ML24087A230

Exemption from Select Requirements of 10 CFR Part 73, Security Notifications, Reports, and Recordkeeping and Suspicious Activity Reporting

ML24087A230
Person / Time
Site:	Browns Ferry
Issue date:	04/18/2024
From:	Rivera-Verona A Plant Licensing Branch II
To:	Jim Barstow Tennessee Valley Authority
Green K
References
EPID L-2023-LLE-0086
Download: ML24087A230 (7)

Text

Watts Bar Exemption SER

April 18, 2024

James Barstow Vice President, Nuclear Regulatory Affairs and Support Services Tennessee Valley Authority 1101 Market Street, LP 4A-C Chattanooga, TN 37402-2801

SUBJECT:

BROWNS FERRY NUCLEAR PLANT, UNITS 1, 2, AND 3 - EXEMPTION FROM SELECT REQUIREMENTS OF 10 CFR PART 73, SECURITY NOTIFICATIONS, REPORTS, AND RECORDKEEPING AND SUSPICIOUS ACTIVITY REPORTING (EPID L-2023-LLE-0086)

Dear James Barstow:

The U.S. Nuclear Regulatory Commission (NRC, the Commission) has approved the requested exemption from specific requirements of Title 10 of the Code of Federal Regulations (10 CFR),

Part 73, Physical Protection of Plant and Materials, subpart T, Security Notifications, Reports, and Recordkeeping, for Browns Ferry Nuclear Plant, Units 1, 2, and 3, including the Browns Ferry Independent Spent Fuel Storage Installation (collectively BFN). This action is in response to the application submitted by Tennessee Valley Authority (TVA, the licensee), dated December 21, 2023 (Agencywide Documents Access and M anagement System (ADAMS) Accession No. ML23355A206), as revised by letter dated March 14, 2024 (ML24074A146). The application requested an exemption from the requirements of 10 CFR 73.1200, Notification of physical security events, paragraphs (a) through (t), 10 CFR 73.1205, Written follow-up reports of physical security events, paragraphs (a) through (e), 10 CFR 73.1210, Recordkeeping of physical security events, paragraphs (a) through (h), and 10 CFR 73.1215, Suspicious activity reports, paragraphs (a) through (f). This reques t also included an exemption from the current definitions for the terms Contraband and Time of Discovery in 10 CFR 73.2, Definitions.

On March 14, 2023, the NRC issued its notice in the Federal Register for the Enhanced Weapons, Firearms Background Checks, and Security Event Notifications (EWR) final rule (88 FR 15864). This final rule became effective April 13, 2023, with a compliance date of January 8, 2024.

The requirements for physical security event notifications, and the categories of physical security events and the timeframes by which the licensee must notify the NRC of these events, are set forth in 10 CFR 73.1200(a) through 10 CFR 73.1200(t).

The requirements for how licensees submit written follow-up reports following a licensees telephonic notification of a physical security event under 10 CFR 73.1200 are set forth in 10 CFR 73.1205(a) through 10 CFR 73.1205(e).

The requirements for recordkeeping of less significant physical security events and conditions adverse to security are set forth in 10 CFR 73.1210(a) through 10 CFR 73.1210(h).

J. Barstow

The requirements for how licensees report suspicious activity to the NRC and other federal agencies within a specified time are set forth in 10 CFR 73.1215(a) through 10 CFR 73.1215(f).

As part of the EWR final rule, the NRC added the definitions for Contraband and Time of Discovery to 10 CFR 73.2, Definitions, to help clarify the physical event notification requirements.

Summary of TVAs Basis for the Requested Exemption

TVA is requesting an exemption for BFN from the requirements in subpart T of the EWR final rule, and the definition Time of Discovery in 10 CFR 73.2, Definitions, as described above, that would defer TVAs compliance with those provisions until December 31, 2024, or 300 days after publication of final regulatory guides (RGs), whichever is later, to accommodate the licensees established training cycles, revise implementing procedures, and implement the established change management process. TVA is also requesting an exemption for BFN from using the new definition for the term Contraband in 10 CFR 73.2, Definitions, until the implementation date of rulemaking to disposition the underlying technical issues with this definition.

