ML20212R342
| ML20212R342 | |
| Person / Time | |
|---|---|
| Site: | Davis Besse  |
| Issue date: | 06/10/1986 |
| From: | NRC |
| To: | |
| Shared Package | |
| ML20210K127 | List: |
| References | |
| NUDOCS 8702020604 | |
| Download: ML20212R342 (11) | |
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4 SAFETY EVALUATION REPORT CONDUCT OF MAINTENANCE ,
DAVIS-BESSE
1.0 INTRODUCTION
1.1 Purpose The purpose of this report is to provide an assessment of the current status of the maintenance program at Davis-Besse and to describe the progress made by the licensee in implementing the program since the maintenance survey conducted by thp NRC staff on September 16-20, 1985.
1.2 Background
The staff conducted a maintenance survey at Davis-Besse during the week of September 16-20, 1985. The survey was consistent with other surveys conducted as part of the NRC Maintenance and Surveillance Program Plan. The results of the September survey were documented in a Safety Evaluation Report (SER) which was transmitted to the licensee on October 30, 1985. In that SER, the staff concluded that licensee modifications to the maintenance program are addressing NRC identified weaknesses in the previous conduct of
- maintenance at Davis-Besse. At the time of the last survey, the licensee E
modifications were in an,tarly stage of implementation; therefore, the staff concluded that it was t'oo early to judge the effectiveness of the modifications. The NRC staff recomended that the ability of the new maintenance organization to function as designed be demonstrated prior to restart and that another survey be conducted after the changes have been in effect for a reasonable period of time.
Consequently, an NRC team consisting of representatives of NRR, Region III, and OIE revisited the Davis-Besse site on March 24-27, 1986, to. review the progress made by the licensee in implementing the program.
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e 1.3 Conduct of the Survey The follow-up survey was conducted by the six-member team given below:
Drew Persinko, Team Leader, NRR George Dick, NRR William Guldemond, RIII Ned Choules, RIII George Barber, 0IE
.. Dick Cooper, OIE
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The first five of the six members had participated in the survey conducted on
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September 16-20, 1985. The survey was carried out by interviewing site personnel, reviewing outstanding maintenance work orders and accompanying site personnel during their routine activities. In addition, members of the team observed the daily plan of the day mebting and the weekly status meeting, s
2.0 EVALUATION 2.1 Areas Examined a .
' The NRC team concentrated its review on the following areas: _
! 1. Corporate commitment 2.' Spare parts / material,reaIfiness i 3. Supervision -
- 4. Preventive maintenance S. Maintenance work order backlog f
- 6. Maintenance procedures j 7. Comunications .
l 8. Defined responsibilities
- 9. Maintenance training i
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- 10. Maintenance work activity planning and scheduling
- 11. Administrative procedures .
Considerable progress was made by the licensee in all areas except maintenance work order backlog since the last site visit. Maintenance work order backlog is addressed in detail in Section 2.1.5 below. While some problem areas were noted, they were not cont.idered major programatic weaknesses and they did not appear to adversely affect the functioning of the maintenance organization. Overall, the maintenance organization is cons,iderably more established since the last survey and it appears to be
, functioning as,jntended. Particular strengths noted during the visit were in the areas of maintenance training and spare parts / material readiness.
2.1.1 Corporate Comitment It appears that the licensee is currently comitted to improving maintenance at the Davis-Besse facility. An increased salary structure, no set monetary limit on spare parts inventory, improved maintenance training, continuing progress on construction of the personnel support facility and assignment of personnel specialists to Davis-Besse are evidence of this comitment.
Because corporate comitment can change over time due to such factors as
- management turnover and reallocation of economic resources, NRC Region III will continue to monitog.the licensee's corporate comitment and support to plant maintenance.
2.1.2 Spare Parts / Material Rgdiness 9
The warehouse inventory has been completed and discrepancies in material on hand versus on record are being tracked and dispositioned. A computerized inventory tracking system as well as mechanical systems showing the status of parts are in place. The expediting / procurement process is obtaining the necessary parts to accomodate the field work. Material for critical jobs is being expedited and its status is being discussed at the management Plan of
4 the Day meeting. The procurement process has been simplified and no longer requires excessive sign-offs.
Shelf life and preventive maintenance programs for spare parts have been implemented. Overall, good management techniques have been applied to the spare parts / material readiness area so that parts are now available to support field personnel. The staff noted that there does not appear to be a
' wealth of spare parts on hand and that ultimately, the licensee must identify future inventory needs. Doing so would result in an orderly procurement proc.ess with less uncertainties regarding the timely availability of replacement parfs. .
