|
|
| (One intermediate revision by the same user not shown) |
| Line 16: |
Line 16: |
|
| |
|
| =Text= | | =Text= |
| {{#Wiki_filter:. _ _ _ _ _ _ _ _ _ _ _ _ _ _ | | {{#Wiki_filter:}} |
| f NUREG-0750 i
| |
| Vol. 28, No. 6 Pages 567-833 hhMMMkkhf/$5NhkA'[N / 1 sq mW1pgr ,
| |
| 0N hb
| |
| ~
| |
| Yh.
| |
| besc
| |
| : r. .
| |
| $1 l
| |
| %Mk@sMf$1M$h gyi. w wmm.,+ Nc +wwm A
| |
| =m y;c.j'T;;;f S.iy*g.j gga"w; t" . n
| |
| ,w
| |
| . i l
| |
| r Y ''
| |
| w n; hh p I
| |
| ~
| |
| f y,n p&.y,' s, 'g.cw~ ,.s Qf~&
| |
| ::gram,mm.sm
| |
| , ;;i ;
| |
| u u
| |
| .n. -
| |
| \(ml .lh -V V. 'l&lns$k*.'h%I+W -
| |
| % '' x ':en.:;&yO m .& W W :p.Q,
| |
| ;. y 7
| |
| * y-v58L:qq k, ,j~s. [r ; d e,W., '% g y 3,..
| |
| T ,-ll2 J Mi;*p :n j _~.w ?;^ vy]*Ns,l . L:ke,
| |
| , y.
| |
| [f.x'
| |
| ,i Y i.,g L y.G ' *;
| |
| . (__ $ Y n nhl'. 4f . Y
| |
| : f. .,
| |
| _ffh[
| |
| 7.d.vt ( ,W *,. .*M.s :y ,
| |
| ^; -'
| |
| ,.. p;.
| |
| .i l)3 d W 1 ipv,'w#)? i M*"' g9 di g {, w,.% #u u x .
| |
| ~ $. ;N,. k
| |
| 'i , ; 9gle i t. , ..
| |
| ;,glp;
| |
| -z i!. i ' k ' [gl k .;
| |
| g , << _ f.* vt,.}}y 's. n.
| |
| ...,g_ ,;'fQ*
| |
| - ' uW" yV, w, h(. ?
| |
| 1 u(,'~ p, !s w4''i . #,; ;%y Ol ^
| |
| l ,
| |
| ,6+4 fT Mi e~b ,
| |
| 9
| |
| (;e, 9F ,:
| |
| j+ b[}Q; ' :n. ,y,y:y,, ;r aw'
| |
| ]
| |
| g..; ] f fach. 'gel}
| |
| aw - - h.f ? ' .
| |
| gfD?, .l sl
| |
| ,.:. 1 f,a r,e.j ;
| |
| l_
| |
| ,, kkY. fl,&,l . , ; ,,: ,9 ,;t:r,
| |
| ,~ -h . 7:p h % .. &
| |
| .n ~ ..~ .. .
| |
| , Wsl : -t ,. w$,9f O y e M * ',
| |
| ..? jb'M",yh[ Q: ;k.:.,f ; a<Q33!Y* Q ? j %;fD'W' h /l $,q' d,)3.G & ~ W [;T,,A.
| |
| h,7
| |
| }Q:"'? f.cMmp y V ' c M ,n.
| |
| w % . ,p q g g u -
| |
| _ 1 y!hjii$1 -$c 3
| |
| pg - #
| |
| *, jl 1
| |
| l l
| |
| 9904110445 890331 PDR NUREO 07b0 R PDR
| |
| | |
| ~
| |
| i i
| |
| 3 ;
| |
| )
| |
| 1 l
| |
| l NUREG-0750 Vol. 28, No. 6 Pages 567-833
| |
| ; il p;lpM . ^
| |
| - ---- d; g f;il % 9lp k%%f?ij,:
| |
| { '
| |
| }U r 3;
| |
| };;:E%< ,4 1 it m Kgr 6, % .7,g;;g ue N ,
| |
| Nw E-IN@aT~$,$nW1;;1
| |
| : n p ;p lS MQg
| |
| $ cNljj.phtf%h0fgiRPMve t p 9 N y gig @yeane;qM ,
| |
| i np?..p.m..~;.,c
| |
| .-V . Nlgp b:r <e ,,
| |
| if y
| |
| /j!?3d$!*@e. b..%f;,g,;.yS4 A ,Q, g m?3;;&' 37Sh g :
| |
| .(
| |
| mag qe.-,eopssli 4
| |
| -[
| |
| 4 g
| |
| - f j ll y g g;.7" @i , 6r vlh , # f ' ^ " B y-wW '
| |
| ;, >f,.jyfj@g:
| |
| ' ,' , p"fll:y^
| |
| S}yg/ r a.i W
| |
| $ u : e, ; .
| |
| My, . ::P s
| |
| . -:4 .! yl,C W
| |
| - A f q~
| |
| ;bq i .< 3Qh;g
| |
| $ ;7 %p ,
| |
| fp; f >6t@%. ,. ,,
| |
| , , , , ,, .x.. yy ,,f:
| |
| yj 1
| |
| 8904110445 890331 PDR l
| |
| NUREO 0750 R PDR
| |
| | |
| v_. _ _ _ - __. _ ..
| |
| I i
| |
| Available from Superintendent of Documents U.S. Government Printing Office Post Office Box 37082 Washington, D.C. 20013-7082 A year's subscription consists of 12 softbound issues, 4 indexes, and 2-4 hardbound editions for this publication.
| |
| Single copies of this publication are available from Nationt,I Technical Information Service, Springfield, VA 22161 t
| |
| )
| |
| i l
| |
| Errors in this publication may be reported to the Division of Freedom of information and Publications Services Office of Administration and Resources Management . 4 U.S. Nuclear Regulatory Commission Washington, DC 20666 (301/492-8925)
| |
| | |
| . C''' .-
| |
| . j' ,
| |
| .T t .
| |
| s . <
| |
| .n,' ..3. .. '.. .
| |
| .3 ,
| |
| . . .:! ., . 7 ,
| |
| . , . . z.>.. .- , . . ., , .s
| |
| : 3. . . . .. . . . ,
| |
| .s . .
| |
| ;..~.:..
| |
| ' .. :w.;
| |
| , )m ; n - ..-s,. b TJ. g
| |
| }
| |
| s.c .
| |
| t., .R ..
| |
| ?. -. .
| |
| 'c ~ . _ ,, Py . ' c . - ,' < *'
| |
| ' NUREG-0750
| |
| " $[ '.hl%,$.#, . , ' . . ' .t. Vol. 28, No. 6
| |
| . s c. ;., ,
| |
| [!'f." 4 Pages W-833 n ,
| |
| /,; .
| |
| ~;.,. . : ...e .; *
| |
| .c,..
| |
| ..w- . . . . ...i. . r
| |
| . m-
| |
| .e a . ,. .. .. .
| |
| u v.s ' + *,.. ...: , ,
| |
| .. . n.
| |
| .,' ,y *p s **
| |
| ...o-. . ' '
| |
| . .4.0 ~ .
| |
| %. . ...s.. M.. s. . ... , . cM
| |
| - NUCLEAR REGULATORY v/.?. .w f..S, .,n.
| |
| .u ...a,.- . .. , c .
| |
| COMMISSION ISSUANCES
| |
| ,.= . . . .. . :. . . ,
| |
| . E.
| |
| *).p. - ,. * :
| |
| ..,;. y.f u .m.}l>* . .',';:
| |
| December 1988 s.9... .. . . . .
| |
| s .
| |
| 4
| |
| .. . . w :> . ...
| |
| ,, a .
| |
| .F .
| |
| . y
| |
| }
| |
| . .m. . . . . .. ..
| |
| .;- .- ,. ?. -
| |
| :. . n)
| |
| . l. . :
| |
| This report includes the issuances received du.Ing the specified period
| |
| '(
| |
| , .. .. .1 from the Commission (CU), the Atomic Safety and Ucensing Appeal .
| |
| , . . ,7]
| |
| , . , Boards (ALAB), the Atomic Safety and Licensing Boards (LSP), the
| |
| . i'. , . ..
| |
| - .i Administrative Law Judge (ALJ), the Directors' Decisions (DD), and
| |
| ..- ,. the Denials of Petitions for Rylemaking (DPRM).
| |
| .~ . . The summaries and headnotes preceding the opinions reported herein
| |
| .n ' ; , i{
| |
| . ~ * *~'- ''
| |
| are not to be deemed a part of those opinions or to have any indepen-i . ''i
| |
| . . . rw )
| |
| .s......;
| |
| dont legal significance.
| |
| ~.. . . . . ,
| |
| 4
| |
| , , . ....a
| |
| : s. .
| |
| - .. ., .. a ,.-
| |
| 7..* ' ~
| |
| \
| |
| 1,,..,,-
| |
| r.
| |
| .U.S. NUCLEAR REGULATORY COMMISSidN.
| |
| r e- e
| |
| .**..*.'e... ...
| |
| : e. e ',' . . '
| |
| . . Prepared by the
| |
| ..+ '
| |
| . .'- Division of Freedom of Information and Publications Services Office of Administration
| |
| . -t U.S. Nuclear Regulatory Commission Washington, DC 20555 (301/492-8925) b 1
| |
| - I g
| |
| | |
| 'V
| |
| . e y- g . *p
| |
| , 4 *
| |
| * 4
| |
| * e ,
| |
| a *
| |
| * w ,1
| |
| . . . . a
| |
| . 4
| |
| . d'- a h
| |
| e s
| |
| e 4
| |
| .I
| |
| , .. .' i
| |
| . . w .
| |
| ' i .
| |
| . . *a=* '*. ,,. .
| |
| g _ ,
| |
| . p, ,,., e- e.
| |
| : s. . , ,
| |
| We
| |
| ,lr' ., .
| |
| f .. . * . . . ._ . ..
| |
| : y. *. I '4 .
| |
| 4 e, ]s
| |
| . .* P .- se, .. ,
| |
| .M .. -
| |
| e
| |
| ;( * . . ,
| |
| , .. .. ./
| |
| .*
| |
| * g . , e. .. , .*
| |
| .s... e 4 . .. +
| |
| r,
| |
| ,' .'y ..e. 4. , , , . . , , _
| |
| . .. .. * . % ..* y :: ,
| |
| e* e l. . , .
| |
| ' ' . i^ , ,. .. *
| |
| .L*','
| |
| [* ? . g ..**+. . s. *... .r.. /*; . +: .. *. ,. -..e.. <
| |
| t '. . 3..
| |
| ;e
| |
| +. . . , .. .,
| |
| 3 .
| |
| . , .6*,4....*,.~
| |
| 4 . .
| |
| m.
| |
| .,..,.4
| |
| .* a s..
| |
| #- *.. . ..e. , . ,
| |
| l3 4.**
| |
| COMMISSIONERS h. 1 '.%, -4 %. .' f.. ?. h. , ..8. '?{. :. . ~y...-
| |
| .~
| |
| ;. ' . . . ^: . . . . . . .. .,
| |
| .#. e.~.~..~.. . .
| |
| ,rn 1
| |
| Lando W. Zech, Jr., Chairman p..s~.7.., m M... m ' U.. q.o f, .. ;i . . C Thomas M. Roberts t- c.. - -
| |
| . . . ~. . s . .. a Kenneth M. Carr l ,...l . , 6. .~." ..,
| |
| .U. n. #e i .:.J. - > ; i-l Kenneth C. Rogers <:. . ..t '
| |
| * James R. Curtiss $,,;,e h e.w '. 1T../% .
| |
| s v. y. c;
| |
| . h * 'i .. C S.-
| |
| s ; c.
| |
| p;.:c-~ *; ...na
| |
| - ,c .g q.. .s . .: *
| |
| <~
| |
| ~ :. .. .. ,,
| |
| ., 1 o
| |
| ..e. 1
| |
| ..t. . .
| |
| . . . . . - .i s -
| |
| ..~ .
| |
| ~.
| |
| p% ,......,..- . . - . .
| |
| :;..;.v,.. s a., 9. ) ; . .., ,
| |
| ~
| |
| ,r ....
| |
| ...rs.- s.. . -..~.. .
| |
| , .1
| |
| . ; : p. t.:g .
| |
| .. .. n. r: .. :.a m, .u , . ;, . . . .,
| |
| ..,c , .
| |
| : t. . . ...#
| |
| : n. s. ., (,
| |
| ,,,. ..g~.a.
| |
| 9 :. . ., . ;;u . . , . .. i
| |
| ,..,.*t . . + - .o 1
| |
| . s ,A s
| |
| .g. ....e.
| |
| - s..., ., . . . . .. . ,, . , . . . ., . .
| |
| s, y
| |
| . ,; . . . ,.,. , . ,. g. . o.
| |
| q
| |
| ..a.,
| |
| .. t. . . .-
| |
| e . . ,,e.yiv: . .,,:
| |
| .. . . . u. .
| |
| .. . . + . . . . -
| |
| ? Q ;l* c : c.'C O. ":.?d..:
| |
| Christine N. Kohl, Chairman, Atomic Safety and Licensing Appeal Panel t * ?. *.. "-
| |
| B. Paul Cotter, Chairman, Atomic Safety and Licensing Board Panel .[;.j:, "z. . -
| |
| Q.],g {. ~. c .
| |
| . ?,..
| |
| : t. 4v. , . ,t ..- .4..s. . r . .A I.* W
| |
| . ,. . , ',. p
| |
| .4 je , b,f' .,*. I .#. .[e..,
| |
| .s 1,,.:......*. .*W,.,...,.>em. ! . s. <
| |
| . ...(t.>
| |
| .......,.,n i
| |
| .. . O,, .
| |
| , . r.
| |
| ....... - . :c.~ ,..M4..d i:
| |
| 3
| |
| ...s,
| |
| ,.c; ; .v.. . 6. +, .. -.g 4
| |
| . p. g. t'..
| |
| + :.s . -s. ., n.
| |
| : w. c. 2. :., ., ~;,.;gn.5 ? g;;.;; < .. ,x
| |
| . . t ...u .b ,.. >.. . .
| |
| :. * * . .,s
| |
| ; 1. ,; .4
| |
| ...*;.,,..., .~ . . .. <.;,
| |
| e . u, ,..e.. ,. ;. + ,r ,.t ..
| |
| .t ..
| |
| . . . ..s. . .. ,
| |
| y w .'.
| |
| Q ", '} .? l l .: '
| |
| * f '
| |
| w.
| |
| ~
| |
| r,... j.L.. i *;" *7' .Y.*i* ,E, '.. * , . ' ,. .*j e '
| |
| ..r. .
| |
| : i. :.~ ', * . . .' ,i, A**,,e.
| |
| %. . V. . , . 4. .e'M O .
| |
| l... < .
| |
| ** * ., . ... t, ,.s. ;- ~ . , ~ ,
| |
| e
| |
| * .~
| |
| : e. . ; . J..-'... ,.,1 .._p. ,, '? :. . A... .
| |
| - % , n : . .>.w _ ; r,. . ,, , . . . . . ,
| |
| .c , . .
| |
| o
| |
| . , 3.-- ,.; .m.,,a , .,.w. . , .. . .
| |
| ~... , , ,.4 .
| |
| : v. . f... u .$. .; . ,- ,. . 8,, . . ; J. .c :.,., e. ,...
| |
| s
| |
| . 3 1.
| |
| . . -> . .- . >.. .. , .- . - . , .~,
| |
| t- . , + g. . .
| |
| ...5. s.
| |
| .s . - g
| |
| ,. . .,, r s, ,;, .s ., . . .
| |
| s , s,
| |
| - y .
| |
| . . .j . . . .
| |
| 4 1 .. ,
| |
| ....,,,,y.,,_,
| |
| u.,.,. . , ,3. .7 .
| |
| s-._ . . . .),.., ..
| |
| ..r,..,.,,.4.
| |
| ,g ' . , .
| |
| ..4.
| |
| p ., . ,. 4
| |
| ~ .. s. . . ; c.
| |
| . ..$L .'. .i b. h % ,. '. i f. ~.5.4
| |
| '.r r,
| |
| *4 , .6 a.
| |
| ,. . . . ,..
| |
| * 8 .., %g e.
| |
| : i. T9 .4 .. ,,4 -
| |
| 4 g %*
| |
| g e,s
| |
| ." s . . .
| |
| (< ., . , . .
| |
| ,e
| |
| . ,.. &e
| |
| ~, s, - ,,,i*,. re,tc l l 3 ,. .. 3
| |
| .e .. ' .f . .. .s .t. ,
| |
| 3
| |
| , . ,, ...,3
| |
| .$..,' . j.~g=. .. ,, .c1,- ,. -..s,,,
| |
| -' ** - y i: J ...
| |
| I
| |
| ,o
| |
| -g.
| |
| ' , ,4
| |
| ' o., ..> .. <ti . ..i- ' .
| |
| y < ..,,
| |
| ,m_. ..- . ,
| |
| y., . ,.
| |
| .5
| |
| ,,-c. g..,e,
| |
| ..,..g . , .
| |
| .t .. ...
| |
| ..)
| |
| . . . s . . . #
| |
| ma_----- - - . . . _ . . _ .. -_g! . ._4 $.
| |
| | |
| .... .n . -
| |
| v.
| |
| ., . ,g
| |
| ~
| |
| : a. ..
| |
| .. . 9. _ .... :..~~ . .
| |
| ., s . ;
| |
| , :4
| |
| . .' l t
| |
| ,,- :I ,
| |
| : u. . , '
| |
| 2
| |
| .' ' ' d. .' ' )
| |
| CONTENTS
| |
| , ;, .;.; a : *,' &., . . .,, :' .. . .y? : -
| |
| G.
| |
| ;,,,,.s...../."
| |
| .3 ,' ; ., S. . .; '. . .; Issaances of the Nuclear Regulatory Commission v g>' .d., ,( .f..
| |
| ,-. . ' ' ''a .
| |
| , .c . ?p .;l.D.g,,i LONG ISLAND LIGHTING COMPANY s... '
| |
| .'. .f -
| |
| .w.
| |
| a k .. '. . % 9 . d
| |
| , sa 9 c T, (Shoreham Nuclear Power Station, Unit 1)
| |
| . . . . : Docket 50 322 OL-5 (EP Exercise)
| |
| . - . , . r > y# . ,
| |
| ~ arg -
| |
| 1 .,
| |
| ~''~;, . . :, ' ,
| |
| . l l + .f ::. . .,., y,.. , ORDER,
| |
| {E.;~; g.C G.'
| |
| . . . . n
| |
| . . -1
| |
| . i CU 88-9, December 1,1988 ......................... 567
| |
| ..,,, . W ,
| |
| ,4
| |
| . ~ ,. y. .y.t.; , , ,. .. .~
| |
| . g.4 .t LONG ISLAND UGHTING COMPANY
| |
| ' , ' . ~ . .'. y '+ 5. l . ,,. 6 r. .f. f.'.
| |
| 3 (Shoreham Nuclear Power Station, Unit 1)
| |
| , ; . .j . a . .::i
| |
| .. 4
| |
| .- ..., Docket 50 322-OL 5
| |
| .i
| |
| . y. . .,i'. . '. ,c. ."..4, , . , ..,. ., j . ORDER, CU 88-11, December 21,1988 ....................... 603
| |
| . , ' . " , . v..
| |
| . v
| |
| .s''.,
| |
| ; . Mc.', '
| |
| : d. PUBUC SERVICE COMPANY OF NEW HAMPSHIRE, et al.
| |
| " ~ .
| |
| J. J', z. (Seabrook Station. Units 1 and 2)
| |
| . .j'.
| |
| '.s ,
| |
| 7- ?. .
| |
| . C . .'**".-['j{j Dockets 50-443-OL 1,50-444-OL 1 (Onsite Emergency Planning -
| |
| ~
| |
| , 'y '( . and Safety Issues) -
| |
| 3,, , >
| |
| ' ?,' ) DECISION, CLI-8810. December 21,1988 ..................... 573
| |
| +.,.t.. - .
| |
| , , ;t,j , ,
| |
| .. . .f . . . . . . : ,; 'IEXAS UTILITIES ELECTRIC COMPANY, et a!.
| |
| , *. _ j,,' / , ;;, c ; g. .
| |
| v,- .
| |
| . :. (Comanche Peak Steam Electnc Station, Units 1 and 2)
| |
| ~
| |
| ,i -
| |
| Dockets 50-445 OL 50-446-OL,50-445-CPA I MEMORANDUM AND ORDER, CU-88-12, December 21,1988 . . 605
| |
| . e.
| |
| : a. , ,
| |
| *. ., ~"
| |
| l ' ". - '. '. . . ,s. . , "i '. ;! Issuances of the Atomic Safety and Licensing Appeal Boards
| |
| ./...,. * .* .
| |
| .m . ...". V.. . ' ' , . LONG ISLAND UOliTING COMPANY i ,,
| |
| i '. ,. ' . M '.. , , . ,
| |
| y (Shoreham Nuclear Power Station, Unit 1)
| |
| .]..' , . . . ..;
| |
| ,f ,*. #. , Docket 50-322-OL-6 (25% Power)
| |
| , ., MEMORANDUM AND ORDER, ALAB-907, Dwe..ber 5,1988 . . . 620
| |
| *N...
| |
| 1 LONO ISLAND UGHTING COMPANY
| |
| - . . . - .; (Shoreham Nuclear Power Station, Unit 1)
| |
| .' / J . ',. . .,.,.(~*. ,
| |
| , . , ,'l Docket 50-322-OL 6 (25% Power) cv.". . *f u
| |
| .. ' MEMORANDUM AND ORDER, ALAB-908, December 9,1988 .. . 626
| |
| .e- :.,_ .. ..-
| |
| a
| |
| . , , , ; . . . - . . i
| |
| .. c .
| |
| .. . , g ..
| |
| .,,.i-g-
| |
| p
| |
| .. .''' s
| |
| . Ill
| |
| . t h
| |
| i, ,w. .. . .
| |
| I a ,
| |
| e O
| |
| | |
| v ,
| |
| ~
| |
| . . ,. ,. i
| |
| ~ .- , . > - . . , . .
| |
| : a. - .y .',. .' .
| |
| ,4 p., ,* ' .
| |
| ! :- .4- -
| |
| y ,'s., ;%.
| |
| ., . s 7* *
| |
| .o j 's ,
| |
| }s._e ,.
| |
| : f. o. .a .
| |
| ,. t 4 , . ,.
| |
| .: . :..i.~. .
| |
| .,.n ..a , .' 2 1, ;. . . . . .c ~ . . . .
| |
| ,,c.;y>r- ,~~ :. -
| |
| ~ .- . . .i. .
| |
| , .. .v
| |
| ,3,. ,
| |
| .. ,. .. A, .
| |
| . , a . t.. >,e. . . o . . . y,, .s;
| |
| . . ..a 3 4 - . ..> .cp a; ,.,.; -- I
| |
| - A .
| |
| g..
| |
| 3 . ,: ,
| |
| ,.e* ,.' .. l 1 s
| |
| . ::d 3 ,
| |
| v C ''- . PUBLIC SERVICE COMPANY OF NEW HAMPSHIRE, et al.
| |
| , f f,. -
| |
| '. 7,; . 4 .c{ . (Seabrook Station, Units 1 and 2) l
| |
| .a ,; 4 '
| |
| ... Dockets 50-443-OL-1,50-444-OL-1 (Onsite Emergency Planning
| |
| - .,a m .
| |
| a .
| |
| , . Q. " ( -
| |
| - .g f., .;,j and Safety issues) g.:, g.7. ! ',N , 9 7 * "
| |
| * MEMORANDUM AND ORDER, ALAB 906, December 1,1988 ... 615
| |
| . .y . . . - ' . , s.
| |
| . ..l v..
| |
| . r j . p'' '" i ,.,'f G : Issuances of the Atomic Safety and Licensing Boards
| |
| . . . j ../ >
| |
| ,,,( ..u... s
| |
| . . . , . ,,. .,7 . . . . . .c.4 4;$d.b f'..N; .',,' .;(,' ? @ y LONO ISLAND LIGHTINO COMPANY
| |
| ~, . /: T d . : & W.UC.p p (Shoreham Nuclear Power Station, Unit 1) 7:,.. 4.. y ,g..y,,g.f ,. . . . ,;...'
| |
| Docket 50-322 OL-3 (Emergency Planning)
| |
| ORDER. LBP.88 29, November 21,1988 ....................... 637 s . , '. .
| |
| : p. . y. aon/
| |
| : u. .. ..i -. ,. , , ., '....3 . ,~;
| |
| . . ..p.;. . . . ;.. : .- + . .. ;.>...,
| |
| ..: J (J. fy;[l ? < .-Z % .3.'_.5 .
| |
| * LONO ISLAND LIGHTING COMPANY
| |
| ....y..
| |
| ,, . ' , ,/ H .. J.
| |
| (Shoreham Nuclear Power Station. Unit 1)
| |
| Docket 50 322-OL 3/OL 6 (Emergency Planning) 7 7 ., .
| |
| 4-
| |
| . cl; . ,
| |
| -.- , , MEMORANDUM AND ORDER, LBP 88 30, November 21,1988 . . 644 ;
| |
| ,- ~. , .s ' . ;' ,i
| |
| . : . ' I.- '-.'
| |
| i e
| |
| < .* ~
| |
| ;- ' ,Ji+
| |
| PUBLIC SERVICE COMPANY OF NEW HAMPSHIRE, et al.
| |
| , ' . .- .<y ;. ;,:. , - . ,.4'.~..
| |
| . s (Seabrook Station, Units 1 and 2)
| |
| L ,: ..'. - Dockets 50 443-OL 1,50444 OL 1 (ASLBP No. 88 558-01-OLR)
| |
| .; . . . ' i.]
| |
| .g,y. ' ,f''I
| |
| ",1 s
| |
| ,. , 1 .j 'i (Onsite Emergency Planning and Safety Issues)
| |
| [
| |
| -~ MEMORANDUM AND ORDER, LBP 88 31, December 7,1988 . .. 652
| |
| : 9. .. .a
| |
| ' ( .. . ,
| |
| ' ' ! PUBLIC SERVICE COMPANY OF NEW HAMPSHIRE, et al.
| |
| .. 4
| |
| .- (Seabrook Station. Units 1 and 2) 4 Dockets 50-443-OL,50-444-OL (ASLBP No. 82-471-02-OL) 'l
| |
| : l. o c : V . .. .
| |
| (Offsite Emergency Planning) {
| |
| l PARTIAL INITIAL DECISION, LBP-88 32, December 30,1988 . . . 667 r
| |
| . 6h; c l* . .' . [, w, ..' ;' -/T K. ,' .
| |
| \.*. .-
| |
| 1:. ,
| |
| : . , ~,
| |
| .r . .
| |
| 1
| |
| ,. .-m '
| |
| La .
| |
| Issuances of Directors' Decisions 1 . ;.. . . ... .
| |
| . /. . ,
| |
| : a. . . . :~ . . '.: . . ',i l .'.
| |
| : i. . , - ..- . .
| |
| u BOSTON EDISON COMPANY
| |
| [ * : . ' p ... .. .. J. ; . .'Jr. ' .. _. ? ' ,. . g ..
| |
| >, . . . - - .- ,..'~, ;. l '' .,' r , , j .
| |
| (Pilgrim Nuclear Power Station)
| |
| . f - ;; .: , .' - <. .f Docket 50-293
| |
| '-e FINAL DIRECTOR'S DECISION UNDER 10 C.F.R. 62.206, L,.-
| |
| .'": DD-88 21 December 29,1988 ............................. 814 7 -) , * '
| |
| ( .,. ;c ; .:.;e....", . ., .j .Q . 4 .
| |
| ,._... :2
| |
| .. ,'c .
| |
| -*A. - .
| |
| ,e ; ': .:.. :,. .s s
| |
| : t. , ,...;
| |
| >h ,g
| |
| ~,
| |
| ly
| |
| . ' .s:. '. .
| |
| j L'
| |
| *g.
| |
| a , a e
| |
| t . .
| |
| er
| |
| .4 g
| |
| . 4
| |
| * 6 .% - . .
| |
| - - - - . - - - - - . _ _ _ - . _ . _ _ _ _s
| |
| | |
| - ~ p., ,
| |
| m .
| |
| , s. .
| |
| d w 2
| |
| * , 4 %
| |
| *, , . .6
| |
| . e c ,-
| |
| . 3 .-
| |
| : i. ....;. .-
| |
| 3- l
| |
| :..~. . . , ,
| |
| s
| |
| . g
| |
| ,. . . *3. .,
| |
| , 4
| |
| , , . , . . ,,, - l i i
| |
| <r;< : p - ,
| |
| ., 7 ',' .
| |
| . 4 SACRAMENTO MUNICIPAL UTILITY DISTRICT d i
| |
| 'G; (Rancho Seco Nuclear Generating Station)
| |
| ..,6;, .... ;- 7. -C..";.*f'.."@ l
| |
| ;. . < .. .3,1.,/ : ,M W . " %..'.;l..I,
| |
| .. 3 ,
| |
| . . .f. Docket 50 312 l c,,j.I';,'',5..,L'
| |
| -( ,
| |
| '*6 .,. .:**"'., ..., .l .p, ',. . ' v' . . V, . 7
| |
| < ~ -
| |
| DIRECTOR'S DECISION UNDER 10 C.F.R. (2.206, '
| |
| a ',cs . . , *"
| |
| g ,q . + ..2 .y q.
| |
| DD 88 20. December 14. 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 809
| |
| . ..' , . ..r.. .. , .. . .
| |
| , .t, i
| |
| : 3. . . .a , . . , .. . , - - ;:
| |
| e ,, ya.. . . v. ;.. . . . . ..3.., ., ..3 4
| |
| j e .. .~%./.3. ,i .w m.'.s . , . t'..*,n,',. ,,J. . . w f 'e s X.'.: *.<> . I Issuance of Denial of Petition for .Rulemaking
| |
| <',.e.
| |
| af. .
| |
| .. . g,*,n. ; ; q, .. ,
| |
| ,g a' .
| |
| .,...~.7.. .
| |
| .u .
| |
| : c. ...
| |
| +. f. ;r r.sf,.? ,
| |
| .',.c. ij , . .y ..C r ;. i.,. '
| |
| PUBLIC INTEREST RESEARCH GROUP. et al.
| |
| .~.
| |
| bc>, .,s*' 1 r .', ';/,i.. .. ... L",.; - j Docket PRM 100-2 DENIAL OF PETITION FOR RULEMAKINO,
| |
| . . ,,... ,* (. ;-, +p.p.,, l .e " % .,
| |
| DPRM-88 5, November 29.1988 ........................... 829 j
| |
| : s. . ..,. . . , . . . , . , ,
| |
| .a -
| |
| i.lr...
| |
| ' v
| |
| * , r ,' ., : , . .,. . ,..'. ...s,
| |
| . ..y;.,. .7..< ... :
| |
| u ..y n. '. . j
| |
| ., ., .....s. <.
| |
| . ,< . 6
| |
| ,c ..e . ~. . .
| |
| w....,. .,. . . . .
| |
| .s
| |
| ....... . .J, - . .
| |
| .,~... .a... ..
| |
| 4 e. . , . , 3.......,..
| |
| . ,.,.3 .... ..l
| |
| ..-QY*
| |
| ' Ne
| |
| * M ?
| |
| m..- n-., * *
| |
| ^
| |
| . . . , , . . , ,,.J .
| |
| .n. .. ni f, a . ,...;.w,....,..,..v.s.
| |
| : e. ..,
| |
| p
| |
| . .. 1
| |
| ., . . w .,,
| |
| _s:. .
| |
| : ,. )
| |
| .. .. 3 . .
| |
| ,b 4
| |
| . . * )
| |
| . ...- .... . . , ...,.. .s, . .,
| |
| s.
| |
| s .
| |
| l
| |
| :d
| |
| .s 4 * ,4
| |
| . . -i.
| |
| 4..# ,.
| |
| .s ,1 - . , . , . .
| |
| .s.- . ,
| |
| a.
| |
| g3
| |
| . . j ..,a 5. d
| |
| * 4
| |
| . . . * , .g
| |
| -e y
| |
| *%, I J
| |
| #p
| |
| * p
| |
| : s. . i
| |
| ., .,. . .o
| |
| . # . P ''
| |
| g ?.
| |
| 4
| |
| . . g,, $h . ** ' - . d . . p
| |
| ,.ag 4
| |
| . . g+.4. -
| |
| go.
| |
| .4' . # . 8'
| |
| '..,94 , - , -, * * , . - ,,
| |
| ,*. s-.. s,, .. . 4 s, .
| |
| s,
| |
| . . . 4 , ; ,
| |
| .e
| |
| ,. _v. ,
| |
| -a.. . .
| |
| e # f ,4 ) , -
| |
| ,,; . ~, . .,'. i.,
| |
| , % . ,$ a
| |
| . .s--*
| |
| ....?...,*.>I.,.., 1
| |
| . . .. ,*fi
| |
| 'e*e
| |
| ' . - , . ' .*. 4 &
| |
| * .g '
| |
| .. *g
| |
| . ,. *... . - r
| |
| . . .e...
