ML20195H638

Draft NRC Insp Manual Chapter 2515, Light-Water Reactor Inspection Program - Operations Phase

ML20195H638
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Issue date:	05/09/1999
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2515, NUDOCS 9906170107
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NRC INSPECTION MANUAL PIPB MANUAL CHAPTER 2515*

LIGHT-WATER REACTOR INSPECTION PROGRAM - OPERATIONS PHASE 2515-01 PURPOSE To establish the inspection policy for the light-water operating reactor inspection program.

2515-02 OBJECTIVES 02.01 To obtain factual information providing objective evidence that power reactor facilities are operated safely and licensee activities do not pose an undue risk to the public.

02.02 To determine the causes of declining performance before such performance reaches a level that may result in an undue risk to the public.

02.03 To identify those safety significant concerns that may have generic applicability.

2515-03 APPLICABILITY This inspection program is implemented when an operating license is issued for a facility. Portions of the light-water reactor inspection program for the startup phase (IMC 2514) will also be conducted during the initial operation of a facility. The light-water reactor inspection program for the areoperational testing and o>erational preparedness phase (IMC 2513) will have 3een completed by the time t11s program is in effect.

m ,o This inspection program will remain in effect until the facility is permanently '

Eg shut down and enters the post-operational phase (c.f. , IMC 2561, " Decommissioning g Power Reactor Inspection Program").

$o h 2515-04 DEFINITIONS OF INSPECTION FREQUENCIES

@$ Triennially or Every Three Years (T): The inspection effort should be performed yg every three years.

m En h Biennually or Every Two Years (Z): The inspection effort should be performed every 2 years.

Annually (A): The inspection effort should be performed every year. l Issue Date: 5/9/99 2515* DRAFT J L ( '] 0103

Semiannually (S): The inspection effort should be performed two times each year l so that normally the interval between inspections is no less than 4 months and no greater than 8 months.

Quarterly (0): The inspection effort should be performed four times each year j so that normally the interval between inspections is no less than 2 months and no more than 4 months.

Bimonthly (B): The inspection effort should be performed approximately every two l months so that normally the interval between inspections is no less than 1 month

.and no more than 3 months.

Monthly (M): The inspection effort should be performed approximately on a j monthly basis so that normally the interval between inspections is no less than 20 days and no greater than 40 days.

Weekly (W): The inspection effort should normally be performed at least once every week.

Biweekly (X): The ins during each two weeks.pection effort should normally be performed at least once When Reauired (R): The ins)ection effort should be performed when the activity I or event occurs at the faci'ity as specified in the guidance section of specific  !

inspection procedures (e.g. refueling outages).

2515-05 RESPONSIBILITIES AND AUTHORITIES 05.01 Director. Office of Nuclear Reactor Reaulation

a. Provides overall program direction for the reactor inspection program.

b. -Selects, subject to review and approval by the Commission, the area to receive special emphasis under the generic safety issue team inspection program element.

c. Develops and directs the implementation of policies, programs, and ,

orocedures for regional and hc;dqu;rters inspection of applicants,  ;

licensees, and other organizations subject to NRC jurisdiction. 1

d. Assesses the effectiveness, uniformity, and completeness of regional l implementation of the reactor inspection program.  ;

05.02 Associate Director for Insoection and Proarams. Directs the development of the inspection program within NRR.

05.03 Director. Division of Insoection Proaram Manaaement (DIPM). Manages inspection program development within NRR, develops and prepares revisions to the reactor inspection program, oversees regional-implementation and serves as the NRR contact with the Regional Offices in the area of program development and implementation. DIPM is responsible for developing team inspection procedures.

05.04 Directors. Technical Divisions. NRR. Develop the technical content and prepare periodic revisions to the requirements and guidance contained in inspection procedures related to their areas of responsibility.

DRAFT 2515* Issue Date: 5/9/99 DRAFT

f 05.05 Reaional Administrator l

l a. Provides program direction for management and implementation of the l inspection program elements performed by the Regional Office.

b. Ensures, within budget limitations, that the Regional Office staff includes adequate numbers of inspectors in the various disciplines necessary to carry out the inspection program described in this chapter, including that which may be needed for regional initiatives and reactive inspections.

c. Determines whether inspections conducted under inspection program

elements other than those in the baseline program may satisfy baseline l inspection requirements and at his discretion, takes credit for those l

baseline program requirements that have been satisfied. l

d. Applies inspection resources, as necessary, to deal with significant l issues and problems at specific plants.

2515-06 REGULATORY OVERSIGHT FRAMEWORK The fundamental building blocks that form the framework for the regulatory oversight 3rocess are seven cornerstones of safety: initiating events, mitigating systems, aarrier integrity, emergency preparedness. occupational radiation safety, public radiation safety, and physical protection. These cornerstones have been grouped into three strategic areas: reactor safety, radiation safety, and safeguards. This framework is based on the principal that the agency's mission of assuring public health and safety is met when the agency has reasonable assurance that licensee's are meeting the objectives of the seven cornerstones of safety. The reactor ins along with performance indicators (PIs),pection program assessment, and is an integralofpart, enforcement, the reactor oversight process within the framework, which is described in Management ,

Directive 8.X. Acceptable performance in the cornerstones, as measured by the '

PIs and the risk-informed baseline inspection program, is indicative of overall i performance that provides for adequate protection of public health and safety. 1 Another principle of the framework is that there is a level of performance above which the NRC does not need to engage the licensee beyond some minimum oversight. '

Performance indicators reported by power reactor licensees and the NRC's inspection program provide the information used in determining licensee performance in the cornerstones of safety. The risk-informed baseline inspection element of the inspection program is designed to be the minimum inspection oversight that provides indications of performance within areas of the cornerstones of safety that are not measured by the PIs. The PI program reporting guidelines are in NEI 99-02 [ Draft] ' Regulatory Assessment Performance

-Indicator Guideline, endorsed by the NRC.

The regional initiative element of the inspection program will provide diagnostic inspections of identified problems and issues beyond the baseline. Initiative inspections will be planned in response to performance indicators or inspection

findings that result in a change in the Action Matrix thresholds. These changes I to the inspection program are factored in through the assessment process, as further discussed in Section 8.0, below.

I l

Issue Date: 5/9/99 2515* DRAFT

2515-06 OPERATING REACTOR INSPECTION PROGRAM ELEMENTS The inspection program described in this manual chapter is comprised of the following three major program elements:

.l

• Risk-Informed Baseline Inspection Program (Baseline) Inspections l e Plant Specific Supplemental Inspections l - Regional Supplemental Inspections

- Reactive Inspections

- Team Inspections (IP 938XX Series) I e Safety Issue Inspections l The baseline inspection program element, described in Appendix A, is to be It requires inspections of licensee l performed at all operating reactors. performance in the seven cornerstones of sa The baseline and generic safety issues inspections constitute an adequate minimum level of inspection at plants whose overall performance remains in the licensee response band (see MD 8.X). Plants, whose performance is outside the licensee response band, will receive additional plant specific regional supplemental inspection based on their assessed performance in the cornerstones of safety.

Overall, the inspection program emphasizes achieving a balanced look at a cross section of licensee activities im?ortant to plant safety reliability, risk, and at other licensee activities that may warrant additional attention. The i inspection program provides Regional Administrators flexibility in the I application of inspection resources to deal with issues and problems at specific plants.

06.01 Risk-Informed Baseline Insoections. Appendix A fully describes the baseline inspection program. The baseline inspections provide a minimum examination of the plants and licensee activities to determine, along with performance indicators, whether licensees are meeting the objectives of all seven cornerstones, and to identify indications of performance problems to allow further engagement by the NRC before the objectives of the cornerstones are compromised. The baseline inspections are performed by the resident and region-based inspectors. It is the intent of the program that the baseline inspections in certain cornerstones, such as radiation safety, emergency preparedness, and physical protection, will be perforrned by region-based specialists. ,

l The baseline inspection procedures must be completed at every plant at a l prescribed interval. In certain cases, completion of some inspection require-ments may be accomplished through other inspections. See 2515-07.05. The i inspection procedures included in the baseline inspection program are based on "inspectable areas" for the seven cornerstones of safety. The oversight I

framework identified key attributes for each cornerstone that need to be verified I to have a reasonable assurance that the cornerstone objectives are met. Licensee j

' performance within the key attributes are then measured by either a 3erformance indicator, a risk-informed inspectable area, or a combination of bot 1 indicator and inspection.  !

