ML20237K011

Summary of 870422 Nuclear Utility Plant Life Extension Steering Committee & AIF Environ Studies Project Briefing of Mitre on AIF/NESP-040, Regulatory Considerations for Extending Life.... Viewgraphs & List of Attendees Encl

ML20237K011
Person / Time
Issue date:	04/30/1987
From:	Cleary D NRC OFFICE OF NUCLEAR REGULATORY RESEARCH (RES)
To:	NRC OFFICE OF NUCLEAR REGULATORY RESEARCH (RES)
Shared Package
ML20237J938	List: IA-87-350, Notifies of Rescheduled Meeting on 870205 W/Industry Steering Committee for Plant Life Extension in Bethesda,Md to Discuss Industry Status & Programs.Meeting Agenda Encl ML20237J934 ML20237J956 ML20237J977 ML20237K011 ML20245A159
References
FOIA-87-350 NUDOCS 8708190055
Download: ML20237K011 (32)

Text

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c UNITED STATES

!" yq j j NUCLEAR REGULATORY COMMlWlON W ASHINGTON. D. C. 20555

\\ p.. 3 j APR 3 01987 MEMORANDUM FOR:

File - License Renewal FROM:

Donald P. Cleary, Senior Task Manager Reactor and Plant Safety Issues Branch Division of Reactor and Plant Systems, kf.S

SUMMARY

OF NUPLEX/AIF BRIEFING OF MITRE ON AIF/NESP-040 i

On April 22, 1987 representatives of NUPLEX (Nuclear Utility Plant Life l

Extension) Steering Committee and the Atomic Industrial Forum National l

Environmental Studies Project (NESP) briefed the MITRE Corporation staff I

members who are assisting NRC developing license renewal policy on the key conclusions reported in the NESP study " Regulatory Considerations for Extending the Life of Nuclear Power Plants" (AIF/NESP-040, December 1986).

The meeting, held at MITRE in McLean, Va., began at 9:30 a.m. and concluded at 3:30 p.m.

A list of attendees is attached.

The presentation followed the attached set of 27 slides.

Questions and discussions were interspersed throughout the presentation.

The presentation l

covered the following broad areas.

I Study scope and objectives I

Study staffing and schedule

- A proposed three tier process for developing policy, regulations and regulatory guidance 1

Underlying themes for a license renewal policy Continuity Extant licensing basis Technical aspects of license renewal Procedural aspects of license renewal Industry life extension organizations and programs Timing considerations relative to life extension and license renewal Although all of the topics presented were covered in AIF/NESP-040 several conclusions were better explained.

These points include:

In most instances utilities will require a firm (but not unqualified) license renewal decision from NRC at least 10 years prior to the end of the existing license.

This is based on lead time requirements for construction of replacement capacity and on prudency considerations l

relative to State rate regulation.

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- The license renewal process can be built on the existing process of evaluation, maintenance and upgrading of components and systems followed by utilities and regulated j

by NRC.

This is the " continuity theme."

)

1

.0 mu]I) jyA Donald P. Cleary, Seniord,,ask Manager i

Reactor and Plant Safety Issues Branch l

Division of Reactor and Plant Systems, RES l

q Attachments:

As stated 1

i i

l

LICENSE RENEWAL MEETING i

APRIL 22, 1987 HAtt Organization Telechone No.

Donald P. Cleary NRC 301-492-8547 Karl Kniel NRC 301-492-4705 Jit Vora NRC 301-443-7714 Bob Bosnak NRC 301-443-7908 Lester Ettlinger MITRE' 703-883-7646 Shelley Ovritsky Grove 301-258-2727 Mary G. Bhardwaj Arkansas Power 501-329-5926 Cynthia L. Tully AIF 301-654-9260 Joseph Gallo Isham, Lincoln & Beale 202-833-9730 i

George Malone MITRE 703-883-6377 D.R. Hostetler VA. Power (RUPLEX) 804-273-5002 G. Neils No. States Power (NUPLEX) 612-337-2007 Bill McDowell GAO 301-353-3975 Bob Coleman GAO 301-353-3975 Rodney Lay MITRE 703-883-6514 Woody Cunningham MITRE 703-883-6203 Shiv Seth MITRE 703-883-5440 Allen Hughes MITRE 703-883-6064 Patricia S. Abel MITRE

-703-883-6490 Herbert Feinroth Grove 301-840-8415.