| |
| g .- ~-.
| |
| a t
| |
| . . .t. .
| |
| e
| |
| =
| |
| .j . ' ',
| |
| . *s... . ., t 4
| |
| e e
| |
| a ,, . , '.,
| |
| 4
| |
| #4 .
| |
| . . . k
| |
| '.s.
| |
| 4 y
| |
| 8 I
| |
| . o e
| |
| e 9
| |
| s O
| |
| a _ _ _ _ _ _ _ _ _ _ _ _ _ _ __
| |
| | |
| e l
| |
| \
| |
| l!
| |
| b l
| |
| l 1
| |
| e D e
| |
| COmmlSSIOn .
| |
| Issuances .
| |
| il
| |
| [
| |
| 'l 1
| |
| i 1
| |
| I t 4
| |
| 4
| |
| ' .1 I
| |
| 4
| |
| >l c t 3
| |
| *. #1
| |
| +
| |
| .i i
| |
| I, t
| |
| t'
| |
| ,j-a w
| |
| - - - -. .-. . . .. . , , . , _ . . i t
| |
| | |
| .a.
| |
| ~
| |
| : r. .
| |
| : n. , .. ; y <. .
| |
| - r. .c ,....,.. . .
| |
| s
| |
| .e .s., .. ..,
| |
| ' ., s.. . .. .. , ..
| |
| . +.f.},;;;,:,.*n u
| |
| , ., s . ,
| |
| _,. ~ .... v . . -
| |
| i ". .. .. :: . . . . s. . . .
| |
| ,e
| |
| ...,..c m, . m
| |
| . g. .. . .
| |
| s,.
| |
| ~
| |
| g.,
| |
| ,s -
| |
| e., ,
| |
| ,c. . a
| |
| + .
| |
| , a.
| |
| .a u. ' . , . . , . . ; Cite as 28 NRC 567 (1988) CLI-88 9
| |
| ,... < ; ;. ls f,",,f, f,?y.,..
| |
| .*j
| |
| ;'s; 4 g ., .L
| |
| ,:s
| |
| : .a . c.-e e.
| |
| ; f .*>..
| |
| ,'v . -
| |
| * 4 ,,4
| |
| ,f. < , ' :'/*, 1.*d.J ' . ,.% 1. . ,- '?.R *;
| |
| rJ , 7; . ! *. b,f
| |
| . UNITED STATES OF AMERICA
| |
| . :,,s,# . #,.1 NUCLEAR REGULATORY COMMISSION
| |
| ~: s w :.:..pv an;.s,,;A *~* .., . . ;- c.. c .,A. :
| |
| ,.,':,,n t ., .,. .. . .. .e
| |
| ,L. ,,s. . r,e, ,e..c...,,
| |
| ,,...c..,.<,i,m--
| |
| - + ;
| |
| s >. ;.s : (. . %, , COMMISSIONERS:
| |
| : m. ; ,-. .. ...~y. p ,.
| |
| ,s . e. ,
| |
| . , . . ,.,....n ..<
| |
| .a.. . . s .3. :
| |
| . .,y: . .;,. .n .
| |
| .s. ;,, . .:. . L,.
| |
| : : , , .' .. , ~.; ,.
| |
| , . "
| |
| * k ,'] ) 'g..' ,,I.. .'..,I s. 7 . .:.I '8!t.
| |
| e Lando W. Zech, Jr., Chairman
| |
| . . t ,. .
| |
| . , W .-
| |
| . . . .s. .
| |
| 4
| |
| '",...%..,,.r.,.s
| |
| . .; . . . , ,, Thomas M. Roberts
| |
| ;; . ..., ;.T i '. ; .;.?
| |
| Kenneth M. Carr
| |
| \ v
| |
| ; ,; ,..... ' _4 , .; ..
| |
| Kenneth C. Rogers
| |
| ?..j .l .;,c, 3 ,e. . . f .~. f f..3.',f, y . c, 7, . ,. , . . . ; L '.',: r- James R. Curtiss i... .... . . . . - . .
| |
| < t; e,.,
| |
| . . . m .. c : ,~..., ...,,.. er-l.
| |
| pw.v.'.v , .M. .. -c 41,':
| |
| . ;d.: . n 3. . ,.u
| |
| :: In the Matter of Docket No. 50 322 OL.5
| |
| ./ 'l d, f;@a, .-[.1,j.,~;.,. (EP Exerelse)
| |
| ; : .. . . .. . , ... . :. , .; .i ,j[; , ./. .,,', k]i v. . : j - ..
| |
| . . ,, a t .m a: n.
| |
| is
| |
| .- 4
| |
| ~ t,. sc. n * ' f, . ?l, . ' ' ',^' 10,;;',1
| |
| . ,. LONG ISLAND LIGNTING
| |
| . , 'a... ~ . , , ..; _ ..a. .. q;, si
| |
| . . ' ..l.y. *..v.. ...
| |
| COMPANY
| |
| < r . s.*,
| |
| : A ,,,; ''
| |
| , , '. , 4's . (Shoreham Nuclear Power Station,
| |
| , cj. ,
| |
| -,. .p.,. ,
| |
| +
| |
| ./6,: i Unit 1) December 1,1988.
| |
| .s. ., . < , .( . - 4.
| |
| v....m .. .'
| |
| . . , >1 3;. . . . . . ..
| |
| ,e,. .
| |
| y 4 r
| |
| . . .-e i .. .
| |
| 'Ihe Commission determines that the circumstances surrounding litigation of q .p;l i,r. , . i d , [. ( :, .p%,:27^' y: .
| |
| emergency planning exercises in this case wertrant its intervention to accelerate ''
| |
| '3; , C ,, . . g ,
| |
| et the proceedmg on the 1988 exercise. Accordingly, the Commission establishes
| |
| '..t. .y/ .
| |
| .,c , , . .. '.'.1,7' .,d an expedited schedule for the conduct of the proceeding cn the 1988 emergency
| |
| '<,-.~..,.~
| |
| <7' ..'," planning exercise for Shoreham.
| |
| . . , . , ,,..~e. , .
| |
| ;w.
| |
| . . . .. c , d.A, s .
| |
| ' . . . .. . . , .,.. . s -
| |
| .s .y c.) ; f. "Q..; 9 . . ',.gfd.3 gj ,
| |
| NRC: SUPERVISORY AUTHORITY
| |
| ,1,p i7q.., , .
| |
| ,, .g, '. , 'Ihe Commission's inherent supervisory authority over the conduct of NRC
| |
| :. ; g,, . . ". l . , ",'' ,,;. .].;,; .l,. ij adjudications gives it the authority to intervene in a proceeding at any time.
| |
| . . , . . . f, , > i R. . : . ; - 4. ij Public Service Co. of New Hampshire (Seabrook Station, Units 1 and 2), CLI.
| |
| .',*?. ,
| |
| ., ,} . , / * *
| |
| ..g ; f (
| |
| .. . . ~' , Ql , '. .
| |
| , . .' y 77 8, 5 NRC 503, 516-17 (1977); Cleveland Electric Illuminating Co. (Perry Nuclear Power Plant, Units 1 and 2), CLI.86-7, 23 NRC 233 (1986).
| |
| .., .: .~ . , . . .J .
| |
| . .~..>
| |
| . +.
| |
| .. s .s: . . -'. .
| |
| . e,. . .. . .
| |
| . . s- -
| |
| ~ ... . ... . ,
| |
| ..,s.-
| |
| . ..~.. . .
| |
| *L
| |
| .t -
| |
| .y . 567
| |
| . h e.. .
| |
| . i
| |
| .4 ,
| |
| s ,
| |
| | |
| .,_ m y- ,
| |
| u 1 .. .. .
| |
| }* -,, n .
| |
| p.'o s .< , o 6
| |
| + - -.. ...
| |
| : 3. -
| |
| . . , u. . .
| |
| o EMERGENCY PLANNING: FEMA FINDING (REBU'ITABLE ~.-
| |
| ,. ;.r. e... -
| |
| . , . ....r, _ , . ,. . .-.
| |
| PRESUMPTION) ..
| |
| ; ,- - -s .. ., '. , . y
| |
| : 1. . ' O * + ', , '." * ,. 'j:; ..
| |
| * Under NIsC regulations FEMA's findings on the adequacy and implemen- r .. < !
| |
| tation capability of emergency plans are entitled to presumptive validity.10 ,
| |
| ti ; .' \
| |
| !/ j !,C$ ,i' "', ."f;y.. g. ,$ [*, '
| |
| . ,,' !r' a. . r3. ,-:
| |
| C.F.R. I 50.47(a)(2). .
| |
| .; [
| |
| V . . ;. ., t '; :,: c, " 3.; .,,, . . .. .,
| |
| EMERGENCY PLANNING: EXERCISE HEARINGS (EXPEDITED p*;'; 3., y* .f. .. -f..
| |
| * . '.f ' ; . >
| |
| PROCEDURES) r. . , < ~ . . J. - . ,
| |
| e p, m - 6 .. -. ,
| |
| Where it has become apparent that the interplsy of the Commission's exercise lp, ' .,3.; . - : ' ,.7 ~, ,'', " . - " .' , . '
| |
| scheduling requirement and the need to offer an opportunity to contest the results ''.
| |
| .,(
| |
| f.; . ;*n 4l of an exercise will bring about an endless loop of litigEion, despite efforts to ._ . -
| |
| expedite the proceeding within the context of the Commission's usual Rule of Practice in Subpart O of 10 C.F.R. Part 2, the Commission finds it necessary to k. C ' ' ,;* ,,'
| |
| ~
| |
| \
| |
| take more specific measures to accelerate the litigation. [~
| |
| .., 42 ,'~p'''..~~
| |
| i .- .. ' . , g ,.
| |
| . 2
| |
| : s. .
| |
| - . n,
| |
| )... . . . .. .,
| |
| EMERGENCY PLANNING: EXERCISE HEARINGS (EXPEDITED i . '. ; ..
| |
| . ..L- . . -1 t
| |
| ' ; i PROCEDURES) : >>
| |
| - , ; ,. .,s e p
| |
| - In recognition of its obligation under the Administrative Procedure Act -
| |
| '~ . %.
| |
| ,i .
| |
| to decide cases within a reasonable time, and consistent with the suggestion ' -
| |
| .f N in Union.of Concerned Scientists v. NRC, 735 F.2d 1437 (D.C. Cir.1984)
| |
| %y 1Q w , , M( * . 'M
| |
| / " ' '
| |
| that expedited procedures would be appropriate for exercise hearings, the ,.
| |
| '" '' f Mi " ., M Commission in taking steps to accelerate the litigation surrounding the 1988 . - - .
| |
| ' '. -]
| |
| [
| |
| -eniergency planning exercise, directs an approach that preserves the parties'
| |
| ' " ~
| |
| V.;,. j, ... . i . . " . 1 rights under the Atomic Energy Act and the Administrative Procedure Act but which bypasses aspects of the Commission's usual procedures in 10 C.F.R. Part c
| |
| % * ...k ',
| |
| (- , " .v. f ~ ' t. [ q "W. - f., f*
| |
| J'. q 2, Subpart O, which can contribute significant delay to a proceeding. .,,
| |
| 4 e,V: .c.i;i y'. '.~ll; "N "."; -
| |
| ., .p. q'.T?ee
| |
| 'q he: N . $ C . M i ? '
| |
| >'~'J $
| |
| 0RDER -
| |
| t ' 8, ..:\ ,+. 3. . .y . .)f, r . :
| |
| j').1 v.,
| |
| .~ p : % ;-c. w. . , .,. ....e.r. .. .:. .. . + , . . -
| |
| ,:Y ~ -
| |
| This Order addresses the future course of the proceedmg on the 1988 emer- gl ..If 'M , ' 4 ' ; L' Y t j gency planning exercise for the Shoreham Nuclear Power Station.1 Although the *
| |
| . O,.., 41 a ., '. . . c .i I. , . _ ~ ', 2.",: 9 Commission has under review the OL 3 Board's dismissal of the Interveners j MJN , - .~;7 . .A N. ' ,' e@h +. '
| |
| from the Shoreham proceeding in LBP 88 24,28 NRC 311 (1988), the Com-h . i., . "
| |
| mission believes that it is prudent to establish procedures and go forward with f, ~'" i, . /. ,; ;~ ' ' '.
| |
| a .* ,
| |
| .}
| |
| g F
| |
| j,. "
| |
| . . ,. ...< ......~-
| |
| 1Ahhough dus Order is issued under the OL 5 Docket and duected to that Presidang Board we have not yet ..
| |
| ' '' t .a .< o canplated our octaan as pennans fet sevww cr A1AB 901,2s NRC 302 (1988). Thas order does act prejudace L .
| |
| . f.
| |
| * 4 ow noview of that decision wtuch we espect to canpisu expedatamanly. , . ,,.,./ ; . ,j , , ,..j
| |
| .e w* ".s?,
| |
| p:. ~ ~f . ' y''n'* *
| |
| .j ' ,,
| |
| ~ ' ' ~
| |
| 568 q, lN. c : . p ,. .
| |
| 6 . <
| |
| e *
| |
| .- .. ~i-
| |
| , .. i
| |
| .- ji, ; . 9. y
| |
| .g .
| |
| ,y.1
| |
| ,g*
| |
| '=o ,r. v-*-
| |
| e
| |
| : t. g . m *
| |
| .r
| |
| -4 a .
| |
| .-~,..
| |
| . ~ ' " . ' . **
| |
| f.'
| |
| g .3 g,,,' .' [ "' #
| |
| .= ].
| |
| .. .,.b
| |
| 'g ; f " ' ' } *'. *
| |
| . +
| |
| . . 'd ' '
| |
| | |
| ... f .
| |
| p , *. , ,
| |
| , s
| |
| ,. . , ,'* u i, ,, ,,.
| |
| , ,y, . u.- ..
| |
| : r. ; .
| |
| . , w., .,..
| |
| ..u y y.x .... a. u.- ...... . ._ . . . .. . ..
| |
| ' . r . v. . . . .. .
| |
| *]
| |
| : 1 .,
| |
| ;, , ,. +. . j.
| |
| , j
| |
| .i '
| |
| ', 'a ,' , f. ' j any necessary proceedings on the 1988 exercise, at least pending the Commis-
| |
| : 1. '. '~~*] sion's decision on its review of LBP-88 24. For the reasons set forth below,
| |
| . 7.t < ,-
| |
| . ;.? f,&, '2 ~ ; -
| |
| the Commission has determined that the circumstances surrounding litigation of i, *];/.. . .;' --l 4., ,, , .7 emergency planning exercises in this case warrant Commission intervention to
| |
| ,g ./[.(; q * .;
| |
| ,, j; UNl establish expedited procedures for the conduct of the proceeding. 'Ihis action is
| |
| (. :/,. A ".." y' *l .,*. ,o. . > ,3 f. , s[.O,%
| |
| , ; , , . 7,.,
| |
| taken under the Commission's inherent supervisory authority over the conduct Je l/ . ,. of adjudicatory proceedmgs. Public Service Co. of New Hampshire (Seabrook
| |
| . s' i * * ,.,c.J X. .. -3;9 Station, Urifts 1 and 2), CLI 77 8,5 NRC 503,516-17 (1977); Cleveland Elec-
| |
| -4J. '.." '#, % '( : s ,* E.i.-j
| |
| ~
| |
| tric Illuminating Co. (Perry Nuclear Power Plant, Units 1 and 2), CLI 86-7, 23
| |
| , [, ''. ; , , ,4 '4 . D.1,"
| |
| l, ! .
| |
| NRC 233 (1986).
| |
| 7 . , ,
| |
| -) - i: .( f. ,. g. 'q ,
| |
| On February 13, 1986, the Federal Emergency Management Agency w ,.c/ (" FEMA") conducted an exercise to test LILCO offsite emergency plans for
| |
| , , at . , ,
| |
| ; ..'#',. / - Shoreham. In response to motions filed by Suffolk County, New York State,
| |
| . , . . ' ;. <,,.i.{ff*3 f,.* 'd and the Town of Southampton (" Interveners") requesting Commission direction
| |
| ( ;, j
| |
| *r
| |
| ,- e .' ~ " , , ( ,,. .
| |
| on the parties' procedural responsibilities concerning any hearings on that ex-
| |
| .k . . .
| |
| ,. '' ' }. . v. . .-
| |
| : 4. 's . , *p .
| |
| ercise, the Commission on June 6,1986, ordered "immediate initiation of the m" ' : c. M ,' ,
| |
| Ti 9.if. .d exercise hearing to consider evidence which Interveners might wish to offer to z,-; 7 7 . A,c".,-*c3. .f. show that there is a fundamental flaw in the LILCO emergo:y plan." CLI , & ; ! 4.Yd .f ,' .: M 4 d 11, 23 NRC 577, 579. We also directed the Board appointed to :onduct the -
| |
| exercise proceeding to " expedite the hearing to the maximum extent consistent
| |
| ., A' /. J 3 '; - it,/*.ey l '," .*/ ; with fairness to the parties." /d. at 582.
| |
| .....,;.;; W . . .;
| |
| , g Notwithstanding that direction from the Commission, and the efforts by the
| |
| . J ,. . 1j p .
| |
| Licensing Board to carry it out, litigation of the 1986 Shoreham exercise through
| |
| ,c ."- ':. ', ; ..t the first level of administrative hearings consumed nearly 2 years. Although
| |
| .. . / ),' 4 .
| |
| ,O contentions were filed on August 1,1986, rulings on contentions did not conclude
| |
| . '. . - un:il December 11,1986. Following several months of discovery, the hearings L
| |
| jf . t .'N''Y. A';!.,.Ol began on March 10, 1987, and concluded on June 18, 1987. The Licensing -
| |
| ', O .'" e , ''.; , N Board issued a Partial Initial Decision on December 7,1987, LBP-87-32, 26
| |
| 'j t'. r' . NRC 479, concluding that the scope of the February 13, 1986 exercise of 2
| |
| . .q . - *]
| |
| * the offsite emergency plan was insufficient to comply with NRC's emergency
| |
| , ..g,, y-
| |
| ~
| |
| , ;f. i planning requirements. On February 1,1988, the Board issued its Initial
| |
| /, . -
| |
| . , f.c.i..', **....; 4 !. Decision, LBP-88-2,27 NRC 85, finding that the 1986 exercise demonstrated
| |
| *" j ".' s .- r, d fundamental flaws in the emergency plan. Before briefing on LILCO's appeal
| |
| ,,,,,.y-, < , ) , .j y'.7 2". , . . Qj from that decision was even complete, the 2 year window for a prelicense
| |
| * * ' J-; exercise required by 10 C.F.R. Part 50, Appendix E, IIV.F.1, had expired.
| |
| .; . ,. 3. .
| |
| g,
| |
| , . . * ' P(.' , .y . . Various appeals and petitions relating to the litigation of the 1986 exercise are
| |
| , . /. , . M. ' ' ?,,.+ t
| |
| ' J' ( , ,
| |
| still pending.
| |
| ,- *1 . , ., , ,...-! } 7,; Another emergency planning exercise was scheduled and conducted on June
| |
| .,../. ., , .+ ., ,
| |
| 7 9, 1988. FEMA issued its Post-Exercise Assessment of the June 7-9, 1988 I j , . ~. j } ,. .; 7. , " '
| |
| i' . i exercise on September 2,1988. In ALAB 901, supra note 1, the Atomic Safety i
| |
| , y ., and Licensing Appeal Board remanded litigation of issues associated with the
| |
| .ae s- * * - 1988 exercise to the OL 5 Licensing Board for disposition as expeditiously as j q. .$ .
| |
| ,*4 .., . , .
| |
| ^
| |
| .-* s ,l r., ..,,<
| |
| . ,s ~- .!.*
| |
| , 569
| |
| ., ',2e i
| |
| .e e
| |
| ?
| |
| I 5 .
| |
| -- -_ - _ _ - - - _ - _ _ _ _ - _ _ _ _ _ . . _ . _ . _ _ _ _ _ F
| |
| | |
| ~ , ,
| |
| 4
| |
| <z.
| |
| ..w.:
| |
| r . . .
| |
| , 1; .. ., .. a ,,
| |
| a ,
| |
| t,.. . . . ',
| |
| s . . v ,. -
| |
| ),7.e ; ?
| |
| t . .. %, ,
| |
| ;, h* 3.g* , 'U g f[". ,Df.;'.' , s.,. ;
| |
| f am -
| |
| {p. . ** . * ;.9, i . , . ; .]
| |
| possible, consistent with fairness to all the parties. On September 22,1988, the A{ .cf h 6' / '".{. ~'y ;T f'l. .;s f . WlF OL.5 Licensing Board issued an order scheduling further proceedings on the ,
| |
| fg i, .,,
| |
| 1988 exercise henors fled about 100 pages of contentions on October 21, g,l . 3 , ,( g. 7, ,s _
| |
| f 1988. Applicant and NRC Staff duly responded.
| |
| : c. ;.' ' ~f
| |
| { J.3*/L,%$ "[g.' ,
| |
| We now face the real prospect of another round oflitigation on a relicensing ",,3 *y , Q Q ".; ; +.g.g g",,J exercise with the potential for consuming as much time as the earlier round, . . O,r.},. ,'.y, y; despite efforts to expedite the proceeding within the context of the Commission's g ??. <9 ?,,.p/.(.pc,:g@@g
| |
| [ 7J * -
| |
| usual Rule of Practice in Subpart O of 10 0.F.R. Part 2. It has become apparent ;. c c, J %. 2 that if we are to avoid an endless loop of litigation brought about by the interplay 4* 4 % .ir g ~" 'l. y pc 4 ,*. y i of our exercise schedu'ing requirement and the need to offer an opportunity 7.'%,',';.h.M.:.f',,7,d;, . fj,yg.T.L to contest the results of the exercise, more specinc measures must be taken ..*;8) '...f+V;3.r, $. ; ;'. .?'. 6, . ,M . . .
| |
| '* w; ., ,j, to accelerate this litigation. Accordingly, to fulfill our obligation under the f ; . ' ' 9, .f. :: 3 g'*
| |
| Administrative Procedure Act to decide cases within a reasonable time, and consistent with the suggestion in Union of Concerned Scientists v. NRC,735
| |
| % ,.' y., Mj; A ;,,ig',~,".{.,
| |
| ,;r. .
| |
| ? . ....
| |
| p.'.
| |
| F.2d 1437 (D.C. Cir.1984), that expedited procedures would be .wmini.te ,/,:
| |
| L V. : e.
| |
| . M i %l'V ,.
| |
| , .. , f.
| |
| +
| |
| for exercise hearings, we are directing an approach that preserves the parties' p 3, ', ; ~ ' . Q 9 ~ ,. *. 'A .7 . i
| |
| ^( ' ': 9 , ',
| |
| rights under the Atomic Energy Act and the Administrative Procedure Act but ,
| |
| p]. 7' j,.7., .:l% -. , X , /, . 7 - .
| |
| l~ which bypasses aspects of our usual procedures in 10 C.F.R. Part 2, Subpart .
| |
| , ,,,q.
| |
| O, which can contribute significant delay to a proceeding. 'Ihe procedures set . .M * ,
| |
| .q forth below reflect our consideration of several important facts in this case:
| |
| g3;g,
| |
| .;j $ , :1 4 (1) the real prospect of literally endless litigation noted abovet (2) the extensive U.q.f, 'C .. . dQ d i @c, .. s ; ,. . ,?
| |
| involvement of the Interveners as observers dering the 1988 exercise which inust
| |
| "::%f'yf M.) , j ..
| |
| .'g *y 'rf'. , .
| |
| l have given them substantial knowledge of the activities that took place 2: and (3) /r ,
| |
| S':c : .,C m !;p~. /".
| |
| FEMA's detailed Andings on the results of the 1988 exercise, described in the ' Q. O .
| |
| - September 2,1988 Post. Exercise Assessment, have been available to the parties 9 ., .V -
| |
| V.. ,
| |
| - .now for about 2 months. Under our regulations these Andings are entitled to g . 7 '. ,
| |
| d' j /,
| |
| .. ', f.q .L., ",e ' , ' , d presumptive validity.10 C.F.R. I 50.47(a)(2).
| |
| in consideration of the above, the following schedule for the proceedmgs on '.}M:k}.j$
| |
| 'y'',$'%, j. ,l'{'' $
| |
| * 4.,j r
| |
| the 1988 exercise is established: ..
| |
| '.l?..?.qe !
| |
| ,9. '... ..:, N; W "."?,., .r,..'
| |
| : 1. The Licensing Board shall rule expeditiously on contentions filed 1.% ,G . . . . y , .. w .. d .l g r.i*.-i. . . '' s; e in the proceeding. No requests to reconsider the Board's ruling on '.
| |
| contentions shall be entertained. The Board, however, retains the authority to reconsider its ruling sua sponte. } ]:: LW
| |
| '.e.
| |
| @@ff'j9ty t,'-Ot;
| |
| * M ."
| |
| : 2. There shall be no formal discovery, whether by deposition, document W?% WC-j%.# .
| |
| : h. c; V .~< 9 .
| |
| //[y'. s ? V.,7 I.T fi production, or otherwise. However, voluntary discovery among the parties is encouraged.
| |
| I'l '..;T.'y'.I:r.c l.'
| |
| . .$,?. M
| |
| :~~e,:',T g % ,
| |
| @:.k}w f, ,[.
| |
| : l. : ~ :gis. 6 ,j: J ; ,Yf,,) 4 h.t.l ;g.s;,'* -.' '? d
| |
| * +; t '. .i. ,
| |
| L .. . .s.
| |
| j ,. . . ,
| |
| ~,r;*
| |
| * e@ ,f.,,
| |
| ..-e
| |
| . (.d 8see eashenge of omiespndence conserning anangemens for supreseeauves of the 1.i . to morutor the ' #
| |
| ' ...r' '.'*O'
| |
| * M^ .
| |
| 19st essene. a.s tmars dated May 31. 1988, and Juns 3.19st, frorn Echael s. Eller on behalf of the f" J . i .* O oevernensras to I;anald F. trmn. Counsel for t.nfo; teuer dated haw 2.1988, from tawience Coe Lanpher on ''.: . .N- ,
| |
| ; y ' ,) 7 - 'r ; -.4 behalf of the Goverunans to Wilham R. Cumrmng. Aa=aaaia osners! Counsel for FEMA. 'The desail in many of the 100 or ao peans af consmuaans also canArms armerveners' eatensive knowkdra of the eassema.
| |
| [' i ' . , , *y' .y*:gl JJ % ' * - f , ./ . . , i V I. .,,,'/.., . 3. .+ .
| |
| 6 [ '.; , * *; ,
| |
| * oy .:.. ..*tr.e q~ ' . i, ' 1 i .,. ',' * ' . '.g.
| |
| . 1./. g'/' ... 'M . ' -'s'' { .s t -
| |
| . .,.,,,....s....>,- ,
| |
| .' - r. :
| |
| $70 c; i;, <
| |
| h.. ; y...
| |
| s :. . , .
| |
| . i. . .
| |
| .2 6
| |
| 9 ', ,#4. [.
| |
| f %n ,e '.,l.' ,
| |
| ?>. '
| |
| p.A. ..,P:.3.g.x.np
| |
| . . ;p;,
| |
| ?. ,
| |
| . .<e %,, a.~e.,, .
| |
| , f, 4 o . . . .
| |
| .-. ,a -
| |
| e q , e.y oqa ,,e.......- b s' '
| |
| 'W ,.
| |
| j lq
| |
| *g r ,
| |
| V
| |
| * 9,* y *,, , q L ,
| |
| ..,g,, .. ,
| |
| .'i.
| |
| ,.' p t 7 - we y p ' . . g
| |
| *y* .
| |
| .g.-
| |
| av -,. .. ._~
| |
| s.74
| |
| ; ' % 9 ,, j.- ''. 8) , ,
| |
| \' * *. , . ,. ';
| |
| . g. . .n
| |
| .,'t*
| |
| ' ' c- t.
| |
| ' l ', 'l 4 ,
| |
| ~c .
| |
| ^^
| |
| c ,
| |
| s.'_?*.-
| |
| fo' s- *l' . .4-e' \.. *
| |
| ,l.'.. v .",
| |
| , y. e , ,
| |
| ' *l.kfl[ '* nx s ,, ,
| |
| - L ___ .- L .
| |
| | |
| P, , . ,, , - -
| |
| M ''
| |
| [ '[
| |
| "., ,.,.~....
| |
| m . .e ,
| |
| - - .f ,
| |
| . t
| |
| . . a. , -,^.
| |
| 8
| |
| : 9. c. ,: . . . s. p st. .,..,3,., .,r..,,.... v ., . .
| |
| o.
| |
| 7 . .
| |
| .1
| |
| ..j, .
| |
| . , .,.. 2 .
| |
| .s.
| |
| c .
| |
| s
| |
| .,w, . .
| |
| s....t ,
| |
| .. ... u nt,., f-v.,..< -
| |
| ) .-,
| |
| .a
| |
| . ,. , 5. . .s . .- .t .
| |
| . #. m . . .
| |
| . u . " w.
| |
| .,,s
| |
| . .. . .3, , s : ,, . ,- .
| |
| t . .
| |
| . . , > w . ,n . . .. .v,- .. .
| |
| ,e
| |
| ..,.:. . i; ., . . w' , .. '
| |
| .;.s 4..i . , , L . ,,- : m/. - '. , .g. ;,;, . . ; ; . .g: , .'
| |
| ;- :v '
| |
| . - 2 ..a
| |
| &a
| |
| .. o 4 y ...?lmc : ,,;.w: . -..?.3, . ;
| |
| n, e.. 'e y.s .
| |
| . y ..
| |
| n n
| |
| . g. . t,. .i
| |
| . s.
| |
| 7.. . . . ,;. , .,,, c. 3. .- ~e1. .
| |
| ..#. f. # ., , , .
| |
| , id ,
| |
| . j.p , 4 , . g,' t .c" ' ' s - ',' , ... , i 3. Within 30 days of the date of the Board's Order on contentions, the
| |
| .; F
| |
| 'y %..i". .'.cj. : w ;;, ., u
| |
| : t. . . ,
| |
| .. . 't.. ..'' . '. '. c. a i
| |
| .. , proponents of admitted contentions shall file and serve testimony in support of their contentions. There will be no motions for summary /
| |
| 4,.,*. .? A
| |
| . 7,/. . ) l '. ,; l.1: 4. ,,,w J.
| |
| ., '. fl . ? .y 'I . disposition, but any contentions' for which testimony is not filed N-l will be considered in default by virtue of the presumption of 10 7.., (, ,g. . 3y a . _g * ..".*l
| |
| ; ~<w .,.'. ;. "S. .C, 4..f.Within . . 20I.50.47(a)(2).
| |
| .y. . .20./.vi 4. , .,. I Di.[ Q J!y
| |
| : e. . ,. ..
| |
| C.F.R. .
| |
| ;. .t days of the service of testimony in support of contentions, g ,d'**" @ 4.', Q,. .
| |
| u,. , e .w. :v. LILCO may ale and serve rebuttal testimony.
| |
| 7 , . g. . ~ g; a ~ . ,
| |
| ' 4. *,. . .,./ , . .. 5. Within 25 days of the service of testimony in support of contentions,
| |
| .. **.r-l'%g.y . .. , . . , r * ' . -
| |
| the NRC Staff may ale and serve rebuttal testimony on any of the i 4p ....e 3 ',.* '*
| |
| 1 contentions. At a minimum, the Stcff shall sponsor into evidence 3 p...*[ ,p
| |
| _ . {,g.,,, .'. y "
| |
| . ,. relevant pordons of the FEMA mport.
| |
| .j. f 9p,, 'f
| |
| * S, . ',,. . 6. Within 7 days after the last testimony is filed, the Licensing Board ,
| |
| will hold a prehearing conference to consider the mauers specified {
| |
| ". 4?/..;. -; , .. cg f; c /.,7 . .y ., .. . ''y.$.h l ,.. ',! 7' 4
| |
| . . in 10 C.F.R. I2.752 and set the order for conduct of the hearmg.
| |
| ; p' cf;,pt.d.;'j ; , a.[,[- ( # 2,.. * ' '
| |
| The Board at this time should also entertain and hear argument on
| |
| 'p,f7 f ., cf.I .Q. .,f ',%;,ff,y. ,.Q oral motions, if any, to strike irrelevant, immaterial, repetitive, or
| |
| . 1. M. . v. . ,
| |
| .a ch. ., ,. .*.. cumulative testimony. Rulings on such motions shall be made within. .
| |
| ' Tc; f 3, g, y... . .6,.M.,l' M ' -/.' .j ..' ~
| |
| . ~
| |
| 7 days of the conclusion of the argument.
| |
| 7 M. . . . ' ;.t ,
| |
| j . , Q'. :.w 2..:.. '.? . ., >,
| |
| ~ ..
| |
| 'i. T r. *
| |
| : 7. With!n 14 days after conclusion of the prehearing conference, the
| |
| .f3: w. evidentiary hearmg will begin.
| |
| ,' f ,'g.f . . j r- ;,!']. ..%
| |
| ,y.,N*. 4 . ," .'; .. .. .]'