DRAFT 2515* Issue Date: 5/9/99 DRAFT

The baseline inspection procedures are organized by cornerstone and include the inspectable areas associated with the cornerstone. The baseline inspections are performance-base and risk-informed and emphasize the observation and evaluation of ongoing facility operations and supporting activities affecting the safety function of facility structures, systems, and components. The baseline inspections are risk informed through (1) the inspectable areas, which are based on their risk importance in measuring a cornerstone objective: (2) the inspection frequency and sample size for each inspectable area, which are based on risk information; and (3) sam)le selection of activities and equipment to inspect in each inspectable area, w11ch is based on risk insights that will be modified by plant-specific information.

Appendix A contains a list of baseline inspection procedures and specifies the required frequency for their performance.

Inspection recuirements are the controlling factor in determining the amount of inspection effort necessary to complete the baseline inspections. Appendix A provides an estimate of the hours associated with each inspection procedure for overall resource planning only. The inspection hours allocated for the baseline 3rogram in each inspection procedure are only an estimate for a typical plant for Judgeting purposes. These hours are only an estimate of the average time it may take to complete the procedures

• requirements. It is expected that the actual hours needed to complete an inspection procedure at a particular plant will vary from the estimate.

06.02 Plant Soecific Suoolemental Insoections l l

a. General. The Regional Administrator has been allocated a specific quantity of discretionary inspection program resources to apply to plants that require additional inspection effort. The need for additional inspection is based on plant performance in each cornerstone of safety or )

in response to a significant event. i

b. Reaional Suoolemental Insoections. Regional supplemental inspections and ,

the plants at which they apply are identified through the assessment j process based on PIs and resul;.s from the significance determination i process (SDP-) (see IMC 06XX). The additional inspection effort should be planned using selected inspection procedures that are focused on understanding the underlying causes of the performance concern that j necessitated the additional inspection and that are not included in the >

baseline ins)ection arogram element. Appendix B is a list of inspection procedures t1at may 3e used for regional initiative inspections.

c. Reactive Insoections. Reactive inspections are generally unplanned inspections that are conducted 0; determined by the Region;l Administrator in response to significant events or specific issues. This part of the j i program includes conducting augmented team inspections (AITs). Reactive inspections may also be conducted to follow up on findings from other inspections that require immediate attention.

d. Team Insoections. Team inspections are. those which are multi-disciplined in both scope of the inspection and composition of the team. They require a team leader to manage the inspection. coordinate inspection results daily during the inspection, and prepare the inspection report based on input from team members.

Issue Date: 5/9/99 2515* DRAFT

I Team inspections provide an independent, in-depth, and balanced assessment of one or more aspects of licensee performance. These inspections are conducted by headquarters teams (HT) and by regional office teams (RT).

l The teams may be comprised of NRR personnel, resident and region-based inspectors, and contractors. Team inspections are scheduled as necessary and within the limitations of IMC 0301 " Coordination of NRC Visits to Commercial Reactor Sites." Team inspections are generally those listed in the 938XX series of inspection procedures. For a uniquely designed team inspection, time should be charged to the 938XX procedure most l representative of the inspection performed. )

Note that team inspections do not include those inspections in which a j group of inspectors is assembled to complete a number of unrelated inspection procedures or to perform a broad or in-depth examination of a particular area, for example, inspection of the occupations raMation safety cornerstone. These inspections are normally conducted to complete a scheduled regional initiative inspection or, in some cases, a mixture l of regional initiative and baseline inspection elements.

06.03 Safety Issues Insoections. As concerns arise with specific safety issues.

they may be addressed solely through the NRR license review process and the use l of regulatory communications issued to the licensee. If the concern is of safety significance, it may be appropriate to initiate a one-time inspection effort under the . safety issues program element. These inspection efforts will be established by temporary instructions (tis). For example, when it is determined that a safety issue addressed in a bulletin or generic letter requires inspection verification or followup, requirements and guidance for the inspection will be developed and issued in a TI. Unless such a TI is issued inspection followup is not required to verify completion of licensees' actions discussed in a j bulletin or generic letter. When a TI is issued, overall assessment ratings should be considered in establishing priorities for conducting these inspections.

Plants to be inspected will be designated in the TI.  !

The budget resources applied to safety issues inspections are established by NRR.

It is the intent that the inspections be conducted within the resources budgettA for that element of the program. l Specific criteria for closing a TI will be addressed in the TI itself. In l general, tis should not be closed out until relevant safety issue items have been completed by the licensee and verified by inspection. However, exceptions may be considered when the licensee's schedule for completing the remaining items is acceptable, properly documented, and is not a critical element to resolving the safety issue.

06.04 Related Activities Associated with the Reactor Insoection Proaram. All inspections as well as performance indicators reported by licensees =ny TJ1 =d l rc;;ic=1 cffic revicw xtivitics, provide input to the plant performance assessment process. The performance assessment process is to be conducted in accordance with [new document].

2515-07 DISCUSSION i

07.01 General. The inspection program described in Appendices A and B is intended to provide the framework for managing inspection resources without being overly prescriptive. The 3rogram allows variations in manpower availability to be accommodated by a spec fied corresponding program level of effort. At the DRAFT 2515* Issue Date: 5/9/99 DRAFT

same time, a minimum level of inspection objectives at a facility is specified, below which inspection must not decrease. It is intended to place inspection L

emphasis on elements of licensee activities most important to reactor safety, radiation safety, and safeguards and to recognize licensee performance as the basis to manage inspection resources.

Using a performance-based, risk-informed approach, inspectors focus their attention on activities important to safety. Performance-based inspection emphasizes observing activities and the results of licensee programs over reviewing procedures or records. For example, an inspector may identify an issue through observing a plant activity in progress, monitoring equipment performance, or the in-plant results of an activity (e.g. an engineering calculation)--and then let the observed discrepancy or uncertainty lead to evaluation of other areas. Discussions with plant personnel and reviewing documents should be used to enhance or verify performance-based observations. These procedures are designed to emphasize observation of activities, or those portions that are most risk significant in terms of safety and reliability. It is expected that j resident and region-based inspectors will have the necessary technical capability '

to accurately observe and evaluate the activity, i

NRC inspectors perform a basic mission in determining whether a licensee operates l the plant safely and meets current regulatory requirements and commitments.

Limiting inspection to identification of specific instances where a licensee fails to meet such requirements and commitments could result in correction of symptoms rather than correction of underlying causes of licensee problems. The NRC inspection program covers only small samples of licensee activities in any particular area. The inspection and assessment processes establish thresholds for determining the significance of issues and to determine those issues that may require additional evaluation and . follow up. Thus, the inspection program requires that inspectors and their~ management evaluate problems to determine if follow up inspections are necessary to diagnose whether a safety concern represents an isolated case or may signify a broader, more serious problem. I Licensee management controls (e.g. . OA. safety committees, etc.) should be examined to determine if weaknesses in these controls contributed to the safety concerns.

07.02 Allocation of Resources as a Function of Performance Assessment. The results of plant performance assessments are an important factor in defining the inspection program for each plant. The baseline inspections are the minimum level of defined requirements for all plants and additional regional initiative inspections will be planned for plants whose performance is below a certain level, i.e., the licensee response band. The amount and focus of the additional regional initiative inspectione will be proportional to the plant's assessed performance and the nature o t e issues that arovide the indication of that ,

performance. See MD 8.X for w e detailed guicance on responding to licensee  ;

performance.

Only baseline inspections and applicable generic safety issues inspections will be planned and conducted at plants whose overall performance (all performance indicators and inspection findings) is determined to be in the licensee response band. Regional initiatives may be 3erformed as a result of individual significant problems that are identifiec or as a result of reported events.

Plants whose performance is determined to be in the increased regulatory response band (threshold with licensee response band has been crossed) should have additional regional initiative inspections planned to examine the root causes of Issue Date: 5/9/99 2515* DRAFT

the ' performance degradation and corrective actions of identified findings or safety issues that indicated performance in this band.

