ML20246F469
| ML20246F469 | |
| Person / Time | |
|---|---|
| Issue date: | 08/09/1989 |
| From: | Chilk S NRC OFFICE OF THE SECRETARY (SECY) |
| To: | |
| References | |
| FRN-53FR52716, FRN-54FR33639, RULE-PR-50, RULE-PR-55, RULE-PR-MISC PR-890809-01, NUDOCS 8908300357 | |
| Download: ML20246F469 (10) | |
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( 5#R 33 63 9 NUCIEAR RB171A"4URY CWHISSIN 09 Ib ~9 b3 40' Education for Senior Reactor Operators arrt
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' Shift Supervisors at Nuclear Power Plants; bUCr f.
Policy Statament l
1 AGENCY: Nuclear Regulatory rh einion.
l ACTICH: Policy. Statement i
SUPMARY: 'Ihis policy statement reswAs the policy of the NRC regartling j
education for senior operators arx1 shift supervisors at nuclear power plants.
'Ibe h4== ion believes that the safety of oczanarcial power reactors is enhanced by having on eacti shift a team of NRC licensed professionals that -
ccubine technical and academic knculedge with plant-specific training and substantial hands-on operating experience. The h 4== ion believes the licensed Inactor operator, senior operator, and shift supervisor positions are very important to the safe and reliable operation of nuclear power plants and therefore encourages the utilities to continue their efforts to sustain and increase, where appwiata, the professionalism of these positions.
2nu.;uiE IRTE:
August 15, 1989.
FOR FURIHER INPWl9tTION CNIACT:
M. R. Fleishman, Office of Nuclear i
Regulatory Pa=aad, U.S. Nuclear Regulatory hinnien, Washingtcri, DC 20555, l
telephone (301) 492-3794.
.l SUFF12MENIARY INPMMATICE:
1 B% wand i
S3noe the 'Ihree Mile Island Unit 2 ('IMI-2) accident on March 28,1979, to L
whicts human error was a major contributor, the issue of academic requitousAm bil,b) L Th
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for reactor operators has been a major concern of the Nuclear Regulatory Otzsnissicn. In July 1979, the NRC Issued NUREG-0578, "IMI-2 7anamus Imarned Task Pbrue Status Wi. and Short-Tenn Dammandations,"1 idlich contained specific rarr=nandations for a shift tectnical advisor '(S'IA) to prwide engineering and accident maaaaamant %t.ime during other than n.xmal operating conditions. On October 30, 1979, the NRC notified all operating nuclear power plant licensees that STAS should be on shift by January 1980,.
and that they should be fully trained by January 1981. In Novenbar 1980, NUREG-0737, " Clarification of 'IMI Action Plan Requia_d.," provided further details to licensees r== Ming implementation of the S"!A requia_4.. It identified the STA as a tenporary measure pending a n=4amion decision regarding long rarge upgrading of reactor operator and senior operator capabilities.
.Ihe qualifications of operators 1ere also addressed in 1979 by NUREG-0585, "Iassans Learned Task Force"; in the 1980 Rogovin Report, "Three Mile Island:
A Report to the Ocmimissioners and to the Public", (NUREG/CR-1240); and in SECY-82-162, " Report of the Peer Advisory Panel and the Nuclear Regulatory Ocmanission on Opiustor Qualifications",2 Although the 1982 Inner Advisory Panel report reacramended against imposition of a %soe requirement, the consensus among these 1 imi.m was that technical and academic knowledge anong shift cperating p==.w.el greater than existed at that time would be beneficial to the safety of nuclear power plants.
1Copies of all NUREGs refererced may be purthased through the U.S.
Government Printing Office by callirn (202) 275-2060 or by writing to the U.S.
Government Printing Office, P.O. Box 37082, Washirgton, D.C. 20013-7082.
Copies may also be pur*W frran the National Technical Informaticm Service, U.S. Departmust of 02sneroe, 5285 Port Royal Rced, Springfield, VA 22161. A copy is available for its;---ticm or copying for a fee in the NRC Public rWmant Rocan, 2120 L Street, Iower level, NW., Wash!rgtcm, D.C.
l 2,Ihe avsmants with SECY designators are available at the NRC Public nv = ant Rocan at 2120 L Street, Iower Isvel, NW., Washington, D.C.