TVA is requesting an exemption from these requirements for BFN because of what it asserts are ambiguities and inconsistencies in both the final rule language and the supporting RGs. In support of the exemption request, TVA identified the following issues, among others, as ones that challenge its implementation for BFN of the new subpart T reporting requirements and certain new definitions in 10 CFR 73.2:

TVA stated that the introduction of the term conditions adverse to security within 10 CFR 73.1210 is undefined, and ambiguous, and will have implications for TVAs corrective action program (CAP) that currently defines specific events, situations, or occurrences, including security items, that result in a condition adverse to quality.

TVA stated that the new definitions of the terms Contraband and Time of Discovery in 10 CFR 73.2 expand on the existing definitions provided in NRC endorsed, Nuclear Energy Institute (NEI) 03-12, Template for the Security Plan, Training and Qualification Plan, Safeguards Contingency Plan, [and Independent Spent Fuel Storage Installation Security Program], Revision 7 (ML11301A066), and RG 5.76, Physical Protection Programs at Nuclear Power Reactors, Revision 1 (non-publicly available). The application of these expanded definitions will require changes to the methods of compliance with the requirements for identifying contraband and time of discovery.

TVA stated that the inconsistencies in RG 5.62, Physical Security Event Notifications, Reports, and Records, Revision 2, dated March 2023 (ML17131A285) associated with the implementation of 10 CFR 73.1200 for 15-minute and 4-hour notifications related to contraband, and 4-hour and 24-hour event notifications associated with the discovery that an authorized weapon is either lost or uncontrolled, creates the potential for confusion and human performance error.

TVA stated that there has been difficulty in implementing the requirement in 10 CFR 73.1215(c)(3)(iv) to establish a point of contact with the local Federal Aviation Administration (FAA) control tower due to lack of participation from the local control tower.

J. Barstow

TVA further states that due to these concerns it is not clear what it must do to implement certain rule requirements and bring BFN into full compliance with the rule. TVA further states that requiring it to come into compliance without full clarity on key parts of the rule would require it to make changes to its physical security plans and processes for BFN twice - once to come into compliance with its own interpretation of the final rule (without the benefit of the revised guidance currently being developed by NRC), and again when the revised NRC guidance addressing the identified ambiguities and inconsistencies is issued.

Two examples of where TVA asserts this duplicative work will be required are:

Revisions of associated procedures/processes, job aids, training materials and lesson plans that are used to describe and elaborate on reporting requirements.

The re-training of impacted station personnel with updated information contained within the revised guidance documents.

TVA believes that the burden associated with this duplication of work is unnecessary while the NRC clarifies these ambiguities and inconsistencies and, therefore, affects efficient and effective implementation of the rule.

TVA stated that if the exemption is granted, it will continue to comply with the security event reporting requirements for BFN as they existed prior to March 2023, consistent with its current NRC-approved security plan and its site security procedures. TVA will continue to implement its current CAP process that identifies conditions adverse to quality as they relate to the security program. Additionally, it will continue to use the definitions for the terms Contraband and Discovery (time of) embodied in the BFN site security plan, consistent with how these terms are currently defined in RG 5.76, Revision 1. Consistent with the current BFN site security plan, TVA will also implement the requirements for reporting the suspension of security measures that were in the (now reserved) 10 CFR 73.71 prior to March 2023. TVA will continue to implement the requirements in its BFN site security plan as currently reviewed and approved by the NRC.

Finally, TVA stated as part of its basis for justifying the exemption that it will continue making voluntary reports of suspicious activities pending clarification of the EWR final rule.

NRC Staff Evaluation of the Exemption Request

Pursuant to 10 CFR 73.5, Specific exemptions, the Commission may, upon application by any interested person or upon its own initiative, grant exemptions from the requirements of 10 CFR Part 73, when the exemptions are authorized by law, will not endanger life or property or the common defense and security, and are otherwise in the public interest.

TVA has advanced several bases in support of the exemption request for BFN. For example, TVA, in their request, has identified certain examples in 10 CFR 73.1200, 73.1210, 73.1215, and 10 CFR 73.2 to support the technical basis for an exemption from the provisions of these requirements. TVA has not identified any specific ambiguities and inconsistencies with respect to 10 CFR 73.1205. The various reporting and event notification requirements in subpart T and the two definitions in 10 CFR 73.2 for which TVA seeks an exemption constitute an integrated framework for reporting and documenting security events, an approach which is both risk-informed and graded. Although TVA has identified only a small number of ambiguities or inconsistencies in 10 CFR 73.1200, 73.1210, 73.1215, and 10 CFR 73.2, it asserts that without clarification on how these ambiguities and inconsistencies will be resolved by the NRC, BFN will J. Barstow