For a plant whose performance is in the increased regulatory response band, additional regional initiative inspection will be necessary to determine the cause'of the degradation in performance. In addition, the Regional Administrator will consider the use of a team inspection in arriving at an integrated assessment of the root causes of prevailing problems.

07.03 Allocation of Resources Amona Proaram Elements. The allocation of l resources among the three principal inspection program elements (baseline, plant specific regional initiative. and safety issues) is provided for each year in the l budget process, with most of the resources allocated to the baseline program and regional initiative inspections.

07.04 Comoletion of Insoection Procedures. The baseline inspection procedures represent the minimum inspection necessary to allow the NRC to assess performance. This means that the inspector is to perform the requirements in  :

each inspectable area within the baseline inspection procedures unless approval is given by the Director. Division of Inspection Program Management. NRR. ,

Regional initiative inspection procedures usually contains many specific inspection requirements. These inspection requirements define those areas to be considered by the inspector in performing the procedure to make a determination 1 that the objective (s) of the procedure have been met. For inspections conducted under the plant specific regional initiative and reactive inspection program elements in appendix B, there is no programmatic degree of completion that must be attained. Rather, the amount of inspection and the degree of completion should be commensurate with the purpose of conducting the particular inspection  ;

and should normally be planned before the inspection. This could result in an  ;

inspector spending more or less time on the procedure than is indicated in the resource section of the procedure.

Inspection procedures identify requirements that the inspector must consider while evaluating the inspectable area. These requirements may not be the same as NRC requirements placed on a specific licensee. As such, it is not implied or intended t' hat inspection program requirements are to be levied on the licensee.

Any attempt to force inspection program requirements on the licensee constitutes misinterpretation of NRC inspection philosophy and misuse of inspection requirements. .

Temporary Instructions are issued for specific insaection purposes. For inspections performed using a temporary instruction, t1e inspector is expected to complete all inspection requirements listed.

07.05 Comoletion of Baseline Insoection Procedures Throuah Other Insoections.

Inspections conducted under other program elements (e.g., regional supplemental and reactive inspections, team inspections and safety issues inspections) may l satisfy some inspection requirements under the baseline inspection program element. For generic safety issue inspections. early planning is essential to identify those baseline inspection procedures or parts thereof that will be completed during the inspection.

In all these cases, following an assessment of whether a need still exists to complete the baseline inspection procedures in those areas, the Regional Administrator may take credit for those baseline inspection requirements DRAFT 2515* Issue Date: 5/9/99 DRAFT

satisfied by other inspections. The integrated inspection plan (2515-08) is l appropriately updated by the regional office.

07.06 Feedback Process. It is through inspecting and evaluating licensed activities that inspectors can recommend changes to inspection program rec uirements. Inspectors must determine whether a matter affecting safety exists anc whether substantial additional protection is required. Identification of a safety issue where no licensee commitments or specific regulatory requirements apply is aapropriate for inclusion in the feedback process. On the other hand, specific nspection findings that do not point to a safety issue are not appropriate for this feedback process. l 2515-08 INTEGRATED INSPECTION PLANS l To facilitate management of inspection resource allocations and tracking of inspection programs. regional offices shall annually develop site-specific inspection plans consistent with the Inspection Planning (IP) module of- the Reactor Program System (RPS). Under circumstances where the operation of multiple units at a site is not comparable (e.g.. Indian Point) the inspection plan should be specific for each unit. The regional integrated inspection plan l (i.e., the integration of individual site or unit plans) should project the planned inspection activities and available resources for all sites for at least the next 12 months. The integrated plan should also provide for a summary of the l fraction of regional resources allocated to each of the individual program elements discussed in section 2515-06 of this manual chapter for each site.

The results of the annual performance evaluation and semiannual performance review shall be used to schedule baseline inspections and to determine the amount and direction of planned initiative inspection activities at each site.

The basis for the allocation or significant reallocation of resources among the j sites will be documented. It is expected that the integrated plans will be living documents and be reviewed periodically, adjusted, and documented to reflect shifts in plant performance and safety concerns. However, periodic management reviews and updates of individual site plans and the regional l integrated inspectior, plan should be accomplished at least semiannually as part of the assessment process that is discussed in MD 8.X. l 2515-09 INDEPENDENT INSPECTION As a general rule, inspections should be conducted in accordance with inspection procedures. However, it is not possible to anticipate all the unique circum-stances that might be encountered during the course of a particular inspection '

and, therefore, individual inspectors are expected to exercise initiative in  :

conducting inspections based on their expertise and experience, as needed to l assure that all the inspection objectives are met.

There is no numeric goal or minimum requirement for independent inspection by any inspector. Independent inspection effort is to be charged to the procedure the inspector has been assigned to conduct, since the effort is directed toward the objectives of that particular procedure. If potential safety concerns outside the scope of the procedure being executed are identified in the course of ,

conducting an ins >ection, the concerns should be pursued to the extent necessary i to characterize t1e issues to the inspector's supervisor so that a determination can be made as to the need for and timing of further inspections.

I Issue Date: 5/9/99 2515* DRAFT l

l

2515-10 RESIDENT INSPECTOR POLICY The resident inspectors provide the major onsite NRC presence for direct observation and verification of licensees' ongoing activities. The resident inspectors also are 3rimary NRC onsite evaluators for site events or incidents.

The greater part of nitial event-related inspection effort will be performed by the resident inspectors, who may be supplemented by other inspectors depending l on the type and significance of the event. Regional managers will decide when I normal inspection activities will be resumed by those involved with inspecting I

events.

The following is the general policy on the extent to which resident inspectors l are to provide coverage during late evening and early morning hours and weekends j l at all sites with one or more units licensed for operation.

e For sites with at least two resident inspectors, at least one resident i inspector or qualified region-based alternate should provide site coverage i during working hours, Monday through Friday from 7:30am to 4:15pm. The  ;

intent of this guidance is that site coverage, by someone qualified as a resident inspector or equivalent, not be interrupted for more than three consecutive working day (n.b. . Friday-Monday and Tuesday-Wednesday are one i consecutive working day). Consequently, for extended absences of the resident inspectors, such as for attendance at inspector counterpart meetings, arrangements should be made for appropriate region-based staff coverage. The assigned region-based inspectors should have been qualified l in accordance with IMC 1245, but need not have been qualified as resident  !

inspectors. When region-based inspectors are not available for site coverage, the NRR project manager for the site may provide the required coverage. In order to maximize NRC's efficiency, regional management should attempt to schedule region-based inspections for this time period, e For sites with only a single resident inspector (e.g., because of a vacancy) the guidance described above should be followed to the maximum extent possible.

e The Deputy Executive Director for Regulatory Programs, should be notified when the guidance can not be met.

e In general, the resident inspectors are expected to devote about 10

)ercent of the normally scheduled onsite time to inspection of licensee

)ackshift activities. In this context, backshift is defined to mean all times other than the normal licensee business hours (day shift) on non-holiday Mondays through Fridays. Backshift coverage should be primarily focused on direct observation of in-plant or control room activities. Backshift coverage should include steady state conditions as well as periods of considerable activity. During outage periods or other Seriods of high backshift activity, consideration should be given to laving the residents or region-based inspectors spend a larger fraction of their work week on the backshift.

e As a subset of backshift time, resident inspectors should devote about 5 percent of normally scheduled onsite time to weekends, holidays, and the weeknight hours between about 10:00 p.m. and 5:00 a.m. This is referred to as " deep" backshift coverage. These inspections should be of at least several hours duration. Inspections on Saturday or Sunday should be performed at least once per month. If deemed appropriate by regional management, this coverage may be provided by regional inspectors in lieu DRAFT 2515* Issue Date: 5/9/99 DRAFT

of or in addition to resident inspectors. (Credit may be taken for regional and head coverage goals.) quarters inspection coverage in achieving deep backshift e Inspectors should be sensitive to and avoid being predictable in l scheduling their backshift coverage. In order to maximize the benefit of deep backshift coverage, inspectors should try to not develop a pattern. l Further, effort should be made to spread the deep backshift coverage over as many days as practicable.

{

2515-11 INSPECTOR POLICY I 11.01 Insoection Assianments. Regional inspectors conduct inspections as directed by their supervisors. In addition to baseline inspection program l l procedures, regional inspectors often will conduct inspections under other program elements described in this chapter. Certain aspects of their inspection activity may be conducted in the regional office: i.e., portions of procedure review and administrative program inspection.