| |
| .' 8. Within 21 days of the start of the hearing, the hearing will end.
| |
| 'q.,*,..
| |
| .l
| |
| .; '. . . j . ff,i.D, *
| |
| : 9. Within 20 days after the conclusion of the hearing, the parties will
| |
| ,R: A , . m,, . 3, file and serve any ymposed andings of fact and conclusions of
| |
| ' f[~ ", e' *y.
| |
| .Cj law. Failure to file a pmposed finding on a contention admitted for ,
| |
| * d a ; litigadon wn! result in default on that contention. Reply to proposed
| |
| , , ~.
| |
| / -
| |
| f4 andings may be aled within 10 days after service of proposed
| |
| .. J .
| |
| s@ V ,. andings, if a party so desires.
| |
| . ,f *. . gR
| |
| * fi; . ' ' ' *f.:. . . ... ., . :.; 10. While the proponent of a contention has the burden of going forward'
| |
| .'*>,''/.,t with evidence in support of that contendon sufficient to rebut the pre-l (f?'?,^4-, .; 3 '.% ;)
| |
| . . h ,,[ +. ( .;F. ,,j -i .
| |
| ... sumption created by the FEMA findings on the June 1988 emergency
| |
| . nJ . .Z-.,..,v , . .. . . , .1. ; 7(n...'.M
| |
| .m exercise, once that burden is met LILCO bears the ultimate burden
| |
| .. y/ . . .
| |
| . e -l , of persuasion.
| |
| q['[, 1, . 7 ' a(N . . j '@ ., . s. M .M,:..),. 4 i ''i i ,. 11. Service shall be by hand delivery or express mail.
| |
| ". ' ' . . . . . . ' ', * ,", )
| |
| : 12. All provisions of 10 C.F.R. Part 2 remain applicable in accordance A_ s . , .,- ' ' . ' '. f . ,,,gg . j with their terms except to the extent they are inconsistent with this l l~; ; *. , ' ' f.NI ': '
| |
| ,, a . < . '. ' '-j Order.
| |
| , c ' .q ,. 4
| |
| * le, .,f.,
| |
| , ;e .
| |
| f",1; Any aspect of these procedures may be changed and the schedule extended p' . "
| |
| . , h '. " [*., * *; , l.] if the parties unanimously agree and the Board approves. Moreover, the y; f W .,,**, ,(, *; ].,,. . , ' g ,
| |
| . ;,, Board retains the authority to extend or reduce any of the. time periods if this
| |
| . ;; j, ,1 ;, . -f j becomes essential for the conduct of a fair hearing; provided however, that the
| |
| .j * * /J. ' ,i'
| |
| .S . ,. Commission shall be notified of any schedule extensions of more than 15 days.
| |
| . . .. * .. .?
| |
| 6 i*
| |
| a
| |
| . ' *', .'7,,..
| |
| de ,
| |
| ,.l.,,
| |
| , 't .'.
| |
| 571 e
| |
| 1 R ).'.t .
| |
| - 4' j
| |
| + , .
| |
| S.. . , a e
| |
| | |
| m ..
| |
| s t
| |
| . s
| |
| . . i. -
| |
| i
| |
| . . l . .
| |
| ,. . - s e.9 .w
| |
| ,s - s. ... . .cy. . . ...n. .
| |
| -. . .. u, ;
| |
| -. . . - ;i t' '
| |
| The parties are encouraged to negotiate informally to reduce the actual number . , .
| |
| /
| |
| , , " '. {< . . +. G y. :. ,,
| |
| of issues that need to be litigated during the hearing, n .1, 7, . .... ,
| |
| . .L, ., , ' ..,';q
| |
| .5 Commissioner Curtiss did not participate in this matter. M
| |
| ! '*.1..
| |
| . " . . ' . l ye ; - - -
| |
| . , , .. ,.,, , -A It is so ORDERED. .*"i . < ,
| |
| . . . . , .. ,. .,.?,.f; . ..-m.. , .u. . ,... O...
| |
| .. ,. o, Lw ,a.
| |
| -- . v .. s . .i 4 - -
| |
| g For the Commission
| |
| * i *..h* ,". .~-' , ' . . . M. : . 6, ., .?. .W. ,
| |
| ... . s.
| |
| SAMUEL J. CHII K .C;. *,' . 'y- . . . . .' 7:. Q.>$. . . . .
| |
| m,'
| |
| Secretary of the Commission . .p@~w* .~*.f.Agg.27. ./, v..h.i Tc .
| |
| i -
| |
| c.m'.n. .; a y-.>
| |
| g.
| |
| . .o n.2w:,. i.s. *9. +,. -s,.
| |
| .. s .n
| |
| .**_<-'g . q. . mu,:?.
| |
| Dated at Rockville, Maryland, .NyA ,
| |
| this 1st day of December 1988. , ,,(9- < 1.
| |
| i'~ ' . '
| |
| : e. .
| |
| . .~..
| |
| '. O.y,SpQs,Jg;1 i....* M r.C w.4 -
| |
| 1
| |
| *: * * . y..%. . m-,.; 3.,*.
| |
| m.. v... m ,:r . . .n,: .
| |
| , 3 g ....1. ; , - . . .e :: *
| |
| . e.# ; .- g.q..
| |
| , s
| |
| ,.c . . 'S .-
| |
| . ,. .fw*
| |
| ,....,v. < .y.N,g c *- e.* *. .
| |
| ... 3 - , . , . , , ,
| |
| , =, y- ~* M j .
| |
| =
| |
| * . a .. , ., <
| |
| *, v .p. . ( * *, , ? .,. .. i. 3 t ,- , , *, e, *
| |
| , ],
| |
| * .e* ,r.e= , ;
| |
| i
| |
| * e
| |
| -e
| |
| . r.o.
| |
| . .e 4 s . ,J'#. 1 7* .* ,,, . > [.k ** be ' , ' + 'd
| |
| .j
| |
| , .y . ** ;
| |
| .l . ' o
| |
| *. e..t ro.i
| |
| ** , +*
| |
| e g* g. * .- + .- . e .i ;
| |
| , , .{. #* . *~, ;.*, *4* ;
| |
| * j**h g,,
| |
| ,e *f,.-a
| |
| ,. s
| |
| ,p
| |
| ,4.. .
| |
| .s. hP (*C ,, , , *' ' ~ f.* . * .. " * ' ' ' ~* '# e. **
| |
| %, op. .;, , tt
| |
| ,v,.. ,?n,e e... #N . .'*, c!
| |
| ; ~ ..
| |
| L .%t ' m, . ....'?.....s . . G., s . ;4*/ . .. o .
| |
| : s. wa(..s:.,.
| |
| +;:
| |
| : c. " ' ''' . ..,... .
| |
| Egjer . ,of ,'b . ,, ;
| |
| * 4 F L.
| |
| ,. g -, ,... * ,,2.. a r w ., */M,,s..[l .-.
| |
| ; .;.g " , . . . " -8.,g,7 ~
| |
| , . .* 18 . !
| |
| ,A' . e ,, .$*.., ,e s
| |
| a..' ?. . .(, ^:,,*- *4..
| |
| 4.,4. .c. *
| |
| ***6
| |
| %e- s- .
| |
| l.g..
| |
| . . *.T9 .3 - ...;,..
| |
| w - ,
| |
| ,'' $ v '' % , - k * , ('b. -
| |
| : b. . a. . , I ' , "* * # . *
| |
| . .' . . . *1y,4 , ; 8.,,14" . .it. ,
| |
| f,, .
| |
| 8
| |
| ..h.,a.. s.O
| |
| : n. ./ 's.g .*
| |
| : n. ;.;j , 7 ,; +,, . . ..*r.,s ,+m b .s., o' c>^* s- ....*o *H -
| |
| *.fCs.
| |
| * ed -,.% . s,. *3,.* ,' .* ' 4
| |
| * e .i d +
| |
| g .e. t. a, * . i .
| |
| *.4 ., M p.,% 'g .,-# y,k-a ,.,.,.. ./3 *.4--.^/**:%
| |
| ,9w , F.
| |
| : 4. *.v 4 ,
| |
| -., A . .**t- - .
| |
| ta * ' .~ i ,..p.
| |
| * o '; , 4. ? 5. <w ig
| |
| : x. m .t.4g . . . p ;.:.'**;m -
| |
| , i
| |
| . NY f
| |
| ~;4 h ,:bq e *.
| |
| e*=. .
| |
| l n5 1,*o,u **
| |
| < pe :;. . . - *
| |
| . ; o..a,..f.a.*f"
| |
| .t**<.
| |
| \, v *,.u. . p. .,. .:
| |
| ...>.r -
| |
| e~a..,..-*,.. ., ; y< tp. , ~%. b* a. ,.r. ts. . ! . . e.g g >9
| |
| ,s +
| |
| sc . e. :* v..q~.".%f 9.w."~.
| |
| -*4.N. ..
| |
| Q;;. p L.y?. W
| |
| '. v:.~ . w.. /s+.. .1
| |
| *:.y .9. ..* 9,.'f%% <.')..
| |
| e r
| |
| 4 :n '
| |
| M. Q $ .'t k,983... e *.y .g , . (g ) 4.., s <y s,3 4, * .f 'j
| |
| . .. .. - ~ ~s4 . ~ .o .r .s.;'.d,.
| |
| :..),''.
| |
| ., e s' : .
| |
| '* . .g[ . s ,s *l*.
| |
| e ** ;4. .. . '+ y* ", pl s. . . .. \. . s . , s,7.sy .o., * &
| |
| .* - . .y . =g
| |
| .v re p . sv' " . ~ ...
| |
| . v n e e,
| |
| g
| |
| .+,s e*..L' * .~'5..'1 5
| |
| . . b.'5 . ,.** 'gs. A ;,
| |
| * M e ' ,.e .O
| |
| . <*.*. .9 *; ' .S
| |
| * P
| |
| , .,^ . '
| |
| n.y m .#. .n* .a .. ;.s: c. w .7*
| |
| . ' ;-y.m e < . . 's , ,e
| |
| ' , f -4 r.y.
| |
| * 4
| |
| , ~ s ,
| |
| M MNM $ E .
| |
| ,, , g g #
| |
| r ..'-w' .'*'f i $,; < ,. . ..*, .s e . ..a ., , ,
| |
| .f 'sj { j;
| |
| . , , 's . v. g 'l f ,r t '* * *? .l *. .*,A c
| |
| ,..r ,.*
| |
| g.a .s. ,... .- .ee .x .u..
| |
| 1 . y
| |
| 'E,.
| |
| * G * .. . - . .; ; e.' '
| |
| 572 VC% < + ; ye .. ' ,; . 9.G ,. '
| |
| C; .. , :., .- *? ,w
| |
| .' % - : '' ^
| |
| ' ''q ... ,' .
| |
| , L 'in ", i . ,
| |
| ', g , . , .%,.. . . + . Y, . . .. ;.,. .: -s
| |
| .o
| |
| . v 0 >
| |
| ,E.. .
| |
| 's #. ,* ,,y,'g 4 .I h. . .' [. N e*
| |
| ,.*+
| |
| g.
| |
| * s aC 1, ; *,A .,,.\'','* %l
| |
| ' = p .
| |
| ,.: * * ,n .,.":n.,: 4,; si y^. *,,'a. <.'
| |
| o.b.;;* ,. ,a ,;y e
| |
| +.o :*3,*,'a g ._.J 4.,
| |
| e '4', .s e ,ea t %: , , s.~,
| |
| .8 .O - ggg g '
| |
| , g . M. ' * *
| |
| 'go . .k , ,
| |
| d ef , .g" 9
| |
| .S.,3,.
| |
| . -e.t , ,, . *
| |
| .t
| |
| # -+
| |
| "e,*=e%e-s.'**--*."'**;**I../.'.'.r'* * .
| |
| '8***
| |
| ; . , i.,
| |
| 'e',*,'''**t4 S.W'
| |
| ( ,
| |
| g i 4
| |
| *g g 8 4 $ .* g.* %
| |
| *I
| |
| ,, .,.e,- , . - *. .', ./, .
| |
| -g g
| |
| . g#,*, ,.
| |
| e
| |
| .Jy s ,
| |
| * s
| |
| *a *" , ' , , . + a .. *"> q,,' ', . -
| |
| g a
| |
| /.*l . ,,,.*
| |
| .. _ @. '+ ' 'c, < ' ' # *
| |
| , , ..r +
| |
| # . s.., * .
| |
| ' ,[ *.D
| |
| .s
| |
| ,j J n
| |
| / .., + ; . ,, ,
| |
| * i , .
| |
| _ . _ _ _ . . _ __.m. _ _ > . _.M-- - - - 1 _'--._m '. --15---_-- '
| |
| | |
| ,y, ,, . ',, . . .
| |
| - - .. ~, ..,-n
| |
| . w.7 x - *n
| |
| -l
| |
| : s. ....( g ,. , l , . ,
| |
| ,g *q*., . .
| |
| .y
| |
| . 7
| |
| '*l
| |
| ,a.~."s.. , . , .
| |
| 4
| |
| ~
| |
| 1
| |
| : a. ' . .'s,
| |
| +
| |
| ; .*/f
| |
| . .r
| |
| ,c .
| |
| ,.y ",j . :-
| |
| . .. v,- .$
| |
| elt-l 1
| |
| a .- - 'y. .
| |
| 3,f',' 4,' ;[ .; - ; ,; *.i
| |
| ,7..,,,.
| |
| a
| |
| ' ''.}
| |
| " , , ' ~
| |
| [ ** i. /,( ' 'l
| |
| , , .;' .,a ew? L. .~.
| |
| ..,'.:. . + L r.
| |
| . ..x. .;
| |
| . . . . .. .m , .
| |
| ; . .:. s * .,;: a.
| |
| M
| |
| .=-'.,. . ,~. . .
| |
| : v. n. . . n- ...... -..... -.+
| |
| . . . ...a. a. .~ / . 'f
| |
| .p. ,'..' sty . ,,:#, .+e ,.?. . ?., ,; 4. . ,. : <: ,
| |
| ; \
| |
| e,s., ..y,. ,,v..
| |
| . . s . . .v,,
| |
| ...%. g. ... .- . . , ..,
| |
| i
| |
| . .,. . s s n, .l' , f, a
| |
| :p L . . ,P.,g,yn,1. %.,r, *s. .,. . ,p:,i
| |
| . g .; , y %,gy, . , . ,
| |
| 1
| |
| .. ..$- 1 -y
| |
| . ~,
| |
| l
| |
| , :l'; .,;;.
| |
| ,p.6 ! l
| |
| - A 7., ,, ' . rf. ' % .; 4 7. .- ;. . ,.
| |
| - ./; CLI.8810 J
| |
| , , , .ist,,i , , .m,s;',.s. .,' . ,.lb. n .r. .. ,'e,',. f,,.,' ,_ ., .)+ <.
| |
| ; Cite as 28 NRC 573 (1988) q
| |
| . v. l
| |
| .g.-
| |
| .: . . ,, . ~q g.. ,. !,.,4.
| |
| g
| |
| % , 4 %. .
| |
| UNITED STATES OF AMERICA
| |
| , .' ;.. ... . . . 6.. .,.~.
| |
| .f .N . .; .g. .,' r .fy. ..m ...e ,* C,,d1 NUCLEAR REGULATORY COMMISSION
| |
| .,.a,+.,.
| |
| .w ,
| |
| . % ,s, ,. f m.., .. .,
| |
| W: . .,
| |
| 0
| |
| ..,y; I.! J,'.
| |
| ); M . .d* ~~ g ;j;d ' y iI ?l7 ..
| |
| : r. .
| |
| .. , a
| |
| , COMMISSIONERS:
| |
| 4 ..
| |
| .: i . . . .. << >. . .
| |
| ..,f, s.
| |
| ., , ..t. *.7 . . .,i, 1
| |
| ~. .. o ' '
| |
| . ' 2 @ 'UJ Y..g.. // ' ,., . . i , .' ,
| |
| Lando W. Zech, Jr., Chairman
| |
| ]
| |
| < ),,1f%
| |
| WBO. , %a W" < - a Thomas M. Roberts
| |
| ..,,ca.j,..N...
| |
| %, l
| |
| '.-, ': .,m.g.
| |
| ;i ,, y UE., 'y 9,. .-9j .Q.> . . o w .rq.
| |
| .m e .
| |
| ; . Kenneth M. Carr Kenneth C. Rogers
| |
| .,%.. W:,t#,qfa,l' .:;J..' ... .: + p. W. a .f i
| |
| ,,y..". James R. Curtiss 4
| |
| wy.r. .. . [ .p .;s m! ',..'.s
| |
| * *]
| |
| . c. , 's
| |
| - . ;;;,.;.y. 6 . 9. ,j .; , j
| |
| . . .~. . w 2.
| |
| ' t. . . . . _ . l
| |
| ,.4
| |
| .,.y-. n,t..;;;
| |
| . , .b%'., ,,u . .,'t," M :;; p w A . , ;,!t,..finEthej.cMatter /fi of Docket Nos. 50 443-OL 1 g
| |
| f'ci. 'O,R,' . 50-444 0L-1
| |
| 'Q. ,, . 1 E.;[ .~ . .p,$[' ,* 7 '.%j l .'2$' b )
| |
| (Onsite Emergency Planning. -
| |
| '.r.'$,,.,k 1 ~
| |
| and Safety issues)
| |
| ,. n 3..N.. '.$ 5..s , , m. ,, ,; . ,,..
| |
| , .s,. .. .. .
| |
| , , 3 ,,' .. . '.f.*
| |
| * 1cyg ' y ", : . , .,. PUBLIC SERVICE COMPANY OF
| |
| , [,'.';, . 4 i
| |
| I
| |
| .,* g.f-at, : NEW HAMPSHIRE, et af. -l
| |
| . ~ f.1*. , , ]f. ., .*4,. .
| |
| (.< .
| |
| N f- '.1(Seabrook Station, Units 1 l
| |
| . . * . ? - 7,s-c/ ~ J 14 .,.. A and 2) December 21,1988
| |
| . s
| |
| , .;: .~ . . j
| |
| .( , . . , - .
| |
| .i .,
| |
| , 1
| |
| ' .e : '
| |
| > The Commission determines that reasonable assurance that $72.1 million l
| |
| e-
| |
| ~ f el;y.i;k,.:v; Q h j are available for decommissioning must be provided before licensing for low-
| |
| . . ,; ; c, - 4,l...9 C; ' . power testing and specifies acceptable means to provide such assurance. The
| |
| ..';,. f.;.'? *,;..y'-
| |
| V ~-
| |
| * 3'.E'.y.'.a. . . , -
| |
| Commission denies petitions to waive its 1984 Snancial quali5 cations rule so as "7 eA .',,,f'' ,,; , ,., % . f. pf-4 to require a financial qualifications review and finding before low power, since,
| |
| ? . l,' y l'.i [.*.,
| |
| with decommissioning expenses reasonably assured, there remain no significant
| |
| - . ' A Q Q ' ,.' j .'[, j -
| |
| , !;. . ,;'. financial safety problems to address. The Commission holds that a low. power
| |
| *s Y 'J.,7 ,
| |
| ~
| |
| ii f . . @ "*l*:.t c,(, l'
| |
| ,.. . .U)' ,
| |
| #[ u . ,. *2,l.'.Y'f * .'e i;C vN}
| |
| l j
| |
| testing license, restricted to specified power levels and duration, may be issued after Applicants have satisfied Staff that all decommissioning terms of this
| |
| . . ~ .' , ! ', , .,, "P/;, , :;-. .... +,. .q Decision have been met and any pending motion to litigate onsite emergency
| |
| ' 6" '
| |
| planning issues has been resolved.
| |
| w j@ . ' j( f. ,. '.. W . . .
| |
| 'y
| |
| .*s,.. .
| |
| . . . &.,%s.* y.gs..
| |
| ,. . : <o. ...,.
| |
| r ...
| |
| ? ,. . .
| |
| t
| |
| [ ', , g..e e,
| |
| *;,'_*y ;;.t,. .
| |
| ,j.
| |
| .e , ; ,
| |
| ,, . . ."; a c, *- .
| |
| * / , C' i
| |
| '. f, ,p . ..
| |
| ..y,., .*
| |
| 4 .
| |
| : a. . [ .a ' p. . d ., .
| |
| t t* .
| |
| .. 573
| |
| ;3 .
| |
| ge f ' ,
| |
| * q ,
| |
| i .*
| |
| . i ,, .
| |
| 1 .
| |
| D I ,
| |
| o ;
| |
| l l ., , .
| |
| j . ,
| |
| 4
| |
| . g
| |
| | |
| v
| |
| -n .. ,
| |
| o . . . .
| |
| ,' l
| |
| ,j
| |
| . .....w.. .. ,
| |
| p + + ,
| |
| l
| |
| . .w .1 e- .
| |
| ' ., ,9- ; .,
| |
| " . . * .;~
| |
| ' t ,' .. .
| |
| . , . . .y . -
| |
| ATOMIC ENERGY ACT: SCOPE OF INFORMATION REQUESTED * ,
| |
| FOR UCENSING (FINANCIAL QUALIFICATIONS) . , /. . ' ' . lf. ,: . . .",
| |
| 29
| |
| ,. .t. .
| |
| ... g
| |
| . 7,.
| |
| r , . '-
| |
| FINANCIAL QUALIFICATIONS: APPLICABLE STANDARD F-n
| |
| .5
| |
| ._} .
| |
| ~.''.j.
| |
| LOW-POWER UCENSE: STANDARD FOR ISSUANCE ;/.'.c ;.* g.f.[, g. '' ,',' . ]g . 't. = !. . .' A
| |
| . . ., : .s -
| |
| . . . , g.: -
| |
| .' .r"-
| |
| FINANCIAL ISSUE: FUNDING FUTURE COSTS : , . ,, '
| |
| ., . 4, . . , ' m. ' '( Q a ,.
| |
| ! , a '. d. 6 .'f." - F ., ;
| |
| * J
| |
| * d
| |
| ~
| |
| OPERATING UCENSE(S): LOW-POWER LICENSE :. .
| |
| (PREREQUISITE FINDINGS); DECOMMISSIONING (FUNDING) e - M f 2 ':: . f,# M
| |
| > . i..r,A w.g. . f.*s...;i .. . s ./ ... ,.q ..
| |
| .q >:.. : w.+. . . r. s\
| |
| .w Reasonable assurance that funds are available for decommissioning must be 0, ., ....a .+ .s,,_. .+ -
| |
| '.''..,.N. ,, y
| |
| [i,,f;,*.i.' { p
| |
| . 7.i
| |
| .j ,q.., M.
| |
| provided for a sum of $72.1 million before licensing for low-power testmg. ..,_. ,,.q . . .
| |
| , .j , .e Assurance in the form of a prepaid external account, surety, or other guarantee 7 , f. , ,,
| |
| method would be acceptable. Also acceptable here is Applicants' proffered ' ' ,% ~jJ '. Q .' .:; .. , ' g .~. ,
| |
| plan to fund, before receipt of a low-power license, a separate and segregated .. .( ,. g 8 ; '.[.
| |
| account held by its disbursing agent, provided that applicant: comply with certain gf ,, ;"f i':... j,qpl < c. .,.;J;.7.cf_J; specified additional conditions. < v ..- ". .
| |
| '~
| |
| . l EMERGENCY PLAN (S): LOW POWER UCENSE (STANDARD FOR h .. ,1. .;
| |
| ISSUANCE) -.: ~.
| |
| .. n.4. g,p , . .
| |
| - - .,-s FINANCIAL QUALIFICATIONS: APPLICABLE STANDARD -5.''['R.TI!w.r.s['..',w.
| |
| :az ay S;t.j b,;.. 0 . .'.l*
| |
| OPERATING UCENSE(S): DECOMMISSIONING (FUNDING); 4 .T ,... a LOW POWER UCENSE (PREREQUISITE FINDINGS) W;o . .
| |
| . .~.,$@. .
| |
| ,W. u
| |
| [.Q , i''.',;,w,..,['.',3.>.,,
| |
| S
| |
| - With decommissioning expenses reasonably assured, there were no remammg . ,s ,
| |
| : t. ., ,4 1 . 'd j .9 ' '', T[.:'.*, ' '
| |
| ~ significant financial safety problems that needed a rule waiver to be resolved. - " * ;) , .y
| |
| '.1
| |
| 'Ihus, a waiver of the 1984 financial qualifications rule so as to require a financial .
| |
| ' 'C'..* '.o .';. :',@. . L '.S..t..
| |
| qualifications review and finding before low power was unnecessary. p4 , .. . cw .c, 1 i o . .s - :, . .* _
| |
| : z. ,4>-p ,
| |
| s,
| |
| .s .r. . c; p .-
| |
| . , s.,,
| |
| , %, .. ; . . r.%
| |
| ..,e. v . . . 4 m
| |
| 'lW ,fc..'{74 ..J.C.y,p.M.-y.$
| |
| *^
| |
| EMERGENCY PLANNING: CONTENTIONS (OPPORTUNITY TO :
| |
| UTIGATE) i 4".7.Mb.'l
| |
| .,m . r-M .,..
| |
| . r . ~ '.
| |
| ,/.[S.h OPERATING UCL.iSE(S): DECOMMISSIONING (FUNDING); e .%
| |
| LOW. POWER UCENSE (PREREQUISITE FINDINGS) {.. .%.l.,
| |
| )c 3 j'dNp$M% ,. ..
| |
| . ~ .: .
| |
| ~
| |
| a < .;, . 9 A low power !! cense can be issued after the Applicants have satisfied Staff ";. , .,r, fy' m .O. ' ',
| |
| that all decommissioning terms of this Decision have been met, subject to ( c, ,<0.,, 7 ; ' 't .
| |
| ". ",. f{ ,/
| |
| the following qualifications: (1) the license should be conditioned to allow , (. ; .% C
| |
| ['Q[?
| |
| ~
| |
| , .E -
| |
| Seabrook Unit I to operate at power levels not in excess of 5% and should
| |
| .' '[ D f,.''';$
| |
| y permit no more than 0.75 effective full-power hours of such operation without ,! - -
| |
| ),
| |
| additional Commission approval; (2) before a low-power license could be issued, g
| |
| ' ;.. '';' '.r..g . .
| |
| - ',,' ..'' / ~ '
| |
| ;l-U,
| |
| ,( e. 4 .V s
| |
| v.
| |
| [s -
| |
| .9 : ,
| |
| .' Vc .
| |
| . c ,, i :s '. (
| |
| 574 '~
| |
| 'W ~
| |
| a <
| |
| : ~
| |
| u,~ ?
| |
| , , T o. ,
| |
| lw.
| |
| y.
| |
| ', ,' s****.3
| |
| . f*
| |
| ,j ~
| |
| ...,,8 ,, ,
| |
| 3
| |
| , ,, : . , p.
| |
| ., ,'> n.r
| |
| ,. ;J e, v.. .'".-,7,, e -... -
| |
| 1 , 2s
| |
| * *, . . .-.a... *
| |
| , .~ - , ,, ..,. . . ,, (*.r % ,6-p ,,.Ui.
| |
| ..p3
| |
| .,, .,,,.-3..-. , ;*;,. ; , . , , , - - , . , - ~.
| |
| ,,,.,..,.,,!l*S p . ..
| |
| I,.*,.,'.,,:
| |
| b, A , , , . ,,,
| |
| 'n ,. .#4,'',*
| |
| j ,4,.;
| |
| s'
| |
| -)
| |
| * a .7 .:
| |
| ',,.,<g ,
| |
| -)., j -
| |
| "$ ' s * ,..,-
| |
| E.
| |
| .;i' n_,.. .
| |
| . . . *~ s __ ,,
| |
| : w. ,,. < :.
| |
| : e. , .,
| |
| ,, . .; . ...g
| |
| .:8 z i v. .y.,.y..v..
| |
| r.
| |
| w ;s.
| |
| :p. w
| |
| +
| |
| . a- .
| |
| n
| |
| . ? ..~3..s
| |
| -n. .a,
| |
| ~.,-. .,. . .. ..!.. .- . . . v. .,., ,
| |
| .. ;v. . .
| |
| : a. .:..
| |
| g
| |
| . ?..,..
| |
| .;n -. .,.
| |
| ,t., . ,v
| |
| ~ .. < , ,
| |
| . . .,. 3 , , . ~
| |
| .... . s., ..
| |
| ...op. .. ... g.
| |
| . ? .-
| |
| .1 .,,a.. . . . . . .
| |
| l ,,. , . ')
| |
| '.;;l .'Q. .;
| |
| a . :, . . .'s 4:-f. j .L.. ''T~~"'''"i..%~,'...u. .g '.
| |
| . .y);;:?. }j .? .. .
| |
| ~ .
| |
| .'lQ.?r, -
| |
| : w. :- .=..
| |
| : ; 2 - . . . . . .: - .
| |
| ,s e a .. ~ . ,,
| |
| . , r.
| |
| .. c ' r.3
| |
| .;; ;.,3
| |
| . : L, . s :.' . .,w :.;;4. P. . .
| |
| ,. .. ;q
| |
| '.., g..~. - . . .
| |
| ". 3IJ. " .p. ,, ...
| |
| .;ii n.,.'. . , , , - -.-
| |
| ..;. '/,.j.;
| |
| . ., . . , ~ . . .f . l .,
| |
| * the Licensing Board must have resolved the pending motion to litigate additional
| |
| '. , , .f [' 3 .,.T C O pq onsite emergency planning issues and any litigation before it on such additional
| |
| . '< 9 - ...c'. , .y ; '. .
| |
| . y onsite issues; and (3) to accommodate any party that might wish to seek a stay,
| |
| ; ' .y ,'. . # 4. ( .. ' ;" .' . . a : (. a low. power license could not issue until 10 days after notice by Staff that the n''j 1 decommissioning funding terms of this Decision had been satisfied or issuance of
| |
| : 73. -7 W.'
| |
| . ' '. . * . ~ .
| |
| * g (,14.,, ' ? /; .; ,
| |
| the Licensing Board decision disposing of additional onsite emergency planning
| |
| . . . .. -h t . . > r., .
| |
| . ) 'j ,
| |
| issues, whichever should later occur.
| |
| :. ~. :.4 ,
| |
| .+.i.:. .*:~., ? . r : :;.. .. *. , . a;;. v ...> .- ;,
| |
| .. .:a. :
| |
| %j~ .rp. r,n < . .a.r.;e :;. g . j ". ,. W.- J( FINANCIAL QUALIFICATIONS: PUBUC HEALTH AND SAFETY ;
| |
| . ?. .. ,, i:..r,) . ...
| |
| g,, . . m, .
| |
| .q: J..s .
| |
| N.. ,.j ).y ,
| |
| :' CONCERNS .
| |
| ..: 3 #a, . .-
| |
| .-.m
| |
| ~! O.Q,;; .' *!.7. l,;. . ,: ,. md . x:: .:.
| |
| ' .7K.M OPERA'I1NG LICENSE (S): DECOMMISSIONING (FUNDING); l v p%]'[ltii:' ~.-qT-[-)..<,J.~.(j "A. HEALTH AND SAFETY REGULATIONS (LOW POWER); ,
| |
| .-s -
| |
| Low. POWER UCENSE (PREREQUISITE FINDINGS) .
| |
| u % q;J z, . . y . : . {
| |
| . ..,2 .c w
| |
| - ( j '',. 4
| |
| 'The decommissioning rule does not apply here. 'Ihe hypothesized circum-n;..',f,.g' f_i" /., Zl .: ,, ,.i .. .Jy.h
| |
| . ~ ,J, stances -low-power testing not followed by commercial operation - were not
| |
| .r*' . ' . , J. t .',: considered or contemplated in the decommissioning rulemaking. Notwithstand .
| |
| . " . ;l , .,.:l
| |
| _ ' ;. ' 4 .'
| |
| . ..... m.
| |
| .f ze ,;c , .. ing, the Commission recognized and affirmed that the safety concern underlying
| |
| ,'.' . ', . . ;., . t i. , ~ .
| |
| the rule that there be adequate funds available for safe and timely decommis-
| |
| , ,! . . *. l; . ,[ . . .a , . ',.ld :.j J j.
| |
| .~y . . .
| |
| sioning was fully applicable to this case.
| |
| , . . , . .a : ., .
| |
| .. . ,..3-74.y...s,<,
| |
| ., . . .j '
| |
| ' O . +, . .
| |
| 9 .
| |
| .I. ATOMIC ENERGY ACT: SCOPE OF INFORMATION REQUESTED
| |
| - i
| |
| , c.; (FINANCIAL AND TECHNICAL QUAUFICATIONS)
| |
| , z .
| |
| j i
| |
| FINANCIAL QUALIFICATIONS: APPUCABLE STANDARDS ,
| |
| .. .e OPERATING UCENSE(S): DECOMMISSIONING (FUNDING);
| |
| . . ,, 1(
| |
| DISPOSAL OF SPENT FUEL; LOW. POWER LICENSE
| |
| - S ,',.
| |
| / , ;]
| |
| . c ,. ..'y;.7 9 : *.,. . :-. ,* . 7 .
