiling-indicated in the Stat-ment of Considerations, "the j

vatcr reactor BWR l.ryvell while the pirnt was scope [of the rule wasl narrowed so that the

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defealed. -7he a**:minum conduits over the hazard must hamper the ability of site personnel l

uppar cable teays were melted. We1.fing and to perform safety related activities affecting I

electrical activities were in pro;;tess in the plant safety." The Conscission further states that vicinity at the time of the fire and the event (evacuaticn) must "[significantly l

l electrical arcisg was acticed in the trays.

hamperj the ability of operators to perform The. components affected vere the d_fvell an necessary safety function,." While a fire in a floor drain pumps, recirculatior. loop va! vet, atal ares or affecting safety related components

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nuclear instrumentatian, and d yvell blowers ay t n cer other reporting requirements, fires in and da :pers.

Ex< Apt for the cables, no tnem,elve-are vst antcmatically reportable under

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j equipment appesreu damaged.

thi:: sec

.or..

t; I

An ENS notification is re gired oc.cause the fire occurred in a vita! area anu affected

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l safety-related equipe nt iu.ee ral syste-s.

l 1

4 I

The licensee is required to submit an LER l

.under M0.73(a)(2)(x) and MO.13(a)(?)(vii).

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[Page 71]

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TVA CCMMEFr5 N'JREG-1022 22.

A fire occurred when a 4160-V to 480-V See co= ment 21. above.

transformer exploded in the turbine building.

The fire was extinguished by the fire brigade g) using carbon-dioxide extinguishers within 9 minutes. There were no injuries or other plant damage.

An ENS rotification is required because a fire I

of this nature and duration veuld typically involve hampering of personnel by smoke and j

heat, include a control room ventilation isolation, evacuation of the turbine building.

~~

summoning the fire brigade and fire department, and perhaps c secondary side l

l initiated transient.

An LER is required.

y

[Page 71]

23 The licensee is required to submit an LER See comment 21. above.

because the evacuation of the turbine building was not a prec-utionary measure, cperators were hampered in the performance of their duties, and individuals receired ceasurable uptakes of radioactive materials. {Fage 73}

24.

Section 50.72 of 10 CFR requiras that ATWS This is a new Staff position.

10 CFR 50.73 does not address actuation of ATV3 mitigation systems.

mitigation systems function as a backup for RFS and that they initiate specific ESF system operation, as needed, while minicizir g inadvertert scrams or challenges to other safety systems. Therefore, ATWS actuations should be reported under these criteria.

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NUREG-1022-TVA COMMENTS I

31.

Licensees generally do not have to report TVA considers that the " perceived by the public to media and government interactions unless they be related to [public health and safety]" test is j

are related to, or percei.ved by the public to not sufficient to make this condition reportable.

be related to, the radiological health and In today's society, mauy members of the public j

safety of the public, onsite personnel, or perceive any unusual event that occurs at a

[

protection of the envirca9ent.

[Page 109}

nuclear power plant, and even some normal events, i

as "related to the health and safety of the public.", Therefore, TfA suggests that this i

example be reworded to read as follows:

}

i

" Licensees generally do not have to report media nd government interactions unless, in the i

licensee's iudzement. they are related'to, or vill

]

be perceived by the public..."

i l

32.

When a press release or government As discussed in comments 29 and 31 above. this notification is not required by plant example should be clarified to note that the EES L

procedures, the ENS notification clock st-notification clock starts at the time of the i

at the time of the decision to plan the press decision by appropriate levels of plant management release or make the government notification.

to make the government notification or to issue a

{

l

[Page 109}

press release.

i I

33.

Planned or low-level radiation releases are In this example the NRC has concluded that the I

i not specifically reportable under this event is reportable because it has received media I

criterion. However, if a release receives attention. As previously discussed in comment 31.

l media attention, the release can no longer be above, many events are misunderstood by members of l

t considered routine and the situation is the media, or receive media attention because they l

reportable under this criterion. [Page 1101 occurred at a nuclear power plant. TVA considers I

that for these types of events, the NRC resident inspector can provide the NRC with timely i

information, as necessary.

t i

t I !

o TVA COW.EhTS NUREG-1022 Furtherecre. TVA firmly disagrees that this event is reportable under 50.72(b)(2)(vi) since it is related to the health and safety of the public not or onsite personnel, or protection of the environment: does not involve issuance of a press release; and did not require notification of another government agency. Therefore, this example should be deleted.

This event could be construed by the reader to 34.

Thirteen persons vere evacuated from a building and were found to have been reply that any and every contamir.ation event is contaminated by low levels of noble gas.

The reportable to another government agency." and therefore becomes reportable to NRC under this primary auxiliary building ventilation system had been out of service for maintenance for criteria.

If the staff wishes to use this as an several hours uhile noble gas leaked from the example of a reportable event, then it must letdown gas treatment system and accumulated clearly specify why notification of the state inside the building.

The ventilation system agency was required.

In addition, TVA firmly returned to service and there vere no disagrees that this event is reportabt.e as an LER l

l vas offsite airborne radiation releases. The since it clearly does not meet the criteria in 50.73(a)(2)(x) or 50.73(a)(2)(v) as a reportable licensee notified the appropriate State agency event.

TVA considers that if the staff vishes to and the NEC resident inspector of the use these types of examples as examples of personnel contamination.

reportable events, then the basis for concluding An ENS notification is required within 4 hours4.62963e-5 days <br />0.00111 hours <br />6.613757e-6 weeks <br />1.522e-6 months <br /> the event is reportable under specific criteria under this criterion because of the must be provided.

In this case the staff merely notification of the State agency of the stated that the event is reportable under certain inadvertent radiological contamination of criteria without any basis for this conclusion.

plant personnel.

This and many other events reportable under this criterion also are reportable under more limiting reporting criteria.

In this case, an ENS notificatton is required within 1 hour1.157407e-5 days <br />2.777778e-4 hours <br />1.653439e-6 weeks <br />3.805e-7 months <br /> under 450.72(b)(1)(vi) and an LER is required under both 950.73(a)(2)(x) and t$0.73(a)(2)(v).

[Pages 112 and 113]

i {.

.