11.02 Backshift Insoections. There is not a specific goal for performing backshift inspections by regional inspectors, but backshift inspections should be performed whenever required to complete the intended scope of the inspection.

11.03 Insoection Coordination. The senior resident inspector and the Regional Office projects division must be kept advised of regional and headquarters inspector activities at the facility. The associated regional branch chief shall l ensure coordination of regional and headquarters inspection activities in accordance with IMC 0301, " Coordination of NRC Visits to Commercial Reactor

~

Sites." Regional and headquarters-based inspectors should contact the senior resident inspector before each inspection to obtain information concerning the availability of specific licensee personnel and the status of plant conditions that may affect the planned inspection. In addition, they should contact the senior resident inspector as soon as is convenient after their arrival at the i site to ensure a coordinated NRC presence at the facility. They should advise 1 the senior resident inspector of changes to their planned inspection effort and schedule for the licensee exit interview. The senior resident inspector should  :

inform the regional and headquarters inspectors of -any unique activities in 3rogress and offer specific inspection suggestions. The regional and leadquarters inspectors should brief the senior resident inspector about the  !

results of their inspection before the exit interview with licensee management.

The senior resident ins)ector should attend all exit meetings where significant  ;

issues are expected to 3e discussed. l 11.04 Third Party Assistance. On occasion licensees ask inspectors for recommendations for obtaining help solving programmatic problems. This can create problems as inspectors are prohibited from recommending the services of individuals or organizations for a project under NRC regulatory jurisdiction.

Providing such a recommendation violates 5 C.F.R. 2635.702, which prohibits Federal employees from using public office for endorsement of any product.

service, or enterprise. For further information refer to EDO Field Policy Manual No.19, " Guidance For Recomending Third Party Assistance to Licensees."

2515-12 GENERAL INSPECTION POLICIES Issue Date: 5/9/99 2515* DRAFT

12.01 Manaaement Entrance and Exit Meetinas. Inspectors are required to meet with licensee management as part of every inspection. Region-based inspectors l should hold an entrance meeting with the senior licensee representative who has I responsibility for the areas to be inspected. Each inspection conducted by l resident inspectors and region-based inspectors must include discussing inspection results with licensee management. This communication of inspector observations is an integral and important part of every inspection, whether done daily during the course of an inspection. or periodically via status meetings.

At the conclusion of an inspection, inspectors must discuss their preliminary findings with licensee management at a scheduled exit meeting. Management and exit meetings with licensee personnel should be scheduled to have the minimum impact on other. licensee activities necessary to assure the safe operation of the plant.

Time spent on scheduled and periodic entrance and ex'it meetings is considered part of preparation and documentation and should be charged as such. Daily communications with licensee management is considered to be an integral part of every inspection procedure and the time used for such routine communications should be charged to the inspection procedures used.

12.02 Screenino Written Reoorts. The baseline inspection program under the Everit Follow-up inspectable area will screen each plant event which requires a written report to the NRC for risk significance using the significance determination process for the applicable cornerstone. If the initial screening determines that the report issue is of little or no risk significance (i.e., " green"), the issue will be dispositioned, as appro"1 ate, via the enforcement process, and closed in an inspection report. If tx .nitial screening of the event report indicates that the event is a potential dup candidate, then further inspection under the Event Follow-up inspectable area will be required to gather information and q determine if the phase 1 screening criteria are met.  !

12.04 Review of Vodated Final Safety Analysis Reoort (UFSAR). '

For planning inspections, several baseline inspection procedures specify reviewing the plant's UFSAR. This review is intended to provide the inspectors with design bases insights in preparing for inspections and is not intended to be a review of UFSAR accuracy. The general focus of the baseline inspection program is to monitor licensee performance, therefore UFSAR accuracy will not be routinely inspected.

The NRC does rely on the accuracy of the UFSAR in making informed licensing decisions on changes: therefore a limited sample of UFSAR accuracy may be required by baseline inspection procedures or other procedures for regional initiative or regional reactive inspections. Perform these inspections as directed by the implementing procedure.

12.05 Event Reoortina. NRC regulations require licensees to report various .

events and conditions to the NRC either through imediate notification or follow- i up reports. Many licensees inform inspectors of events or conditions in anticipation of their interest in the issue. At no time does licensee i notification of an individual inspector re) lace or exempt the licensee from reporting events and conditions through t1e normal regulatory notification 1 processes. The inspector will remind the licensee of its responsibility to ,

formally notify the NRC when required. Inspectors shall routinely check '

information received during an inspection and independently determine whether NRC reporting requirements apply.

DRAFT 2515* Issue Date: 5/9/99 DRAFT

1 Similarly, when inspectors are given copies of licensee reports and documents, there is an implied agreement to read, digest, and understand such reports. The licensee should be aware that all documents provided to inspectors are subject to Freedom of Information Act requests and may be placed in the Public Document Room. Inspectors do not concur on licensee documents. Inspectors must make licensees aware that (1) their reviews are conducted to judge the adequacy of licensee actions (2) inspectors do not provide advice on issues. and (3) the inspector's views are not necessarily final agency positions.

12.06 Insoector Conduct While in the Control Room. Maintaining a day-to-day pers

. job.pective of plant status is an important aspect of the resident inspector'sAlthou baseline inspection program, the baseline includes a procedure, " Plant Status."

l that provides guidelines for obtaining information in the control room. This procedure will also be used by the resident inspector staff for determining specific inspection activities.

The baseline inspection program does not include routine oversight of operations.

However, for M ant events inspectors must perform sufficient ins)ection to develop an incependent assessment of plant conditions, which will De used in making decisions on NRC's responses to events. Additional guidance for the assessment of plant events is contained in baseline Inspection Procedure " Event Followup ~ Activities that form the basis for this assessment may include l independent measurements, verifying the accuracy of information, control board walkdowns (to observe annunciators, process parameters, switch positions, and other instrumentation), or assessment of licensed operator performance during ongoing activities.

The NRC's goal is to monitor and assess with as little impact on the licensee as

)ossible and at the same time ensure NRC evaluations are timely and accurate.

Juring plant events, timely and independent inspector assessments are crucial; however, the degree of interaction with operators may be limited in light of ,

ongoing control room activities. A great deal of inspector judgement must be '

exercised in establishing a balance between obtaining necessary information and ng1 being intrusive in licensee response activities. The appropriate balance involves numerous variables, including safety significance of the event, complexity of the event, time constraints, and available staffing.

The following guidance is provided to establish a degree of consistency for inspector conduct'in the control room. When the NRC activates its emergency response plan, inspectors should follow the guidance in the applicable emergency response procedure. This guidance is intended for use in situations where the l NRC has not activated it's emergency response plan, however an off-normal event has occurred at the plant. Inspectors should note that some of the guidance, such as inspector location in the control room and not interrupting operators, apply to all emergency situations. While this guidance deals mainly with event responses, specific attributes are applicable to inspector interaction with operators during normal conditions in the control room and outside the control room.

a. During the initial response to events, the assigned senior resident inspector (SRI) or the inspector acting in this capacity is in charge of all other NRC inspectors. These inspectors will respond to the direction of the SRI.

b. The number of inspectors in the control room at any given time should be the minimum number needed to accomplish the agency's work. During an Issue Date: 5/9/99 2515* DRAFT

1 event, there should typically be only one inspector in the control room, unless special circumstances warrant additional inspectors. If multiple l inspectors or other NRC personnel are in the control room during an event.

the SRI or resident inspector will be in charge and will determine and i communicate to the other inspectors and personnel what, if any, assistance is needed. I

c. Inspectors will adhere to the licensee's established administrative policies regarding entry into the restricted or "at the controls" area of {

the control room. For example, the inspector may need to ask the control i room SR0 or RO for permission to enter the restricted area. Under no i circumstances should the inspector demand entry into the "at the controls"  !

area. If such entry is denied, the inspector should escalate the request j to license management and inform NRC management of the issue. For general access to the control room, the licensee's policy should. recognize that inspector access will be unannounced. For inspectors who do not routinely enter the control room, the inspector's identity should be established with the operators during control room entries.

d. While observing ongoing activities in the control room, the inspector should be in a location which is out of the way of operators and does not obstruct their view of the reactor controls and instrumentation, yet the location provides the inspector with a broad view of the control room.