| |
| r,i (PREREQUISITE FINDINGS)
| |
| . ~, - ..;,.,''~. u . .; n. .q "The Commission had not determined that decommissioning would be re-k.: f,.. , . , . - .
| |
| : , Z.,*.', .Vi:
| |
| .,..- .- s, e y,y 1, quired after low power but simply that in these unique circumstances financial i
| |
| ,,.'',' '' .,'. ,, . 7 , ..jH
| |
| * projections should be in place to provide reasonable assurance of the avadability l M 1,.j., tic **' of funds should cc.wecial operation not occur. 'Thus the Commission did not
| |
| ; y ,' ;, j ',".
| |
| ? n(. r "..f c", .'_q~,,y']j s require the details of the low level waste disposal sites and disposal fees so long
| |
| . cr as the proposed plan contains reasonable cost estimates for these matters.
| |
| .,. . i,.- . ,-
| |
| ..}
| |
| *n a.
| |
| . s - . . .,- .
| |
| ,,.) . s
| |
| >: - j
| |
| , .l .., f,#',*.l*~ = *
| |
| : ,t** .y .
| |
| ..c . ;
| |
| : a. je ,,ts. ?,
| |
| g., a g h , , * ., ,#
| |
| , o''
| |
| O
| |
| . ;*.. l C,
| |
| '. = .
| |
| 4
| |
| ,. .. e i., g' ,,
| |
| .g
| |
| .# .. ,4'..
| |
| ** ..* ,4
| |
| $ s. . j_
| |
| $75 b
| |
| f
| |
| . . 6 g $ J O F e
| |
| s . .
| |
| t .
| |
| | |
| y s -
| |
| e1 ,
| |
| s a
| |
| . .a....... ..- -. ,
| |
| . .e
| |
| . .i -
| |
| s
| |
| , 4 y .
| |
| ,.,..,s e
| |
| . v ATOMIC ENERGY ACT: LICENSING STANDARDS - .
| |
| .Tr. ' . .:.2
| |
| % o. ' . . . .' 4 ... ..
| |
| OPERATING LICENSE (S): DECOMMISSIONING (FUNDING); i ,
| |
| . i? . 1.; ,',.
| |
| LOW. POWER LICENSE (PREREQUISITE FINDINGS) .-.
| |
| . . ' . 9 ,.. . .. . ,'.c. .1 1,. .>' .
| |
| e .. ..
| |
| 'Ihe plan for decommissioning Seabrook after low power need not be a Anal ',M a plan. Nonetheless, the plan mun contain the essential elements sufficient to (;.- ];., y' ''.. 's .', W . ; ...i ensure that a reasonable estimate of decommissioning costs could be made. .c? :; . '.'.[f ff- M e . '.<.4 - " -
| |
| , t .r. .< .; .,,.
| |
| : n. . ; .-
| |
| u +y n. .:.~....
| |
| ... . 34 - . t..
| |
| ATOMIC ENERGY ACT: LICENSING STANDARDS ;,y -. ;g (. 'Q l
| |
| OPERATING LICENSE (S): DISPOSAL OF SPENT FUEL ll.''#q';Vjf.g.<NW
| |
| ',;' '?.$., .3, .3]<
| |
| .t .q e. .
| |
| . s
| |
| ...; 9 /
| |
| Applicants' plan to ship spent fuel abroad for reprocessing was speculative Q , , M. . '[<p .
| |
| b.o..{ $ ..,;, ,yJ f. i..r....u../l."M, .. ', '. Y.;'Q . .'' '6x 7,,.:
| |
| and therefore not a reasonable basis for cost estimation. .
| |
| .; w
| |
| , p. u t . .
| |
| , ..-< *.y . ;.
| |
| it: : ::es :. < c. a- 2.? c. A, :a ..
| |
| s .. y. , .. ~.
| |
| 3 8W,a . , .:.i!~. ...
| |
| ATOMIC ENERGY ACT: . WASTE DISPOSAL .M, . ./ '- - ''.'.- b
| |
| . . . . . . . , . . o, .
| |
| NUCLEAR WASTE POLICY ACT: FUNDING FOR DISPOSAL OF F '
| |
| f.''....*., .
| |
| ~
| |
| SPENT FUEL . r . . de, . ' .
| |
| ,m. .- ,o OPERATING LICENSE (S): DISPOSAL OF SPENT FUEL 5. ' .9 , .; 4, . , *
| |
| .%.*q\
| |
| ''j Since the record contained no estimate of when a disposal site would be %A.fo*a* l7 A.- f.-' .- fc ~,d
| |
| #', '/.l *o %[.,,y.'.h .
| |
| available, and since the Commission's Waste Con 6dence Decision estimated ? ;
| |
| E,. ,f' ;!.c,$$.C..
| |
| , . . 4
| |
| ..g ;;
| |
| that a repository would be available for waste emplacement during the period r . y. . . . . . .g Jy.;
| |
| 2007-2026, a reasonable estimate of when the repository could accept Seabrook F.i../ .
| |
| '."j spent fuel would be in the mid-range of these dates. j.j[Q^Q.*f,.,$r- .
| |
| .$ S ., ;[< . * ','E .
| |
| : i. ,.,..c..,,.
| |
| n..
| |
| g
| |
| ,4 8
| |
| *, c ;,*
| |
| .W .. . +'<h.U...*.
| |
| 6o APPEAL BOARD (S): STANDARD OF REVIEW
| |
| [.i.'~O..:i. '. , 4:<g . '
| |
| .y N. .ll . "?p,.
| |
| ~ '
| |
| . . . ,; .'s , ..; W. .v.
| |
| y?
| |
| OPERATING LICENSE PROCEEDINGS: FINANCIAL ' ;. WJ ? . .e Di.9] ' J ?. ?N. . 5., ..
| |
| QUALIFICATIONS T.i :,$
| |
| : s. .. :.:s U.i...* . ,..:.P ~
| |
| , .. 'M: M.1., ~
| |
| v . .
| |
| e
| |
| ~<
| |
| RULES OF PRACTICD, WAIVER OF RULES OR REGULATIONS .; s .
| |
| * T..VA d.< u/.*'j ,. y v '.' -
| |
| The Commission held that ALAB 895,28 NRC 7 (1988), was clearly correct $
| |
| f.flh'' NN.
| |
| that a showmg that a rate commission would not allow rate recovery of the cost r A p@]i'l' 3
| |
| ... # ... . . . -j T j.m'g;*l c.MI i cf operation cannot be the only permissible ground for waiver of the 1984
| |
| ',; P; Q ' # 0 Cf:. f'.f.[ - 7 Anancial queli6 cations rule. s. .
| |
| N.- ..s, g. g. . ..,... , . ,.. _e ,, . .,.
| |
| s > -
| |
| a ..
| |
| .p
| |
| : t. . .
| |
| 2.r. . . . v. n, , .?w
| |
| . - - .f, , ,,.:.. m. . , 7 '. ,- m
| |
| : f. ..., [. .* ,^ .'.' g . 7 d. j ''.J E N,-*
| |
| '.4v , .j , rt.-y . .
| |
| 4 6 f*. *., .. . *
| |
| - ul.j' ,
| |
| lp ,
| |
| s,...f ~n,,
| |
| : t. .
| |
| . ?S e!... s. .
| |
| .$.* .> . k. , ,r l
| |
| , *t 4 9 y g .
| |
| 4 . .
| |
| l 'c' '] o. .$
| |
| * I.. .. , ,%.-c.'q- y r ;l. ,d:,
| |
| L s ~ . <.-
| |
| ,, i, -, ,.,n .j g. .n t.. ;- :-
| |
| 7 ..
| |
| : t. .
| |
| i,
| |
| ,d . t. 4 ', A , % (,"j'*.I ; .s,. , f 576 t- * * ' em 2 1 .. . N l
| |
| l, ,
| |
| ,s. -.., r. rf,*b.....e"+v'b v
| |
| .*; . . ,. *a'c[g..:s :4 . . . ? - ,.:
| |
| .g' ,g ' . *
| |
| * b .. %
| |
| -.e N 4is j ..'.]?.43 [s #, "; [ .a."
| |
| [' ,, .
| |
| 4
| |
| . \ .- :* . f, " W L A. *d. .'7. , 6 =. .,h.I. '?*,e E ' / ' '' . '. . . ;
| |
| yl1.c . . (y
| |
| .n c. ^ ,l.e ' , " *
| |
| *% ,.',,an==-,.'.''a fs Ys
| |
| *'*,"y
| |
| ^
| |
| t . ;% , . , . >. . V .s . ,, ? . c . * >
| |
| , *.u,
| |
| , ; ; ~=n *n'" ~
| |
| s, *%
| |
| * _,a ;i.9: .t'' *. :~~ W;' ^*: w* *
| |
| . ,]. c W *
| |
| ' ,}l. * ,.''' .?
| |
| ..,*.,.'*p
| |
| * . . * . .e
| |
| , . ,;i ;- 4.a_ - * * ,
| |
| .a
| |
| ' , ?y ..
| |
| * J .i i. ,..4 ,.
| |
| #. ,. T ' 6 * #
| |
| .~ ,., - ,-* .
| |
| * .4 s 3-5
| |
| >'. . . ' j, ' " ,.*. ', ,
| |
| * ' 5. *. -*
| |
| f l ' ;, S ' ,,
| |
| gg ~
| |
| " *e g,
| |
| - . '
| |
| * wL_i '
| |
| * - ' ._AJ_l_=_a_:___-____:_. ~
| |
| R . I '* * . i ''
| |
| | |
| v .--
| |
| . : .y .
| |
| , , .., . J .. ~; >... ;d .. :f
| |
| ,y * ,.,. ,
| |
| ..9 ,..<:, ,' ' . , g ,.+ ..
| |
| ~..
| |
| .,.. . e .-
| |
| , < e s.
| |
| ~
| |
| w.. :n - ,; >
| |
| .'..n...
| |
| .~.
| |
| . ~
| |
| ' . ' .. .,.,9'
| |
| .' - l
| |
| .' ; m .
| |
| :., ,. v: ...n ,, .
| |
| , e,, %. . ..a . . . ,. .e .. ,. ,, ,<. n) ...,;,. > . . .
| |
| ..e. . . , . . .. .
| |
| 0 R'D:, ' . v x .. . ., ' ... .. <
| |
| , , ' ,C ; ,. .QL&
| |
| .". ~.. '
| |
| .'' '*h ,
| |
| . Q ' ' d 1, 5. i ,j;,1"~;.\,
| |
| M ' -.-( .'l': M; . " Q.%*p. y Q ;;. ;jl-' ' e'. , s s, [,y,f,,y,-y 1 ;,,,,.y
| |
| . j[,4 -.;,. )'g.QQ . F .; A.,;..j. . .
| |
| . .a, . .' ..,,,x.:
| |
| , v. . ,
| |
| s
| |
| : q. ;.
| |
| ... i *: ,
| |
| l
| |
| . ' * /, ..
| |
| ,g , ,'
| |
| -s ?
| |
| , y y , 'rl *
| |
| , 4
| |
| ,f *.l , , , , g *; y,. , .
| |
| .,e.., .m ..
| |
| .w . . , r :a ,:: .e...f c
| |
| . ~
| |
| ','.;7v.],.Mk.u. $, . ,[;! .} APPEAL BOARD (S): STANDARD OF REVIEW -
| |
| , . , < . . i
| |
| .' - R.ULES OF PRACTICE: WAIVER OF RULES OR REGULATIONS i
| |
| . . ' - . . ,lt .
| |
| l'. (> >. . .. . h,. 4,
| |
| ',c,....
| |
| .J , i .. , : ., 9, . . '." 7 ., .* / . ,,) Special circumstances are present only if the petition properly pleads one or
| |
| .. .r ..
| |
| ., . ,w ;
| |
| . more facts, not common to a large class of applicants or facilities, that were 1 9 7 , . .'* '' '. ; not considered either explicitly or by necessary implication in the proceeding - !
| |
| y,. ,f f -'; y ,, , g , ,
| |
| ' ' .j leading to the rule sought to be waived. Only with such a construction of
| |
| ;J *! * # 'f ; ., .. 5. p .' ,
| |
| the terms "special circumstances" is there assurance that safety matters will Jy' f[l j;p, ',t%. W'[ . ' y. +i
| |
| .'f.M not be ignored. Safety matters will be exammed either by rulemaking or in
| |
| . E 3.'.3.' .y n %. .) ?, l,n ^.. '.7. ,.y.. a..C'*f W-aa6 adjudication, at least for the purpose of determining their materiality
| |
| . . . s .
| |
| .' and threshold safety sign 16cance.
| |
| %.. r.
| |
| . .c;f"./.. e :. m..;Wf,4 o
| |
| &, g . kn'N ",j;pql'f,.f4..
| |
| x- y- c :b. .e . . . .. ;.,p m t g
| |
| .w . c. . n . r- . .
| |
| . y;f.# .. . A .. e. Lq.N.n.., .p 3J ,i mS ,.
| |
| t
| |
| , .~. ' RULES OF PRACTICE: WAIVER OF RULES OR REGULATIONS
| |
| . . ef,.@, . . . ,us., ;. .. .-=
| |
| .+ , . . .
| |
| ; t, N 3,y'.T{,p.p,, 3 .%
| |
| ... ,l. .. . ,A rule . _. waiver petition under 10 C.F.R. 62.758 ought not to be certi6ed
| |
| .[3 y .o;f g,pf y.?;; m, y ,.g%.
| |
| 1 ', .[' '.3 unless the petition and other allowed papers indicale that a waiver is necessary to address, on the merits, a significant safety problem related to the rule sought
| |
| .f.
| |
| . ''a 'V0 y, ' l~,g '. ..* , ;;,-. ,1.y' ',',.' " , , .. ].
| |
| .y. ( .,. .;
| |
| to be waived. It would not be consistent with the Commission's statutorily -
| |
| : i. 7. ~r, c.g. .
| |
| . 1 'k. , . ., !.
| |
| mandated responsibilities to spend time and resources on matters that am of no
| |
| .". d,* /[. l, J, substantive regulatory signi6cance.
| |
| p
| |
| . . . . * ,5. . ..n
| |
| .*+3'vf.D , ,
| |
| . . , . . > , ..,, ,f;
| |
| . .s u ,e. .
| |
| ..U ';i RULES OF PRACTICE: WAIVER OF RULES OR REGULATIONS -
| |
| ..f,t. [,;.vV. ; ^,,,.[. '. . .' . . . . ,.
| |
| . ~ ('~-lM.'i FINANCIAL QUALIFICATIONS: APPLICABLE STANDARDS; y
| |
| . J . g. " --
| |
| ..! PUBLIC HEALTH AND SAFETY CONCERNS .
| |
| a .- . .
| |
| . 3 OPERATING LICENSE (S): HEALTH AND SAFETY REGULATIONS
| |
| '. . . . .m. .1
| |
| . 1 ; , i U ,.3,. ," . ., .N..,
| |
| (LOW POWER) J
| |
| .. . a.
| |
| ;,- . ,' ;.i
| |
| $ s, ,,?,*/- .
| |
| * The PSNH bankruptcy, anti-CWIP statute, and delay or cessation of project
| |
| ' . , .d .
| |
| y,,'f,';. '.. ; M ~ '' ', . '.,', O payments by minority owners all present special cirtomstances, not considered
| |
| : e. .. T .t. l >
| |
| :I when the 1984 waiver rule was adopted, and these circumstances, at least w , . . 1
| |
| '., .l. 2T4 ..QM. , ,,,7 .. C..y. f./. '.~ j l.
| |
| .. 7 ;o considered together, undercut the rationale of the 1984 rule. However, no
| |
| / uhj g.J ,'.j R ..
| |
| signl& aat safety problem was posed that needed a waiver to address the problem p , %,. :,.,A . . , .,
| |
| ..eu. . . g ',. *. *.,. on its merits.
| |
| .., * -f.gl' 4 y. ; .? '','
| |
| ,;. w
| |
| ,- .l
| |
| .r
| |
| {
| |
| *,s = p .. .. . .. ..
| |
| f . . - .y,*, ...,g.. J. .. ..i
| |
| .;e. .,, .,t
| |
| . +
| |
| <.e,
| |
| .. s,, . .
| |
| ..=,
| |
| ,,;,s, :s .
| |
| =
| |
| ., s . y ..
| |
| O
| |
| .'.-,.8 F i- . ,
| |
| *.x.,*
| |
| g
| |
| .t,4.-
| |
| , . t. ,.
| |
| y . a.e .[ .. *:*. + , ,#
| |
| 4
| |
| . g. . s . \,. . .
| |
| ,g. . - - .. s. - ,
| |
| ,, % y .*'~+,... . . . , .- -
| |
| ," . .~ .. .
| |
| : a. .
| |
| e .
| |
| 9%
| |
| .s
| |
| * g- ,
| |
| .e .;n .
| |
| ~..-
| |
| :, . 577
| |
| .n; .
| |
| 'a es
| |
| +
| |
| . J ,
| |
| g
| |
| , . E
| |
| --A---- - - - _ - - - - - - _ . . _ _ _
| |
| | |
| ..y ., ,
| |
| w.
| |
| , t. . .
| |
| t .
| |
| FINANCIAL QUALIFICATIONS: APPLICABLE STANDARD; .. c i-.*. .. . . .
| |
| ~
| |
| PUBLIC HEALTH AND SAFETY CONCERNS -! . ,-
| |
| >. /
| |
| OPERATING LICENSE HEARING: ISSUES FOR CONSIDERATION .
| |
| - o .' i (FINANCIAL QUALIFICATIONS) I.^.'t*.5. '._
| |
| ...a '.".~ .. .+. #+
| |
| ?
| |
| w :. . <
| |
| The reason for conducting a 6nancial quali6 cations review and requiring a M ,, ., d . ' '. . ' '. */ ?, . * . . . '. ., :.i.
| |
| 6nding of Snancial qualification was solely to provide some added assurance #. .
| |
| that a licensee would not, because of Snancial difficulties, be under pressure to fE'Z ;~'~' ., Q.cQf , j,.. ,y,. i . y..?' - {.c.
| |
| take some safety shortcuts. . ' ,* * ~ ..,' -.. , , '. ' M. T. ,s
| |
| .,.- ~
| |
| a, .. .
| |
| L, s.. . . . , . , . .... ,, ,
| |
| . 4
| |
| : 2. ..
| |
| NUCLEAR WASTE POLICY ACT: FUNDING FOR DISPOSAL OF ( ' ' [,,*Q:.l',''*\ ' e.C ?,Ij.h.]
| |
| SPENT FUEL >e; *' '..' f
| |
| . . . . , : .;n. .
| |
| OPERATING LICENSE (S): DECOMMISSIONING (FUNDING); O..;Z. . -/ L .1.W ;;E G . . . . .
| |
| DISPOSAL OF SPENT FUEL *:, . . ,' .."s.
| |
| ef.,r. >.t. .;*< w sc. n , . . . . .
| |
| 'Ihe decommissioning rule excluded spent fuel costs from decommissioning
| |
| * j 7 .- ~ ~ ' '. j
| |
| .!D,? WA7 expenses and classi6ed them as operstmg expenses not because of a lack of ~l:~ ,
| |
| , ,. ,, .. N safety significance but in reliance on fees and funding for spent fuel disposal ,
| |
| F-: ;-
| |
| required under the Nuclear Waste Policy Act of 1982. [ ,' ' ,.
| |
| * y 7 -
| |
| m; y { , N
| |
| .. , .j - . m .n : . z. ,
| |
| l...; . < :. :.
| |
| ,.~a
| |
| .. w.. . .v.. - . . ,. .+ m..
| |
| - 1: " ! .c ,^'. ..* c;;.
| |
| NUCLEAR WASTE POLICY ACT: FUNDING FOR DISPOSAL OF k' ' '
| |
| p . . . .~ . W ' .
| |
| SPENT FUEL ". ,. . +. ~ e ^ ' . D.G ". . 'u
| |
| : 1,,., .
| |
| 'l' . . . c,. . .. ,..2 ,, . .* ' ,1 l.s OPERATING LICENSE (S): DECOMMISSIONING (FUNDING); -Y-- ...q-;c. .Q r :..\.p e DISPOSAL OF SPENT FUEL *. . '. .:,." .. d.:. M. 1 .: ~ .;O,
| |
| #' M ' 2. M .?U
| |
| .. .?@n:.
| |
| I...f C. ' , L n..
| |
| ~
| |
| An evaluation of Applicants' plan can only fall back on the assumption that
| |
| ~ di ,. :. -
| |
| {r j'acJ ' , f[..'.'Q: ' ' .: @
| |
| underlies the decommissioning rule that spent fuel will be stored on site until it ,
| |
| can be shipped to a repository for disposal. T. [ .g- .; J ,. d c *, . <,.. :' l.) :{. y , .3 .
| |
| o-
| |
| . 1 . 4, 7 4 ;3..i.,q;q. .
| |
| { ' ,,' . :y e ..s : . ~: m .. L ,
| |
| .. s ..
| |
| ,F-
| |
| 'e OPERATING LICENSE (S): DECOMMISSIONING (FUNDING) ..
| |
| .' ,:. r. ..- . ,: ..(, .e . 2 ...:- v"e i a .; .c There is no disagnement that the duration of operations signi6cantly affects a the extent of irradiation and thus decommissioning costs.
| |
| ''"' V, sy li'4 . d , N ., [k '
| |
| ,i ..i < . ;- e ..' ' ,l '.
| |
| (,.
| |
| ...~e<, >
| |
| ; . p. 4. --
| |
| OPERATING LICENSE (S): DECOMMISSIONING (FUNDING) .P,. .A: . . ..M.v,"'.E - ' ., '....' ,' . . . '. .. E " . . .
| |
| ; .,.. .c .4 It would be unduly onerous to require a totally prepaid external account t(' ../. '; . (-
| |
| u d ..1,, 'g, ;.l',J,,'l .7 ,. i..
| |
| beyond Applicants' control at this stage for so large a sum. Indeed, no similar j
| |
| ,, p., 5 .gQ ,
| |
| requirement has been placed on any other licensee, and there are other means I ',' " ..i .Fy,c J U f . , ' ;.4 C. -;g to provide reasonable assurance in the unique circumstances of this case.
| |
| ;,. ,,,' * ..4 W , * ' , . ., J. - - ..-
| |
| .,,.*e
| |
| , 3y* ',. 4 n. e,. s
| |
| * s. ' %
| |
| z, :<. .
| |
| ...,...':l .
| |
| :( . a:
| |
| , Q,':..
| |
| 578 ; .*~'.' - -
| |
| . ,. . ' , 9
| |
| ' *G' . , * "*t", ,.-
| |
| : f. .**. . .' ,,..t'
| |
| ,r/1.g-.
| |
| ... ...*lc- ..'.
| |
| r ,..,. *
| |
| - g. .
| |
| [, ,
| |
| f..-;~A, . s ,. .;. . , i p.
| |
| p ...
| |
| v- .s *~s .---,.n U.
| |
| =
| |
| *. , ~ ; , , l , ?.
| |
| '.;*.. y
| |
| .. .. . - ..,. .,--r es ," y . .-. s
| |
| .t~'y* ~> .1
| |
| - ' .[ , .
| |
| /' , ( . a
| |
| , '3 y *
| |
| * l ' , . .. \, ~ i
| |
| ,[,
| |
| * I'.'.
| |
| .3.-
| |
| . ,j ~
| |
| .. .s*
| |
| ~.
| |
| ~.--_J
| |
| | |
| .j. . .. c: w -
| |
| : 7. . . m ,
| |
| ...m
| |
| .2; }. . .
| |
| .. > y : , , M u.-
| |
| , a ; 4 , .s * '. '*
| |
| i ,''. , - ' -
| |
| .8-
| |
| . ? w;p; )
| |
| ,1 . . ,
| |
| , . . .: ..r
| |
| . i.
| |
| >:M i
| |
| - . c ,9,. ; ,j ;., ~ . ,.e4 .,
| |
| l,
| |
| .1
| |
| : y. :
| |
| vt~ ,.. j .,: ,. . . . s..
| |
| u, ,,, ,ve.. w.my .< a + f . H
| |
| , .*.... r
| |
| .w ,
| |
| . , i ; ;,;...
| |
| : 1. , ~ . w. - - 1 -
| |
| ; .. . s .<, '. ' . . ~ . y,. . . .. . .x. ... . . -. ..-.. lb. e:.
| |
| , . - . u....;~ . .t
| |
| . e-
| |
| ., v.
| |
| : z. a .e .. w :,.:, :c
| |
| , ~ :. j. :).:. ; f.L;l. ,. .,f8.: .. . t c. ..
| |
| ~ ~.::W.Mul.n
| |
| ~
| |
| .;-:.c.:
| |
| .n .-
| |
| , , .., .f.: ^*
| |
| ;. tt.m,
| |
| : t. .
| |
| ?
| |
| 3 ; *.y;;b.l .''.u d. .
| |
| ;:.c. ,
| |
| :.a: , .
| |
| ,.,.* ..s.
| |
| ...s..a : .. ,. ;.
| |
| ~a. -
| |
| . o
| |
| \'.* ,. '
| |
| pr.
| |
| +,e s.
| |
| . .. %i ,. .. h w .
| |
| tt . .: , , :. . .;
| |
| s
| |
| * D,g, . \ ; ^ 4 ,,- . ,. . ' q. ... .
| |
| . . .; .' ,' , 4.q [ " .%.Q.[;' .:. .s .
| |
| ,J., , ;
| |
| ?.,'' ' ' ATOMIC ENERGY ACT: GRANDFATHERING CLAUSE J 9 . l' f,, *.c .,
| |
| Q.(, W,-, ..s. ' ? . .'I.[.
| |
| ..,f .
| |
| LICENSING DECISIONS: SCOPE
| |
| - - .; u.! 'e * ~J .i OPERATING LICENSE (S): LOW. POWER LICENSE (FUEL I
| |
| 'k '.-
| |
| [^ . . ,....>~ ".J'.:' -l,J.a. >: _ *~
| |
| . LOADING AND PRECRITICALITY TESTING)
| |
| . y ::s .. y; t .* ?. REGULATIONS: INTERPRETATION
| |
| 'p 2 :.;f*j .~. . ::1
| |
| .
| |
| * l e;f.[. tv.. .. ,j'3. l@. N, ' * ,9.e The Comnussion does not reach the question whether the rationale for the l
| |
| ,. ,4;p .g ;p% ru;e's "grandfathermg" of holders of a license in 10 C.F.R. I 5033(k)(2) would
| |
| ' ./. *agc M f".Q',.. [
| |
| w . ..'T- , ;:.~g .
| |
| ~ 4: (s ,hj.
| |
| -Q. , 3,. 3
| |
| . -...n,apply to the license to load fuct
| |
| .:,, xq.:.w.jl-.i
| |
| .e- . ; y . , :j.m.. . . , . .w
| |
| . .,.a.m . .
| |
| '. '. :, ca . "9., ., :Mb.. . DECISION
| |
| ...<s .,.. ~ w ~.. . .
| |
| /...l ' e.h gr,:?: *P-
| |
| ; '. '. .. . Q'. ,
| |
| I.
| |
| | |
| ==SUMMARY==
| |
| | |
| ., [s,. .
| |
| < [ '' *% :[U.. . . . . s
| |
| . . ,.,!.hM[
| |
| : .n , .
| |
| * u.
| |
| a"....
| |
| . , . .d .; , .6 )
| |
| *.h;7. *g. n- -
| |
| _,?..'M ?d 'Ihe Commission decides today all of the pending Anancial qualification -
| |
| .]
| |
| , [j questions that have been brought for its consideration in Seabrook. 'Ihese questions have included matters of Arst impression presented in unprecedented
| |
| . ,. - , 7 .; factual circumstances. '!he Commission's lengthy deliberations have led it to
| |
| ," % C,N . Y.', ," .;M',M
| |
| - ,' , . ', a clear course that protects the health and safety of the public and allows this
| |
| .a' ,. N, f, complicated litigation over Anancial quall6 cations for low-power testing to come -
| |
| ?.,, -
| |
| .- .. -M : ! ' V.l. , 'M, to a close.
| |
| , s.
| |
| . :.9 The C==kdon has deternuned, as will be explained more fully below,
| |
| . :-]
| |
| j.,';,' .
| |
| that reasonable assurance that funds an avadable for decommissioning must .
| |
| . . . - be provided for a sum of $72.1 million before licensing for low power testing.
| |
| % 1' , ~ - "
| |
| .' ''s' " Financial assurance fer this amount in the form of a prepaid external account,
| |
| , .: ?j surety, or other guarantee method would be acceptable. But, for reasons that are
| |
| ,.q .
| |
| ... . ,, % ,*: detaned below, the Commission will also accept Applicants' proffered plan to
| |
| , ( ... [g., f. r E . '' i ., .
| |
| ~
| |
| " fund, before receipt of a license for low-power testing, a separate and segregated
| |
| '.e,.*.
| |
| c f.. .iD - *; 9 account held by its Disbursing Agent provided that the amount shall be $72.1 i
| |
| . , , ' . J. , - . 'i , . $ " '? C . * /# j.,: . , million rather than the $21.1 million suggested by Applicants, and provided
| |
| .. ( . . " ; . ..! Q N . e A, further that no fewer than two of the Applicants, whose Anancial health has Q.,.". * ..' ,.M.'.'.*: $ ~?.I.'".. .;.l<. .. '- ,
| |
| d' L. not here been called in question and who own substantial shares of Seabrook,
| |
| . . .'),5.. ( ;, - .C.f *}
| |
| , ' . .n . :. [.' ' '
| |
| shall each jointly and severally guarantee to make up any de6ciency in the fund
| |
| ,. / ?. ..,,, .,
| |
| : caused by disbursements for a nondecommissioning expense.
| |
| . .f*". ' ~1 y
| |
| - V /. - ;.'; . p?j' O';*?M'!1,'.,',74:gl%'.*[.j
| |
| . . - . . 'Ihe Commission also has before il petitions to waive the Commission's 1984 i P nnancial qualiWs rule so as to require a Anancial quali6 cations seview and
| |
| .r finding before low power. 'The Commission Ands that with decommissioning
| |
| ;;f ~.. * ,.'7 3. .. n~ q' ..Q,-l,-[-[.y,,f./)
| |
| . , '. f expenses reasonably assured, as specified above, there are no remaining signif.
| |
| - t, .,
| |
| , , V icant Snancial safety problems that need to be addressed. Since a rule waiver y v. ,
| |
| : g. . . d .,
| |
| ...'- .'. a... .c -
| |
| t L.
| |
| .g, .
| |
| .,s-
| |
| . L > . .g . . .g -3 579 ,
| |
| . . i g [. j pe I e
| |
| .s 8
| |
| .,.e, . .* *l',
| |
| . .# 9 . ,
| |
| s .. .
| |
| g & . d g 4, s
| |
| . '4D- ,
| |
| | |
| . . s , ,
| |
| i
| |
| . .I c - ,
| |
| . , . j 1 . .
| |
| t .
| |
| e.
| |
| ;e. u is not needed to resolve any signi6 cant safety problem, the waiver petitions are k *.' a .
| |
| ,.,,., . Y, , , ( .J. 4' . 9 denied. ,. .. . . ?.: . . . . - . . .
| |
| , . : ; ,, .lr-(7,., "W ,J. .~: . . *-..4.
| |
| ~
| |
| A low power testing license may be issued by the Director of the Of6ce .
| |
| ;<: f j , .
| |
| of Nuclear Reactor Regulation after the Applicants have ed:W Staff that all ' ' ,.d.
| |
| the decomminioning terms of this Decision are met, subject to the following ,
| |
| -' ; ' Q' ' .f.i ., g;.'" ,.I quali6 cations. The license shall be conditioned to allow Seabrook Unit 1 to i. .c
| |
| .' l ',' ; e .9 ? " . N ; .,y {
| |
| operase at power levels not in excess of 5% and shall permit no more than 0.75 s ' ' +,. '[.' ' ] , ,.
| |
| effective full-power hours of such operation without additional Commission approval. In addition, before a low-power license may be Isaed, the Licensing yL gj.. ." c, .f:'.f 3 .,4. . . ' 'f .
| |
| , - ' ." g *
| |
| ( . A'!" lTh .'TJy' T., , e .'wQ ",<. . ,, ; f.
| |
| * A; Board must have resolved the pending mouon to litignae additional onsite emergency planning issues and any litiganon before it on such additional onsite ( 4 " 7*J,Ob t .
| |
| .fM('d issues. Finally, to accommodate any party that might wish to se:k a stay, !..;}" p * ,, g , l* f.Ag M*,c. ..Q,. ' .q; ' 't f., . .;,;" '.:yy,'
| |
| a low power license may not issue until 10 days after nonce by Staff to the .
| |
| ,h Commission that the decommissioning funding terms of tlus Decision have been ,- . Ar..S..C. .. . ? '..Y, ./O. ." :q satis 6cd or issuance of the Licensing Board decision disposing of additional A. . ~.-
| |
| ~4
| |
| .,. 6 s';.G .~.., . P,.: . O. .
