ML20211K282
| ML20211K282 | |
| Person / Time | |
|---|---|
| Issue date: | 09/02/1999 |
| From: | Stewart Magruder NRC (Affiliation Not Assigned) |
| To: | Carpenter C NRC (Affiliation Not Assigned) |
| References | |
| NUDOCS 9909070170 | |
| Download: ML20211K282 (64) | |
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1 UNITED STATES NUCLEAR REGULATORY COMMISSION E
E WASHINGTON, D.C. 20066 4 001
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September 2, 1999 MEMORANDUM TO: Cynthia A. Carpenter, Chief Generic issues Environmental, Financial and Rulemaking Branch Division of Regulatory improvement Programs Office of Nuclear Reactor Regulation FROM:
Stewart L. Magruder, Project Manager M % Ak Generic issues, Environmental, Financial
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and Rulemaking Branch Division of Regulatory improvement Programs Office of Nuclear Reactor Regulation
SUBJECT:
SUMMARY
OF AUGUST 26,1999, MEETING WITH THE PUBLIC TO DISCUSS EFFORTS TO RISK-INFORM 10 CFR PART 50 (RIP 50)
On August 26,1999, the staff held a public meeting at the NRC's offices in Rockville, Maryland.
At the beginning of the meeting, the staff notified attendees that the meeting would be an open forum on the subject of risk-informed Part 50, and that participation was encouraged from all present. Attachment 1 provides a list of attendees at the meeting.
One purpose of the meeting was to provide an opportunity for the staff to present some preliminary thoughts on developing alternative regulations in Part 50 that limit the requirements for special treatment to those structures, systems, and components (SSCs) that have been identified as important to protect public health and safety using a risk-informed approach.
Another purpose was to allow the industry to present an update of their efforts to date and comment on the staff's proposals.
The staff began by handing out several draft documents to the attendees to facilitate the
/
discussions. These documents are included as Attachment 2 and are listed below:
/
- 1. Mission Statement for RIP 50, Option 2 hh h/ gc3
- 2. Screening Criteria for inclusion in Option 2
- 3. -Table 1. Option 2 Rule Text Matrix
- 4. Table 2. Option 2 Rule Evaluation Matrix 49
- 5. Figure 1. Option 2 Screening Process Results
- 6. Analysis of Schedule Alternatives After a brief discussion of, and general agreement on, the mission statement, the staff presented the screening process and results. Handouts 2-6 generated much discussion with the industry representatives. Several people questioned why 10 CFR 50.72 and 50.73 were not included
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9909070170 990902 PDR ORO NRRA
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C. Carpenter
-2 September 2, 1999 among the rules to be changed. The staff stated that these rules, and others designated with a "1"in the Criteria VI column of Handout 4, were in various stages of rulemaking and that future changes to risk-inform their scope would be coordinated within the staff. There were also several questions about the process licensees should follow to categorize SSCs and change the scope of the rules. Several people suggested that a process could be developed as part of the rulemaking effort and that 10 CFR 50.59 is not a good choice since categorizing SSCs does not change their functions.
After the staff completed its presentation on the screening process it asked for comments from the industry. Specifically, the staff asked the industry to review (1) the scope of rules included in Table 1 to see if any rules were not included in the screening process that should have been and (2) the decisions documented in Table 2, especially those associated with reducing unnecessary burden on licensees, The staff noted that comments received by September 15, 1999, would be considered by the staff when drafting the paper fonvarding the proposed process to the Commission but that all comments and input were welcome.
The staff next discussed the schedule alternatives presented in Handout 6. It was noted that Alternative 2 is preferred by the staff and that a final rulemaking could be completed by July 2002. The industry noted that the categorization efforts should build on the risk-ranking that was done for the Maintenance Rule and not start from scratch. The staff agreed that it was not necessary for licensees to start all over but that this categorization effort was broader than that required for the Maintenance Rule.