An acce3 table location outside the restricted "at the controls" area is prefera)le. It is recognized that short amounts of time in the restricted area may be necessary at appropriate stable time periods to verify significant parameters.

e. Operators should not be interrupted, questioned or otherwise distracted from performing their duties while responding to an event or while performing other duties where their attention must be focused on the task ,

at hand. Also, inspectors should not interfere interrupt, or otherwise disturb communications between operators and communications between l operators and their supervision.

f. If an inspector identifies a significant problem or question about plant or operator safety, which needs to be addressed in an urgent manner. then a discussion should be held in a quiet and quick manner at a time where it will not interrupt ongoing operator actions. This discussion should be held with the shift supervisor or emergency response manager. Non-urgent questions should be held to a more appropriate time. l

g. NRC communications with off-site organizations should be conducted by personnel outside the control room if more than one inspector is available. Possible locations would be the NRC phone in the TSC or other phones outside the control room that have been agreed upon with the licensee. This guidance does not prohibit inspectors from making phone calls from the control room. For those occasions where only one inspector is available, initiating a phone call from the control room is acceptable provided the licensee agrees on the use of the phone and the phone conversation will not disrupt control room activities.

h. Because of the authoritative role of the NRC. licensees listen carefully to inspectors and may interpret statements, side remarks, or observations as directives or requirements. Consequently, open, clear, and direct communications between inspectors and licensees are particularly important during events.

DRAFT 2515* Issue Date: 5/9/99 DRAFT

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12.07 Conference Calls With Licensees Durino an Onacina Event. When initially responding to an event, the NRC is dependent upon information provided by licensees and inspectors at the plant (typically resident inspectors). This

, information is used for initial assessments and response decision-making.

I rovided via notification to the NRC Operations l l.icensee information Center pursuant is typically to 10 CFR 50.72 andp/or conference calls between the staff and the

! licensee. The NRC values conference calls as an efficient method of obtaining i accurate and timely information. Also, they promote a mutual understanding of l the facts and any concerns.

When conference calls are held during an ongoing event or situations where heightened licensee attention is being directed to a plant evolution. caution is needed.in scheduling and conducting the call. While information obtained in a conference call is extremely valuable to the NRC's overall understanding of a plant event the overwhelming goal is that a conference call will nol interfere or detract from the licensee's ability to safely operate the plant. The following guidance should be utilized for conducting conference calls with licenses during abnormal plant conditions. Examples. of abnormal plant conditions would be the declaration of a Notification of Unusual Event (NOVE) or an Emergency Operating Procedure (EOP) currently being utilized.

a. NRC managenant should decide whether a conference call with the licensee is needed and if conducting a conference call is appropriate at that particular time. NRC management may want to discuss with senior licensee management the possibility of conducting a conference call. The stability of the plant is the primary factor in deciding on a conference call.

Other factors to be considered in this decision include: the current level of NRC staff understanding and information available for the event; the safety significance of the event; the complexity of the event; and the current level of licensee activity in mitigating the event.

b. For the majority of occurrences the licensee should be informed of the NRC's desire to have a conference call by the senior resident inspector or resident inspector if they are available. When scheduling the time for the call, the licensee must be included in deciding the most appropriate time, such that the call does not interfere with plant response l activities. Also the licensee should decide which individuals from their l staff will participate in the call.

c. When requesting the conference call, the licensee must be clearly informed of the NRC's desire that the conference call will not interfere with their plant response activities and that delaying the call is a continuous option on their part.

I d. Appropriate NRC technical staff and management should participate in the

! conference call to ensure proper questioning and uncerstancing of the

event / issues. The senior NRC manager on the call should be identified and L responsible for ensuring conference call discussions are properly focused on important issues and that side issues are discussed at a more appropriate time.

e. If time is available, an agenda for the conference call should be i

developed to ensure the call remains properly focused. The licensee should be informed of the proposed discussion topics and planned NRC participants for their preparation for the call.

Issue Date: 5/9/99 2515* DRAFT i

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f. Any follow-up actions resulting from the conference cell should be summarized by an NRC manager at the end of the call to ensure the licensee l clearly understands and agrees with these actions. 1 1

END i

l Appendices:  !

l A. Risk-Informed Baseline Inspection Program l B. Regional Initiative and Reactive Inspection Program Procedures l C. TBD (risk-informing inspections) l I

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DRAFT $1

• Issue Date: 5/9/99 DRAFT l l

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k APPENDIX A RISK-INFORMED BASELINE INSPECTION PROGRAM

1. OBJECTIVES The baseline inspection program is an integral art of the NRC's reactor oversig t process and su) ports the goals and ob ectives of the reactor oversig t process. The o)jectives of the baseline inspection program are: l >

a. To obtain a minimum level of factual inspection information to use in conjunction with performance indicators (PI) to assess the safety

{

performance of power reactor licensees.

b. -To determine the licensee's ability to identify, assess the significance of, and effectively correct issues commensurate with l their risk significance. l

c. To verify the accuracy and completeness of performance indicators used in conjunction with inspection findings to assess the performance of l power reactor licensees. .

d. Provide a mechanism for the NRC to remain cognizant of plant status and conditions. )

l

2. PHILOSOPHY OF RISK-INFORMED BASELINE INSPECTION PROGRAM The baseline inspection program provides indication of licensee performance in areas not measured or not fully measured by performance indicators (PIs) that are reported by the licensees. The program has been developed using a risk-informed approach to determine a comprehensive list of areas to ins)ect within each cornerstone of safety. Those areas are identified as "inspecta)le areas".

Baseline inspections will (1) verify the accuracy of information provided to the NRC by licensee PIs, (2) provide indications of licensee performance in the in'spectable areas, and (3) inspect the effectiveness of licensee problem identification and resolution programs. In addition, the baseline program provides for initially following up events, and for maintaining an awareness of plant status.

a. Maior elements of the baseline oroaram. The following are the philosophical underpinnings of the risk-informed baseline inspection ,

program:  !

1. The oroaram is indicative and not diaanostic. The baseline

-program delineates specific inspection activities to evaluate aspects of licenseo programs and processes and their implementa-tion for findings that are indicative of licensee performance problems. Inspection findings from the baseline program are evaluated for significance and used, along with performance indicators, to assess licensee performance within the cornerstones of safety. The baseline inspections are not diagnostic assessments of licensee performance leading to a root cause determination. Those assessments and root cause determinations are intended to be done during supplemental l Issue Date:05/09/99 DRAFT A-1 2515* Appendix A l

inspection activities that are outside the s' ope c of the baseline inspection program.

11. The baseline ins]ection orocram is risk informed. The risk-informed approac1 means that ins)ectable areas were selected based on their significance from a risc perspective. That is, they are needed to meet a cornerstone objective as derived from a combination of probabilistic risk analysis, operational experience, deterministic analyses insights, and regulatory requirements.

Risk has been factored into the baseline inspection program in four ways: (1) inspectable areas are based on their importance in measuring a cornerstone objective. (2) the inspection frequency, how many activities to inspect, and initial estimates of how much time to spend inspecting activities in each inspectable area are based on risk information, (3) selection of activities to' inspect in each inspectable area is based on a risk matrix modified by plant-specific information, and (4) inspectors are trained in the use of risk-information.

iii. The baseline insoection orocram is the minimum insoection. The overall objective of the program is to monitor all power reactor licensees with a level of defined requirements to indicate whether licensees' performance meets the objectives for each cornerstone of safety. The power reactor baseline inspection program defines the planned activities to monitor licensee performance at a minimum level of NRC effort over a 12-month period.

b. Kev Princioles. Three key principles form the foundation of the baseline inspection program:

i. Insoectable areas. Under the baseline inspection program, all areas where there is a need to inspect a licensee's performance are defined as "inspectable areas". Inspections within these areas were adjusted where licensee performance to meet a cornerstone

, objective is adequately gauged by performance indicators. All the I important aspects of a cornerstone area are inspected where a PI I has not been established (e.g.. design). In cornerstone areas where the PIs provide only limited indication of performance, the i inspectable areas provide indication of the aspects not measured I (e.g. operator performance during an event). If performance of l the cornerstone objective in a cornerstone area is sufficiently l measured by a PI. the inspection effort in the baseline program I only verifies that the performance indicator is providing the l intended data. Attachment 1 presents a listing of inspectable areas associated with each cornerstone of safety.

l l ii. Bases for insoectable areas. Each inspectable area has a basis

! document, which describes the scope of the inspectable area and l explains why the area is included in the baseline program. (See l SECY-99-007.) Reasons may be that (1) the area is linked to the I NRC's mission. (2) the inspectable area involves a key attribute of a cornerstone of safety, and (3) risk information justifies including the area in the baseline inspection program.

