ML20212D799
| ML20212D799 | |
| Person / Time | |
|---|---|
| Site: | Cooper  |
| Issue date: | 09/20/1999 |
| From: | Newman L NEBRASKA PUBLIC POWER DISTRICT |
| To: | NRC OFFICE OF THE SECRETARY (SECY) |
| References | |
| FRN-64FR36291, RTR-NUREG-1022, RULE-PR-50, RULE-PR-72 64FR36291-00015, NLS990098, NUDOCS 9909240076 | |
| Download: ML20212D799 (11) | |
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'99 SC 22 lE :02 3
NLS990098 K
September 20,1999 DOCKET NUMBER PRO?0 SED RULE Ef! So < 7a_.
Secretary of the Commission U. S. Nuclear Regulatory Commission gg Washington, DC 20055-0001 ATTN: Rulemakings and Adjudications Staff Gentlemen:
Subject:
Comments on Proposed Rule for 10 CFR 50.72 and 50.73, Reponing Requirements, and Draft NUREG-1022, Revision 2 Cooper Nuclear Station, NRC Docket 50-298, DPR-46
Reference:
1.
64 Federal Register 36291, dated July 6,1999, Proposed Rule, "Reponing Requirements for Nuclear Power Reactors" The Nebraska Public Power District (District) hereby submits commeets on the proposed rule in Reference 1, including the draft report NUREG-1022 Revision 2, for Nuclear Regulatory Commission (NRC) consideration. The District agrees with the stated objectives for the proposed rule, specifically better aligning the reporting requirements with the NRC's current reporting needs, reducing reponing burden, and clarifying reporting requirements where warranted. The District also appreciates the NRC's effons in revising the guidelines, NUREG-1022, concurrent with the proposed rule change, as these guidelines are an essential component to interpreting and implementing the rule (s).
The Nuclear Energy Institute (NEI) sponsored an industry task force providing comments to the NRC regarding the proposed rule and draft repon NUREG-1022 Revision 2 in a public workshop held August 3,1999 at NRC headquaners, and in a subsequent letter from NEI. The District endorses the NEI task force comments; therefore, they will not be repeated in this correspondence. However, the District respectfully submits additional comments to emphasize and support the industry position.
)
Reportiac of Component Level Failures l
The District fully suppon's NEI's comments in strong opposition to the reporting of camponent level failures (proposed mle 10 CFR 50.73 (a)(2)(ii)(C)). We agree that this was a last-minute
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NLS990098 September 20,1999 Page 2 of 4 f
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addition in the process and does not meet the NRC's stated objectives for this proposed i
rulemaking. An informal query of the Cooper Nuclear Station (CNS) condition reporting system was conducted to ascertain the impact this change could have. The query revealed that, from January 1,1998 to September 2,1999, there were at least 93 occurrences where particular components were determined INOPERABLE due to a degraded or nonconforming condition but the system remained OPERABLE. We agree that these 93 occurrences would potentially result in additional Licensee Event Reports (LERs), or at the very least require evaluation for reporting, should this new criterion be added. We believe that the reporting of these types of events does not afford additional insight on risk impacts and therefore does not meet the threshold ofitems requiring reponing to the NRC.
The Federal Register notice states that these types of events would be reportable because the
" capability of several similar components to perform their speciDed safety functions could be signincantly degraded." It should be noted that "could be" has a distinct meaning; based on the reasons for reporting events (i.e., significance to public health and safety) postulated events or conditions are not appropriate to be reported unless there is firm evidence to demonstrate that the capability of several similar components to perform their specified safety functions would be significantly degraded. Reporting based on speculation of how a discovered condition could affect similar components, without Hrm evidence, does not serve the purpose of providing valuable information with which the NRC may evaluate and analyze precursors to potential severe core damage. It is also in opposition to the philosophy underlying improved Technical Specifications and the provisions of Generic Letter 91-18, Revision 1, which provides specific guidance on treatment of degraded or nonconforming conditions in the arena of operability and corrective action. Granted that in many cases there exists a link between operability and reportability, the balance of the reporting criteria sufficiently covers when a report would be required: common cause, loss of safety function, a condition of the plant (including principal safety barriers) being significantly degraded or the plant being in an unanalyzed condition that signincantly degrades plant safety.