The industry questioned the need for an Advanced Notice of Proposed Rulemaking. They suggested that meetings could accomplish the same thing. The industry also noted that the majority of licensees are sitting on the fence, waiting to see what happens with South Texas and other early participants in risk-informed pilots.
The staff requested industry comments and inputs on the pilot process included in the proposed schedules. Specifically, the staff requested comments on when to start the pilots, how long they should be scheduled for, how many there should be, and when exemptions should be issued. A consensus was reached that the goal of the pilots should be clearly defined.
)
' Representatives of the Nuclear Energy Institute (NEI) next made a presentation summarizing the industry efforts regarding risk-informed, performance-based regulation. Their presentation material is included as Attachment 3.
The NEl representatives first stated that they were very pleased that the staff had provided so much draft material at the meeting. They noted that it was much easier to follow the staff's presentation and that they would be able to provide better comments after rereading the material.
The NEl presentation prompted a discussion of the need to identify critical attributes for those SSCs that will be designated as safety-significant but were previously considered non-safety related and to assure that these attributes will be met. With regard to the new category of SSCs proposed by NEl - Commercial (T), the staff asked for examples of the functions and related
C. Carpenter
-3 September 2, 1999 licensing commitments associated with them. The NEl representatives agreed to provide examples and suggested that the revised NEl commitment management guidance (NEl 99-04) may answer some of the staff's questions. In response to a question from the staff regarding monitoring SSCs that have been categorized as nonsafety-significant, the NEl representatives stated that the new reactor oversight process includes provisions to do that.
{
The representatives from the proposed pilot plants next briefly discussed which rules they
)
expected to request exemptions from. The representative from San Onofre stated that they were planning to pilot the Maintenance Rule and possibly the Quality Assurance requirements of i
Appendix B to 10 CFR 50. The representative from Fermi stated that they were planning to pilot the Maintenance Rule and 10 CFR 50.49. The representative from Arkansas Nuclear One stated that a decision had not been made yet.
]
In summary, a consensus wss reached that the pilots will be important for several reasons.
They will help determine whether (1) the categorization process can be implemented by licensees, (2) the staff can approve a process without seeing the results, and (3) licensees see enough benefit in the process to commit more resources to it. In this regard, the NEl representatives requested h9t the staff draft a more detailed set of criteria for selecting pilot plants and include measurable success criteria for the pilots. The staff again requested comments from the industry on the draft material presented, by September 15,1999, if possible.
]
Attachments: As stated
C. Crrpenter September 2, 1999 licensing commitments associated with them. The NEl representatives agreed to provide examples and suggested that the revised NEl commitment management guidance (NEl 99-04) may answer some of the staff's questions. In response to a question from the staff regarding monitoring SSCs that have been categorized as nonsafety-significant, the NEl representatives stated that the new reactor oversight process includes provisions to do that.
The representatives from the proposed pilot plants next briefly discussed which rules they
)
- expected to request exemptions from. The representative from San Onofre stated that they
-)
were planning to pilot the Maintenance Rule and possibly the Quality Assurance requirements of
- Appendix B to 10 CFR 50. The representative from Fermi stated that they were planning to pilot t
the Maintenance Rule and 10 CFR 50.49. The representative from Arkansas Nuclear One j
stated that a decision had not been made yet.
In summary, a consensus was reached that the pilots will be important for several reasons.
I They will help determine whether (1) the categorization process can be implemented by.
licensees, (2) the staff can approve a process without seeing the results, and (3) licensees see enough benefit in the process to commit more resources to it. In this regard, the NEl representatives requested that the staff draft a more detailed set of criteria for selecting pilot plants and include measurable success criteria for the pilots. The staff again requested
. comments from the industry on the draft material presented, by September 15,1999, if possible.
Attachments: As stated
' DISTRIBUTION:
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, SCollins/RZimmerman BSheron WKane GHolahan TCollins JStrosnider RWessman GTracy, EDO DMatthews.