The basis document discusses the basis for the inspectable area and includes risk insights (from generic risk analyses and studies).

2515* Appendix A A-2 Issue Date: 5/07/99 DRAFT

analyses of significant precursor events, and the risk informed judgment of an expert Janel of inspectors and risk analysts. The basis document for eac1 inspectable area also identifies whether a 3erformance indicator applies to the area and what inspections may 3e needed to supplement or complement this area.

The baseline inspection procedures have been written to focus on the more risk-significant aspects of the inspectable areas as discussed in the basis documents, aspects that directly support the desired results and promote the important attributes of the cornerstones of safety. The scope of any associated PIs are summarized in the inspectable area portions of the baseline inspection procedures.

iii. Detailed olannina. A third principle in the program is that the regional managers and ins)ectors plan the type and number of activities to inspect eac1 year for each reactor site, based on the inspection requirements in the inspectable areas and risk informed guidance.

3. APPLICABILITY The baseline inspections provide a minimum examination of licensee activities in order to monitor licensee performance and identify risk-significant issues ]

to assess licensee safety performance. The baseline inspections are performed by the resident and region-based inspectors. It is the intent of the program that in-depth inspections of the emergency preparedness. radiation safety, and physical protection cornerstones will be performed by region-based specialists.

Results from the baseline inspections can lead to supplemental inspection activities.

The baseline inspection procedures define the minimum number of observations, samples, or other activities necessary to obtain an adequate assessment of an )

inspectable area. For resource planning Jurposes only, the baseline inspection procedures also provide an estimate of t1e inspection hours associated with each inspection procedure. These hours refer to the estimated average times to complete the inspections for cornerstone areas at dual unit sites. These estimates are not goals, standards, or limitations: rather, they are included to assist in planning resource allocations, and will be revised periodically, based on experience. It is expected that the actual hours required to com)lete an individual inspection procedure at a particular plant will vary from t1e estimate.

4. DESCRIPTION OF BASELINE INSPECTION PROGRAM The risk-informed baseline inspection program is comprised of three parts.

They are:

e Cornerstone-based Inspections e Verification of Performance Indicators e Identification and Resolution of Problems 1

a. Cornerstone-based insoections The safety performance of nuclear power plants is assessed based on performance in each cornerstone of safety. l Issue Date:05/09/99 DRAFT A-3 2515* Appendix A l

e Verifying that a licensee meets the objectives of the cornerstones 3rovides reasonable assurance that the public's health and safety are l 3eing protected. The inspectable areas defined in the baseline 1 inspection program verify aspects of key attributes for each of the associated cornerstones. The cornerstones to which each inspectable area is applicable and their link to the attributes they are measuring i is depicted in the cornerstone table and charts in Attachments 1 and 2. '

Therefore, the baseline inspection program requires that most inspectable areas be reviewed at each nuclear power plant each year.

Several are reviewed at longer frequencies.

This portion of the baseline inspection program also accounts for initially screening plant events to determine, based on risk insights, which events will be followed up, and the minimal effort for resident inspectors to maintain an awareness of plant conditions.

1. Insoection within Insoectable Areas Inspections within inspectable areas provide data on licensee performance in areas that are not measured or not fully measured by performance indicators. The inspections are focused into the more risk important aspects of the plants and licensee activities. The basis for, and ~ scope of. inspections within the inspectable areas are summarized in the inspection procedures. They are based on the inspectable area basis documents in SECY-99-007. The procedures also discuss any applicable performance indicators and the areas of inspection credited to the performance indicator.

The baseline inspection procedures are organized by cornerstone with the inspectable areas for initiating events, mitigating systems, and barrier integrity cornerstones in one procedure. The procedures also contain the level of effort and inspection frequencies for the inspectable areas.

ii. Event follow uo. NRC normally follows up events in three ways.

First events of low significance receive no special follow up by resident or region based inspectors. Low significance events are events such as an uncomplicated reactor trip where the cause is readily identified and. corrected or a small fire that was cuickly extinguished that did not affect containment integrity or cisable safety functions. Secondly, operationally significant events (Defined in Management Directive 8.3) are followed up by a special team (Augmented Inspection Team or Incident Investigation Team).

and thirdly, events of moderate significance receive more follow up than the first and less than the second. The Event Follow-up inspectable area, as part of the baseline program covers events )

of low and moderate significance reported to the NRC under 10 CFR 1 50.72 and 10 CFR 50.73. The inspectable area is used to make an -

initial determination regarding the significance of the event and determine if inspection outside the baseline program is warranted.

Typically, initial follow up on events is done by resident inspectors and, if warranted, more detailed follow up would be done by residents or region based specialists. If ins)ection outside the baseline is not warranted. follow-up will )e conducted l _ within the baseline program as part of the Event Follow-up inspectable area. For those events with low significance, as determined by the Significance Determination Process (SDP) phase 1 screening criteria the follow-up is limited to dispositioning the 2515* Appendix A A-4 Issue Date: 5/07/99 DRAFT l

i event using the enforcement guidance if regulatory requirements l have been violated and documenting those results in the inspection I report. Events judged to be of moderate significance will also be i

evaluated using the Significance Determination Process. For these cases, follow-up inspection is required to gather data and information necessary to support use of the Significance Determination Process.

l Following up significant events is outside the scope of the l baseline inspection program and should be performed with supplemental inspection resources. The determination to follow up events with supplemental resources will depend on the significance of the event and whether the plant has been receiving only baseline ins)ections. The decision on how best to follow up such events will 3e made on a case-by-case basis by NRC regional management and as directed by senior NRC management in accordance with NRC Management Directive 8.3, "NRC Incident Investigation Procedures."

Events of moderate and greater significance will also be reviewed either during the biennial Problem Identification and Resolution team inspection or within an inspectable area to assess the licensee's root cause determination and corrective actions to prevent recurrence. This inspection, focusing on the licensee's root cause and corrective actions, is separate from the follow-up l conducted initially which is focused on determining the risk

significance of the event with respect to the SDP.

Plant events or issues that do not result in a 10 CFR 50.72 or 10

' CFR 50.73 report may be followed up in the baseline inspection

, program through the problem identification and resolution l inspections portions within the inspectable areas. Following up i these types of issues should be restricted to those which are potential SDP candidates.

iii. Plant status reviews. An important aspect of the resident inspectors' job is maintaining an awareness of current conditions at the facility to which they are assigned. This awareness of plant conditions, emerging problems or work, and activities planned by the licensee also will be used by the ins)ectors in determining the specific samples for inspections wit 11n the inspectable areas. Therefore this effort is not considered part of the direct inspection of the baseline program. However, the baseline inspection program includes an inspectable area for plant i status reviews. That inspectable area will be used in conjunction l with the inspectable areas for routine control room and plant walkdowns of all safety-significant plant areas. For example, plant areas that contain equipment included within the sco)e of the maintenance rule, areas with significant radiological lazards.  !

and areas with important physical security equipment would be i included in this activity. Inspection activities would also l include a review of control room logs, observations of some operator shift turnovers, and review or observation of some of the  !

facility's plan-of-the-day meetings and management's review of l plant deficiencies.

The primary objective of these walkdown activities is to ensure that the inspectors are aware of current plant conditions and Issue Date:05/09/99 DRAFT A-5 2515* Appendix A l l

r equi) ment 3roblems and have an appropriate level of understanding of t1e risc significance of proposed or ongoing operations. I maintenance, and testing activities. The inspection activities i will focus on identifying and understanding emergent plant issues, current equipment problems, and ongoing activities and their overall impact on plant risk. These activities also provide an independent assessment of the licensee's effectiveness in entering program, system and component deficiencies into the corrective ,

action program.