For example,if a failure occurs on a component critical to operability of an emergency diesel generator (EDG), it is prudent to evaluate if there is a common cause which would cause a failure in the redundant EDG. Note that this should be limited to those events which would cause failures in redundant or similar equipment, not those failures that only "could." Where would one draw the line on what "could" happen? If a diesel fuel oil pump fails,it is reasonable to assume that the other fuel oil pump could at some point fail for the same reason. However this needs to be carefully evaluated to understand the failure modes and the relative risk presented to j
the redundant fuel oil pump for these failure modes to occur. In this example, it could simply be that the diesel fuel pump which failed had reached the end of its useful life, but this does not always mean that the same holds true for the redundant pump. If, however, it is discovered that the underlying cause of the failure could have caused a failure in the redundant train, and there is reasonable doubt that the redundant train would complete its safety function if called upon, the event would be reportable as a condition which would have resulted in the loss of a safety function.
i
C NLS990098 September 20,1999 Page 3 of 4 Encineered Safecuards Features (ESP) System Actuations We agree that the all-inclusive list is inappropriate since risk-significance of a particular system can vary greatly between plants. The NRC states in the Federal Register notice that the listing of specific systems would " result in consistent reporting of events that result in actuation of these highly risk-significant systems." We are unaware of how the NRC arrived at the conclusion that the listed systems are in fact " highly risk-significant" at all plants. A prime example is the feedwater coolant injection system listed for Boiling Water Reactors-we agree with NEl's comments on this in that it is not an Emergency Core Cooling System.
Rather than listing the specific systems, a more appropriate approach may be to state the functions. However, this would still require that all the necessary criteria would have to be adequately established as part of risk-infonning 10 CFR Part 50. Until Part 50 is risk-informed, we agree that the Option where reporting would be required for the actuation of "any ESF" as is defined in each facilities FSAR is the appropriate option at this time.
Renonine of Historical Events The current NEI letter concludes this section by stating: " Reporting historical events more than two years old provides a low safety benent and unnecessarily increases the reporting burden.
This exclusion of such historical events and conditions should be extended to all written reports required by section 50.73(a)." The question becomes, what is the value of reporting historical events even within two years? Is it not more of regulatory significance than of safety significance? As Part 50 becomes more risk informed, the approach would be that cases such as this be dealt with in the Corrective Action program at each facility; there are other ways to communicate events to the industry and the NRC which would not require the same expenditure of resources (both licensee and NRC) as submitting an LER. For example, LERs on Technical Specification violations should only apply to real-time plant issues, and an LER would be submitted after the event is over and the facts are understood. The LER content requirements could be slightly modified to ensure that licensees research their corrective action programs for historical events and provide that in the " previous similar events" category. The District recognizes that this is an "out-of-the-box" suggestion which may not be appropriate to consider at this juncture, but perhaps should be considered in future changes to risk-inform Part 50.
Additional, specific comments are contained in the Enclosure to this letter. The District appreciates the NRC's efforts in this area and the opportunity to respond to the proposed rule and accompanying reporting guidelines.
Should you have any questions concerning this matter, please contact me at (402) 825-5551, or Linda Dewhirst at (402) 825-5009.
- NLS990098 September 20,1999 -
Page 4 of 4-Sincerely,
' // SIGNED BY J. R. SUMPTER FOR LARRY NEWMAN//
- Larry Newman Acting Manager, Nuclear Licensing and Safety
/lrd Enclosure cc: NPG Distribution Nebraska Public Power District P.O. Box 98 Brownville, NE-68321 l
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