have to update its security program, including procedures, processes, and training, to incorporate its understanding of what is required to come into compliance with the rule. TVA further asserts that once the NRC has implem ented revisions to the rule and guidance to address these ambiguities and inconsistencies, BFN will again have to revise its security program to incorporate those clarifications to ensure continued compliance with the rule. This would entail an unduly resource-intensive bifurcation of TVAs otherwise integrated process for coming into compliance with the rule. In particular, the updated 73.2 definitions of Time of Discovery and Contraband are a foundational and cross-cutting concept in TVAs program for implementing the updated notifications, reports, and recordkeeping requirements of revised 10 CFR 73.1200, 73.1205, 73.1210, and 73.1215. Accordingly, the exemption would enable TVA to efficiently consolidate into a single, systematic process that would otherwise involve partial duplication of efforts to come into compliance with the rule. While not relying on all of TVAs claims in support of the exemption request, and considering that the issuance of the targeted clarifications to the identified regulatory guidance is well underway, the NRC staff agrees with TVA that the requested exemption would avoid unnecessary resource burden and facilitate the effective and efficient implementation of the rule.

The NRC staff finds that the requested duration for the exemption is appropriate for the licensee to review the revised NRC staff guidance, revise procedures, provide training to site personnel in accordance with established training cycles, and implement the established change management process. This will facilitate efficient and effective implementation of a new graded approach for reporting and document ing security events and activities to the NRC and other federal agencies.

During that time, TVA will instead continue to implement its existing NRC-approved security plan for BFN, which implements the NRCs security event reporting requirements that existed prior to the publication of the EWR final rule, and TVA will also continue making voluntary suspicious activity reports. Because of these actions by the licensee, the NRC staff finds that TVAs measures, implemented until the later of December 31, 2024, or 300 days after the NRCs publication of the final RGs, will provide high assurance of adequate protection. The NRC staff notes that the proposed Revision 3 to RG 5.62 was published for public comment as DG-5080, Physical Security Event Notifications, Reports and Records, on October 27, 2023 (88 FR 73767), and proposed Revision 1 to RG 5. 87, Suspicious Activity Reports Under 10 CFR Part 73, was published for public comment as DG-5082, Suspicious Activity Reports, on October 27, 2023 (88 FR 73769). For these reasons, and as documented in the findings below, the NRC staff has determined that granting the exemption is appropriate.

The NRC staff has reviewed the exemption request and finds that granting the proposed exemption will not result in a violation of the Atomic Energy Act of 1954, as amended, or other laws. Therefore, in accordance with 10 CFR 73.5, the NRC staff finds that the exemption is authorized by law.

The NRC staff has also determined that TVA will maintain a security posture that continues to ensure safety and security at BFN through the implementation of its current NRC-approved physical protection program using the reporti ng and recordkeeping requirements that existed prior to the publication of the EWR final rule and its continued voluntary reporting of suspicious activity. Therefore, in accordance with 10 CFR 73.5, the NRC staff finds that granting the proposed exemption will not endanger life or property or the common defense and security.

Finally, based on the identified inconsistencies and ambiguities discussed above in the rule text and regulatory guidance, the NRC staff has determined that temporarily delaying compliance J. Barstow

with the specified subset of Part 73 requirements will reduce unnecessary burden on site personnel and resources, while still facilitating the effective implementation of the EWR final rule. Therefore, the NRC staff finds that granting the proposed exemption is in the public interest.

Environmental Considerations

The NRCs approval of the exemption to security requirements belongs to a category of actions that the Commission, by rule or regulation, has declared to be a categorical exclusion, after first finding that the category of actions does not individually or cumulatively have a significant effect on the human environment. Specifically, the exemption is categorically excluded from further analysis under 10 CFR 51.22(c)(25).

Under 10 CFR 51.22(c)(25), the granting of an exemption from the requirements of any regulation of Chapter I is a categorical exclusion provided that (i) there is no significant hazards consideration; (ii) there is no significant change in the types or significant increase in the amounts of any effluents that may be released offsite; (iii) there is no significant increase in individual or cumulative public or occupational radiation exposure; (iv) there is no significant construction impact; (v) there is no significant in crease in the potential for or consequences from radiological accidents; and (vi) the requirements from which an exemption is sought involve:

recordkeeping requirements; reporting requirements; inspection or surveillance requirements; equipment servicing or maintenance scheduling requirements; education, training, experience, qualification, requalification or other employm ent suitability requirements; safeguard plans, and materials control and accounting inventory scheduling requirements; scheduling requirements; surety, insurance or indemnity requirements; or other requirements of an administrative, managerial, or organizational nature.