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- l On October 28, 1985, the NRC published in the Federal Register (50 FR 43621) a Final Policy Statement on Engineering Expertise on Shift, whim described tse 1
alternatives for prwidirg the r-un technical and academic knowledge to the shift crew. Option 1 of the policy statemnt permits an individual to serve in the cambined senior operator / shift technical advisor (SO/SIA) role if that iniividual holds either a bachelor's degree in engineering te&nology, or physical science frm an accredital institution, or a professional engineer's license. Option 2 permits continuation of the separate SIA, on each shift, who holds a bachelor's degree or equivalent, and meets the criteria as stated in NrJRD3-0737. The himian also encouraged the shift supervisor to serve in the dual-role position and the STA to take an active role in shift activities.
On May 30, 1986, the NRC published an Advance Notice of Fiq0A Rulemakirg (AKPR) (51 FR 19561). The purpose of the ANPR was to solicit public cmments on a Ozmission r A to extend the current level of engineering expertise on shift and to ensure that senior cperators have operatirq experience en a camercial nuclear reactor operating at greats.r than twenty percent power.
Two hurrired letters were received in response to the ANPR; most of them were cpposed to a degree requirement for Senior Operators.
Although coments received on the ANPR were generally W_ to a degree requirment, the Om.ission believed that it would be beneficial to obtain additional public u.maat on two alternative proposals. On tw M er 29, 1988, (53 FR 52716) the ami"icn published a proposed rule for degree requit==ds for shift puwsel, with two alternate approaches - additional education and experience requitar.sts for either anior cperators or shift supervisors.3 3The term " shift supervisor *' is beirq used to refer to that person holding a senior operator license for all fueled units at the site who is assigned rasporsibility for overall plant operation at all times there is fuel in any unit. Where a sirgle senior operator does not hold a senior operator (Footnote Continued)
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r Approximately 95% of the cu==d. letters received are qmaad to any rule. As described elsewhere in this i== of the Federal Register, the Ctumission has decided to terminate the rulemaking.
Development of Final Policy Statement In hiding not to proceed with the rulemakirg, the hi== ion carefully considered the u..=ds receivad on the pitM rule and the status of industry initiatives to enhance the education level of its operating personnel. In particular, the hiesion noted that may utilities have-provided wrtunities for in.ui=rs of their operating staff to further their education. Where prugas are in place, they have included:
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Financial assistance for taking college courses off-site; 2.
Development of pupas, in conjunction with universities and colleges, that provide college level courses and degrees -
incitriing arrarapu=ds that provide appropriate credit for nuclear power plant training courses arri work experience; and 3.
On-site ptu g a s that provide college level courses and degrees for members of the operating staff.
Be Institute of Nuclear Power Operations (INIO), in cooperation with many nuclear utilities, has developed " Principles for Enhancing Professionalism of Nuclear Personnel", dated Mard) 1,1989. INIO encourages utilities to inplement these principles. Among other important matters, these principles (Footnote Continued) license on all fueled units at the site, a licensee must have at the site two or more senior cprratuts, who in combination are licensed as senior operators on all fueled units. S e h iesian recognizes that person may have a different title than " shift supervisor" at different utilities.
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l directly address developire management personnel and managing operations department personnel. In particular, they encourage that:
" Management develveiwit and selection practices reflect the fact that work in plant cperation provides the broad, integrated view of plant activities rmbri by nuclear managers. Individuals with experience in day-tody plant operations are considered as an important source of %d. talent. The policies and practi s that govern career development ensure that indivictmla are aware of the vwvtLenity to develop into managment positions and that selected individuals are encouraged and provided with vwvtLanities to pm this career path."