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2.1.3 Supervision A general foreman has been created for each craft discipline and additional foremen have been added in all crafts. Time spent by foremen in the field has increased from that prior to the June 9 event, however, it is still less than desired by plant management largely due to time spent on paperwork necessary to close out maintenance work orders (MWO). Management has required foremen to be more closely involved in the MWO closecut process because of past paperwork errors. Management believes that when the closecut
- process becomes better understood by all involved, foremen will be able to spend less time closing ptt maintenance work orders and devote more time to field activitie:. Even'though field time is less than desired, craftsmen indicated that foremen were generally available when needed. The foreman span of control is larger than,the eight people originally planned due to the use of contractors. It is anticipated that contractor use will diminish as work is completed which will result in a span of control that is close to the original plan. The NRC team expressed concern that the craftsmen, and especially the foremen and general foremen, have been working long hours (10-12 hours / day including Saturday) for approximately the past.9 months.
Plant management does not anticipate continuing extensive use o'f overtime because restart is no longer iminent due to the reactor coolant pump shaft failure.
2.1.4 Preventive Maintenance A major previous preventive maintenance (PM) problem has been rectified, i.e., skipping scheduled PMs with little management review or written justification. Multiple management reviews and approvals along with a written justification to defer scheduled PMs is now necessary. The NRC team suggested that if a PM is to be deferred, the deferral process should begin prior to the PM coming due. In this way, no delay would be involved in accomplishing a PM on schedule if the deferral is denied.
_ The team also ppinted out that the licensee should consider completing PMs
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for several balance of plant systems in addition to the priority systems
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identified for restart because, although not necessary from a safety standpoint, plant operation will be jeopardized if these systems are not operable. The licensee stated that a limited review of MW0s on a systems basis had been done and that a more thorough review of this nature would be conducted. The licensee's goal is to have no outstanding PMs when the plant is restarted. This means that the PMs will either have been completed or will have an approved deferral.
2.1.5 Maintenance Work Order Backlog a .
' The NRC team investigate,d'the area of outstanding MW0s. Although a considerable number of MW0s have been completed since the original survey, a large number of outstanding MW0s still remains (approximately 3300) because l
new MW0s have been generated.,,0f'the approximately 3300 MW0s which are open, l
roughly half are scheduled for. completion during this outage. The primary concern in the original staff SER related to the ability of the plant staff to manage outstanding MW0s. Consequently, rather than review the absolute numbers of NW0s, the NRC team focused on the licensee's ability to manage and control the MW0s. All MW0s have been prioritized and a determination made as to whether completion of the MWO is necessary for restart. Not all MW0s are l
related to plant operability or plant safety. When the team questioned l
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specific MW0s, the licensee was able to rapidly obtain information pertinent to that MWO through the computerized Davis-Besse Maintenance Management System (DBMMS). Currently, plant personnel are identifying needed maintenance as directed by their management regardless of the existing backlog. This attitude contrasts with that on the previous survey where it appeared that some personnel overlooked needed maintenance because they believed the work would never be accomplished as a result of the backlog.
The team also spent a limited amount of time viewing the capabilities of DBMMS.
The team reviewed approximately 1000 MW0s which were not scheduled for completion prior to restart. The purpose was to ascertain the licensee's compliance with the stated bases for scheduling MW0s with respect to restart.
The team reviewed the titles of the MW0s and questioned those that may have been required for restart per the established criteria and yet not scheduled accordingly. The vast majority of MW0s reviewed did conform with the licensee's restart criteria. The team questioned some items and in almost all cases, the licensee was able to justify their dispositions. For those cases where the qualitative argument presented by the licensee did not satisfy the team, the licensee agreed to reconsider those MW0s in detail for restart. There were several balance-of-plant systems which could affect
- plant operation with many MW0s not scheduled for completion prior to restart.
The team suggested that oGtstanding MW0s be considered on a system basis ratherthansolelyona$ item-by-itembasis. The licensee stated that a limited review of MW0s on a systems basis had been done but that a more thorough review of this nature,,wo0'id be conducted.
2.1.6 Maintenance Procedures One problem identified in the previous NRC staff SER was overreliance on skill of the craft. To solve this problem, the licensee has-instituted an ongoing project to review procedures for possible revision and has revised or generated new procedures as a result of that review. In addition, the procedure project is assuring that controls are established for revising,
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updating and assuring use of the most updated version of vendor manuals.
Also, a measurement and test equipment group has been established to assure that test equipment (e.g., torque wrenches) is calibrated at required intervals.
2.1.7 Coninunications Both intergroup and intragroup communications appear to be good. Plan of the Day meetings are held daily to discuss critical path or problem jobs. These meet,i.ngs are chaired by the head of the Planning and Scheduling Group and attended by management representatives from plant and engineering and key representatives from the crafts. Pre-shift briefings are conducted by the crafts to discuss maintenance and other activities to be performed on the upcoming shift. The Planning and Scheduling Group interacts on a routine basis with the plant and engineering organizations. A procedure to obtain engineering assistance through a request for engineering assistance (REA) has recently been implemented. The NRC team noted that no prioritization of REAs currently exists.
2.1.8 Defined Responsibilities
- Subsequent to the staff's previous survey, position descriptions have been 5
written and implemented.f Personnel were aware of their responsibilities and how their group relates'to other groups within the Davis-Besse organization.