SNewberry CCarpenter FAkstulewicz MMarkley, ACRS DFischer JWilliams Treed CGrimes AMarkley RYoung GParry
. MCheok KHeck PBalmain MRubin RPalla JKnox RAutuck '
GBagchi MShuaibi EWeiss NGilles GMizuno, OGC TKing, RES -
MDrouin, RES '
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HHamzehee, RES SBlack BMallett; Ril G:\\RGEB\\sim1\\msum0826.wpd '
//
OFFICE RGEB RGEB _
SCiR h NAME SMagruderiF h[TAkkwicz DATE 09/ 4 /99 09/A/99 09/ 'k/99 -
OFFICIAL RECORD COPY-
1 RIP 50 PUBLIC MEETING August 26,1999 List of Attendees NAME ORGANIZATION Adrian Heymer NEl Steve Floyd NEl Tony Pietrangelo NEl Tony Brooks NEl Bill Burchill Commonwealth Edison
' Linda Bugoci Detroit Edison Richard Harris Entergy Parviz Moieni Southern California Edison Bob Christie Performance Technology Rick Grantom South Texas Project Joe Williams NRC/NRR Tim Reed NRC/NRR Tom Bergman NRC/NRR Suzanne Black NRC/NRR Mohammed Shuaibi NRC/NRR Ronald Young NRC/NRR Gareth Parry NRC/NRR David Fischer NRC/NRR Ken Heck NRC/NRR Peter Balmain NRC/NRR Mark Rubin NRC/NRR Bob Palla NRC/NRR Raj Auluck NRC/NRR Stu Magruder NRC/NRR Tom King NRC/RES Mary Drouin NRC/RES Prasad Kadambi NRC/RES l
Hossein Hamzehee NRC/RES Mike Markley NRC/ACRS Geary Mizuno NRC/OGC Bruce Mallett NRC/Ril Roger Huston LSS Nancy Chapman SERCH/Bechtel Allen Camp Sandia National Laboratory Bob Youngblood Scientech Kim Green NUSIS Mark Doehnert U.S. EPA Dave Blanchard Tenera Energy
ORAFT MISSION STATEMENT FOR RIP 50, OPTION 2 Vision Develop alternative regulations in Part 50 that limit the requirements for special i
treatment to those structures, systems, and components that have been identified as important to protect public health and safety using a risk-informed approach.
Strategies increase the use of risk informed approaches to modify the scope of structures, systems, and components requiring special treatment pursuant to Part 50.
Maintain overall safety provided by the existing Part 50 while the overall burden associated with these requirements is reduced both extemally and intemally.
Modify the scope of structures, systems, and components addressed by the special treatment requirements in Part 50 in a manner that preferentially utilizes change processes that encourage public participation (e.g., rulemaking, license amendments).
Objectives Establish in the regulations the criteria for acceptable methods for determining the structures, systems, and components within the scope that require special treatment in Part 50. These criteria should be sufficiently robust such that the adequacy of a licensee's program can be demonstrated to meet the criteria; thus obviating the need for a staff review and approval of the plant specific program.
Prioritize the rules to be modified, taking into consideration burden reduction for industry, effect on staff efficiency and effectiveness, and complexity of modifying each rule.
Ensure that the revised requirements have been evaluated under a pilot program prior to implementation to verify that the requirements and their associated i
guidance can be implemented by industry, and the results of licensee implementation provide reasonable assurance that public health and safety is maintained commensurate with the level of safety provided by the existing regulatory framework.
Issue a proposed rulemaking for the initial set of rules to be modified within one year of Commission approval of the rulemaking plan, and final rulemaking issued within one year of the completion of the associated pilot program.
The proposed risk informed regulatory alternatives should reduce burden such that licensees with more than 10 years remaining on their license will voluntarily implement the risk informed alteinative requirements.