"Prmation and manapwit develop:ent practices seek a balance between career operations indivirtm1s and others who obtain operations experience as part of their career develvyta:uit. Operations personnel with the potential to fill key management positions are provided an uwutLznity for acquirire experience in other groups. Also, other persanel with the potential to fill key manscpl :a L positions are provided an c5portunity for obtainirq an SRO (Senior Reactor Operator) license or certification and operations experience. Engineers who hold bachelors degrees in technical fields are considered a key source of such personnel... "
"Wttile a college degree in a technical field is not a necessary requirment for operations positions, operators with badelors degrees in technical subjects have a greater likelihood of praction to and.we in management i
positions. Management practices ensure that an dwi,iate number of personnel with such degrees, or the potential and desire for acquirirg cuch degrees, are selected for operations positions. In AMition, manacf:camt j
assists ard encourages selected operators who have the potential to acquire bachelors degrees; pwgtems that lead to degrees in technical subjects are given preference. To assist in acomplishirq this, college credits may be sceght for successful corpletion of utility trainire programs."
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In addition, INPO has an effort underway to review the training and education l
requirements for shift supervisors, with the goal of ensuring that shift f
supervisors have the r-=_q knowledge, skills, understanding, and the J. -
education to supervise the safe operation of a nuclear power plant.
'Ihe NRC monitors the level of technical knowledge of lisused operating personnel with its licensing and requalification examinations and inspection swians to ersure that perwusl holding these inportant positions are receiving the trainire needed, ard are otherwise qualified, to meet the requirements of the jobs. '!he 'w=4= ion is convinced that the existing level
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of technical knowledge of licensed personnel is sufficient to safely operata l
nuclear power plants and ensure the protection of the health and safety of the s
public.
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However, since the level of technical knowledge of the shift operatire staff has a direct bearing on the safety of nuclear power plants, the tw=4= ion continues to look for measures that can further inprem the capability of the shift operating staff. 'Ihe followirg policy statement presents our views wwning education for senior operators and shift supervisors.
Policy Statenant
'Ihe Ctznission believes that the level of engineering and technical knowledge of shift operating petwuel has a direct bearing on the safety of nuclear power plants. Accordingly, the 'w=4= ion believes that the safety of camercial power reactors is enhanced by haviry on eacti shift a tecm of 4
HRC-licensed professionals that ocubine technical and arwhnic knowledge with plant-specific training and substantial hands-on operatirq experience.
4The term " professionals" is being used to refer to persons W m have desswLcated otrpetence to operate a nuclear power plant and who adhere to the highest technical and ethical standards for reactor operations. '1hese persons may or may not hold an academic aspe.
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'Ibe Chmn4= ion's position is prailcated on the fact that, even though reactor licensees try to anticipate and address in training ptwies and reactor operating procedures all conceivable situations whi& could arise during nomal and off-normal cperation, there will always be the potential for situations to arise whidi are not covered through training or operating svu= lures. 'Ibe ew n4= ion is per=nwL:a that there is a need for scane individuals on each ruclear power plant operating shift who have an innate understanding of the systems-level performance of a nuclear power plant. 'Ihe types of knowledge that are r m W are scientific and engineering fundamentals ard the basic scientific principles that govern the behavior of electrical, nechanical, and other engineered systems. 'Ihis is precisely the type of knowledge that academic institutions develop and convey well and that forms the basis of an academic degree prw&- in a technical discipline. A sw&-
of scientific and engineeriry studies should provide plant operating personnel an enhanced capacity for reasoning ard jMy,+rit, as well as enhanced confidence, to perform better during both normal and off-normal operation, but particularly in the stressful and carplex enviiuumrit surroundirq reactor transients ard accidents which may arise in the course of reactor operations.
Individuals with such education can utilize their in-depth knowledge when called upon to assess the causes of a novel incident and determine the appropriate responses.
'Ibe Ctranission further believes that prwies which encourage experienced ruclear professionals to obtain college degrees ard personnel with degrees to obtain a senior operator license and hands-on operatirg experie ce create an important source of marspa=nt talent for the industry. Such individuals are i
more likely to be selected for manacfawnt positions and, because of their understanding of the unique operational problems associated with ruclear power plant operation, are in a better position to enhance ruclear safety by fostering a a:,ttug safety culture within their organization.
r-For there Inmns, the tw,mi" ion erdorses the DGO " Principles for Enhancing Professionalism of Nuclear Personnel" dated Mutf11,1989, for implementation at each nuclear utility.