J l These activities are important because they will be used in the risk-informed process to select inspection samples and to modify the scope and depth of inspections in other inspectable areas that j support assessment of all cornerstone areas.

b. Verification of oerformance indicators The assessment of plant performance primarily relies on information provided by PIs and inspection findings in areas not measured by PIs. Therefore, the baseline inspection program will periodically review the PI data to determine its accuracy and completeness. The NRC staff will collect and review licensee jclant-specific PIs and will selectively review the objective raw data that should have formed the basis of the Pis.

Each performance indicator will be verified annually. The annual .

l verification will compare the reported PI data to samples of raw data l available from operating logs, corrective action program records. '

maintenance records, etc. Some real-time verification of PIs will be performed in conjunction with inspections in the other inspectable areas for those PIs that are more difficult to accurately verify from plant records. The PI verification inspection will also review corrective action program records to determine if any problems with PI data collection were adequately resolved and updates provided to the NRC.

If a performance indicator is found to be based on inaccurate or incomplete data, then the associated cornerstone cannot be adecuately evaluated, and' additional ins)ections within the areas measurec by the PI should be scheduled. The clarts in Attachment 3 and the basis sections for each inspectable area can be used to determine the focus and scope of such additional inspections. Inaccurate or incomplete performance indicators should be documented in an inspection report.

c. Identification and resolution of 3roblems. The primary means of reducing risk is an effective pro)lem identification and resolution program to correct deficiencies involving human performance, equipment, and programs and procedures. The NRC's confidence in a licensee's program for finding and fixing problems is the basis for conducting only the baseline inspection program at plants whose performance remains in the licensee response (green) band of the assessment action matrix (See MC 2515*). Therefore, the baseline inspection program includes periodic inspections of these programs.

In general, licensees identify problems, including conditions adverse to quality, by three processes: (1) problem reports or condition reports that are initiated by plant personnel when they observe problems: (2) licensee self-assessments of individual departments (such as engineering, operations, and radiation control): and (3) quality assurance audits. Problems identified by any of these processes are 2515* Appendix A A-6 Issue Date: 5/07/99 DRAFT

r assessed by the licensee, root causes may be determined, and corrective actions are implemented, usually under a plant-wide corrective action program. At some plants, individual departments may have their own problem identification and corr ~e ctive action program.

The process for evaluating problem identification and resolution will consist of reviewing the licensees' deficiency reporting process, self-assessments, quality assurance audits, root cause analyses of events, corrective actions, and follow ups to corrective actions to validate effective implementation. The NRC will review the licensee's activities in this area to verify that (1) the scope of licensees' identification and resolution programs bounds the key attributes in the cornerstones:

(2) root causes of problems and issues have been properly determined and corrective actions are timely and effective; and (3) the generic implication or extent of a condition has been considered. If the NRC's review indicates that the licensee has not been identifying and correcting problems for any of the key attributes, additional inspections in that area may be warranted.

The NRC program to review activities in this area has two parts. The first part is conducted during inspection of the associated inspectable area within each cornerstone. The second part is an annual review of the overall problem identification and resolution programs across all cornerstones. The annual review should not duplicate the inspections within the cornerstones.

NRC inspectors will use licensees' self-assessments to help direct these baseline inspections into worthwhile areas. However, licensees' self-assessments will not be used to reduce or replace baseline inspections.

5. ASSESSING INSPECTION FINDINGS The significance of inspection findings will be determined by using the significance determination process described in [new document]. The significance will be reported with the finding and entered into the PIM. ,

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6. DOCUMENTATION OF INSPECTIONS i The purpose of reporting baseline inspections is to document negative findings in support of the assessment process. The degree of acceptability of licensee performance and appropriate levels of NRC inspection resources can be adecuately established based on performance indicators and inspection l fincings. The NRC does not have an objective criteria for evaluating positive findings. Therefore, the assessment process does not incorporate positive findings and they will not be documented in baseline inspection reports.

However, positive aspects of licensees' operations will be reflected in performance indicator results and in those items for which the significance l determination process credits in mitigating the significance of a finding which will be recorded in inspection reports.

Baseline inspection report documentation consists of findings and issues that have been evaluated with the significance determination process, discussions of violations, any unresolved items (URIs) and Exercise Weaknesses (EWs), and -

the review of significant plant events. All of these items should be entered into the plant issues matrix (PIM). Where there are URIs. the report will explicitly state what information is needed in order to resolve whether or not 1 Issue Date:05/09/99 DRAFT A-7 2515* Appendix A l

there has been a violation of NRC requirements. No inspector follow items, other than URIs and EWs uill be identified in the inspection report.

Inspection findings involving enforcement shall be described sufficiently to identify the requirement violated and shall meet the NRC Enforcement Policy.

Inspection results will be documented in accordance with IMC 0610.

. Inspection reports must provide sufficient information for a knowledgeable observer to correctly assess the findings using the significance determination process. For those reactor operations inspection findings that need an SDP phase 2 evaluation, document the inspector's assumptions that su) port a phase 2 evaluation and additional .information needed to fully assess t1e risk of the finding (e.g. status of other systems, compensatory actions planned to be taken, other factors that mitigate the significance). The resulting  :

significance determinations from the SDP are to be recorded in inspection i reports along with the assumptions and intermediate step conclusions that support this result for, findings that exceed the licensee response (green) band.

I

7. PLANNING Notes: During the Baseline Pilot Program:

l 1. . Regions should inspect each inspectable area at least once at one of the pilot plants within the region.

l 2. _ The level of effort for the baseline procedures is not dependent on the number of units at a site.

l -(3) The use of Attachment 3. Table F to document detailed aspects of each inspectable area _is required until automated systems become available until.

a. Annual insoection olannino. See Attachment 3. Tables A through F. To f facilitate management of inspection resource allocations and tracking of inspection programs, regional offices shall develop annual site-specific baseline inspection plans. Under circumstances where the i operation of multiple units at a site is not comparable _(e.g., Indian Point), the inspection plan should be specific for each unit.

Annual inspection planning is conducted to provide coverage of all cornerstone PIs, inspectable areas in the baseline inspection program, additional inspection needed when a licensee crosses an Action Matrix threshold and areas of special em3hasis. The initial planning for the baseline inspection program will 3e based on the level of effort of inspection activities for each inspectable area, which is established in the program. Resource planning will be based on the cornerstones and not the individual inspectable areas in that, as site activities warrant ' adjustments of the level of effort between inspectable areas within a cornerstone may be made.

Risk Information. Matrixes (RIMS) are tools to be used in determining which activities, systems, or components are to be inspected in the baseline program. RIM 1 is contained in Attachment 4. RIM 1 information was incorporated into the development of the inspectable areas and other procedures. RIM 2 is contained in Attachment 5 and should be used in making risk-informed system selections until a plant specific version is available.

2515* Appendix A A-8 Issue Date: 5/07/99 DRAFT

]

The inspection planning factors to be considered are covered in each inspectable area. The activities described in the inspectable areas are more the expected level of effort than are the estimated hours.

This is a new arogram and the data for inspection hours and inspection frequency in tie program are only estimated. PIPB will collect i information on the accuracy of these estimates from the regions, and  !

will modify the inspection hours and frequencies accordingly.

Within the reactor safety strategic area, a number of the inspectable areas provide indication for more than one of the initiating events, mitigating systems, and barrier integrity cornerstones. The a) proximate percentage of inspection effort within each cornerstone and tie cornerstone specific aspects of those systems, structures, components or activities within the secpe of that inspectable area are identified in the reactor safety inspection procedure and come from RIM 1.

RIM 2 is to be used for generic insights for inspection planning in the reactor safety strategic area until site-specific tables are developed.

RIM 2 was developed based on reviews of Individual Plant Examinations (IPE) and Individual Plant Examinations of External Events (IPEEE) databases, sunnaries of NUREGS on the IPE results, and contractor reports dealing with risk insights.

1 While one of the objectives of the baseline inspection program is to perform annual planning for all cornerstones, planning activities for resident inspections and region based inspections require different planning strategies and time frames. Regardless of the planning strategies and time frames, baseline inspectable areas must be i completed within the time frames stated in the inspectable areas.

Tables G and H may be useful for inspection planning.