| |
| *<'...N onsite emergency plannmg issues, whichever event shall later occur, but in any / ., - p' * ,, f, 't
| |
| ..*i : . - '7 event not before January 6,1989. Any motions for a stay or other relief fmm this order shall be brought to the Commission hself.
| |
| [.j/,
| |
| [S, f .; 3.( j.;,7g.,,
| |
| !. <, . v . . . . p~ .,.c.,i
| |
| .. ,y
| |
| - ~~
| |
| .,r , . , . , .,- ,, ,
| |
| i . c.n , . . . . . ,, ..',,,y,.
| |
| .... e . . <- ~. .
| |
| N '
| |
| II. THE DECOMMISSIONING DECISION b:: : wn.; ~g;.'l.
| |
| . ':; . . '4
| |
| : .n,: ,.m
| |
| ,1: ,
| |
| A. Background I ?.' .", M,~ . .. ,6,$.
| |
| , + . p,,.... . i .',1 ' ~ '.;' . .u I '
| |
| In ALAB-895,28 NRC 7 (1988), the Appeal Board certi6ed to the Commis- f -
| |
| if.< .. - M M , 4 .?:s",C-{.i].
| |
| sion a petition for waiver of the Commission's 6nancial quali6 cations rules so 5l . . E . . ; lh[;. .
| |
| , , " k .. . << ;
| |
| , .as to require a review and Anding whether the Applicants for a license to operate /
| |
| 0,f (,'{.,.{M*P'Q,; ff,.?*(,, P,y, J Seabrook Station (Applicants) are Anancially quali6ed to operate at low pomr. '.,..- s e,J ,l 1 .. . .
| |
| While the certincation was pendmg, the Commission's Anal decommissioning rule became effective on July 27,1988.8 'Ihat nale established a regulatory b
| |
| ,w. " ' ' 7 Nj k?3 ' ,S g d. ! fY,c, s
| |
| 7 N :.'.
| |
| , l,'g ? ' J.. ':.
| |
| - .*l9 framework for the purpose of establishing reasonable assurance that, at the time - U d '; " , f ' : 4 *? g ., ' -
| |
| of termination of reactor operations, adequate funds would be available for safe and timely decommissioning. In light of the rule and the potential sig=IA-e b .' .,,[.
| |
| h ',. I
| |
| ' .Q . ,, .
| |
| 31.
| |
| ' , ' f ,., .
| |
| 4,E "E .
| |
| of the decommissioning nr.ancial assurance question, the Commission decided i; I 4 ' ., '.''t. i p a f ' ~( <
| |
| sur Jponte to give initial consideration to the decommissioning issue and so le . i 's J . . /t. -
| |
| ..i advised the parties by order of September 22,1988. CLI 88-7,28 NRC 271
| |
| ;d. b , . , ' . j ' ' . ..
| |
| (1988). @I .,
| |
| p' w < m , ',', ..'
| |
| ~N ''l'~f .. . f. ,f' ?..
| |
| ' ^I.' ' X . 9,
| |
| . > .. .s 6-j , q-l , '., , p ,4 ...., ''.'/
| |
| : p. *
| |
| : e. '' u <g
| |
| .% e , ."*; > .''., :g.. . ,,
| |
| l :
| |
| .4.
| |
| ~ ** '42~ ~-.., ;.
| |
| .: f.
| |
| : l. .
| |
| t . ,.;f.,if . ' . 7,, ,* QJ 1,, y >G. ele - -
| |
| ..:.,....a.. . . . , ~ ., .g
| |
| : 9. .
| |
| r, p ; * ,i *J I, '[ h.'' 5 , b. a. g[. ' ; .. Q Is3 Ped, aeg 24.018 Quas 27,1998).
| |
| * . Y. . . . . .
| |
| '(. * -*.,**, , + " .f.','' 4, '
| |
| pa ' 2 .. .s . ,'' . ,' . - lj ,#
| |
| *.'.I ' F. '.' # #.
| |
| * y? ,
| |
| 9 3' i - .., ,
| |
| , , 4.
| |
| 580 i,
| |
| *. p 4 .
| |
| 4 8,. ., , . e
| |
| ' g. .. ', ! '
| |
| ..; ~ ,
| |
| ;;,.. - d ,- . ;' .
| |
| : p. . . ,- , *
| |
| . . . ,. e . ,, . ,;
| |
| (
| |
| ., . . . , .. r .
| |
| - .. ... e.....
| |
| * # . ....'c ,. p. ! , k . ..w .:,
| |
| ' g r., ,
| |
| : s. sll,-,w. s, $ '.N df.*-
| |
| '',.,,,*.l i e . .
| |
| .L < , . '';. ,g}
| |
| ;36 4
| |
| ,.s,"' . y g,.. ., ", [<.. + A'-
| |
| ~
| |
| i n . - , -
| |
| a
| |
| | |
| s - _.u , , .
| |
| *:.M. i , .:.
| |
| ;,: . v.
| |
| .. .:. :,.w:
| |
| - .1 , i, *
| |
| .' ' . t.; ~.. . . .,
| |
| ..t , .wu... .
| |
| .y.
| |
| .., 1 u.
| |
| m: 't, 'V.: :2 W ' < 3,
| |
| ?. ' ' .
| |
| . . , 1,i. , e... .:.1 ,: ), ,W ~. .a.. . d.
| |
| . r.. .'. ,2,e, r:. ; v. . c. g
| |
| ., , 't
| |
| . , .; %.. ;,1
| |
| :. .,.v
| |
| .. ;.. *w .g. . :....,,.w
| |
| .->,u.,.. t. . . . . .n, ;.: . . . :~ , .. . .. . . <, .s: .y: e w.
| |
| r .
| |
| : a. .. . .. ;. ;y .: .. ;.w v, ..
| |
| s . ... c.a .. 9. u:. . .+ ;; .,..
| |
| .a .+. ,u
| |
| ., ua. a m..a. . ...'.~ .:w .. . e.>. c ..s. .)..
| |
| .s .-
| |
| s.
| |
| u, .
| |
| 1 a ,
| |
| v . .
| |
| i , ~~,.
| |
| . . . .. ,..i 4
| |
| ..s . . .. ; a .
| |
| N ,) ' '' . f.f'yN , ;/
| |
| }. l .
| |
| , .f . .= . o. > ., _ > .'
| |
| B. The Requirements Established by CLI-88-7 7, .. , . -
| |
| In CLI.88 7 the Commission stated its belief that the . ctig of the 1 W ..iJ decommissioning rule l
| |
| ',4.
| |
| . i.: c * * [' - ' % f -
| |
| s
| |
| . .,id I* . '. 9, ;i , e ' .' . . ,; when applied to abs unique and unusuat carr'i==maa== af this case, rogames that beloss l,l-* .,. .h. , , ,,.f.,,,"'.
| |
| * 6 '.
| |
| low power nasy be - ' ' '. Applacanas psovids russonable assuranos that adequeas funds
| |
| ./*. ''
| |
| . < . "., '..tr , .. , ,
| |
| . 7. h, win be sveitabis so ibat safe der ===aamianing win be reasonably assused la ibe event abat 4
| |
| . */, . ' ,'.;f *D / ,**
| |
| * M ' . A' low. power opesasica has oceaned and a fuu power license is not grassed for Seabsook l
| |
| . . :. A ; . t].it t.
| |
| . ., ., ?. : !'' .*.., ''' .
| |
| '.;... ",.*'/**
| |
| .' '3'' .l.
| |
| : tr.''i./ i: *@ k'+' V ' '.. , 28 NRC at 273. In that light, the Commission required Applicants to provide -5 i ,)' . .! ,5 _ . '.[} b.Y, ~. VJ.[^.C the basis on which a Snding of such assurance might be made. S:~me*"y,
| |
| . .. V M.d ApaH'-* were to provide adequate documentation of their funding plan and a, '"e . . . . . .;
| |
| f."l:
| |
| appropriate commitments under that plan to support such a Anding. 'Ihe U,?7'. , ' f, > j.c, w 4;";
| |
| C.
| |
| !e g 9.. h: .,)
| |
| 7,.. ~.;''
| |
| - . . ' ,3
| |
| @W*'.l d' y p'''..},.j# #
| |
| * di.. a Comaussion also noted that the Seabrook record is closed for the consideration of new issues, but offered the parnes an vyyue y to move for reopening j N*. .f 7 t 'i .J and to submit new contenoons, and ottered a subsequent opportunity for parties
| |
| : i. .' / / W .
| |
| l; .j to Ale appositions to such mouous. 'the Commission said that it intended to
| |
| ~ ,, . ,,
| |
| 'l resolve the matter on an expedited basis. l
| |
| }'..J v' . . . -
| |
| ;. " - C. Responses to CLI.88-7
| |
| , . . . '. l.. ~ l., ", ;. "c , . . ,
| |
| ,_ , .. , W ,y
| |
| ...~.-
| |
| l 1. The AppKcants' Subasissal
| |
| ; . . - Under cover letter dated October 20, 1988, the Applicants provided a
| |
| .'%" notebook entitled "The Plan in Ramr=* to NRC Order CLI-88-7" (the Plan).
| |
| '[]
| |
| f ~~ .
| |
| ~. l ., ' '. .
| |
| L .
| |
| * l ;, ,
| |
| . The Plan contains Applicants' analysis of the steps necessary to decomnussion f, .
| |
| .:* l.2' . Seabrook in the t..*nt low-power testing has occurred and a full-power hcense l
| |
| 'l
| |
| / *
| |
| ,. is not granted (here'fter "the hypothesized circumstances"). 'Ihe cover letter
| |
| * summarizes the analysis, concludes that the necessary sum is $21.1 million, fi and provides the Applicants' discussion of its plan to fund decommissioning.
| |
| -'. i . . !
| |
| * l i '.q';l No separate evidence of commitments under that plan was Aled. However, i .; .. -
| |
| l ' ,.,
| |
| c
| |
| ' '' ~'
| |
| . s, '.d the Appliennum acknowledged their decommissioning responsibility, speci6cally
| |
| 'l J-5' ; " f ..,j stating that the joint owners were severally liable for decomnussioning expenses
| |
| '. ' . .. . y ,
| |
| - ] , +[ k i under the joint owners agreement. 'lhe Applicants also told the Commission
| |
| . ? . L , ~. , ,f ,
| |
| .lj that they had voted to establish a separate and segregated ." Pre. operation
| |
| ( . , . ec c 9: :". , ...'. i Decommissioning Account" in the control of a Diebursing Agent for the sole
| |
| . ./ . .
| |
| .,, 3 , , .c. . c . - y.' n, pu@ose of defraymg expendinues incurred in implementing the plan and to fund e...-
| |
| .. .. . . ; ma
| |
| . ..~(
| |
| ...,- ., \
| |
| s . , .
| |
| w .- ,
| |
| .,,', .. . .~
| |
| . ,. : * *; . .a
| |
| .,,"n 21
| |
| /;.s f M .' . . . . . -..- amer fran Edwent A. Bsown Piumens and Chief Eseemive ornaar of Pubbs savies Cosnymer er New j '
| |
| & , ,. .4 "g .., ,
| |
| Hampduse O'SMO to NBC, Omaber 20.19ss, as 5 OusesAar Osnabar 20 Laner). PSNH is the lead appbsent in
| |
| . ,. v. *f l. .. . tins hasmsins ps~==%
| |
| , l,, . .. .
| |
| l'.
| |
| -_ 4 g ..
| |
| .. .s s.
| |
| < 581 ,
| |
| f l
| |
| t l
| |
| .- I
| |
| . . . , e r
| |
| . . . ,g-a[
| |
| I
| |
| | |
| m - . _
| |
| e .
| |
| * s . ,
| |
| .. : .~ a.. -
| |
| s
| |
| . @t '
| |
| 4 \*
| |
| : t. s
| |
| , . . . - . . . s.
| |
| that account promptly on issuance of a Commission order requirmg them to do b ,,
| |
| . g . ' . . f ,7 % s so. October 20 Leuer at 710.
| |
| .,.?.*4
| |
| 'lhe Applicants' breakdown of the costs (in millions) includes:
| |
| : n. . . ,j . .' r . ;;,% .- . {3 -
| |
| r . ,.
| |
| Staff Operating and Decontamination Expense $9.99 [;,.; '
| |
| ;g(..,l''(..'.{.,' '
| |
| $4.79 ,,[
| |
| Dismantlement, Packaging, Shipment, and Disposal of ,,, ,, #' . d. ' ~ ~ Nf h . . ."
| |
| * Reactor Vessel and Internals F. ' , , ,. ,.y. .C . '' ,. 1 5j.' . .
| |
| . . . s.
| |
| NRC Fees and Insurance $4.96 l , , y~ . T q. '. 7,,4. . ;..&.
| |
| ,q,
| |
| . . . ,. .si .c .,, . .
| |
| Contingency $1.36 (*.M.. . "~ -. , .' N .c *.- f.>t.,;O c. . ,. ". ,-
| |
| ..9
| |
| 'IUTAL $21.10 . p ; .m.; , ;<9.j,';- h. .,yj*. gg;,y ,
| |
| .,s. .. ..m ,,.. . . . . o. . ,
| |
| i g., ~s a .% ss ..' ,... '1, .
| |
| id. at 5. W. : .
| |
| Certain assumptions by 11 e Applicants are key to the $21 million figure. We - ',~ -
| |
| ; w'
| |
| ~
| |
| ~c(.,?
| |
| M
| |
| ,{.,.'.,,. .p.. ,;. r ] ,, .s -
| |
| note particularly two assumptions: ' (1) that total low-power testing will be the f. :
| |
| C.,.
| |
| . : ." ? ,
| |
| /
| |
| equivalent of 0.75 of 1 effentive full-power hour and (2) that the cost of spent U ,. L ? ,f; ~ [.'s, W "[ , .
| |
| fuel shipping, reprocessing. : md disposal of any associated high-level waste was @ T-' 4 h y'j';,'~f - # . . (7,f4 not required to be included. It is to be noted, however, that shipment to Europe p' ' i e -' .i,' f t'.* .,; p ;.. ;
| |
| for m.ms.ing was inclu' ed in the plan and provides the basis for catain j,.. ' , '.2 4'/ .k .. ,,@ M/p -[.' ' (..[,, t conclusions of the plan. hp.
| |
| + .... ...; A.. . . . ' . . r', '..s,.
| |
| -. . .L l@ , .@
| |
| ' . . .. = ..r . .
| |
| f..6 y .. ,.' v ;,. . .
| |
| ;,,..... ~ . ' 4..,-fJ .t .
| |
| /, , . .,
| |
| : 2. Posident P. he Parties ;.W & ~.S. ' L \ , : 't ,,,a...". .' %', * ". s. .
| |
| ,r..,..- . *
| |
| . . . .. . s. _.~;.- .
| |
| ", - 4. .r ,,%:.. .., .h . .be
| |
| : a. Interwno,'s v..,
| |
| m, s. g i;7:... . 3,. a .- e c ;. + .. ., .
| |
| e .
| |
| M d : E,'
| |
| . On Novemxt 2,1988, the Massachuscus Attorney Ocneral (MassAO), the
| |
| ~
| |
| New England Coalition on Nuclear Pollution (NECNP), the Seacoast Anti- ', '.1''.
| |
| I . I, ,5, .
| |
| ,< N M[i@$).?.,sg$ .
| |
| J.C. ,
| |
| P;ilution League 6APL) and the 'Ibwn of Hampton ('IDH) separately moved s :!
| |
| for reopening and admission of contentions related to decommissioning. f f. 'j'c . 3 4,i,'o' y,; , y. 6;3y,p "
| |
| " '' p,;@H L*s '. ..
| |
| ;, W' ' [.c .7] ,b .O pc *. .Q^.'
| |
| MassAO also moved to reopen on fmancial quali6 cations and to admit a con- , .
| |
| tention related to availability of funds to meet costs of spent fuel *====1 'Ihe yJ. .. , ? " .' ' .l, i ,:/,. 2 '", ' ;. .',,; ~
| |
| titles of the motions are set forth in the margin.8 C
| |
| .;p - a. 7/;. . m. ', ':. :. :,. . E. .4.,~', . i . . M. . , n .;. . .'
| |
| : i. . . v., ..,,. . .. . , ,.
| |
| g e. ; ... 3 s.a.g., .,
| |
| 'v.. ..
| |
| *l ' i, ; '
| |
| * 44, + Te % * * ' . . *.,.g* lJ e e.'' W* ''l,'flY.l
| |
| . - $ g , _. c' O t *)E ^4' *
| |
| , 4 f.
| |
| h** . ,., ' I s,,' ,'?v.
| |
| r'*. .
| |
| s'. , f. ,eE* [;*&#n ;,. ' '.,. * .
| |
| q 3
| |
| Maassa of Maassahmusas Amarney ammese1Jasmus M. shnames Under 10 CJA $ 2.73d se asspan the assel / ", ' ;;' blf, * (A,.: p,{.f;j A- ;.,.B,1 .
| |
| ..:sl.16 '
| |
| is Commder Evidsmas P ;the3sisa ?.
| |
| * Desammmmmmmans Plan for the sashumuk Nasisar Pesar '9 ,v gg .
| |
| sammen and in Adent the Ausshed lass Fund cammansas Cameermas Sad r . Plan. ' , . ;
| |
| * a ; ;, *Q(..' ? .
| |
| ''g. .*y, r*4;..Y '.* . ;( % 7;#*",7 by seineses MassAo's Pommen moder 62.758 for awaiver er sa Basspess fusun aba Public IJiihey Ensequesm fsmen ,,y. , . .J h j! e, O f*. f*'@f;f ~~.' .f z'/t.,
| |
| the " - W e N=====a- af Pimammal C ''" - Town af Hampism Masses in Admis lass PDsd .
| |
| . .. g;.1 Ty; L '.f- . Q.' e.
| |
| F- med Raspam the Ramel as Apphessus' Pinammal Qa 1.Aa==== to Da======== sesbseek unassaa-New Essised Cashman am Nasiner Pensesn's Cassammans en Apphanus' r . Plan. Mesma for sasy 7.* </ . ft , ,*A /
| |
| *t '.:M..D.V;J -
| |
| c
| |
| * g [. ** ' '. .c a y? r T-'. * .''jO, p. ; .
| |
| h_y.y 'O 4. .];*Js.,
| |
| * d'W
| |
| ~
| |
| of Law Power Opersman. med Matism to Respan the asumed; med sessoms Ami Penamen lassus's ra-a=='-= ; 3.
| |
| en Apphasass' Plan inm.T==== es NRC ouder C12-87 7.
| |
| l3 j.7.',J.;'*, ,, ,N{.'.; y
| |
| ~, # .
| |
| *r . . ,
| |
| s, ' . . . s : . v ..e ,: 4. ,
| |
| 582
| |
| . ,; C f . ' ' .
| |
| 4 ,,'
| |
| ,. . 1. .~.~ .
| |
| . c ...
| |
| , . ~
| |
| ; .n...h i,.i,.,. 5 .J M.
| |
| 3 5.,," *',e+ g /* - . ,
| |
| ,J.S . . . ,, .
| |
| g . g. 6 ' .g e . .. , , y. , .: , . n .
| |
| .,a, ' ~ 4, . . , ,
| |
| y
| |
| 'r- . e t'd e
| |
| -5 ,
| |
| . . ,-, , ; ,, . . ,, y I 4
| |
| . . . , ; , ,s 1
| |
| . p.o .
| |
| ...;y
| |
| ,,. s. . ., .- -
| |
| . ., .3 , .., .7 2
| |
| ,, i , , , s. .
| |
| , , e , .- .
| |
| i
| |
| ! u.*"- l,,O
| |
| ,5- ____a___________A_.' _ _ _ _ _ _ _ . ___ _ _ _ . _
| |
| 3^ '' l
| |
| | |
| 1v -p ,
| |
| ,,,. ** ..'i
| |
| ),,,
| |
| . . ,; . , , ;;. L. . .,' .. *.; ,
| |
| ', .4
| |
| . v. , g. , s 4 3 ., .
| |
| ;. ,' . * , .,i
| |
| ~, 'a,.ssy.
| |
| *' . s. * * . . . , , , ., . .e.
| |
| . e.
| |
| * ! ..f"*
| |
| * l
| |
| 'f ;.'. ' ' , ; (
| |
| r . .; w.g .M'
| |
| ...'l'.,.,.,4.c.,,... ?'.Q:v... ., .,
| |
| e , ., ,, ,
| |
| . , , . . , .. . . fr. ,g e .q.. .e
| |
| .a ar, ..> u :... c :,..
| |
| ~ . .w a s. m.- . ..
| |
| s
| |
| : x. . . , s.. . . . .. u. a. r . .
| |
| . . ...:w
| |
| . . . ,.s *
| |
| .,,,.f*. -
| |
| ,. .c .r.... .;
| |
| ..o,- -
| |
| ..~.. ..
| |
| ;.,)
| |
| .i . ,
| |
| y- . . .
| |
| . . ,, ps : . . , ,-
| |
| ' 's.,
| |
| f.
| |
| ,. . x, , : ; ...
| |
| , j 'T. . . . . . .:fv.j'c ; .i.V - 1.; Each of the four Interveners dispute that $21 million is a suf6cient sum and argue some or all of the following: that it is de6cient because Applicants
| |
| (..].h,Y( 2 (; .J : ].* $.' ~ '
| |
| have not casaanad with the provisions of the decommissioning rule; it fails to include adequate sums to cover the costs of low level waste, spent fuel T /,
| |
| '.,.,.'-(
| |
| 'l storage, spent fuel diana ==I and other conungencies; and it is inadequate henta s , ' ' :, . .
| |
| ',. p . v.. ..
| |
| . '. -1.. 5 the Applicants have not reasonably evaluated the daea--iealaaiag tasks to bc r.cmq, y , ., , . . g ., ' completed and have reHed on umeanstic assumptions. Moreover, they assert
| |
| (: E '. f_ ..
| |
| p.4 g S.:,f l .,,p.'.7
| |
| : i. .
| |
| . .,7; "; -y , @( ,. ~ .
| |
| that the assurance of funding is inadequate because the assurances provided J f .'. lj m ,j '?' c., f
| |
| . ; E,:;g ]'a, -l l'': ''w,
| |
| ..g., -
| |
| are speculative in namre and rely on good-faith promises and internal funds ]
| |
| 4 . . ' ;j! contrary to the Commission's decommissioning rule. However, in the main, l 4 ',; 4j,?.42.
| |
| ' i *
| |
| . d .( / ; the Interveners rely on legal argument and argument based on undisputed facts, e;i b 'N ,- . , -- ; j j, 3 ,,,'-]
| |
| such as Public Service Company of New Hampshire's (PSNH's) bankruptcy.
| |
| Very little by way of expert testimony was offered to refute Applicants' plan.
| |
| i ~$ . .*.~.~. . 'M... ...
| |
| 1 .~.''a,.8..
| |
| , .. 8; y.
| |
| . ne.. :f. ' .i. / .1.j
| |
| . ' x.- .' n
| |
| * f.
| |
| .c .y..,. ;. ;.\
| |
| . J. , b. Appucants and seg
| |
| .. . ;wy .
| |
| t - ~
| |
| ., .'. /" De Applicams and Staff each 6kd in opposition to all of the Inservenors'T - -
| |
| 7' .
| |
| . r -c '' . - - 'j motions.* Applicants' short answer was that even assuming the conventions had
| |
| .
| |
| * E .: merit, and that the Applicants were short of funds to decommission the facility i ,,
| |
| y , , d , ..i ; after low-power testing, there will not be any present threat to the health and 1 e.C,f ...'' ., ,' ',1. - /". '., : . f, - l
| |
| < - safety of the public. Dey concluded that the motions could not therefore present
| |
| ])j
| |
| : p. .('- a sigruacant safety question and that all of them must fail for noncompliance
| |
| . .- '. r. .;;.... , q
| |
| ,f' with 10 CE.R. 6 2.734. Applicants' R*=aaaaa at 8. Applicants also ascribed to c; Innervenors a fundamental misunderstanding that the Comnussion wanted from 4
| |
| ~
| |
| . . . D; >. . i them at this time a Anal decommissioning plan under the decommissioning rule, q
| |
| .~ n, 10 CE.R. 5 50.82.
| |
| a .. . -
| |
| '. . * . ~. ' . ) De Staff also maintamed that Interveners erred in relying on the rule, but
| |
| % .r
| |
| ;,,..*. . /, .. .'( .1 unlike Applicants the Staff chose to address the merits of the plan by affidavits
| |
| 'd, *
| |
| ..~ . , } .,* c , , , . , . that supported the Applicants' $21 million figure. However, unlike Applicants, ,
| |
| *- Staff suggested that the irradiated fuel (spent fuel) would not be n,ymcessed y
| |
| j
| |
| . . . r .' ;l l in Eumpe but rather could be sold to another domestic utility for use in a
| |
| .9 . . . ., , . , . . . . . ?
| |
| * g'
| |
| * commercial nuclear power reactor.
| |
| , ' 7. '*. . . ,
| |
| c(
| |
| s .
| |
| * ' ^*', .
| |
| ..s..,. . . . . <* - .
| |
| .' ,,t
| |
| ,'*..i-3 . . ', ;. 1
| |
| , J
| |
| . . , . ,7 .,
| |
| . P ,. . 3I ,
| |
| l a.,
| |
| */ .*... .*.- ,
| |
| gp l.
| |
| . (
| |
| i
| |
| .. . ,,-' . .. .a
| |
| . ~.4 , , ,. * .a .S..*'
| |
| ,,,3 ..
| |
| 4 s
| |
| a,.',*- .* .
| |
| ..- Appbsames' aaspense to Mansas is amapan the Rased to Cainder Finanmal C "" Immans Poor to
| |
| ~$ **
| |
| Purmining Law Power F. . Nov.14.1988 (Apphomas'
| |
| * 1 NaC Seaff Response no Innerveness' l Matimes to aanpem Rassed and Ashna taes Filed '' ;Camasanans. Nov.16.1988 (Seaft'sn p_4
| |
| . *. 1
| |
| ' ' I a.
| |
| we . , e y ,
| |
| 5 a
| |
| f
| |
| . I m
| |
| | |
| y
| |
| . ~
| |
| * ~ ,.
| |
| r
| |
| .. - v 6
| |
| 'h s
| |
| : s. * . ,
| |
| 7' s .
| |
| g g .
| |
| .. . . -. . - ~ ~
| |
| 4 i s ') * "
| |
| = 4.1 .'P 6
| |
| i
| |
| * *...-.a t
| |
| . . . _ ; a '- . .,., .
| |
| ., # <,,,L.,,*.a.,..,.
| |
| ., s
| |
| : c. Other Papers .
| |
| l > .. l ' .n' : a .: 3. . .
| |
| .?".,.
| |
| Additional papers not directly authorized by the Commission have also been 4,,, ,
| |
| ,y ,g .7 ,*. [ ... ; p
| |
| .,,$,w';@,~' ,, '.,
| |
| Aled.s .Ihe Commission has considered all of these papers. In particular, the
| |
| - ,'s t ,
| |
| motion to accept the reply of the MassAG with accompanying affidavits is p/ -
| |
| * '. , . ',n' ' , . */ ,'.f., .l granted in light of the Staff's response winch supports the Applicants on bases
| |
| .". , y , ,,.. ,{ g ] G . ,
| |
| p', ~ ; .. 4;{p;.
| |
| . q, .;,.,q , '. ;. . .;i,(.. y7, . '.3 other than those put forward by the Applicants. ,,- , ,
| |
| : p. . , <
| |
| t y.-t
| |
| .; ;1a v. .. ',..n},'j,2* s.
| |
| w '?.g-J.
| |
| ' v* w. .
| |
| .. .e D. Applicability of the Decommissloslag Rule j. . .
| |
| e . .
| |
| ...r. . ' .-. s ,, a Ir.; . sr., other than SAPL, argue or assume that the decommissioning rule j .* y ,, , L ' ,. j g ,'. ,. .i .
| |
| is applicable and dennes the terms of the Commission's order. SAPL, on the ye ; * ".., f ,.;* j.yoyQ',
| |
| other hand, reads CLI48-7 as creating a decommissioning funding requirement Bj 1,7 ~f. C.d,'.',i W,,.Ql J ,' ; , ,
| |
| outside the context of the decommissioning rule, although SAPL Ands that the J .' ' 0 a; p;,f ,h.nd/$ lQ,gf,w,
| |
| , K T.5L. ' ' s.if. .g :..
| |
| rule provides requirements that are " generally applicable 10 a decommissioning .
| |
| plan" and at least one rule provision that by its terms would be inapplicable. . " ' c' . . + . .
| |
| Both Applicants and Staff argue that the decommissioning rule is not ap- g . E *, v'.$,2 t
| |
| . c.Jil..Q/ ' ,...*3*MK 3Q. N 3 iP ,l @; p @+-j,p'
| |
| ~ '
| |
| s able. Apalle==a argue that the f+x n Juloning rule is applicable only to dardasioning in the context of an assumed penod of routine full-power op. h: %; y ;.;47 . .., ,_jy ry' . ~ , -
| |
| eration. Staff's position is that Applicants are already holders of a hcense and ((9, ,$. ,% ; t
| |
| .,,, , ; .N , , g. . , ' ,~
| |
| - therefore are not required to Ale anything under the rule until July 26,1990, and , cr *
| |
| . > @ M i c.& ,
| |
| l that the Commission therefore could not have intended that Applicants meet the i'.", ';d .'.,.4 , ,.j'v0 c .,
| |
| rule requirements now. See 10 C.F.R. I 5033(kX2). f p.Nl&y l '
| |
| We agree with Applicants and Staff that the darmaraissioning rule does not J . i. ,, M 'l'M.," 7'W 'iI.
| |
| [*';;t My4,' M 'yq: O. ' .
| |
| ~ apply here, although for somewhat different reasons. 'Ihe decommissioning
| |
| ..[)/N .'; dP.'N <,
| |
| - rule was issued to ensure that at the conclusion of the lengthy penod in which
| |
| ! > i '.'.y - t y . f ''M':[%y"j f . 'O [ N'*
| |
| l reactors would be in commercial operation there would be funds available for safa and timely decommissioning. The hynahiad circumstances addressed in f.', j.,- Q,#"- . /. . Q ,lfC . q*W CLI 88 low-power testing not followed by commercial operation - were . , . 2 ., SQ' ', *,W. f, - l 1' y* o. 3 not considered or contemplated in the decommissioning rulemaldng. 'Ihus the
| |
| '.'',.',e'gL',,(il('pf.f'.pq%
| |
| V
| |
| ", .h.
| |
| rule does not directly apply to the Commission's requirements in CLI-88-7. ,... . M.r .
| |
| . . .c ,. g i / l/ 4 l' . . . ' .W. p.4.1
| |
| . , , . .4' .N-,d' .1
| |
| 'Ihe Commission considered and created an exception from the rule for shut- .,
| |
| 1 . ,
| |
| down reactors while declining to except research reactors. See 53 Fed. Reg. at 79 ' if . . i '
| |
| y 'Q Q 'y/.,y*l.g'.,f'e.
| |
| 24,027s 24,021 Qune 27,1988). And the Commission also speci6cally noted the %, D, y y;.J ,
| |
| .. :. .y .^);L c;,9. .;. .
| |
| .*:. . :7,W,-- W A ,y.;.y.~ +. * .,. .L t., g aw
| |
| , ; . 4' ;',, *.r- . . .
| |
| !. % .;?. .y F.,.. Q ,y'[ i.,A <t % 3 '..,e **n.
| |
| 8 hoy inehade App.nemens' saaaa=== m to sises of Based as to PsNH aankampisy. Fe 14,19ts; k.: *
| |
| .F.: A .g', j .s . . 2.
| |
| Appbemmas' Advies is eie ''-='=== November 16, 1988; Menen of Mssessimanne; Amarney Omasal Jense h. 3.e . [. i ' ~Nyp4J . 'l s J, . I;s:i:w:f 44,'
| |
| M. shamnem far lasve to Pine a Desumma Not Audienaud by the Comunumen's Rules of Preense. November V*r ',. .N., . JN,17 " e .. . ~ 2. ' -7,(M, . .' -/,..,@. d i 25.1988, and Reply of W= Anerney ommmet James M. shaman to abs Filings of the staff and the 3ess Apphamans im Response is tus November 11988 Mauens Under 10 CJJt. I2.7M in Reape ihm Rosesd.
| |
| Neuember 25.1988; Appiseenas' Respums in Menen of Masenshusmus Anarney ommeral Jasmas M. shannen for f.
| |
| '. 9 Js:
| |
| . . * ?]1*!7''',,33*4
| |
| ',A,"3 @.*4
| |
| .. ., y '; 3 N .:/ @
| |
| * ;.9 1Asse is PDs a Net Authensed by the Camumssaan's Rules of Punenes, Desember 1.1988; NRC staff r g ,;V; . .#. y '' ,.' 4,c g(/ c,c. >;@ n, Raspanas is hh Ameney omeral's Rapiest for lasse to Pas Reply to Respauses of Apphasma and ' p.i Q pg;, ; g.i..p /, N (;'7..