Specifically, the himian encourages nuclear plant licensees to continue to develop ard inplement p%t-that permit operatirq personnel to obtain college degrees frtxn accredited institutions. 'Ihose persons with ability and desire should be given every vwvtLanity to further their education in order j
to best serve the interest of traclear safety.
l Additionally, the ew,mimian encourages nuclear plant licensees to hire i
college graduates for positions an the operatire staff. Licensees should actively work to make operating staff positions, includirq the plant specific trainirg ard develognent programs, attractive to college graduates with technical or science degrees in relevant dic:r-iplines frcxn accredited institutions. 'Ibe Oxmission particularly encourages the recruitment of graduates with physical science, engineering, or engineering technology degrees frtxn accredited institutions which have accredited g ug Utilities should continue to develop reactor operators and senior operators who have a significant anount of hards-on operational experience. It is desirable to have senior operators en shift who have gujih through the typical experience path, includirg the aux:iliary operator ard reactor operator positions.
'Ihe himian reccgnizes the r-ity for licensees to provide operators an shift with a =Lmg background of plant-specific, hards-on experience, regardless of whether those individuals have obtained college degrees. At the sate tire, the Ctrznissian believes that it is desirable for licensees to ensure that they have in the control roarn individuals with academic trainirq i
as well. Ideally, licersees should strive to have in the control roca individuals with a mix of education, training, ard experierce in plant operations. 'Ihis should be the goal durirg the carnirg years.
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l 7he hi== ion encourages nuclear plant licensees to pzwide w thInities for licensed cperators and others with nuclear power plant operating experience to assume positions of increased management r+#bility.
In the same vdin, policies and s ug aus which provide principal facility and corporate nuclear managers with meaningful knowledge and experience in nuclear plant operations, irxduding sufficient training and operational experience to qualify for and pasJ the NRC examination for a senior operator license, are valuable and should be encouraged.
The shift supervisor occupies a unique position. Besides interacting directly l
with the operating staff, the shift supervisor nust also interact with upper management, and every effort should be made to ensure that the shift supervisor is an effective member of the facility management team. The hi== ion believes that the highest priority should be given to assuring that shift supervisors, and other individuals with similar decision-making authority on each shift, have appropriate levels of education in tecnnical fundamentals, training on the particular systems, ard operating experience.
The Ctranission encourages INPO to otrplete the effort to review the adequacy of training and education requirements for the shift supervisor position in a timely manner. 7he h4== ion undahds that this effort is being ocordinated with the industry accreditation pispam and the National Academy 1
for Nuclear Training and supports this umwL. The Ctmanission intends to i
follow this effort closely and will participate as appropriate to ensure summful closure of this issue.
The h i== ion reaffirms its position, set forth in the Policy Statement on Engineering Expertise on Shift (50 FR 43621), that it is important to have engineering ard accident a
-d. expertise available to the operating crew at all nuclear power plants. The SIA has prwen to be a worthwhile addition to the operating staff by providing an independent engineering ard accident a===nt capability, ard we support continuation of this position. However, the hi== ion wishes to reemphasize its preference for the SIA to have a senior operator license, in order to enhance the SIA's operational krowledge
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~10-ard experience ard to provide him or her greatez credibility with the other E.: aux.us of the operating staff. It remains the hi= ion's preference that all licensees continue to move toward the dual role (SO/SIA) position. Ebr those licensees who continue to use the SIA as a "stard-alone" position, the 0:mnission reemphasizes its position that this individual sint1d assume an active role in shift activities.
Se SIA should maintain a contirning l
awareness of plant configuration and changes in plant status ard be an integral part of the operating shift.
Se licensed reactor operator, senior operator, ard shift supervisor positions are very important to the safe and reliable operation of nuclear power plants.
Berefore, utilities should continue their efforts to sustain and irx::rsase, where appropriate, the professionalism of these positions. m ese positions should be filled with individuals of the highest caliber and should ommand respect and status both inside ard outside the operational organization.
Dated at Rockville, Marylard this day of Qo s Y, 1989.
I the Nucl Regulatory thanimion.
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_bl J. Chilk Secretary of the rh =4= ion.
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