Resident Insoection Plannina For resident inspectors, several inspectable areas are dependent on alant activities and events. Examples include Nonroutine Evolutions.

Emergent Work, Operability Evaluations. Other resident inspections are most effective, from a risk perspective, when residents target those systems or trains being relied upon by the )lant while another safety system or train is out of service. Since tiose systems or trains are not known for the entire annual planning cycle, it is expected that shorter planning cycles will be used to plan resident inspection i activities for many of inspectable areas. A reasonable planning cycle could be as short as the period covered by an integrated inspection report. PI verification resident inspections should be planned in a manner consistent with other resident planning efforts.

Once a system is selected for inspection by the residents. Attachment

3. Tables A through E should be used to establish which inspectable areas may be appropriate for inspection taking into account which parts I of the individual inspectable area have been completed to date and which still need to be inspected to meet the goal of completing the baseline procedures annually. The completion matrix in Attachment 3.

Table F arovides one mechanism for continuously recording, by inspectaale area, how much of the inspectable area has been completed to date.

For exam)le, if the system selected was a mitigating system, the inspecta)le areas of equipment alignment and surveillance testing would Issue Date:05/09/99 DRAFT A-9 2515* Appendix A l

be appropriate for inspection by the resident. However, if the completion matrix shows that the inspectable area of surveillance testing for mitigating systems has been completed 7 of the 8 required times while the inspectable area of equiament alignment has been inspected only once since the start of tie planning cycle, the resident would do the equipment alignment inspectable area.

Resident inspection activities should be balanced across units for multiple unit sites.

Reaion Based Inspection Plannina Region based inspection activities shall be planned annually. The ,

primary steps in annual planning are: )

i. In each cornerstone, determine the inspectable areas applicable for the specific plant for the upcoming period. The only reasons to exclude an inspectable area are (1) inspection frequency is greater than annually or (2) no activities in the area are expected to occur at the site during the next 12 months (e.g.,  !

refueling and outage activities).

ii. For each inspectable area, select the systems or activities to be inspected during the next 12 months, in accordance with the inspectable area guidance contained in the baseline inspection i procedures.

iii. Schedule inspections of the systems and activities selected in ,

steps i and ii above over the next 12 months.

iv. In planning region based inspections, multiple inspectable areas i may be performed by one inspector during one onsite inspection 1 period.

v. Plan periodic performance indicator verification inspections for each cornerstone and one annual inspection of the problem identification and resolution program across all cornerstones,

b. The level of effort in each inspectable area describes the numbers, types and frequencies of inspections. Inspectors may vary the numbers or frequency of inspection in a particular ins)ectable area in the short term depending on plant conditions but s1ould complete the required numbers of inspections over the entire year. For example, if a monthly inspection is specified but the conditions necessary to perform the ins)ection don't exist during that period, then the inspection should )e postponed until the appropriate time to perform the inspection.

As an example, two inspections per month of operability evaluations for mitigating systems are required; however, if no operability evaluations for mitigating systems were performed that month, then do not perform j the inspection that month. Alternatively, if a large number of operability evaluations for mitigating systems were recently performed by the licensee, then it may be appropriate to increase the number of risk significant evaluations inspected for that month. Additionally, .

if only operability evaluations were done for systems which are not I risk significant, it is appropriate to perform an inspection of some of those evaluations in that they may be indicators of later risk l significant operability evaluations. If an entire inspectable area is i 2515* Appendix A A-10 Issue Date: 5/07/99 DRAFT

not observable, record the inspectable area as complete with zero hours of inspection.

c. Adiustments. Periodic management reviews and updates of individual plans and the regional master inspection plan should be accomplished at least semiannually as part of the mid-cycle review that is discussed in IMC 0304, " Plant Performance Review" [or new document?]. l The results of the latest plant review (quarterly, mid-cycle and end-of-cycle), which factor in results of the performance indicators and baseline inspection assessments, shall be used to determine additional agency actions.

At the mid-cycle and end-of-cycle plant performance reviews and with  !

regional management agreement, resources may be shifted among inspectable areas within a cornerstone to focus on an area where licensee performance could be declining. However, all of the cornerstone inspectable areas must be completed within the )lanning cycles. Resources may not be shifted among cornerstones. :or example, if previous baseline inspections have shown a plant has a comprehensive and accurate design basis but has had problems with recent design modifications, it might be appropriate to expend fewer resources in the safety system design and performance capability inspectable area and more in the permanent plant modifications inspectable area. ,

i

d. Comoletion status. Each baseline inspection procedure contains specific I inspection requirements. These inspection recuirements define those areas to be completed by the inspector in orcer to make a determination that the objective (s) of the procedure have been met. Within a given cornerstone, the inspection activities and minimum sample sizes must be completed to provide an adequate assessment for each cornerstone.

Completion status will be recorded on the planning and status chart in Attachment 3 (Table F). l i

1 i

Issue Date:05/09/99 DRAFT A-11 2515* Appendix A l L.

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2515* Appendix A A-16 Issue Date: 5/07/99 DRAFT 1

ATfACHMENT 2 CORNERSTONE CHARTS FROM SECY-99-007 ATTACHMENT 3 APPENDIX 2

)

The following changes have not been incorporated into the charts that follow:

1. In the Initiating Events Cornerstone, the piping-system erosion /

corrosion inspectable area has been deleted. I

2. In the cladding performance element of the Barrier Integrity Cornerstone '

(Maintain Functionality of Nuclear Fuel Cladding): the only inspectable area applicable is -identification and resolution of problems. The fuel barrier performance inspectable area has been removed.

3. In the ERO readiness element of the Emergency Preparedness Cornerstone, the EP training program inspectable area has been deleted.

4. The Radiation Safety Cornerstones are named ~0ccupational Radiation Safety" and "Public Radiation Safety."

5. Physical Security Cornerstone has been named ~ Physical Protection." 1

6. In the Physical Protection Cornerstone, the vital area performance indicator has been deleted and additional baseline inspections will be

. necessary.

l l

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l Issue Date:05/09/99 DRAFT A-17 2515* Appendix A l 1

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ATTACHMENT 3 s

BASELINE INSPECTION PLANNING AND COMPLETION STATUS Baseline Insoection Procedures and Estimated Resources:

Annualized l l Estimated i Resources Reactor Safety Cornerstones 71111 Reactor Safety-Initiating Events (I), Mitigating 1350 l l Systems (M), Barrier integrity (B)

)

71114 Reactor Safety-Emergency Preparedness (EP) l 64 l l l

Radiation Safety Cornerstones i 71121 Occupational Radiation Safety (0RS) l 113 l 71122 Public Radiation Safety (PRS) l 40 Safeguards Cornerstone 71130 Physical Protection (PP) l 96 l Others 71150 Plant Status 520* l 71151 Performance Indicator Verification 80 l l 71152 Identification and Resolution of Problems l 100 l 71153 Event Follow Up 3 hr./ event l

• Activities under the Plant Status area are not Direct Inspection hours. l Soecial Instructions for Use of Attachment 3 Tables l The following tables are provided to assist regional personnel in )lanning and executing the new baseline inspection program. It is recognized t1at many of the inspections required of resident inspectors are based on day-to-day work conditions and are dependent upon the licensee's schedules and methods of accomplishing work. Therefore inspectors are not required to follow the reconinended frequency of inspections exactly. For example, monthly insSections means accomplishing the inspection approximately 12 times spread over tie year, but it is desirable to perform the inspection at the time of greatest risk.

Therefore. it is acceptable to do three of the inspections during a one month period, if the planned work during this month includes additional risk in the particular inspectable area. In addition, at the end of the year, it is not expected that the exact number of inspections performed will exactly match the recommended numbers.

Tables A through E provide inspectable areas from the baseline inspection procedures sorted monthly, quarterly and semiannually, annually and refueling biennial y and longer, and periodic inspection activities. These tables are provided for use in planning inspection activities. Table F provides Issue Date:05/09/99 DRAFT A-27 2515* Appendix A l

space to record completion of inspection activities- for each inspectable area to aid in the planning of future inspections throughout the year. Table F may also be useful for management oversight of inspector activities, for planning resources by site, and for recording program completion throughout the year.

P 2515* Appendix A A-28 Issue Date: 5/07/99 DRAFT 3: .

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