| |
| .,. y, ;'t ,
| |
| NaC seaff. Dec.1,1998; and busrvensr's Advies to the C .Dec.14.1988. f, .;~N, , ,,T.7,3;s,*
| |
| t g,
| |
| .. , - .,.....,...q.... *y *;v g.N. w i . ?**.,*,
| |
| * J E 4,3 ,' .*- s ' s .# .
| |
| : l. ...! n, Q.* .8 N l.1.
| |
| (
| |
| . ** .* i. .,
| |
| a e y '...'y .;
| |
| a n
| |
| N' . '
| |
| * 5, p .
| |
| * t.
| |
| . . s e e .','f*
| |
| .l % . ,\
| |
| s , , y. .' P *_
| |
| i .. . - ,
| |
| g ,'
| |
| ,t.' .,-e 1..+. c j . ,-. 7 I. a
| |
| {,.
| |
| )...- .
| |
| t#<
| |
| ..,..~ .
| |
| _, 2,.
| |
| . .i . ,
| |
| , , q . f . ..s 1 * - ~
| |
| * s , ..
| |
| g ,g., .
| |
| 1 .
| |
| Nj' * .d a . f. . = a . .s a s
| |
| | |
| ,,. . .. . c.; . ,- .
| |
| 3
| |
| ..m
| |
| , .;g
| |
| ,, ., c .. .c c.c. y..:J. .,: .)~
| |
| \ .,
| |
| 1, .
| |
| o
| |
| ., . l-.: .. -. ,}
| |
| ,'o,-
| |
| *s,. e . . ..--
| |
| ''' 2. M Th E W,.qd
| |
| . }.;
| |
| 5 ... .
| |
| '.x
| |
| , . 4 . -
| |
| s
| |
| ...s.,,-- 4
| |
| . ..,,..w . q.,,t.
| |
| ' v . -
| |
| ., .; e #
| |
| " ' , ',";a..,..,,. ;
| |
| ., e. g , +g
| |
| ' 'j .* 7 y ''.
| |
| ' , ' 7. . -
| |
| e 3. . ,.*',}," .;/ '',,; ;.'d ' financial dif6culties of PSNH in its rule preamble and in that aspect contemplated
| |
| ./c p.l. 4
| |
| * v ,',
| |
| * g' [ 1*' T:~' f t ~ ~;' W .j N. *"
| |
| PSNH's current financial dif6culties. Id. at 24,032. But dnse considerations do not require construction of the rule so as to apply to the circumstances of this
| |
| } s;Xb-, [; ,.. .w. : , .' " f'r'[ *j ,.;..,j
| |
| -( p .s,cf'1 . ' ' ;> case. An examination of the rule reveals that it does not "St" the hypahaai'ad 1 1.t .,, , < rv ic) , 7 -
| |
| : y. . ... .
| |
| cucumstances. First, the rtJ2 contemplated a step-by-step decommissioning
| |
| " .8.7
| |
| :? '
| |
| .C' ' . . '. ?:/ ,i}f L.?,c.F s.' M
| |
| .]. y,4% ,
| |
| .- f.
| |
| W funding assurance process over a long period of time with an initial certi6cadon of funding, periodic updates, a preliminary decommissioning plan at or about 5
| |
| .f. (f.1,y '!.;
| |
| years before projected end of operadons, and a decorrenissionmg plan submitted y), .
| |
| [,m, 1
| |
| .jN' .N.y,t(W
| |
| ;$@TT-I'
| |
| %;f.Q"yp 3 ))
| |
| l.']'}. as part of the applicadon for licensing terminanon. Here the hypothesized cir-cumstances prunarHy present only a short-term problem, where the end of plant l
| |
| l k ' ' '#((,.; . W.' t 0 1 life is hypothesized to be only months after the initiation of operanons. Next, a'j 7l.
| |
| ,-l . p,.. c.g,;.,,7c.,',#' .
| |
| . f. y.. c;a3<,, ' j %,C. T.LT-e,'
| |
| .P p the rule's kemula which establishes the minimum sum required to be reasonably msured before operadon includes an adjustment factor for reactor power level
| |
| , c 'q , , ' 3 '. ,': ; g .g j, , .
| |
| that is based on a substandal period of operadon at full power. The minimum
| |
| .j.;.f - Q[..
| |
| .7:.' ..'. f.,p f'l.'ye %,?p: ,& 3 af. i' Q]l n .*l amount spectaed in the formula has no technical relevance to a very limited low-power testing. It is also signine=at that the rule permits accumulation of y ,J,.g(, c., .
| |
| : t. f.y.y . 'f. ,
| |
| .e the required minimum sum over a lengthy period, and that provisaan has nol,
| |
| *, ~
| |
| 5,.
| |
| l' .
| |
| * j . Jr relevance here. Thus the Commission concludes that the rule ca: mot reasonably 5 w 3 A. ','5-
| |
| ...,- be construed to apply to the hypothesized circumstances here. However, be-
| |
| > t '. '
| |
| M .. (,.O
| |
| * q . j d . *.d . (9 1 b h'. ']j fore full power commercial operadon. Applicants me expected to comply with applicable provisions of the rule.8 i
| |
| ,3,;;
| |
| ,7 . + ; 4 . r, .
| |
| y1'..; d Notwithstanding its conclusion that the rule does not apply here, the Com- "i
| |
| . . , . ' ' (,j. f ,*. 6 : .. , ;j ;,- * ~(' mission recogmzes and af6rms that the safety concern undariying the rule that
| |
| ~ ** ,
| |
| : y. ,
| |
| there be ada<=asa funds avadable for safe and timely &ccdduu..g is fully
| |
| '' ' (y
| |
| ; i applicable to this case. This concern was the impetus for the order in CLI-88-7.
| |
| c.
| |
| j
| |
| -) .
| |
| a.. .
| |
| . . .i.,a.. -
| |
| s
| |
| . -a, oA '
| |
| , 1 e - '
| |
| . ' ' , . . .' ";.c' .. .h,r, ,. .. .,.~ '.. ,. . f., q1 Scope of the Plaa E. i
| |
| '.- .,.r-
| |
| ~ .a Interveners claim that the plan for decommissioning is inadequese because
| |
| ..[*' ' ''..",' . ,- ' .
| |
| (j it fails to include the designanon of the waste disposal sites and disposal fees,7 l5 l , ., -
| |
| . .V
| |
| . . f comparisons of other decommissioning cost estunates,' and speci8cs of the
| |
| ,,.., ,'* u( ,', -
| |
| .''.I r .spM uon, storage, and 8nal dispositions of spent fuel,'such as would be s . ..-y , ' ,' , , . , ,
| |
| * t ., .. . ,' . submitted in a anal decommissioning plan.
| |
| . . .: ;. . ... -. . % . , , ; l, . . .
| |
| .. . L
| |
| - :.. s l
| |
| ,a. , ,.. . , . .. .. .>, . ..* .;.:.. .. , t.. ,,,; . 1
| |
| . i
| |
| , , . ,, 9 . . . j.
| |
| .> g .,, , , - .
| |
| l
| |
| ' . f.
| |
| * J . . , . .. ., e .'. . ~ , , , . - * -
| |
| Sn. sua una en vie, en howes er a us-se = 1 sed feet deau be mandmed namesem sur es pupmes er
| |
| : a. .- .- ** ''
| |
| * . , . es dammmmasammes une auqueummes. on es seer head. us it esy m m e is pseer h Apphemes
| |
| * A ' ,t -
| |
| J - ; <. .. i ,, , ' . ( l' -,.; *
| |
| , wE mE he "Apphmams" sur a ibD-pesar h h Cam 1smie does est mesh es sysmanen wheemt es j
| |
| ' ].
| |
| malmans ter es nWa "smadrashamms" of hendes of a Esemm in 10 C.IrJL SSO.33(kX2) would apply as the 1
| |
| ..* ' ~ w to is.d sb.i.
| |
| " *..N', .', f
| |
| - ,,. y , ,,, , , . : 7sm e.g Nr.CNP Manima at 6. c===='- 1. amis ha ToH Maias at 2. e- P.1,nasis A. i
| |
| ?**,< .
| |
| ', 8 K.g. MamAo Manon and Asandenen e====- 1. assis d.
| |
| 'E.g., sArt. Maaien at 9, Casemman DC 1. aans 2.
| |
| . i.t *, * , ' , , , ,, , . . " . ?,. ,
| |
| : l. -
| |
| .g* 'p* , ,,'s * ,
| |
| , .a- . . .
| |
| i 8 L 1
| |
| u . ,
| |
| 1
| |
| . g 'g 0
| |
| +
| |
| l
| |
| . e 1
| |
| e- - _ _ _ _ _ _ _ _ _ _ _ - _ _ _ _ _ _ _ _ _ _ _ .
| |
| | |
| * ** , , E a
| |
| b
| |
| : . , .t . . s ,
| |
| c
| |
| .. l r . * ' , '. . .
| |
| The Commission's order in CLI 88-7 did not require afuiaWmmi<sioning ',- , , .c . . . '.,
| |
| . ./ ., 3 ,' ' '' . .
| |
| plan. The Commission has not defamined that demmmiesioning will be '
| |
| , ;; .~
| |
| required after low power but simply that in these unique cittumstances fmancial [ ;
| |
| projections should be in place to provide reasonable assurance of the availability ,,
| |
| , .., ?'..'**.'.,'
| |
| of funds *Muld commercial operation not occur. In that light the Commission q' %. 3;N',,
| |
| . '4", -
| |
| did not ty_a or expect that the analysis of the costs of decommissioning would '. . , . . '. ' b . . ,. ..
| |
| include precise information of the kind that Interveners seek. The Commission j., 6i'I .v. * ,fl 3 ' ' . . '.' , ,*, i.','
| |
| expected approximate estimates of costs so that a reasonable minimum sum could be determined and then adequate assurance provided for lu avaibbility.
| |
| f
| |
| .'r @* , ,: , '
| |
| ..l'',
| |
| ''$'}
| |
| Thus the Commission does not require the details of the low-level waste *~.
| |
| disposal sites and disposal fees so long as the plan contains reasonable cost r. , r, .
| |
| estimates for these matters. Applicants have estimated these costs and included i'.../.*;.,;.G. ~. :.
| |
| ' ~
| |
| them in their calculations. No contrary evidence has been offered. Richard L Smith, of Battelle Laboratories, has in a sworn letter provided by Staff p
| |
| .'*.;J'*",f'*[*(W.
| |
| , .s p!-
| |
| . ;.l ,, ;
| |
| demonstrated that Applicants' low-level waste disposal cost estimate of $90 L +
| |
| .. f. . , - 7 ;,l' ( . . . , ,
| |
| ,[, ,
| |
| per cubic foot significantly exceeds his own estimate of approximately $60 per ' '' ; .,; y,.. ;.. .
| |
| - -' j ' ;'. .,
| |
| . cubic foot based on disposal at Barnwell.88 ' X '. 3.'
| |
| I " ? '! ~g^.' 'i ; ' . .c ', ' '''
| |
| Nor has the Commission required comparative decommiuioning cost studies
| |
| , , . . <A a? e proof of reasonableness. The only requirement subsumed in the Commis- 1 .
| |
| sion's request is that the Applicants' estimate be a reasonable one. l-
| |
| .. '; ' . ,. 7 ~
| |
| .1 O'j.d',k,Jf6d,-(V'.;s3 7<
| |
| However, the Commission agrees with Interveners that reasonable estimates ,
| |
| of the cons of spent fuel disposal are required under CLI-88-7. Nowhere in !1.6 i' M %
| |
| I O ,)
| |
| * j,0. J ; j.'i. M[.*;r M.,.
| |
| Y, the decommissioning rule or its preamble is there a suggestion that adequate ,, . 'y'c '
| |
| ( . ; .;.'(;.,; . -', .N.. :g. , ' s f[f M funding for rpent fuel disposal is not a safety issue, and 10 C.F.R. I 50.54(bb) .
| |
| "'(
| |
| _ -suggests to t he contrary. The decommissioning rule excluded spent fuel costs [ .
| |
| from decommissioning expenses and classified them as operating expenses not , -g, .,, . 4 , Q' ., .A yu *
| |
| * a.
| |
| because of a lack of safety significance but in reliance on fees and funding fcr " .< i "' ..? e *(, , *4' -a
| |
| " l*-
| |
| b Q j(. y- - ' ' ' e. 1.3 spert fuel disposal required under the Nuclear Waste Policy Act of 1982. It ,
| |
| is unclear how Applicants' plan relates to the provisions of that Act, perhaps * '
| |
| because of the stated plans to ship the spent fuel abroad." !'"! 't, :;. / ' ff ,
| |
| ''~
| |
| 0 -g.;
| |
| *u,- #
| |
| 5 9 =
| |
| E G.M#-f, - s j,. . , ,y 7 , . , . v.' -
| |
| i<...~... .
| |
| . f. e. :.
| |
| j Y ? * .,..;v.,a.-G.
| |
| : b. N . $ ,U..,
| |
| ,3: P.s - .o c. ; . m . . .g. . ''. y, , . y-yl.'*,k'..'\;
| |
| .b 3k' -? * ..*G ~. .S '. ? .
| |
| hI*~,*:, *k''+ O .)'li 58 9essear=s ihai u. Apphaum need at his mase Man aunabanas of &spass! apacny under lavstaums J I, f' O '.N). ,
| |
| kaposed by Is of the toe.tmel RaAa=*w Wasw P4cy Act ase also ofr on a sA. ht escuan pmuar bis h''j. r. P s .'
| |
| . .. . .i ' 3 ''- 0 * }J.i?'
| |
| " 1., ' , . #, ? - ... sr , e.-
| |
| does not regine anpamal suas no knpas. Innien mareawr. these is transferibany of anpabne cap.cuy. Ab.-L } , ~*. y.
| |
| sen esses that weste disposal is unavaaable the Csea.a===<= need not ernbad on speculatra of das nense. ( ,y *',f,*'.*, *t' u Under $ 302(b) af that Act, no hamnas for''une" af a nuclear power resciar nwy be issued unless te Apphcants .,
| |
| (g '' ' rl* .. . ;! U
| |
| *ji,,
| |
| . f.
| |
| beve enneluded an agramment with the secrusary of Energy or the seenna*y mannes the NRC that good-faith *.%,g . 4..' ,,; sf ?l , .
| |
| ':,0. . i*
| |
| * (' 4 3. .
| |
| negataanans ass in progress. see else 49 Fed. Res. s4.688 0964) (any new reacter opersons hoense win seguire (- .N -4. , ..,
| |
| [*.'. ' , T ,, - "
| |
| O i ... ' 7. ?
| |
| that the hcenses have a connect in place with doe far esposal of an spent fuel generated). "Dus seated does not ,
| |
| senect each an agresman or 1suar. .
| |
| -- ,' .g, ., ,,
| |
| < . , p.
| |
| (l ' ~ ,r " , .,
| |
| ' -c . '
| |
| 586 ; ,
| |
| I. .)
| |
| M .
| |
| .a..
| |
| p-
| |
| - - - - 't.'
| |
| | |
| - . m u, s
| |
| . y
| |
| . _. i
| |
| . ;, 4 . e
| |
| ,., .- 4
| |
| - - . _ ..... . , n 4 1
| |
| . ? i. o .
| |
| ( i.
| |
| 1 i
| |
| ka.
| |
| g i f
| |
| '1
| |
| ', . . . ..~.s., .;
| |
| V.. .: . . : ;. . ,
| |
| . l. .
| |
| : .l )
| |
| y; ~ >7,7'j'd 1 -lE,.*3.f, ..
| |
| j F. Insuf8clencies la Applicants' Plan -
| |
| W f; ..>u.y
| |
| . ,,peq , T, *' n.-- -
| |
| , . e ..
| |
| .j.' lj';g , ./
| |
| ... The Commission has found that the plan for daca'n'aksioning need not be a
| |
| ,p .- . ,, f . .. ' ' D.o '. Anal plan. Nonetheless, as Applicants recognize, the plan must contain essential
| |
| ," ?l :', , ' .
| |
| : s.,
| |
| A.
| |
| * elements suf5cient to ensure that a reasonable estimate of decommissioning
| |
| ' .; , ;o /'. ,. , , . ' e , yl . : h costs can be made. In addidon to the scope questions discussed above, issues
| |
| % "y ,..I '''." '. 3 have also been raised with respect to the reasonableness of the assumed plan )
| |
| l y". 5. Ml'.l A*;*;."'. :.L for disposal of spent fuel and also the duradon of low. power testing or, stated
| |
| -). "r. .,f., ' , ;i .7,P:; @F s pT.: ..i. ,.;. Cy..
| |
| .s.-
| |
| sA w
| |
| . ..,,;. .'.. w. 1,1 g- <
| |
| i -O somewhat differently, the extent of inadiation.
| |
| . - '.-_ c ,, ;
| |
| . . v. :
| |
| 7 ,. (.v- < ' . y e.a'.;,,,A' w : . + 1. ?, 1. De Plan for Spent Fuel
| |
| . 5,. J ,,, D .. ,, . ..,' '
| |
| * m
| |
| .Ihe Commineina ands that Applicants' plan to ship spent fuel abroad
| |
| ~
| |
| : c '. f . ~. for reprocessing is speculative and therefore not a reasonable basis for cost esdmatina The Commission agrees with Interveners that the problems with this
| |
| : g. . .-. .)7. ...
| |
| : 1. c.,
| |
| ' ' ;.;..y. 3'- .. g D.;.," 6. ...ji approach are many and signme=t not the least of which is the possible return .
| |
| , ~,
| |
| J .? , ,. q., j, . ( .s.'-Q
| |
| , g e.c :i of the reprocessing products to the United States and perhaps the Seabrook site. -
| |
| Z+.7
| |
| ;a 3{ j 'Ihe Staff has virtually ignored Applicants' plan in this regard and has itself
| |
| -[ . .vy.raj.,*4 7 urged Commission approval on the basis of a plan whereby fuel would be sold q,,
| |
| 3,. . .
| |
| to another domestac power reactor operator. Staff says this plan would be "[a]
| |
| f -
| |
| < fa4 2.i.'' ' 1 less expensive and more likely alternadve."" But Staff does not speci8cally say
| |
| ]. ;' ., t; . . , . .-
| |
| N .I ,,;.g y .;f 2 ,'lf'll that sale is reasonably likely, and Applicants say only that the Staff proposal *
| |
| *z,.' y
| |
| . 7, .:, . .
| |
| g, af,innale" and have not adopted it.u In any event, Interveners have provided
| |
| : some evidence of various factors that would make such a sale unlikely and note
| |
| ,,,. .., ,, c ' +
| |
| * * .. .. '' J that such a sale of already irradiated fuel for reuse in another domestic reactor . :
| |
| . ;, . c . -.
| |
| . v ,s,. ; y has never occurred.24
| |
| : .1 ,NJ,
| |
| . n .. . ..
| |
| '. .f..t<...
| |
| i In these circumstances the Commission believes that the record before it
| |
| ~ ~ '
| |
| ' ' ' . i.* ! will not clearly support either shipment abroad or domestic sale.ts Given this,
| |
| . j ::'' , 'j*'7. , 11, *.'. . ;, *'*
| |
| . . , '' ; I an evaluation of Applicants' plan can only fall back on the assumption that
| |
| : c. ,
| |
| . ,' underlies the decommissioning rule that spent fuel will be stored on site undl it
| |
| ,?
| |
| l . . ';'' ' ' e. . . . .
| |
| 'c* *-
| |
| ,s', ''
| |
| .: can be shipped to a repository for thpaal. Table 2 of 63 of the plan shows that costs associated with storing fuel on site after ce@ of decontamination
| |
| . ..> , r . * ' N , .; - *
| |
| ... and removal of the reactor vessel a:id associated equipment are approumately
| |
| [ ,,, . '' . .t- f.$ , ;.]. 4 $110,000 per month, not including contingency. No evidence was offered to f* .. -r , , . . = . , - .,
| |
| :: : .. i.- .
| |
| ...t l'' v
| |
| ,. .. .. d.
| |
| : w. ' . . / . , .
| |
| * 'a
| |
| , g<?- ',
| |
| . ,* ' . u g,,g n., A,gg,,,,g3, , ,e,p ,, ,,y,,,g, ,.44 ,,g g ,, ,,,g g ,,,y,3 ,,, ,,,,3,,,
| |
| *..L, 'y' .j * '; '. o' * , .4 -- . r-
| |
| ,. ... Imm .Commesesatd)
| |
| . , c ', s; e
| |
| !, ..o,! - . * ***,,
| |
| D annt alhides se a mammment bi en Cind=,28 lumer 6mm Edwed A. aseen as a " .,
| |
| * is die plan. wass
| |
| %; , k smuk ud had ?, inunded k as muk, sagda farmes weeld have sagensed se naams and an auseamme
| |
| ,, far kmwommes to sempsed.
| |
| *..e *. . *l . ,''4 ,
| |
| I'3ss blanAo November 25 aampenas. Afsdant of Peter K samass at 2 3. See sie. Lamm of R. Hamsen, than
| |
| ,t..*. .. . .. .
| |
| . .- . . Prasadas of P5NH. dated " , 3.1987, them mind.
| |
| ,l-- "...
| |
| ., .' 8*,. '
| |
| D'nns t'-% sasht bows sunshed a diffamma a==+='a.i had Appbeams subnumed an afBdevt 6em same
| |
| ,..t,
| |
| . 'f, ' , . ,
| |
| edur udsy that h weald take the irradiaeed fbal g
| |
| 587
| |
| : w. -. .
| |
| | |
| , . . 4
| |
| .j
| |
| ' = * . . '
| |
| 1
| |
| . i. .
| |
| , c, .
| |
| ..... . i
| |
| . .s ... . .
| |
| :..,:,.+<r.,. z, ,.
| |
| '.o.,
| |
| dispute this estimate and thus we accept it. 'the record cr ts no estimate , , t ',' ; .
| |
| f, j(
| |
| of when a disposal site will be avadable. However, the C a Aion's Waste j " ,. '. - [f Con 6dence Decision, reached aner a lengthy proceeding t ailing a public . ;,% *"
| |
| j ,, " .( ' s .. . Q:1 '4 , - ,
| |
| : 1. , , , , ' w:1 ; . c, Q ,' * - l ; ,.
| |
| hearing, estimated that a repository will be available for waste emawa=aa' .,,
| |
| 4.
| |
| during the period 2007 2026. See 49 Ped. Reg. 34,658, Appendix i 2.2 (Aug. 31, ., , % .
| |
| 1984). A reasonable estimate of when the reposilary could accept Seabrook , '.i, S , .f ,N, .Y34. ,,,,',',.'
| |
| ' g. N, .. '
| |
| d
| |
| ** ";]f spent fuel would be in the mid-range of these dates, since at this time it is ;
| |
| ep- d=*ive to suppose that Seabrook spent fuel would be either the 6rst or the ;. -. , .' .;f;,. :',".,
| |
| .;s"g,, %.. ; a, b,. ; , .
| |
| last to arrive at the repository for disposal. Thus we conclude that the spent fuel will need to be stoied on site until amund 2017 or for a penod of about
| |
| } f P. . f - 4 U .
| |
| ,f ' ' Up .~' .
| |
| '[':** 4.' ,
| |
| 28 years." { . 3 J ,1 .
| |
| ;M' J Next must be determined the amount that Applicants must set aside now ,'... .% ~ # . -.'2 jfsl:. . ,:. f. / g 1,e@ ''."
| |
| to generate $110,000 per month for the next 28 years to pay for spent fuel storage. 'This is a reladvely straightforward present value annuity calculation,
| |
| : n. ;
| |
| 'f.t" "G&.' .%
| |
| .. Y , 7. ;' . , ,. . --<
| |
| but depends on the real interest rate assumed. 'Ihe real interest rate means the a W . . : . . , t, 1' ' 4..*. d.
| |
| amount of interest that can be obtained after inSanon is taken into account. . . . . L'. ; n
| |
| ~
| |
| Vanous analyses indacate that the histancal real interest rase over many years >. 3 . ' ' ~ Q, 7 n;
| |
| ; .s u ' "g,]' '
| |
| has averaged 2-3%, dapaadiag in part on what investments are considered (i.e., b+ , , '' : ,.
| |
| yJ, ? "A U.S. 'I casury securities or high-grade win. , bonds). Because real interest
| |
| - rates have been above the 2 3% range in the past few years, a 3% rate is i' E ..D,~7g'n -l, Q.Y. / f.4 l ., > "
| |
| ; '''* , p. ,
| |
| A''
| |
| used here. Calculations using 3% indicate that an amoist of approximately
| |
| $24,985,000 would be needed to be set aside by Applicants today to yield h(:.f'$/. '
| |
| th3 j;BQ, IM ~
| |
| $110,000 per month for the next 28 years?
| |
| > y ;. W'.1 9 ' '- : , ! l ;s
| |
| .W k.. e
| |
| '!he only evidence on record of the cost for disposal in the repository is $13
| |
| ,, i,f"
| |
| - "million (which does not include the costs of shipping and handling for which h'. m. jat, V . . , ,f, . [ . ;, .- 'y
| |
| ;".f } Q '< ' h the Commission has been given no 6gure by any party). (See MassAG Waiver 47 .;y ., ", ..k y . J .
| |
| 's.g.n..d,Q~. ," ' f.+;V . %
| |
| Petition, Appendix X, Af6 davit of Dale O. Bridenbaugh at 15 and Af6 davit of Peter Strauss, cited sqpra note 14, at 3). Therefore the only reasonable estimate
| |
| [.
| |
| ',q. ;.! p' 'f. ' h . '
| |
| cf the costs for spent fuel storage and disposal based on the record before the , Q,, :.; 3 , i'., ,;
| |
| Commission is as follows: f,{L,p.
| |
| , g , .;f. -l. 4 (:,, s-
| |
| *[
| |
| . ..:.r. , ..,; *g. .,
| |
| e :.,..* '*
| |
| , ,; 4. .i . .! : ; X : , 3., . . ', *1 I",.
| |
| r ?* + %* .
| |
| s.. : . , .fg s . . ,. e .
| |
| ^,.',. w .. .,,,
| |
| %:d Si.$ ,%a.:M' 17Y Gf/ P j,.c. ~;;;;.. . T. ' ' '
| |
| ys r;.,% Q ,
| |
| %, .; .,..m.*. .
| |
| c.":-. '"
| |
| i
| |
| ?; t,. r ,r \ - '...'"'".a Q gi y ? *r* ? Q.. ..y'**. !c...,,,; a,; ~-l; Q l
| |
| .i 6 9;.. . w. , , :, .r.% . _, f' ; _ y;- .m . p . . i ,/ '
| |
| L . . '' * ' . L, , .g. . . . ./ . m .% ,
| |
| ;'* t . 5 , *., .' * ';', **
| |
| * i,f ' ~ ~ . - * [ ,, f* 9 , ' ". y Wwe susayans in ihas sugard that siendeed Deresismaat af Emmsy (doe) samumens ist semapsames et aisis med ' g disposal of synes feet, emmed kno pesumes is $ 302 af the Nimiser wees Fetiey Ast, ymsmmuy ,
| |
| an 'L' 7 ' ' . . 7,Jf.
| |
| ==l== ame ist doe esempamese et the myses samL Neumshales. us beve ehemmi the mud somen of 20ln to 2t06 p. , , . ' . O.f. y . *f, 7 .-
| |
| .(.J'',,'*
| |
| besume k appess . ._ _ and bassess the sexes is ermdy seemed la a rulemakms puusseems whish was esadamed wuh sammerce pubbe ye see 49 Foi seg. 3445s 0904k i r ,,'' 8',,).
| |
| .. J.,u.,; .gf. .'e+/>y ,:. W
| |
| " ?3' y' '.;5s,fM,'g j .y e.
| |
| .. W l.;d
| |
| '%.C ,.w, kl. ; * ''' 7'"? p' % ' c* . * ,%6 ''t.l
| |
| * W"$
| |
| " A dissuemme of sent hamus mass ibat une pan et the demanusumasusas adunakias essesd sney be famed hi , . ..
| |
| NURao tBad, aer. 3.*Assunne the Awainsbehty of Hands for P at s3 Fat ass 24.041
| |
| ; Neslaar Funkmus.* st 21. Chad I 1.).h.s*,
| |
| i
| |
| ,. l10 'Ir / 3.1 r,
| |
| .'''.,s.,.,..3
| |
| ,s
| |
| . s, , , ,
| |
| g, 588 [
| |
| 'f 1
| |
| , n. >. .
| |
| '' ' .. y y .
| |
| . .s 3 ,
| |
| . ,. r ,. . -. .
| |
| .g s .. y
| |
| +
| |
| + ,
| |
| ' g g ,8
| |
| .a '
| |
| s - . . ,
| |
| ' si i a., ,
| |
| ' . ) , , ,
| |
| | |
| . ~, . .?, ,.
| |
| ~
| |
| . 't .:
| |
| . , . . ";u. .
| |
| ,~.. .a. .
| |
| .a,.
| |
| .~. .. .
| |
| . 3
| |
| .. . : ,. t ,
| |
| m ;; ' w. ... . > . . . . , ..
| |
| ; . * . j>
| |
| ,. .2 .
| |
| : p. . ** ; t . .
| |
| ~.:.,.,. ...;. 1
| |
| .;. I.8ih;.f[,. 'd . ,M [.; .. Onsite Storage: Dh. =4 Value (at 3%) $110,000
| |
| ,4 .. %, y ' $. w..r.3f .,.'.,*r' ,;' ~ M.i,.k a Month for 28 years $24,985,000
| |
| '' 7 n. . . . .
| |
| Repository Disposal $13,000,000 b' 5,;+ , ,,.... jy ? .i<. $ (c},; .;. . .f-?y'y[; 10 9 e ". ....,.,t.... TOTAL $37.985,000 S. c ,. i
| |
| .; Q... C f- ",.
| |
| . . . . -. . ~. .
| |
| . , . 1 : u.. ; e. ~ ,
| |
| n ~. w., v .,. . # .inn ..e.:.,; ,u - -.
| |
| t.,
| |
| 7: + . .. ) 2. Esunt ofirranaden 1.$.. N. y. %. .~,174,. '$.,1 ,$.~,J_.G %;.y;Appucants .,@.9.:.d.
| |
| , recognize that their current estimate of the extent ofirrmannim is q.
| |
| % ; :l 3 ~@',1 R,!. J signMcandy less than earlier esdmates that they or the NRC Staff have made.
| |
| , g(. . ,f .' '", , j ? - i I.C*M,extent . . /. , , of'?irradiation
| |
| ]j and thus the decommissioning costs. De only evidence Deze is no disagreement that the duration of operadons signiacandy affects the
| |
| . . J , ,- , ' . , ,
| |
| (-4 ',- -
| |
| . *.. ( / . ,, , . . ' .? :. ; on the record is based on low. power testing limited to 0.75 effective full-power !
| |
| .<e: ; , ' ' *.- '' . ' '.* p I. ' .' ?, hours, and Staff's af8 ants are cautious in qualifying all of their estimates as
| |
| * * ,, '... based on the assumpdon of 0.75 effective full-power hours.
| |
| .7, e. .
| |
| .. c
| |
| * '.} ' ?..
| |
| / y ,.,, " " fr, ( ; '* ..h] In these circumstances the Commission can avoid further dispute by providing
| |
| ;., . ! 4.. that the low. power tesdng license be conditioned to allow no more than 0.75 I
| |
| ,J,,. If;i?*. ,..Je @ ' , . Jh t, effecdve full power hours of operation without further Commission ap' proval. -' ;
| |
| th, ..
| |
| * i=l
| |
| 'f. .
| |
| .4 9 .r.. .~:.w
| |
| ,,.w., .
| |
| cftJ.'[. ..M. *
| |
| -m}
| |
| ! Y .'. Y.,,.X,..,.:,'', G. Costs of Decommissioning
| |
| . .. .'.'. t. ;,
| |
| , "y .' Uj:. ,,;j ' JG' y$.. . . r;,j.g(; 'l:',
| |
| De sole r =M=; issue regarding decommissioning costs, on which there
| |
| ' , ' 4 'g'. . c - 4. . 7 >, C . j appears to be some dispute, is the contingency factor selected for the plan. '
| |
| j ., .,
| |
| l W ,h".' Applicants selected a contingency Sgure of 7% which is different from the 25%
| |
| . t g ,' . . .
| |
| c 'u ' . J . ,-- agune subsumed in the decommissioning rulet however, no explanadon was f *.,,'; . ' . ' . . . f .' j 1. 4, . . 5';
| |
| provided as a basis for that percentage. MassAG has challenged the 7% and -
| |
| 7
| |
| , ,] . ,. ;,. . ]
| |
| . i 0 . ,K ;..'. ; ,; ,
| |
| provided a factual basis for its disagreement and for the use of 25% from the 1 3 7,. + ;
| |
| , . . , c ,9 .
| |
| . ; ;, ' customary usage of"AIF, DOE, Battelle and most other utilities" as well as from
| |
| * 5,0..lf .
| |
| ... ."* y.;1% ,'2 L; !"-i sinndard engineermg practice, e Neither Applicants nor the Staff respond',d to
| |
| .t.:,l ,
| |
| ',. % . X this issue on the merits. Dus the Commission ands that the plan should include
| |
| ,' 'f . . . * 'g''.,. . . ' 7 : ,i'., *.j 3 . g,f ;
| |
| , a condngency factor of 25%. For conservansm, this contingency is applied to l ,' . . ! . Q .l *,, ' ^ , y .m
| |
| * ~
| |
| , the reactor decommissioning costs and spent fuel storage and disposal costs.