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ANALYSIS OF SCHEDULE ALTERNATIVES RIP 50 OPTION 2
' Summary and Recommendation Altemative 2, "ANPR With Full Categorization Pilot," is the recommended approach. Under this altemative, the staff would issue an Advanced Notice of Proposed Rulemaking (ANPR), a proposed rulemaking, and a final rulemaking. A pilot program would be conducted on the categonzation effort only. The comments on the ANPR, and the commitment from licensees to j
pilot the Option 2 effort would be used as inputs into the decision for the rules to I e included in the proposed rulemaking. The results of the categorization pilot program would b i used to 3
determine whether the proposed categorization method requirements were approl riate, and j
whether the NEl guideline could be used to implement this method in an acceptabla method. If so, the staff would issue exemptions to the pilot plants for the rules proposed for moiification in Phase 1,' and final rulemaking initiated.
Altemative 2 is recommended because it: (1) obtains early feedback from extemal stakei.Nders regarding the staff's approach as described in the ANPR, and (2) gets the benefits associated with piloting the categorization method, which is considered to pose the greatest challenge of the Option 2 effort. The additional benefit under Altemative 1 of a pilot program to evaluate the rules proposed for modification under Phase 1 of Option 2 is not considered worth the additional delay such an approach would impose. Additionally, the staff believes that once the categorization process is found acceptable, the staff can understand the ramifications of modifying regulations using the new scope and property implement such changes.
Assuming the staff requirements memorandum (SRM) on the staff October 31,1999, rulemaking plan is issued by the end of the year, under Altemative 2 the staff would complete l
final rulemaking for both the categorization method and the rules included in Phase 1 in July
)
2002 (about 2.6 years).
j
'/
Approach A total of four altematives were developed, which vary in terms of involvement of pilot program and whether an ANPR is prepared. Tasks were identified for each attemative and time to accomplish each task was assumed. The relationships between the tasks was established and the information input into project management software.
A common task database was initially used to prepare the altematives. Thus, in most cases all the altematives use the same task numbers, times, linking method to precedent tasks, and notes. To preserve this methodology, tasks were deleted where appropriate under different altematives. Altematives 2,3 and 4 have an identical task numbering scheme. Altemative 1 does have a slightly different scheme beginning with Task 33 (Final Rulemaking) because it has a different approach beginning at that task.
PERT and Gantt charts were prepared for each alternative. The link-lines were removed from the Gantt chart to aid readability, but can be determined from the PERT chart, as well as the
'A phased approach to implementing Option 2 is assumed. However, it is possible that Phase 1 could include all candidate Option 2 rules.
1
9f
" Predecessors" column on the Gantt chart. The Gantt chart also includes duration, start and finish times for each task. There is a legend at the bottom of each chart that show how to identify critical path, milestones, etc. The critical path tasks can be difficult to see on photocopies of the PERT chart, it is easiest to identify by following the heavy arrows instead of the hashed-border around each task.
Notes are provided, where appropriate, for each task in each attemative. The note number corresponds to the task number. For the most part, the notes are identical since they primarily provide the basis for the duration and precedence linking of each task (which is very similar for all attematives). Where the notes differ, it is to reflect changes in the approaches (Tasks 31 and 32 are different for Altemative 4, for example, to reflect the lack of an integrated pilot program, which is assumed to affect the time required to resolve public comments on the proposed rulemaking, and to reflect the deletion of a link between the staff review of the NEl guideline and completion of the categorization pilot program).
Development of Schedules There are up to seven major efforts, depending on the attemative:
1.
STP Exemption 2.
Issue ANPR (Altematives 1 and 2 only)
- 3.
Pilot Program (All but Altemative 4) 4.
NEl Guideline Review 5.
Proposed Rulemaking 6a.
Final Rulemaking (Categorization and Phase 1)- Altematives 2,3 and 4 6b.
Final Rulemaking (Categorization)- Alternative 1 only 7.
Final Rulemaking (Phase 1) - Altemative 1 only 1.