In the previous survey, this was not the case for some plant personnel due to the recent reorganization.
l l 2.1.9 Maintenance Training l
The NRC team toured the maintenance training facilities and held discussions with maintenance trainers and craft personnel who are receivjng.the training.
The team did not, however, conduct a formal review of the training program.
-8 Construction of the maintenance training laboratories was in pro'gress at the time of the last visit. Since that time, the discipline-specific labs have been completed and appear to be well equipped. The training shift concept, i.e., approximately 20% of the maintenance workforce is always in training, and the training council concept have been implemented. A point to note is that management implemented the training shift concept during this outage rather than after restart. The team believes this action exemplifies management's commitment to the maintenance training program. Craft qualification programs have been established to provide a workforce qualified to a,ccomplish both general and specific technical maintenance activities.
The NRC team emphasized the importance of considering comments provided by the training councils. The NRC team felt that even the perception that such conrnents were not being considered would diminish the support of the crafts to the program.
2.1.10 Planning and Scheduling The Plarning and Scheduling Group is in place and staffed with people knowledgeable with plant maintenance. Morale within this group appears to be high. Planning begins daily when the head of the Planning and Scheduling Group chairs the daily Plan of the Day meeting to discuss critical path jobs e and problem jobs. Craftsmen receiving the MWO packages prepared by the i Planning and Scheduling Group believe that the MWO packages are, in general, wellassembledforthejob. It was also often stated that Planning and -
l Scheduling personnel are readily accessible and are responsive to field needs l when problems arise. During the course of this outage, it was discovered i that no one individual is ultimately responsible for ensuring that MW0s, once generated and worked, are closed out. Currently, there is a " closure group" that coordinates movement of MW0s through the processing cycle. However, once restart occurs, this group may cease to exist whereupon it will be the responsibility of each individual planner to track his assigned,MW0s to closure.
-9 2.1.11 Administrative Procedures The NRC team noted that the Nuclear Mission Procedure, which describes the new organization and defines responsibilities, was in draft form. The team recommended that approval and implementation of this procedure be expedited.
This would allow suborganizations to develop and implement subtier procedures that reflect in detail their structure and operation. It should be noted that the maintenance organization does appear to be functioning well with the current status of administrative procedures.
_ 2.2 Observatio_ns .
Before the June 9,1985, event, craftsmen felt that management's priority was on completing the job as opposed to producing quality work. From the interviews conducted, the NRC team concluded that plant maintenance personnel now believe that the quality of their work is management's first concern.
Consequently, equipment troubleshooting is more thorough now.
Frequent complaints were voiced about management policies regarding drug testing, backshift and disciplinary action. However, craft morale, although not high, appears to have improved since the staff's previous site visit.
Use of contractors will , diminish as the facility nears restart and subsequent to restart. The licensee should prepare for this transition. This will enable the licensee to accomplish necessary maintenance with in-house personnel without sudden disruptio'n.
Some licensee personnel interviewed stated that corporate policy required goal-setting and feedback on how well goals are being met. They specifically mentioned their use of management by objectives (MBO) to fulfill this corporate policy and commitment in the Performance Enhancement Program.
Most individuals in the plant organization were aware of this policy and were actively using MB0. Still, conflicting information obtained from interviews
r with different levels of engineering management cast doubt as to whether Engineering was fully complying with corporate policy. This situation was made known to the licensee.
The team noted that many of the work request tags attached to equipment requiring maintenance did not' cross-reference the maintenance work order as it is supposed to. The licensee informed the team that it will soon be implementing a new card system with detachable numbers so that this cross-referencing will be accomplished.
One of the purppses of the Planning and Scheduling Group is to see the total picture with respect to work requests and prioritize the work to be done.
This process is hindered by prioritizing work requests before sending them to Planning and Scheduling. It appeared to the team that some prioritization of work requests may have been done by the crafts in order to determine the order and timing in which the work requests are sent to the Planning and Scheduling Group. This matter was discussed with the licensee at the exit interview. At that time the licensee informed the team that craft superintendents recently were told to verify the validity of work requests l
submitted as work actually requiring maintenance. The licensee agreed that prioritization, however, should not be performed by crafts and agreed to look l
- into this matter. -
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3.0 CONCLUSION
S In conclusion, considerable prpgress has been made by the licensee in the area of plant maintenance. The new maintenance organization is functioning as intended with no major identifiable weaknesses. The plant management at Davis-Besse intervenes and aggressively solves problems when they arise.
Although the team believes that the licensee is currently able to effectively manage outstanding MW0s, NRC Region III will continue to monitor this area to assure continued control and progress. The team concludes that the licensee i
is consistently complying with the stated bases for determining MW0s needed l
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for restart. The few problems noted by the team and discussed in the body of this SER are not considered major programmatic weaknesses and they do not appear to negatively affect the functioning of the maintenance organization.
NRC Region III will continue to monitor maintenance at Davis-Besse to ensure that it is effective in maintaining components in proper order so as to permit safe plant operation.
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