| |
| ,e.... p s 9.* . * . . . .....'.. . . . .
| |
| . , , ' ... .-,.. , . ., l . .. Fi. ' . . . .; .., ., ,
| |
| ... H. Coochaslom on Cost Total for Manding
| |
| ?. .*. In light of the foregoing, the Commission concludes that the total amount
| |
| . . E; ' m. '.
| |
| * D. . . c : i s. . .' .1 ; 7,
| |
| ',$.....gO,i required for decommissioning here, which includes spent fuel storage and
| |
| + {;, . ,,, ,. . , " . . . . . - ,
| |
| , . ; /. ,j disposal, is $72.1 million, calculated as follows:
| |
| ..s'
| |
| ^
| |
| .e...., . . . . .. .., ,.
| |
| .. . ... e, 18 M Ao a p== h. 2. Arad= .t P =r M. so m 5. t s.
| |
| .'. l. . .;. ;. . . i. . , , . .
| |
| m
| |
| + ...
| |
| '.c , ,
| |
| " .; . p . ',.7, ,. ,
| |
| .. $89 w*
| |
| .a I .
| |
| 6 ,,
| |
| ,ei
| |
| _....___-_________._--__2.__-.___ _ _ _ _ _ _ _ _ _ _ _ - .
| |
| | |
| - . s ..
| |
| [ ,
| |
| .r.
| |
| - 2 (Amounts in Millions) . . , . .
| |
| . , .- ?
| |
| Reactor Decommissioning $19.7 . ,, .
| |
| , 1 /
| |
| Spent Wel Storage $25.0 ', , . .,
| |
| .,- t e ,, - ,,...
| |
| Spent Nel Disposal 513.0 , , '. ,- ', .
| |
| $14A *' * '
| |
| * Contingency ,.
| |
| l' * ,y w TOTAL $72.1 .' . ' ' ' , < ' -
| |
| . , , . . i.
| |
| ,,,..c,-
| |
| L Reasonable Assurance of Fw ding '
| |
| 4, . ,'
| |
| * c Having established the sum, the C ialaa turns now to the means of 7*". . . w* .
| |
| establishing reasonable assurance that funds are available in this amount. At EC '
| |
| ',[,[, .
| |
| a the outset we recognize the uncontroyened fact that PSNH, the joint owner with the largest share of Se.4,.x,i, has entered Chapter 11 bankrgscy and ! .'y , .,'" **
| |
| that wace ; ;y remains with respect to hs reorganization or, theoretically, >;,~.. , e ,, ..
| |
| e*;'f [ V 'l liquidaten. There is also no dispute that another joint owner, Massachusetts , , ,
| |
| 5l, ,. .
| |
| Municipal Wholesale Electric Company (MMWEC) with an 11.6% share, is not ,
| |
| ,. ,l Jl-l
| |
| . contributing to project costs, and it appears that MMWEC cannot reasonably be ., .... . ,,
| |
| 'd' counted on to make available voluntarily additional funds for decommissioning if
| |
| ~
| |
| c ;**
| |
| 3; needed after low power.3' EUA Power Corporation (EUA), owner of 12.1324%, *,,,,.,., '
| |
| is not currently ;-- m'- g operating revenues.* There are also difEcultaes with >
| |
| ; ,? .. .4 ,</".3
| |
| '' '*3 two other small. percentage owners. See disenetian in Part III of this Decinian ,
| |
| s,. ,,,
| |
| j,. . G. I. . ./ ; ,s.
| |
| In light of the above, Interveners challenge the relevance of Appheants' . .: 5 4 . r; , '
| |
| . '' ' .T ' Aq. ? 3 assertion that decommissioning costs are small compared with the joint not 5
| |
| * 6:' ' ,1 revenues of the Applicants, since Applicant joint owners have agreed among .
| |
| ..~ .
| |
| ...Y
| |
| ~ ..themselves only to several liability. Moreover, the record includes a showmg of .
| |
| '' S some $320 5390 milliot 4 liabilities in the event of plant cancellation in the ' l ,., ,; y, , "*- , f.1C."'#'
| |
| hypothesized circumstaw . October 20 Letter at 6. c... 4 .N # - " ,1 While, in sum, approximately 60% of the ownership shares have been subject b. j,9,,f ~ . tg:'.
| |
| to doubt with regard to their 6nancial heahh or willingness to contribute funher 7 f. . . ."J ( ^;;, .' , g, ..- Q
| |
| .. [; ". "
| |
| Anancially to Seabrook, no evidence has been i ;,r.;e;i of any Anancial prob.
| |
| ~^-
| |
| ;.Sc ', -
| |
| .. ( ' ~
| |
| U. M. . t; n.
| |
| e' -
| |
| lems with respect to the remaining 40% ownership shares (the joint owners other than PSNH, MMWEC, EUA New Hampshire Electric Cooperative (NH Coop),
| |
| [''f
| |
| . . , E. A-
| |
| ,,,, . . .. ' ' 9 , " M 'M'
| |
| ' f,,1 -[c}
| |
| and Vermont Electric Generation and 'Dansmission Cnapelve (Vt. Coop)). !.M p;,, -
| |
| ' '.> u:e' f(k. v.
| |
| , ,.L ;u v,p:. ..n
| |
| : 1. '
| |
| af= ]
| |
| i . f. e e,- q s. v-p{ ..g ,,, s 4.g i.?. c.
| |
| ,c,,,x...~,n..,.,.
| |
| > u. : . wij .
| |
| r- .. .,
| |
| . n . ? . J. % :. .y. - . . .
| |
| t . m:, u ;y n.3 ;3. s. ,
| |
| I' MMwac's ayummma eth PsNN. whkh has mas yet beam femmeBy penned to emrw=== by PsfGI and ,
| |
| ;I s. Q .. J
| |
| .smid in any ma seguin smeer appemens bef.= a basemes assen sapesem est MMwsC ayme ens is ens event af -h== hufme asummer.aal apassens MMwsC aban be hahis far inn shase af desesumissiemens
| |
| .'..'r .-
| |
| t.;V . .
| |
| ' ' . ,3 :egy .J
| |
| (,' ' ,
| |
| esas and es esas af esammusties (mehadsag pseyeny immes and asher ymymnas)in as asyugsts ammans est
| |
| *c .c.;,p/ g .. . .i, ' ,'.f 61 [
| |
| mm.edes sto adnism. ~ ' "
| |
| .X .
| |
| # rria=====
| |
| A asset has EUA has a Dammmesmaning Cams susehy Ayummen ime whish s10 udDina of ,.. .m / . , l
| |
| . , - - 'y ',4 mammaans wee ' r="'-d h is =an=== an as sesed whsdur payanan is senesed ist dammmmmmmenes as it is uudemised by mise- . er whssher is wumid innlede tsunder ammasumman ease. ,
| |
| ;^ a, .
| |
| , g* j. ..
| |
| .A,',o,,p'J1'; 64
| |
| , dgi * . , .. s ', ' ',
| |
| ;. s . ?: . .
| |
| c . .,y : ..
| |
| [* -
| |
| s, '~
| |
| -',,a., . .i, 590 e.
| |
| . ,0 m ;
| |
| ,n, e
| |
| : e. ,,
| |
| y.;~n v:u
| |
| , ,, r.. ,,., ; 7; ,
| |
| ,p - .
| |
| o,. ,-
| |
| 4 . -t ,
| |
| 8 . . b q
| |
| .,,k ,,ig *
| |
| ' r.:
| |
| , * .e;_ ,
| |
| ,e_- 9
| |
| | |
| ,y.. ,y _ .
| |
| ,., ., ,, ,3 . . . . .g
| |
| ' ~ ' ,
| |
| ,.. .s .
| |
| *'*t. ,
| |
| p .. .e .?
| |
| ~.,.,< ~
| |
| * v'' n ,,
| |
| . .I
| |
| . .r. y C 'k
| |
| : f. ,.
| |
| ;- , 5
| |
| } - .
| |
| Clearly, the h:catest assurance that funds would be avadable would be for
| |
| '. ,. ' ' 'f -l,' 3 ', . . ., Applicants to provkb the total amount, prior to low-power testing, by one of the
| |
| * ,. ] ', , i.C , , g. / .'.'. V ; l. /. 'i^j
| |
| ' means authorized by de decommissioning rule (prepayment, external sinking
| |
| .,i ;
| |
| l.' c, . 1 7's! : ' 4, .,' ' ; 6 '. ~ of' fund, surety, issuance, ca' other guarantee - see 10 C.F.R. 6 50.75(e)(1)). This
| |
| : s. 4,-
| |
| would clearly obviate all of Interveners' concerns since the money would be
| |
| : i. . 3 ,,7 :.. - ', fl;Q';g,g , ,j - .. 7 ,-&,n,;'. . lbelieves
| |
| ' ': $:'.":c.; !h ' S required to be prepaid or gaaranteed by third pnrties. However, the Commission
| |
| .y .
| |
| T that it would be enduly onerous to require, for example, a totally
| |
| .i;.,y
| |
| /,q.':." A.:.",.?,/,'*? v Q.N.i/* prepaid external account beyorxl Applicants' control at this stage for so large
| |
| . .Q' H /t'f M p*; , ''fy a sum. Indeed, no similar req'airement has been placed on any other reactor
| |
| , . , , . gj Jgy$* 'I'.*3' .g, o fa.g 1:~n- and there are other meses to provide reasonable assurance in the unique
| |
| ' ,. : .y* ,,.f f. p.I circumstances of this case.
| |
| . i k'.y://. ~, , ,M;l. ,, * '
| |
| The Ca=raiaion believes that the means chosen by the Applicants are v y ;.,g ,., ? .,7 - : .4, . ce,.D 1, .t' ". .l} suitable provided that the following enadMana are met. The separate and
| |
| . 1 ., r . -
| |
| -/. segregated fund that Applicants will have created under the control of its Special
| |
| ,Jp.* ' . C, * , e, W. 'j.:.'..,l ( ' y3 ,
| |
| Disbursing Agent must be funded to the amount of $711 million before licensing
| |
| , ,l,-(*: . .
| |
| of low. power testing, and some of the large, 6nancially. secure joint owners A ,,. ,' . , f,,."( ;,Y , M,y..,, # [.,7l',,.,
| |
| must have fully, jointly, and severally guaranteed to make up promptly any
| |
| .7.,j j?* *
| |
| . 4.' " }
| |
| : s. agf..4. de6ciency in & amount that later occurs arising out of any payment other, M. n, ( ,; ,'O. . .. , t' than in satisfaction of a decornmissioning liability as understood in this order.
| |
| ..;, > - (,',, '.', ;; ,y k.f. y ,l " '. , N We leave for Apphcants to choose which joint owners shall participate in.. -
| |
| ,<,.'}'~hi,:3..''.7'7'g.g,. .
| |
| .g.s.
| |
| .. this guarantee, except that the participants must include at least two of the followmg utillen the United Illuminating Company, the New England Power
| |
| ." : /;,?.;- L;'. , *J5 ':..! ," ' d :n .',C}
| |
| ~
| |
| .- , ... - . Company, and Cnaaeticut Light and Power Company, which have relatively _.
| |
| U'* , . , . , ,;. - l . . ,
| |
| , ;l 7 'j' large ownership shares.
| |
| The foregoing requirement for a separate and segregated account in the
| |
| ,. { ; ; ,e) . -
| |
| .J. s, .y amount of $711 million shall remain in place until Applicants receive a full.
| |
| - . L., ~ -[,,"
| |
| .:. . .? j.
| |
| * v
| |
| , ';4 : ,19
| |
| . l ? /.i. 1 power license in compliance with the decommissioning rule (see note 6, supra), ,
| |
| ' -: .. 4 .:9 or until funds have been disbursed from the account for decommissioning
| |
| , ,', - 1;,.* ,
| |
| in the amount gnmawai or decommissioning is completed, whichever shall
| |
| " '; ...$/. .: ' R 9
| |
| / . . , f ." -
| |
| carlier occur. In this fashion, the availp',ity of funds will be reasonably
| |
| . , . . . . ' , ..-3 ?. J.'
| |
| assured. The guarantee rernoves the r<evancy of any uncertainty regarding 3 s.. ,,n, p 4
| |
| .; ' .3 . .
| |
| what the barbpq court will permit or what claims against PSNH, MMWEC,
| |
| ... , h , i.' ,#g M
| |
| ', l.' ;",7 ' E I. . . Y j Vt. Coop, and NH Coop might taire priority as a legal maner or in time over
| |
| .,'.4 A.- !
| |
| . .. ,.. . *. 4 denmmi sjoning 9 Costs.
| |
| '4* .j , . '
| |
| : r. .
| |
| r . .
| |
| ~
| |
| , ~. ' / * [ . .c' ,d :. 4,.. . . .,. .,. ., *. '.. $ )
| |
| J. ALARA and Related Issues i *. .- ,N [, . . . . [,'
| |
| In various guises, for example SAPL's ALARA argument," Interveners 7l .,, . . - , e . ,. . . -.
| |
| . 3 .- . have raised issues that in essence ask the Commissica to ignere its rule
| |
| ,, , . - . . . ,, , , . . . . ..a
| |
| ,.4..
| |
| es
| |
| . ? ' ... , .. ..,
| |
| * y see sAPL's Cassanimis in Kaspanse to C1188 7 at 24 et seg. se aise sAPL'i essenian of need far a NEPA 5, - *- *
| |
| ;. . . - rarlow po-ar.14
| |
| . f.4 ;
| |
| . .. .* . . . , . , . q. '
| |
| .. . * ,.- 1
| |
| ..., .i
| |
| . . . .g.t . . -. , , . .. .. I
| |
| -,;,.,,4 1, ,
| |
| e 591 e
| |
| ' I e
| |
| e g k s
| |
| .h 4
| |
| e
| |
| | |
| v . .
| |
| .. ~
| |
| . . ., l
| |
| * r . . ,
| |
| ' e ,
| |
| : j. ,
| |
| .~,~ .
| |
| c.
| |
| .,. .. .,.~. .. ..;,, : :.
| |
| ...x..
| |
| t, .. r, .. 4 .
| |
| ; s. . .
| |
| K.. . .. ,
| |
| , ,f ;, q . .
| |
| ~ . . .
| |
| , - r. , . .g , * .:
| |
| - .,. 1
| |
| .. . . , .4 e ,..,1: ,.
| |
| 4
| |
| , y . , . . . . ; . . ,,
| |
| . .T .y.n,;. -3Ib-. * '. : .- 4 ', ,1 providing for issuarice of low. power licenses prior to decisions on full power.
| |
| 'Ihe short answer to these requesta is that they are beyond the scope of the %; ; ,y ; .; ; '' ; ' '' . . G , t _"
| |
| decommissioning funding maners the Commission authorized to be addressed .. f;f' ..: . f, c.1 pursuant to CLI.88-7.8 Accordingly, the Commission summarily <tenies them. ).wl'l.
| |
| 'p. s, e,0.'9,,7%, ,9 ; '. .3. ,7 .~ ....
| |
| n, . .. .
| |
| .- sn .. . .. :~,
| |
| L. . . u.u .. ss .. *:,.
| |
| 4 <.. '*......._e .*
| |
| : q. (. ..,.
| |
| W.s..^ .c. ' ~%.. .~. . ,,g..
| |
| K. Motions to Roopen the Record for a Hearing s . ' .,' . -.
| |
| .J.
| |
| 'Ihe record considered in this Decision includes all tootions, responses, and Q A.p,t .7,Z. ,'.f v . .. :; ;; >M ic , y other documents referenced in this Decision on decommissioning. We need only , % .: W / .:.4 .
| |
| ;; M g ....', x:
| |
| now address whether there is any need to reopen the record for an evidenuary d ' d % '.N
| |
| * W f. M ;'6 hearmg. 'Ihe Commission Ands that this is not required as there is no resnanning genuine issue of matenal fact on any sir m cant safety que" ion related to k{ l3.J,' y i '~, . N . 1;., f p,. ]f. ," F."/ q '
| |
| 6aancial quatikarian for decommissioning followmg low. power operation. p.
| |
| l(.;j,7.. ,.'.(y <
| |
| .{ , . ;gg,j.
| |
| J.-
| |
| r., e. - ,
| |
| , S. ..
| |
| IIL PE'ITTION FOR FINANCIAL QUALIFICATIONS f, [.'. tg.(, (, 3, 1.c g, O RULE WAIVER w..<
| |
| .. '.~ . . ' . '. ' ?<s. - ./ .,
| |
| ,1. ;; " , . ;
| |
| .. d...? - ,
| |
| , , c.
| |
| A. Background g'f l ''',. . . . m .. . ,.,:q+ 1. -
| |
| _., sl ; , .j.
| |
| ',,..H
| |
| , .. .. - .. 1
| |
| "''; >-.f. % ;,. 9.. ...
| |
| Part II of this Decision resolves questions regardmg the need for reasonable assurance of adequate funds for decomnussioning of Seabrook in the event ,+c/.Q'VF'*~'NJ .~ ~E',.4 '; 4 g
| |
| * p.]'liY .5''# *{;'r 7,.
| |
| low-power operation has occurred and a full. power license is not granted. This '
| |
| resolves the most safety-signi8 cant Snancial quall&stians maner pending before [ ';' ?" ; ."' / -
| |
| l $ l ''a . ' '; .'
| |
| i on wh ether one ,.+.:
| |
| ..the Commission in this case. However, ht ere remams ht e quest of the t'a= mission's Anancial quall6 cation rules should be waived. The rule M. . J e. .. ' +e . .4 -' - .M . - ..
| |
| sought to be waived was issued in 1984 (49 Fed. Reg. 35,747) and upheld r.
| |
| [:. ?ff. f[. f.sl,4:; ,',;,, g g y t ,.
| |
| N.H.i:sy@24 4 4/c . n . . -
| |
| ~
| |
| on judicial review in Coandon for the Environment v. NRC, 795 F.2d 168 (D.C. Cir.1986). It eliminates the need for case-by. case reviews of the 6nancial f,.$7..S.M.ic py . *.:. M.%;.%'.N, ,'..,/.I 3 quallacations of electric utility operating license applicants. If the 1984 rule t ggg.3').@ ,.Q Q. Cj hem Qpg.p y $ "6,:n ?,, 'Jfd were waived, the Commission's general Snancial quali6 cations requirements would become applicable. The effect would be to require review and permit litigation of Applicants' ability to pay the ordinary ccsts of low-power testing,
| |
| %;6,P 6 Q( O@@ J
| |
| $[7@ L'",*.>
| |
| decommissioning expenses aside.* We deal with this rule waiver question below.
| |
| ..gg*
| |
| 'YJiT..yMi)3'.$.y,P.','
| |
| : s. o. n, m. m c, u.3 . . Tr .
| |
| , . y .g. . ~ ., ..s.y . ,. .. .w q.v n'.,;y.,Acr, 5,* .j
| |
| * . g.y.F .r.; '. .
| |
| ,s,.,.
| |
| ihm em d=s=====s mis de - *-ay At. ARA e-espi .hish mes== .ppu. .c : . r.o.t. :. n y. ...4 mns com--sien
| |
| (- ;.s.u, IJ '
| |
| ; ?.
| |
| * samma of ALARA for nu snaps in desessumassams. '!k ALARA ===ge has no missases to "as ,.. .';i , , , .*- s
| |
| ];;) .,y]
| |
| 9
| |
| ,..O , .g.
| |
| 9,,g,g. '
| |
| '.e ' i.1 i , .- . '
| |
| 8seseen 5&5He)(4) of 10 C.F.R. suspmus smanny that en appheres be "AnsemaDy quahnsd to ensese in the esuvimms seahemmad by the spessons " assess . . . ." The mne sees en io anespi einanc esilmy applasses
| |
| {.
| |
| g,
| |
| ,* * / t 4 /
| |
| p i,. , ' ' . .
| |
| issen ihm peq= ==== et a Godes of Gammmal ;- ' - h is this =P which was added in 1984. med '
| |
| 7 ;
| |
| sunner eateranas - - - ihn is the sebjssi er ihn ==iver penness when ihsss penuou won sned, q , ,y N;p. ;i,..
| |
| % 8 ihe anse supmed ihst en oppheme who asas smakhsh n-i 7' mesi aime ademisinferminiaan that f. i , : -
| |
| ' ; 4, , p< ..g -
| |
| . y deseminans [h] passesse er has masenshin ammasass of abianssas the Amds messesary to esvar . . . ihm enemmend b . _. ,. , - m, . ,
| |
| (Conmased) .?n ''. r '. 2,' .i , Q i. ,'n;v.W,' -: . .' ;'r, d
| |
| <.,.. ; " u, ,, ; - a. .r.e -
| |
| - ., , - . + . , .p..s ' ~'
| |
| * 7 r' .. ,
| |
| k". .,~:;. : . g ^.
| |
| 592 I.c. '', ,. ~ * .~. . , , . ," ,
| |
| g 4 ,.# .*f..
| |
| a * .-
| |
| : h. ,i p ' q ,.. .- r .r....;.;,c ..;; . f
| |
| ..j.. O;< . 3, W' . - <
| |
| e,t,c'., .ny. . .; p. :
| |
| c e c c, ,#
| |
| :e s..n.. -
| |
| ,.(..., g, ;. .'
| |
| . . , . ,.-.i .- ., . . , g . .. . .,,,,. . , , . . ,,,,s. , . . , . , , s, ,.
| |
| ; 1.c,f
| |
| . . . 7 7 7..., ;s m , . . - r. . .. , , ,
| |
| ? .e .a^. - v ., ~ *
| |
| .'~ -v:L c,..' ., .., ,
| |
| ,.L ..J, , . .
| |
| u . .<
| |
| . s, . . .. 'f .
| |
| . , .y< . -
| |
| .,.s.
| |
| ,.:- - -e
| |
| .+. o . . ., . . ,-,
| |
| q lc . g. ' .. . ,
| |
| y . .,..
| |
| .. 1- ..-
| |
| , ...s .
| |
| .s
| |
| | |
| .s u
| |
| , n
| |
| - .. c 3-q....,,..., ...,. <
| |
| .. . r, . .. .. ..
| |
| n .v .
| |
| . . v, . ..; . ~ . . ...
| |
| s;.-
| |
| c>.
| |
| . e 1 - -
| |
| .c. . . ..., c. .~ g .. --
| |
| e....
| |
| ~. , . . , i
| |
| . . n. , :,, . %. c ,
| |
| d.*..>+ .,
| |
| '.a .n.
| |
| v: .= .- , '<
| |
| :e . . . . , . . . .,~...?. .
| |
| . , .,,st .a. ,*
| |
| . ,,. . e1'4 mm. k ... ,.
| |
| r .; , ~ s :ta. .e y
| |
| ..?,;<;.
| |
| . . . . ...9.~. - e ,.
| |
| '1 '
| |
| c , ., j.{.,,.'f " . .
| |
| l Three parties to this proceeding, TOH, NECNP, and SAPL, Sled on July
| |
| )
| |
| ., m : , ,7..g.,; & S :j
| |
| ., * ' ''* , ; 31, 1987, a petidon to waive the Commission's 1984 Anancial queliacadons t rule to the extent necessary to require PSNH to denenstrale, prior to low-power Y25. E.? .7 b,. 'H '. P;., '(*%'''
| |
| aaa=daa, that it is Snancially quali8ed to operate the facility safely at low power
| |
| ? t..'.',t.Dl!. @.M .'" MrW ,Jf W 4; .*E. and M .
| |
| f f. to decommission aner low power. The factual predicate for this peddon i
| |
| ,,%'.' A . ' $i f m.g ,e.t'.- -l J.!; % ',1.M [)2) '.
| |
| wash .j i PSNH's 1%rm 8-K Sling with the Securities & Exchange Commission in t .... s < <. ~. o. ;.J,. a!
| |
| <!;r. .
| |
| which it said that it had instituted strict cash conservation measures and was
| |
| ..* g. . . .**
| |
| jM working to develop alternMive $nancial plans. The Gling stated that were an
| |
| ,F; , ' , ., .f?. / : .4,". i'$ Q, '. 4 ' ';* j./]
| |
| 3 . adequase plan not placed in effect before the end of 1987, it would be "dif6 cult,
| |
| . 'n: 4..;*h c .Sf y"/, . "..,'q. '.f
| |
| .. if not impossible" for the company to avoid pen aadiaa= under the B .y y
| |
| ' ,'.,[y[C*Ru .~. , , e; . ;oa .
| |
| . . G l .]*,
| |
| o
| |
| . ,' :.aQ, . "S:c..m, gs, pggaa. f,$
| |
| Code. See PSNH For.a 8-K, Sheet 2, July 22,1987, attached as Exhibit A to
| |
| . ; I," ;.* ; ,.. ./ . . . , C.' j .
| |
| . 1he July 31 petidon was opposed by Applicants and the Staff, and on
| |
| ~* "
| |
| .- August 20,1987, was denied by the Licensing Board. Among the chief stated
| |
| .-,t ' .q.c l- [e ;..$'e . U. . "J',:C[d.6:
| |
| reasons for the denial were that the circumstance of impending ;,-.: .pi.y was f ' . E,i, , e,4 m ,
| |
| , td , 8=*3ve and that there was no suggesdon that other " applicant-members of T ;..$*y.]",.3.*y,'f,g' r A g g*
| |
| * l *,13. . . . the consordum ase Anancially incapable of operstag and safely mthamining the
| |
| * N ,g. .. :C.T M .;.: f M facility." Memorandum and Order (unpublished), August 20,1987, at 10. The.
| |
| ct..AF G J.,/j.3.Q:._,? ',syy. (;M.{;'7 , Licensing Joard's order was manaalad_. briefed, and argued before the Appeal ;
| |
| . '.I'M.*J
| |
| .t,.. e. G p ,(
| |
| 4, ~ *E
| |
| - :?
| |
| '.. 3' .i''.6 , .. ,g. .4y _
| |
| h k;;Q;i" . Board on December 8,1987. On January 28, 1988, while the masser was pendmg, what had been treated as =aa~3-dve became reality when PSNH Aled
| |
| ~ . . 6 ;, ,.;s ,,,j , r. ; y p ..' g
| |
| .( l. in bankruptcy. Using an opportunity provided by *he Appeal Board, the same l
| |
| * *l .. / ' G. .q. . : .' : b '' '
| |
| 3 perdes Aled an amended pedtion, and in addidon MassAO petitioned for a like Q
| |
| . l ' %,O ~ '.
| |
| * *J. ,
| |
| .'4-} rule waiver and later 11ed three supplemems to that peddon, y .- . . A , .e.v ., . . x. .>s. . ... .
| |
| In ALAB-895, .mpra, the Appeal Board decided that the MassAG had 1
| |
| . f ; S., .e . ;.; 3 ; t . (*,
| |
| . ,.3 '
| |
| esnahlinhad a primafacts case for a limited waiver of the rules. The Appeal
| |
| ; 3 *e . ' ' . f.?ti,,,iG ;.. . sd Board also decided in ALAB-895 that the other petitions for a waiver had failed
| |
| ^
| |
| : j. W " , .'
| |
| . Ie to make a primafacts showmg and, therefore, dismissed them.
| |
| $ 1 i '. ',((' ' . .}y ' c 7(f. ,.y The Appeal Board dienaeed what the Ca==aiaion had said in the 1984 b' .; ',;* 52
| |
| , 9-rulemaking about the circumstances that would establish that a waiver would be 3 Y. .g' ' , !.. . e; P.. .
| |
| warranted. The Appeal Board recognized that the Ca==iaion had speci8ed that
| |
| .. s..<, 3 .;i .3,, .. . :
| |
| a waiver would be appropriate to review an electric utility applicant's anancial
| |
| , . .g .g .,
| |
| * M.;,4'T 3 g.f 4., . . ? ./ quellacations if it could be shown that a rate commission would not allow
| |
| .. ; . . . . .? . .
| |
| ; h.
| |
| Q .
| |
| ,,, . ' t m..
| |
| ~
| |
| ..j
| |
| . recovery of the cost of operadng. But the Appeal Board emphasized that the Licensing Board had wrongly determined that this was the only means of making
| |
| '; ,, ,'"''s
| |
| , . > K *D.,** ; V;.'';/il;[' 'y ' '
| |
| the showing. The Appeal Board held that the example was merely illustrative.
| |
| .e,;; , d 6@i
| |
| . ... .. 1his it found was clear from the context in which the Commission had used the
| |
| . . . . ,1.. " . g . , , <* , , 4 ...; py s .
| |
| words "for a"-ala " The Appeal Board said that its conclusion was reinforced
| |
| ,9. .'
| |
| ._ .. = , , -
| |
| -l ~ l * . .'. .. . , , ri
| |
| , . - e ?
| |
| . .. . ..?
| |
| i ., ,
| |
| . a eens of pennemanly alsamms the fenilky down and ==i===ing k he a ante * . . 10 Cf.a. I so.:D(fX2) ni.
| |
| ,**' .. / *';* * *..,-" ; ,
| |
| 3..,
| |
| , ,j '
| |
| 0908). '!1 mis a ====al previsen spenseis ' w delened whom ihe -
| |
| _ as - '_
| |
| . runs banens adesave.
| |
| .. s .* ,.,.
| |
| ,., i 4
| |
| ...s.,
| |
| - g 5.- .% ~.
| |
| ,, . .e ..,... *
| |
| .,.t ..... . . .
| |
| 4 & .
| |
| .s
| |
| .,s
| |
| . 593 g
| |
| e e
| |
| e h ,
| |
| .I
| |
| , .- g
| |
| - 4 I .
| |
| . +
| |
| . A '
| |
| ..m.
| |
| | |
| . w. m .
| |
| . c . .
| |
| 1
| |
| : c. .
| |
| 4
| |
| , . .. . . :. ; . . . : .. ...w .s . . . .
| |
| *e
| |
| ~ ,
| |
| ',% .,,.n ,. :. .
| |
| ' . .' .al ' , ,%. -..
| |
| ' . . vi; j .y...., y. .;?a , -. )
| |
| -.. s u s .j ..* .n
| |
| , s
| |
| , .e , . s
| |
| .- .. 3: ,
| |
| by the Commission itself, in that the C==inaion had elsewhere provided yet !. w y . ' .. : .G * ' c'..-F '
| |
| l another example when it noted that a waiver would be appropriate if a nexus ' E :: ' ',~ *. ,, ' / " *1;,-J.t. 'l y q'' f.
| |
| between the safe operation of the facility and the applicant's Snancial situation
| |
| , . . I. '' ' ~ . . ' . . f N . 'i. f # ''
| |
| were shown 28 NRC at 17, ciring 49 Fed. Reg. at 35,751. l .'O; ) i <~ f.'E '
| |
| (j ;l $N f .J ,6'' k According to the Appeal Board, howeva, the initial *IOH, NECNP, and S APL v ffi - (, 'M ;;,j
| |
| .t.(l(f. " U.i (j!
| |
| L(. ., ., , '
| |
| petition failed because it relied on the lack of certain asswance of eventual : ,, J ,,
| |
| rate allowances for operations at low power due to the alleged likelihood that . , , , . ,
| |
| * f.C .,.? . ., - .,;c 1.?
| |
| l ,]1. ,4.pfQQi'; . ~ ,ir . .. .e%gl Seabmok will never receive its full-pour license and thus will not receive rate .. -
| |
| . , A. '.j ,.N g approval of costs of operation. The Appeal Board said that s= M'= on the N- e,,, .
| |
| ,y ]
| |
| l full-power license was not warranted and in any event, reasonable assurance of funding was all that was required. The Appeal Board further found that reliance Q.g%p'y'
| |
| [&Tl ,
| |
| Mf@Q.f; 6." 4.f /
| |
| b) ;. 9,1'.-T':.l.l j f .lM'[b,t ..
| |
| on the antiCWIP law did not help Interveners' case, because the anti CWIP [,I J law did not bar recovery of costs for low poww operation, but simply rm ;cd their recovery until full power, and moreover did not prevent other sources of
| |
| ( .' ' y' s.
| |
| j!
| |
| * .nW 17 5' p ., ,
| |
| - i revenue from being applied to low power. Thus the Appeal Board found that P .'"," y~.. '. p' < d '?
| |
| * 7.. ,,. ' 1: ' * .
| |
| f v.' . .'"
| |
| ~
| |
| b r
| |
| " absent a showing that the applicants have insuf6clent funds to cover the costs ,.
| |
| ....,..' M.;
| |
| '.' ' '. .' . c'. .4 . ..
| |
| cf low-power operation, this statute does nothing to advance their cause." 28 !'", .,
| |
| NRC at 18.
| |
| ^
| |
| ."........E r,
| |
| . d' in the supplemental petition the same Interveners focused on the need for !. . . v; h ";X .
| |
| j '
| |
| l a fmancial <r=115 =*ir= review to ensure that PSNH is < -%'d to operate IN . . . . , . 4 >J - 1 .