STP Exemglen The STP exemption effort, as can be seen from the PERT diagrams, can proceed independent of the Option 2 effort. The only nexus between this effort and the rest of Option 2 is that the results of the STP exemption evaluation should be used in preparing the proposed rulemaking to ensure that the two efforts are consistent. It is this independence of efforts that causes the staff to label STP as a ' prototype' pilot and not a demonstration pilot. STP is too far ahead in implementation to use as a pilot to test the implementation of the proposed rulemaking.
2.
Issue ANPR Assumption is that an ANPR will be included as an attachment to the staff's Commission paper on Option 2 due to the Commission October 31,1999. This effort includes publishing the ANPR, comment period, and evaluation of comments as an input into the proposed rulemaking.
For Altemative 2 the ANPR is a critical path effort.
3.
Pilot Proaram i
For Alternative.1, a two-stage pilot program is envisioned. Similar to Alternatives 2 and 3, a pilot program for the categorization effort will be implemented and evaluated. For 2
a
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Attemative 1 only, a second pilot program to evaluate licensees' implementation of the rules proposed for modification in Phase 1 will also be conducted.
The pilot program is a critical path effort for Attematives 1 and 3.
4.
NEl Guideline Review All four attematives assume that NEl will submit a guideline on categorization (which NEl has stated it will do). This effort is the same for all four altematives, except that Altemative 4 does not include the staff evaluation of pilot plant implementation of the guideline as a predecessor task to initiating the final rulemaking effort.
The guideline review is a critical path effort for Altemative 3.
5.
Proposed Rulemakina All four alternatives have the same approach for the proposed rulemaking, which is a typical proposed rulemaking (preparation, comment period, evaluate comments). It is assumed that the preparation effort can be conducted in parallel to a large degree with the ANPR.
This is a critical path effort for Alternatives 2,3 and 4.
6a.
Final Rulemakina (Cateaorization and Phase 1)- Alternatives 2. 3 and 4 Under this effort, the final rulemaking on both the categorization method and the Phase 1 rules are combined into a common rulemaking.
This is a critical path effort for A!tematives 2,3 and 4.
6b.
Final Rulemakina (Cateaorization)- Alternative 1 Only Under Alternative 1, the final rulemakings for categorization and the Phase 1 rules proceed separately (even though they would be in a joint proposed rulemaking). This effort is for the categorization effort only. By proceed with this effort, non-pilot plants can begin their categorization process in advance of completion of the pilots and final rulemaking on the Phase 1 rules, such that when the Phase 1 final rulemaking is complete these licensees could immediately begin implementation.
This is NOT a critical path effort for Alternative 1.
7.
Final Rulemakina (Phase 1)- Alternative 1 only The Phase 1 final rulemaking is deferred until completion of a pilot program to evaluate the acceptability of the Phase 1 proposed rule changes and associated guidance documents.
This is a critical path effort for Alternative 1.
3
p AFT Altemative 1: ANPR With Full Two Stage Pilot Program As described above, Altemative 1 includes seven major efforts. The critical path for this altemative is the pilot program (both stages) and the final rulemaking on the Phase 1 rules.
The reason the critical path lies along these efforts is that the second stage of the pilot program substantially delays issuance of the final rulemaking on Phase 1 rules.
The schedule is projected to complete in January 2004 (-4 years), which is consistent with the best estimate schedule for Option 2 in SECY-98-300.
The advantage to Alternative 1 is that it fully tests both parts of the Option 2 effort (categorization and special treatment rules) prior to final rulemaking. Etxe, this altemative is least likely to need a follow-on rulemaking activity correct errors in the original Phase 1 final rulemaking. The disadvantage to Altemative 1 is that four year time period to implement is now considered, by some, to be too long. The selection of Altemative 1 will largely rest on the perceived value of the second stage of the pilot program relative to the delay in completion of final rulemaking on Phase 1 that the additional pilots would impose (16-19 months, estimated).