The NRC staff has determined that the granting of the exemption request involves no significant hazards consideration because deferred compliance for the specific requirements described in the licensees submittal, as supplemented, does not (1) involve a significant increase in the probability or consequences of an accident previously evaluated; or (2) create the possibility of a new or different kind of accident from any accident previously evaluated; or (3) involve a significant reduction in a margin of safety. The exempted security regulations are unrelated to any operational restriction. Accordingly, there is no significant change in the types or significant increase in the amounts of any effluents that may be released offsite, and no significant increase in individual or cumulative public or occupational radiation exposure. The exempted regulations are not associated with construction, so there is no significant construction impact.

The exempted regulations do not concern the source term (i.e., potential amount of radiation in an accident) nor mitigation. Thus, there is no significant increase in the potential for, or consequences of, a radiological accident. The requirements of 10 CFR 73.2, 10 CFR 73.1200, 10 CFR 73.1205, 10 CFR 73.1210, and 10 CFR 73.1215, as described in the licensees submittal, as revised, involve recordkeeping requirements, reporting requirements, safeguard plans, and other requirements of an administrat ive, managerial, or organizational nature.

Therefore, pursuant to 10 CFR 51.22(b) and (c)(25), no environmental impact statement or environmental assessment need be prepared in connec tion with the approval of this exemption request.

J. Barstow

Conclusions

Accordingly, the NRC has determined that pursuant to 10 CFR 73.5, the exemption is authorized by law, will not endanger life or property or the common defense and security, and is otherwise in the public interest. Therefore, the NRC hereby grants the licensees request for an exemption from the requirements of 10 CFR 73.1200(a) through (t), 10 CFR 73.1205(a) through (e), 10 CFR 73.1210(a) through (h), 10 CFR 73.1215(a) through (f), and the revised definitions for the terms Contraband and Time of Discovery in 10 CFR 73.2.

This exemption from the requirements of 10 CFR 73.1200(a) through (t), 10 CFR 73.1205(a) through (e), 10 CFR 73.1210(a) through (h), 10 CFR 73.1215(a) through (f), and the revised definition for the term Time of Discovery in 10 CFR 73.2, is effective from April 18, 2024, through December 31, 2024, or 300 days after publication of the final RGs (specifically, RG 5.62, Revision 3 and RG 5.87, Revision 1), whichever is later. The exemption from the revised definition for the term Contraband in 10 CFR 73.2 is effective until the implementation date of the revised rulemaking.

Sincerely,

Aida Rivera-Varona, Deputy Director Division of Operating Reactor Licensing Office of Nuclear Reactor Regulation

Docket Nos. 50-259, 50-260, 50-296, and 72-052

cc: Listserv

J. Barstow

SUBJECT:

BROWNS FERRY NUCLEAR PLANT, UNITS 1, 2, AND 3 - EXEMPTION FROM SELECT REQUIREMENTS OF 10 CFR PART 73, SECURITY NOTIFICATIONS, REPORTS, AND RECORDKEEPING AND SUSPICIOUS ACTIVITY REPORTING (EPID L-2023-LLE-0086) DATED APRIL 18, 2024

DISTRIBUTION:

PUBLIC EMiller, NRR RidsACRS_MailCTR Resource SKoenick, NMSS RidsNrrDorlLpl2-2 Resource GBowman, NSIR RidsNrrLAABaxter Resource VWilliams, NSIR RidsNrrPMBrownsFerry Resource JWillis, NSIR RidsRgn2MailCenter Resource TKeene, OEDO RidsNmssDfm Resource HRodriguez, OEDO RidsNmssRefs Resource

Accession No.: ML24087A230 OFFICE NRR/DORL/LPL-2/PM NRR/DORL/LPL2-2/LA NSIR/DPCP/MSB/BC NAME KGreen ABaxter JCuadrado DATE 03/27/2024 04/01/2024 03/22/2024 OFFICE NMSS/DFM/STLB/BC OGC - NLO w/edits NRR/DORL/LPL2-2/BC NAME YDiaz-Sanabria NStAmour DWrona DATE 04/03/2024 04/12/2024 04/18/2024 OFFICE NRR/DORL/DD NAME ARivera DATE 04/18/2024 OFFICIAL RECORD COPY