| |
| . . y. ,
| |
| Seabrook safely at low power, but the Appeal Board found that this too failed 4" .
| |
| n; . J".f'.t. Y'(* [.' ((il
| |
| [;QJ7t essentially because no showing had been made that the Applicants lacked resources to operate at low power because of bankruptcy. 28 NRC at 19.
| |
| :,; 7,.;l
| |
| .. O ^ :s
| |
| _;.fi."M(P, 'f'$fjI-7
| |
| .. U " '. Pl h.! 7s .*c' O 'D_b
| |
| '!\irning to the MassAG's petition and supplements, the Appeal Board found F M ( ... '..[h' ,; :: "; .*[hM-
| |
| $rst that Staff's and Applicants' arguments that Applicants can recover low. 'l.
| |
| h- "' power costs at some indeterminate time in the future when Seabrook is operating I ..) # .37. I'* : 4 '. l
| |
| '; y pM ,*R .j 'lh!'[ ]:.i'.; 9.
| |
| commercially does not respond to the MassAO's issue that Applicants currently .. .Y o
| |
| lack suf6cient funds to operate at low power safely. Initially MassAO relied on NdDi.%ONJ: '
| |
| y ,l. Q 4if' the unwillingness of other owners to be responsible beyond their own share for .Mk ;'@f/ ?WM7'@&:iT ;'Z any costs. However, the Appeal Board held that MassAO only :=med in jajN . .
| |
| '.$ f,; ~ . MSA ?j M,. . g[b,9 meeting its burden to show without speculation that current funds were lacking when he assened that MMWEC, an approximately 11.6% Seabrook owner, had p%.,$:.W y.3.0.0' .ij d ['e k halted its monthly pro rata share payments. 28 NRC at 20-26. M'..ht. 4 9 S.!V ;Q.: ; h.y.$ 1lLW 7.';
| |
| In sum, the Appeal Board found that in order to establish a primafacie case @ '7,. "-
| |
| for a waiver, the MassAO needed to, and did to a limited extent, establish that :. ld'. 'm.",4 ' ' IkL ;.',' M f,Y(M Applicants lacked suf6cient funds to operate safely at low power. The Appeal
| |
| 'W .
| |
| * V C,$%%., .
| |
| .aj'':. I .4 Board recognized that vanous possibilities could aher the situation, e.g., that '?'-4 . .: ' M /:' ,~W; other joint owners could meet the shortfall or MMWEC could change its mind. ~ '
| |
| .- M? - '
| |
| But, the Appeal Board said, just as the primafacie case could not be made by If ,. [., $"' j..NI
| |
| .. ' ;d ...J .. ,,, '
| |
| Watian, it could not be defeated by speculation. .
| |
| ['.i.'Jdfi[$.
| |
| The Commission promptly established a brienng schedule in isycaec to Y'l . ' 7 ~ l
| |
| ' N ' ' M '." ' ' !
| |
| ALAB-895. Among other things, the Commission speci6cally invited Appli- y
| |
| [.L "7
| |
| ( ,'...~..a". M.. n'. l .. M.
| |
| ~ ,..
| |
| * .:. .t . or . * ** ,
| |
| : .,[. ., , .
| |
| g ,.vs i .,*... ,v n.
| |
| g f .;< , - ., ., .4,.., ., ) 3 ',. ( c' ec 8E - . ,4
| |
| ) .g t.
| |
| Y.
| |
| (q'.m,4 m ;. -
| |
| .h * , . , - " $ d. '. 0 , , - *
| |
| . ' . . .,g,.>
| |
| , . .. q T
| |
| ., * * . . . .b- .,'A
| |
| ,'*,, 8 y '
| |
| . ,4 .,.t en , r re g ., ,Q . , .
| |
| **h..**
| |
| :- , /.
| |
| *' .\- , ,;;<f Q .
| |
| .Q.??o ~ , '.
| |
| 1.; .,.[:.r'ff, ;e i . . . . . . v :. .. , .e ..v..,.
| |
| l
| |
| ; gs.h..e.t.n y T ;,". pg.' .' ,
| |
| : * .- ,, . 3. ,; s.- -m . r ;;; .,. ,.. - .m,.--- y . e p. . .; .,. ,.
| |
| . ~ . .. . . ..
| |
| ,. ,... n . v.
| |
| . . . . . , s, ,a , ,,. .
| |
| y% &.
| |
| .. , f. . ~,: . .'.~ ' ',#*-
| |
| *d w ' t-
| |
| *.'e *
| |
| \'
| |
| . ::' .* ' ' ' ;-ll
| |
| .s t'' * *
| |
| * 1 l= Qts ,- , * '
| |
| t? s' h ( ' 's
| |
| ' . ' _l ., . s; .
| |
| 5 ..e
| |
| ,7
| |
| ~ ~..e ,
| |
| .:. r .. ,,,
| |
| 3 y. < q ..
| |
| o ,. 3. . . y .
| |
| 5 m f ,
| |
| / ,#. ..e
| |
| . , , > , c. ,
| |
| ____o a
| |
| ( , ,
| |
| .s . I. ,i_' j i
| |
| | |
| ?. . n .
| |
| .. .. . , ~ . c
| |
| ., ...,s ;, .
| |
| ...e ,
| |
| 2 .
| |
| ., . :c
| |
| . 2
| |
| , .: n ;.
| |
| t .- .
| |
| 4
| |
| : s. . . . . .
| |
| . r :;. .,: ,:..x.. .., . " , . ... ... c. -
| |
| . . -w. . . .. ..-
| |
| : n. s..,','.. ..:*.. . ,. '. .s.: qi.e. ;; -,, ,-
| |
| -r n n. .. a . .
| |
| .s
| |
| : a. / -
| |
| ~ . - <-
| |
| . \. ~ .- ~ ~ " ..;
| |
| - ~ .. a
| |
| . . .~ ;.u a
| |
| *}
| |
| - .i *
| |
| -'. . ,, p.,y
| |
| - . . a .* : .
| |
| L ..g -. . ' ..., . . , ; ,. /. ,. :* . ,,, - . , . . . . . ,s .
| |
| I a .. .-y 4 "'.,' j? ?8.a . '- p ,'7.cl't *:r VZa
| |
| \
| |
| '' cants and Staff to address any matters that they wished the Commission to
| |
| ,* ' . .; :~ " ,
| |
| 3, . 9 ] A * .. consider in reviewing the Appeal Board's anding on the MassAG's pedtion and
| |
| ; "' "c$'' 3' '' '#l' d ,/ /)' [ ' f.b*j
| |
| ~
| |
| . deciding whether a waiver is appropriate. Other parties were given an opportu-
| |
| . ' , ' . . . ;- 'y ? ' , i' . .: . 12 . il nity to reply. The briefing period concluded on August 2,1988.
| |
| : c. ': . ~ ., ,
| |
| S,,. + ~ ' ~ S :' - .
| |
| Interveners TOH, NECNP, and SAPL have aho timely petitioned the Com-
| |
| ; Q*.<. 'f'.* , .* *.[ g,y ./ * : # y* .l.; ,
| |
| mission for review of ALAB-895. They maintain tnat the Appeal Board misper-
| |
| , . 9. ' ~ r/ , , 1;+/ '
| |
| 7, ceived the standard that applies to waiver of the rule. In addition, MassAG wrote 7 ..' . ,*." G.,:' . , f. '..y, 1,l .
| |
| y ?J.d ;g*, J. to state on the record that he agreed with the other Interveners that the Appeal
| |
| , , Kc 7.f '.5 . f'#' ' ** .1,.# 'p f*~.E .
| |
| Board opinion contained error, but did not appeal since the Appeal Board had
| |
| ".' . , ~ ...* , 7 We found that his petition made a primafacie case for waiver.8
| |
| .y.; .,;z:.*;.
| |
| ' [ ''
| |
| . y, w ' ".... .f 7, l J; .7
| |
| ".'.n.*. ;
| |
| ; ; ..- ~ 2}i
| |
| ',. y ,J-
| |
| ;y ..r; c ,;j. y -
| |
| B. Analysis and Decision
| |
| ~; ^. . . . y :L .L.*.. . ,,g,f;].
| |
| - . y
| |
| * g;,,a. . ;. r.; K. N .
| |
| As noted above, the Commission has before it both the Appeal Board's o
| |
| t . . ,..Q ., r e , ' ../ ' ,f. ,, , .;, y .'.) .
| |
| limited finding of a primafacie case for rule waiver premised on the cessation of
| |
| '~.#,....
| |
| project payments by one of the minority joint owners, MMWEC, and the pedtion
| |
| , t,,: , )*l' . ' . f ,* .* , y yj
| |
| ..(." y for review of ALAB-895 by TOH, NECNP, and SAPL We also take note o(
| |
| . <-, . , }4 . . . .
| |
| MassAO's assertion of error in ALAB-895. To reduce procedural complexity
| |
| ' '' .j, -* ^' /..* ,,,. .
| |
| .', . f .*i and to provide for a comprehensive resolution of the rule waiver issue, we will
| |
| ,.. ,. .] address all of the principal gmunds asserted for a rule waiver: the banup.y l''+ . . .g.. ,..-
| |
| . 3l ;.A of PSNH; the State of New Hampshire's anti-CWIP statute, ar.d the MMWEC
| |
| ($
| |
| 'e -
| |
| . .y . . ,. .j shortfall. We take account also of the undisputed fact that two of the smaller
| |
| . ;,. ,;b y '. , .;. ' joint owners, Vt. Coop and NH Coop, are also behind in their project payments.
| |
| .g 4
| |
| 1
| |
| '. 2
| |
| .Y
| |
| .i
| |
| '..'"i
| |
| .s..~,...
| |
| 1.
| |
| a.
| |
| Groundsfor Rule Walver The Waiver Rule
| |
| ., .. . . . . . , . . . , ..y
| |
| '.J.. . . . .'. ,- -".
| |
| Rule waivers are addressed specifically in 10 C.F.R. 62.758. Under this provtsion:
| |
| .. t. y,.
| |
| l ,';' * .
| |
| * , . c.y-/. ,
| |
| , * , The sole sround for petition for waiver or a=r'i'= shan be that special circumstances with
| |
| ,* ,, 3 . ,~~ . , j ,a respect to the subject maner. . . are sudi that applicative of the rule . . . would not serve
| |
| : 7. .. d the purposes for which the rule or regulation was adopted . . . . [The petitioner] shan set
| |
| ,,'.'.*,c,"..
| |
| ?
| |
| ,.
| |
| * j. :. -
| |
| forth with particularity the special circurnstances aDeged to justify the waiver or e=p'ir=
| |
| 'j ', ,
| |
| .' . .'< * , . d.*
| |
| requested.
| |
| w . . .:- . . , - . -~ -). c .
| |
| -e(,'. .
| |
| ... , . ' . . , ... . l
| |
| ~ .
| |
| No case has been cited where the Commission has waived a rule under this 7*,g . aP,j " ,' ] ..
| |
| - . .[,. ,lfa. , .,]. ;., .,;.<* r!(,
| |
| * ;. j ,,.
| |
| section, nor are we aware of any. In Metropolitan Edison Co. (Three Mile Island Nuclear Station, Unit 1), CLI.8016,11 NRC 674 (1980), the Commission took
| |
| \ .
| |
| . . . . . , . . M,.n J
| |
| ... . / . 3, t.' ... . . ,l ' - .
| |
| i, *w.b .h. id a u 40. rouan sappine.nn e ma for w iver, da.4 s. pin 6.r 15.19ss ma
| |
| , .; . ;;; ih. ris.v=e p p 1.t-nc.d at or,. 5.
| |
| .(.t.
| |
| . . .p ; .! -*.'.,.,.e,
| |
| ...u *
| |
| = (*' '
| |
| ?f 4 e
| |
| .;,I
| |
| .c . ..,
| |
| . . . . . , .. 595 6". , e e I e . .
| |
| . 9 m
| |
| | |
| m, , ;w. ,,,
| |
| ! .g .s
| |
| .. . - .y,, . ,. ,
| |
| 1 v -
| |
| .. e. .
| |
| >- ..,; , ...- w. . - ;e . .e , , ,
| |
| c..
| |
| , a .
| |
| 3 w,z m.4
| |
| . m ,,x;w y ~.4 7. ,, , 4. c., .; . ,
| |
| . . ,... . . p.
| |
| .,>...,.., s, . . ., . .. . . . .
| |
| e
| |
| *,ns..,
| |
| .;. . , a.
| |
| . . s . .. ..., .
| |
| . ~ , . . . s. . . .. . o. .n.#. . ,. . #;, .
| |
| t : u. .m: %. (. ,.s.
| |
| - g . 't, ...z,i ,: q. ,. . .. . . m 1. g.<
| |
| ;.,a. s
| |
| .r.
| |
| . . . s. <. . . . .9. .,. !
| |
| ,e,,. ,. ., g . . ,, ; .; o. .,. . . . . %... ... t .
| |
| ~ . , .
| |
| .,.c':, ; : - ..nv A v.-s . A
| |
| ..s s
| |
| . c.u , :.. . . .w. w .
| |
| .O .gh,., ..p% :;x;;%. .L.. . . 4. c x y :. . V ..~.~u.. .:: . ,, ~ u; r 1.: .u.:.e .
| |
| .* r A ."
| |
| . . '. w. ,.v . . a' :,. ,;
| |
| * .? . . j
| |
| .,, g,p;.. . n.< n .1. a .,4(v", .yy< . ,.g y,,;, on, ..
| |
| , . a. s<
| |
| ,, ~.:./s ..~- i
| |
| \
| |
| 4 v . :. 'n.
| |
| w ~;: .. x. u, ~.. ::]
| |
| s.: w .~
| |
| .. , . . .. . . . " . O, s
| |
| : s. - o. .
| |
| s(. s .-h,s.
| |
| 1
| |
| .. , a ,4,
| |
| .4, . /* .4..f. . .. , w. .
| |
| 4 ;
| |
| .' : J . > , , , .:.
| |
| re '. . $
| |
| . . . y n. . .. t. ?n;. ~-., . s,n.
| |
| ..,c <
| |
| : h. .. ..tp. l,y.s..., .,...
| |
| N up a 1.icensing Board certi6 cation that a prima facia case for waiver of 10 M. M@ }f, 6@'''C T ;Q..:.r'. h ^ C.FA G'i 950.44 O'h*;.had.fbeen :.*N,",
| |
| made '.'i under $ 2.758, but the c==ini= rejected the Cl,Q.:'',7,'J,"T ~. ,*1 [S.H ;.S wM= Ihe e an=3= ion stated that waiver was ir prgate because ia f.: ' the petition presented no "special circumstances" peculiar to the case, but l il.[W.N Wj *c O,-S(;. 7 ' %%y lf.' . ,P. y"'q, / ;
| |
| f ruher r4 generic questions common to all light. water power reactors f;,"Q f *J l t .,'... y .. *! ' ,9 . . -land best resolved by ruta == Mag. That decision is of limited usefulness to us y;j@,l.f'$. fg.G . d W. 5.Q. '.f' .
| |
| .,.) ;., .: ' .*,
| |
| here because, as will be discussed below, the special circumstances asserted as Srounds for waiver here do not present generic questions.
| |
| @N'!;,$[.''$y M, 6 W"J':.'. ; *[D. .
| |
| * *Ihe only other signi6 cant Commission discussion of 52.758 appears in the tM'N M EO. , .~ 1985 rulemaldng on the standards for speciac exempoons in 10 C.FA I 50.12.
| |
| My%.:F@C.Wi@@S.)/@'*\<
| |
| Q At that dme we said that special cin:umstances as those terms would be applied la 150.12 would be consistent with the considerations the Commission expected j C'!....QQF@D
| |
| . i.
| |
| W$, ..4[N .C#.M['.Sf,
| |
| .b,T
| |
| '. f M7M.t.3 M.i.% parties to address in applying 52.758. The rule in 650.12 establishes that these la a special circumstance whenever, among other things, "{ application of j l
| |
| 'Q'%?%;~M.k.(%;QDWSi' N; MF & the regulation in the particular circumstances would not serve the underlying i
| |
| ; .U ,M*dU.' .y.;Wy'r<.;'y'g j,W E.7
| |
| .;' 6y. y y' ey m ,.. .,.n.d
| |
| . purpose of the rule , , ." (10 C.FA 950.12(aX2Xii)), or "[t]here is present any other material circumstance not considered when the reguladan was adopted D.?' N, 7lI
| |
| . .i .I - [,.. . [. for which it would be in the public intered to grant an exemption" (10 _
| |
| ]
| |
| - . I i W C .:hR : .,'t. C.FA 550.12(aX2Xvi)). l
| |
| . ",. [ N;Mt"I. Q b j.9 TM. .
| |
| Thus, while we take account of what we said in the 6 50.12 rulemaldng, the l
| |
| . maner before us is essentially one of Srst impression. We must construe and j
| |
| 'T$7
| |
| ... < cf m..
| |
| M.c[.d ..
| |
| 7 k;3; .o.<.<?
| |
| .[ . QJf a'tE6.py,p%,M*.. ;il
| |
| .. , 3:
| |
| apply our regulations in a manner that is in accord with public health and safety and gen,,al administradve is, principies. .-
| |
| J
| |
| .m : y w :. .
| |
| .,c
| |
| .. ., 7; *. . ' b. The Meaning of "Special Circumstances"
| |
| .. y.. . br:, . .
| |
| ' ' y. l[2 7c,..? ";. M ] . ,y,3. ~. .
| |
| ,;, .Ihe Appeal Board was clearly cost in ALAB.895 when it held that a c
| |
| ',,' t .b N. 9 , showing that a rate commission would not allow rate recovery of the cost of
| |
| . .. , . " , % .,. 3."Jl.,s'.p , q j,it .j
| |
| . operadon cannot be the only ground for waiver. 'the 1984 Anancial quali6 cations rulemaking is absolutely clear that this circumstance was offered for illustrative y@n6C. M, bt'.e.$
| |
| 6 2 .-
| |
| ..; > ~;.[Y purpose only and arguments to the contrary by Applicants and Staff border
| |
| " . Q*:
| |
| a
| |
| ;@.y'Zi
| |
| - - on the frivolous. Moreover, even if we were to accept the proposition that
| |
| './.'./*y,flN",-y$,f.q
| |
| .f .g ..M a ,Y= M. u . , . what was once considered illustrative must now be taken as eachtsive, this does
| |
| ' .e.
| |
| not necessarily lead to demal of the waiver requests, because the anti-CWIP 1.* Q y ; g % f .q. M $ e. N Z ')i . sinute tends here to a circumstance that appears to 6t the exampic cited in 7* {J '' '..ry, .I 1. ; (/~ .l .g.;" 7;?,U .g.N f J.{ the rulemaking. Under anti CWIP, the rate authority cannot grant rate relief
| |
| $"'E',,.3.N(,'*W.'D''5..j i .
| |
| . : .. . e i spai6cally to pay in advance for the cost of low. power operation.
| |
| We believe that the 1984 Anancial quali6 canons rulemaking did not limit the h /
| |
| N Pdt G., +f.7fh * .Sj i;. .sr..J . p g 5'c.t .[7 'l f 1- 2 ;'.r'. .W [k 5[l.(,,m' '.i I, ,*
| |
| "special chtumstances" that could serve as grounds for waiver under $2.758.
| |
| And we belle.ve further that the concept of "special circumstances" that is most in accord both with the general concept of rulemaldng as " carving out" issues
| |
| ,':.'.y , . W.
| |
| *[-d,.::M , ; * $,(,,'W*.57 3. ,,y]:, .9 y. W. jfrom adjudication for generic resolution, and with what we said about $ 2.758
| |
| . e.c - : .
| |
| . . r.
| |
| c W, , s.a/s.
| |
| f, . , ' 3. . . .*a.
| |
| v.''s . ,~. .. ..; *.s1.c a,3.>, ;.. s , .. .-. . .i
| |
| . ;.g
| |
| .u4., .. . . ..
| |
| s .m ,. . .. ,. -..., . .".5 596
| |
| . s .. . . ., . ; , . .
| |
| .s-e '..<' i .n_ ,
| |
| e .* g
| |
| . g
| |
| - * * .e. ,g..
| |
| g y * * ' . * . -e + s ,- ,
| |
| e g g .
| |
| . . g g .
| |
| . .) g .
| |
| , ,, e a >
| |
| * ~
| |
| . 4,
| |
| . p . 5 %
| |
| | |
| ~ .
| |
| , g ,, .
| |
| .y ..' . . ..
| |
| : b. y s . d s
| |
| , g' / , - - ,.
| |
| 4 .
| |
| "' N ', ,. . s
| |
| . 6 - p- ) .. ,' 4
| |
| , ,. r .
| |
| s.
| |
| - 1 .- :. ,: ..
| |
| . ~
| |
| 3,,. . . , .. .
| |
| .-.w . % s;. j.. .t.
| |
| . y' . . -74: :v;.,v. - le, p~;~.,:
| |
| , . ,,. f . 4 1 s.
| |
| u .n:,s, .... . w: >
| |
| .. . . . . . . , = n.A ,,w.: ; . . - ~ ~ . -
| |
| r t tL . .. , , s
| |
| .-; _ l- .- O ...
| |
| .t ....;,,,..,.,. ,
| |
| ......~,..,....:.;...>,.,,
| |
| a.
| |
| . . . '. ,. .. . ., i, .
| |
| . t 5 in the 650.12 rulemakmg is as follows. Special circumstances are present only
| |
| , , ;.; .p*; ' .. *, m.c ,1 .,,;y' c' g. 7" . ' [f. ' f , . : }if the petition properly pleads one or more facts, not common to a large class of
| |
| ... 1 y N. ".P *$ 'E :q: .7.;&. ,.f 2
| |
| . ''N .
| |
| applicants or facilities, that were not considered either explicitly or by necessary l'[r . (:%. .'.h,f /. c j y[,e/? c,y.
| |
| .
| |
| * M' , N , #''..., ,r ' -
| |
| implication in the proceeding leading to the rule sought to be waived. Only with such a construedon of the terms "special cucumstances" is there assurance that 1,f s , :' ', ?6 r $ i g*,:; C 5..' j ,, safety matters will not be ignored. Safety matters will be examined either by j
| |
| (.. A b, , , . .,. ' .'l'. lly,Q.;.;. ''..
| |
| f
| |
| +. '. %. , . ,y Ic, , , .f. . ' , y; .1./ < . . ..
| |
| ,, ..,.i rntarnd-ine or in licensing adjiwS *Ma. at least for the purpose of determining their materiality and threshold safety signiacance.
| |
| . - s. -
| |
| . .e ,. .y..
| |
| - .a . . . . .q . -j .... -v ,.,. .... ....,.r. .. s.....,..r -
| |
| a.
| |
| ,-l,;'ll.l.../..
| |
| , .' . ~
| |
| . .;; , ; 4,, ; , d. .. ,Q Q
| |
| . - -r . .e....
| |
| : c. ne Kind of Special Circumstances Just{fying Rule Waiver
| |
| .7'.l ;. .' .i .y ;., .- /.y V, / Under $ 2.758, it is not just any "special circumstance" that satisfies the
| |
| ; A J $, ,y'?',;I @ ([ fy requirements for a primafacic showing, but only those special circumstances
| |
| . e E i M d.:. -lL..? '-r ' .'. f 7. , ei that "are such that application of the rule . . . would not serve the purposes
| |
| > Q. ;.g*G-j ". ,.'.e . ).y'.y; ,. . ; *D .~1
| |
| , for which the rule or regulation was adopted." We believe that this means,
| |
| ,y -
| |
| '*;- . g > . ; .iy., .+ , . . . . .
| |
| at a minimum, that the special circumstances must be such as to undercut the l ' , b v. .. .
| |
| . .;;,. ,.! ] rationale for the rule sought to be waived. -
| |
| 4" ,.c.- f , k *f;
| |
| * 7., 9
| |
| ~
| |
| De Commission also believes that a rule waiver petition under i 2.758 ought~
| |
| . . - , -.''.."l.
| |
| A.,:. *" ,Yl not to be cert 18ed unless the petition and other allowed papers irviu ara that a
| |
| ... ;, . , , - ',....,.. . . waiver is r= e-y to address, on the merits, a significant safety problem related 57 "" '] d
| |
| ..,,.*'. to the rule sought to be waived. The Comnussion's agenda is crowded with
| |
| . . ll . , . , 7, e' - . ? t, y ll:;.1 significant regulatory martns, including new rules on nuclear plant maintenance,'
| |
| .,]'"-j+' Stness for duty, and high-level waste repository licertsing, and safety oversight
| |
| : n. y c.,... , * ., .
| |
| { of the over 100 nuclear power plants with operating licenses. It would not be
| |
| **I 1 '- .: . - '
| |
| , cw consistent with the Commission's statutorily mandated responsibilities to spend.
| |
| ; /
| |
| ,., 7,.. , f. *..; , time and resources on matters that are of no substantive regulatory signi6cance.
| |
| 3
| |
| ;;... .Q-- , .,
| |
| , ' '.J'
| |
| .... ' . . ' , .J, ;f,,..*, .,. ,...
| |
| ,- .. L ne Petidons Before Us i
| |
| . ~..,.f,. . .. .. ...- As lad'u **d above, we will take up all of the principal grounds that have
| |
| * ' ' . .- , . . ' ; 9 /;' ' , .! been asserted as bases for $2.758 rule waiver. These are the bankruptcy of
| |
| ,.s.'
| |
| , , , ? . .- ... ,., .. ;, , , 1 .q' ','.,,' . .'
| |
| i PSNH, New Hampshire's anti CWIP statute, and the cessation of or arrears in
| |
| , ; . .I project payments by some of the minority joint owners, including MMWEC.
| |
| . .. .. - a -
| |
| o . ,
| |
| . . . . , a ,o .- a. , Special Circumstances e .. 'x)
| |
| ' U ', T .T. . . S.
| |
| . . ,,, J. ., 3 0 Ihere is no question that the cucumstance of PSNH's bankruptcy.is unique to f ,f ,*'
| |
| Seabrook. De PSNH bankruptcy is the first utility bankruptcy since the Great
| |
| . - - . 3' ', y'T.? l-
| |
| *s' Q',f,,,, ., .-j, } *~sl .
| |
| Depression. Here is also no indication in the 1984 6nancial qualifications
| |
| .i ;1 ,
| |
| - l: , . . ., s #. .I rulemaking that utility bankruptcy was a condition taken into account. Dus we
| |
| . ,,* v;.,,,P. .
| |
| .n
| |
| ~<r~.;......4 n
| |
| . ', . * .;n,. . ; .
| |
| a
| |
| ..u*=, , ; ..j.. s , % , '. l}
| |
| .'. .;4 . .
| |
| /.'
| |
| d.,,s''.,..r,' .' . ....
| |
| e
| |
| . . l .; n c ,4 ,.
| |
| . .~. 597
| |
| .4 9
| |
| | |
| w- ,x ,x.. --,r- - - .-- , ,
| |
| ,.,n...,' . . ;;....g...,,7, o- .
| |
| ~-
| |
| o , , , . , .,
| |
| . ,.# .. p ;w. . ,Y,,, + , . . . , .. ,k . .
| |
| ...,~...
| |
| a ap . vp...nu. <
| |
| , - . .~.; i
| |
| ..=...~.,39..
| |
| ; s ,,.s g
| |
| . $ :.. :. . , . , . .#., y...- ,
| |
| w ,,,.f.
| |
| .> . ... .a , un.,;
| |
| , . . . . s.
| |
| : s. ..,.> . . , , ~ . . . ,..,. j.
| |
| 1, j
| |
| .mu
| |
| . . . '. .a . f, 2.,s,...c. - . . s *., . . . - ,r.
| |
| .s. ~ . , .
| |
| , f. .
| |
| o
| |
| ,,-y
| |
| : -i ..n. ' . . .. ~~
| |
| . ,a e~ 4.
| |
| r
| |
| .. n,' f.- <
| |
| 1 ,
| |
| s-e ., ,.
| |
| ..' . . ~ . - . s i . m- *~
| |
| m; . . ... ? e. '
| |
| .; v.
| |
| .9,, . w . *: ., , ,t,c, e 1;; g ,i . . , s j . ,f ;,. . .,. n..n. ,v.t . . t.; ,,.,.1.>.. ." . s . .. .s . n i:. . r. . . .:.. ., ; .. . , .
| |
| : e. ; . , , ,.r .. . ~*yy.;,,;,_..*.L..,.,z
| |
| . .. ,. c . c,,,, , .#
| |
| a.
| |
| . . . . p.
| |
| .w^
| |
| .. 9** .+. . , , . ,
| |
| .o
| |
| . ,.. -." , ., J .S.. .'.y p h :;; ' . , d .../ ? . :. . ..
| |
| ,c t;..-c an,. ' .1. k .a,.: :- -
| |
| . .h e-. ...
| |
| s.~ ' ... , ^.
| |
| ;* e . <
| |
| 1.* ;" - .c t p ,, ,. , s,, ,, e ,v ,v' i :. . u.
| |
| .y
| |
| , ' :y. ;, p . .J* ;f. , J
| |
| . .s.
| |
| : s. -
| |
| ': .'. 3 t
| |
| l
| |
| : c. .*
| |
| ,- *t
| |
| . .;# ,W l )
| |
| . .' ,, .t 7,
| |
| a . wj ;
| |
| ,. , nr . . ;. . i; .,:t. ., a.l .%. .h,. .; . .? , ..:,e , ,' . .-.- ;,y .
| |
| .~' ..
| |
| s e ,. .
| |
| .. . . r .,
| |
| , r, . ,,, Y: , . . ,..d';,' . G*DV d. fY,. D., . h*
| |
| . g'd .'.,9. , y.,. t,r. . ..g* . .j,,ic *,'."
| |
| ,r t,s . , it.r;, C.. .
| |
| ~ * . ..e , ?.
| |
| * w.. .
| |
| . .n . . ;. . n.:. .
| |
| i 1
| |
| believe that the t,eiup f of PSNH does present a special circumstance within
| |
| , P.".4, ..,.; O * ' %,'.p[ , ..W.@/' - ,'!"J-)." )~ U7.'y
| |
| , y . .
| |
| % 7. .", '
| |
| the meanmg of (2.758.
| |
| ',C'<T.. r. j . We reach the same result for the other rule waiver grounds. We do not Y . C .* .#$'Z,.V.,.j N
| |
| ?'",.';f)L,;.'f5;4.q~.u,%.yj.;j;-l:,'N .
| |
| believe that anti-CWIP statutes are the rule in the utility industry, and so we are p;;f.? . ..+. f .;.c r - (.;.
| |
| f.;,ec,;t',y, :, , , *< 9. . rJ'' N not persuaded by the record before us that anti-CWIP statutes present generic, as opposed a case-spectSc issues. lWoreover, there is no indicadon in the 1984
| |
| ]
| |
| 1
| |
| ''b'
| |
| ~
| |
| .dh,@, . ;.' ? J.4''.", Q . y Gnancial qualinentmaa rulemslang that anti-CWIP statutes were considered. j
| |
| : 9. g'*y II.? 1*/,Q[$M.W."y.,)'
| |
| ~
| |
| Plaally, the delay and cessados of pmject payments by sorse of the minority owners also appear to be uncommon and a maner not considered in the Anancial
| |
| . ' y.Ie.5..;.y yP.,g.,.lq..''?.,.;,7Qcb..n.Q.O..f..J
| |
| ,..QWn. 'y~
| |
| t .p;%.~W. w;M. M.... a . :.<.1..f,
| |
| " ;..J(M
| |
| .e f.6 ,;
| |
| quali8 cations rulemaking. ,
| |
| .$. 1G.. .,,*[;?;',.Y,&
| |
| : n. m,. .-c, .,
| |
| ...$. . . :... & N.f. , fe.! '. w.
| |
| : b. Other Reparementsfor Rule Walwr p .. .
| |
| y.T.'?;;b,. s.f' D.c..* .1. ?,C .R;.,.?.i d = y e Having decided that PSNH bankruptcy, anti-CWIP statutes, and delay and e.I cessanon of mmarity owner project payments do all present "specid circum-
| |
| '#l.k.d ' , *h*:. '.' ig'']. '.'
| |
| p 4, ',.~f. . ;j ,i j:-;: Q~ Fe.' 'stances," the next critical issue is whether any of these special circumstances f,i ', /. ~.. .C, , , N~[.9, .'t. 9J',3 undercuts the rationale for the 1984 anancial rinaHArad.= rule. , , ,-
| |
| .y
| |
| .. .. ' i J g,, +.. . @. n.'.. .; ?, .r. - n... . ..4
| |
| 'the amaneint rationale for the 1984 rule was that:
| |
| . , . . , .... , . .. ... ... .f. . . . . .s:. - ,
| |
| . q.i
| |
| .. ,evi d annmaal gentiacanons far en deanc mihuss a ihe opersons tiosase 2"'f.,YQ,,. a; .,7 ' {J a,y
| |
| ' Q. ' . . , . J .*. ..W
| |
| ,,,,, i, ,,,,,,,y w the abili y d as mihma e i. cover, e a estades desses, an 7 ' *I. , S,i.'I 1*?. -7 . . . M;, ,, 3 ' -}}
| |