Alternative 2: ANPR With Full Categorization Pilot Program This altemative differs from Altemative 1 in that the second stage pilot is eliminated, and a single final rulemaking that encompasses both the categorization method and the Phase 1 rules is conducted, instead of two final rulemakings.. A pilot program for the categorization effoi:is still conducted. The critical path for this altemative is the ANPR, proposed rulemaking, and final rulemaking efforts. Although the critical path does not involve the pilot program, there is little slack (about 2 weeks) in the pilot program tasks, so slippages in their schedules (or completion of critical path tasks ahead of schedule) would result in the pilot program becoming a critical path effort.
]
The projected schedule shows final rulemaking complete on Phase 1 in July 2002 (2.6 years),
substantially better than estimated in SECY-98-300.
An advantage to Altemative 2 is that by eliminating the second stage pilot program (and associated second final rulemaking effort) approximately 18 months are eliminated from the schedule. Altemative 2 also retains desirable features from Alternative 1 such as the ANPR to obtain early stakeholder feedback, and a pilot program on the categorization process, which is expected to be a more important pilot effort. A disadvantage of Alternative 2 is that by eliminating the second stage of the pilot program, the staff will proceed to final rulemaking with less information than Altemative 1 thereby increasing the likelihood of the need for a l
subsequent rulemaking if implementation problems are identified. However, the staff will need to make a similar decision to grant the exemptions for both STP and the pilot plants, and therefore the staff should be capable of making the same finding to support rulemaking. The staff considers the benefits associated with the second stage pilot program to be relatively small given its impact on the schedule.
Altemative 2 is the recommended alternative.
Alternative 3: Full Categorization Pilot Only (No ANPR)
Alternative 3 is the same as Alternative 2, except that the ANPR effort has been eliminated from the schedule. Due to the assumed high degree of parallelism between the ANPR effort 4
h and the proposed rulemaking effort, this only results in about a 2 week reduction in the schedule. Other than deletion of tasks associated with the ANPR effort, no other assumptions in the schedule model were changed for Altemative 3. Despite losing the early feedback from the ANPR, the time to evaluate public comments for the proposed rulemaking was not extended since the pilot program should still provide a substantial amount of feedback. The critical path is the pilot program, the proposed rulemaking, and the final rulemaking.
The proposed schedule shows final rulemaking complete on Phase 1 in June 2002 (2.5 years).
The advantage to Altemative 3 is a slight reduction in schedule relative to Alternative 2. The disadvantage to Altemative 3 is that the loss of early stakeholder feedback from the ANPR, which increases the likelihood of more time to address comments during the proposed rulemaking and a greater likelihood that re-noticing of the proposed rulemaking will be necessary, both of which would extend the schedule. The disadvantage is considered to outweigh the benefit of the estimated 2 week reduction in schedule with respect to Alternative 2.
Alternative 4: No ANPR and No Pilot Programs Altemative 4 simply removes the pilot program from Alternative 3. Pilot plant tasks are still shown on the schedule, since the staff could still process exemptions much as it is doing for STP. However, this would not be a pilot program integrated into Option 2 rulemakings as envisioned for the other alternatives. Rather, these would be plant specific evaluations. While the staff could still leam from the pilot plants, it would not be the tightly coupled effort. Most assumptions were retained, except that: (1) the links between determining the categorization effort was acceptable and initiating final rulemaking was deleted, and (2) the evaluation of public comments task (Task 31) was extended from 13 to 26 weeks to reflect the lack of good stakeholder feedback expected from the ANPR and pilot program efforts. The critical path for Altemative 4 is the proposed and final rulemakings.
)
The proposed schedule for Alternative 4 shows Phase 1 final rulemaking complete in September 2002 (2.75 years). The delay is caused by the extension of Task 31, which is in the 1
critical path.
)
There are no obvious advantages to Alternative 4. The disadvantages are the same as for Alternative 3, except the likelihood of the need to re-notice the proposed rulemaking is substantially higher than for the other,altematives. In addition, the absence of an integrated pilot program increases the likelihood of problems in both the categorization method and Phase 1 rules, thereby potential requiring an additional rulemaking effort to correct these
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