Robert Walker Grove 301-258-2727 Jay R. Kramer Fried Frank, etc.

202-639-7000 Marcus A. Rowden Fried Frank, etc.

202-639-7000 Brian Sheron (pm only)

NRC 301 402-7303 l

_ - _ _ _ _ _ _ _ _ _ _ _ - _ _ _ _ _ = _ _ _ _

(_

t s

4 A PRESENTATION ON THE REGULATORY h

ASPECTS OF LICENSE RENEWAL i

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April 22, 1987 i

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A 4

SLIDE # 1 TOPICS PURPOSE OF MEETING BACKGROUND OF NESP STUDY

' CONCLUSIONS RE: FRAMEWORK OBSERVATIONS i

THEMES RE: APPROACH TECHNICAL ASPECTS OF LICENSE RENEWAL-PROCEDURAL ASPECTS OF LICENSE RENEWAL QUESTIONS & ANSWERS i.

J I

1 CURRENT STATUS OF INDUSTRY EFFORTS ON LIFE EXTENSION FUTURE INFORMATION EXCHANGE MEETINGS l

)

e I

___..____._.__.__m-

SLIDE #2 PURPOSE OF MEETING ll.

TO PRESENT KEY CONCLUSIONS OF THE RECENT NESP STUDY,

" REGULATORY CONSIDERATION FOR EXTENDING THE LIFE OF NUCLEAR POWER PLANTS" (AIF/NESP - 040, December 1986)

- NESP REPORTIS AN INITIAL EXAMINATION OF KEY ISSUES

- THE CONCLUSIONS AND ANALYSES IN NESP-040 SHOULD BE VIEWED AS A USEFUL STARTING POINT FOR THE DEVELOPMENT AND COMMUNICATION OF ISSUES AND KNOWLEDGE CONCERNING LIFE EXTENSION AND LICENSE RENEWAL.

TO EXPLAIN THE RATIONALE BEHIND THESE CONCLUSIONS TO PROVIDE NRC'S CONTRACTOR (MITRE) AN OPPORTUNITY TO ASK OUESTIONS OF THE SPONSORS AND AUTHORS OF NESP-040 AS A PRELUDE TO MITRE'S FORTHCOMING RESEARCH EFFORTS TO EXPLORE I

LICENSE RENEWAL POLICY OPTIONS FOR THE NRC i

P i

slide # 3 ATOMIC INDUSTRIAL FORUM /

l NATIONAL ENVIRONMENTAL STUDIES PROJECT STUDY SCOPE & OBJECTIVES Identify issues to be Addressed by Utilities and by NRC j

in Establishing Federal Policy for License Renewal Evaluate issues and Recommend Specific Policy Alternatives l

Identify Timing issues Associated with License Renewal l

Assess Utility and NRC Actions to Arrive at License l

Renewal Policy, and Provide a Roadmap for Taking Such l

Actions l

l t

__.-m.__ _ _ _ _. _. _. _ _. _. _. _.. _

4

slide # 4 AIF/ NESP SCOTT LEIPER - PROJECT MANAGER MELINDA RENNER - MANAGER, SPECIAL PROJECTS -

I AIF/ NESP TASK FORCE CHAIRMAN -

DENNIS COX SOUTHERN CALIFORNIA EDISON

- MEMBERSHIP 13 UTILITY SPECIALISTS 1

A-E REPRESENTATIVE l

1 CONSULTANT REPRESENTATIVE 4

NSSS VENDOR REPRESENTA"'VES 1

DOE REPRESENTATIVE 1

EPRI LIAISON l

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slide # 5 CONTRACTOR

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l GROVE ENGINEERING INC.

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FRIED, FRANK, HARRIS, SHRIVER AND JACOBSON TECHNICAL RESEARCH R. WALKER /C. NEGIN/

H. FEINROTH I

LEGAL RESEARCH M. ROWDEN/J. KRAEMER:

PROJECT ADVISORY GROUP:

J. M. HENDRIE (CONSULTANT - FORMER NRC CHAIRMAN) i 1

l C.LARSON (NSP - VICE PRESIDENT) l J. T. RHODES (VIRGINIA POWER - VICE PRESIDENT)

I M. SHAW (CONSULTANT) 1 W. R. STRATTON (STRATTON & ASSOC.- FORMER ACRS MEMBER) l l

l J

slide # 6 MILESTONES OCTOBER 1985 STUDY INITIATED FEBRUARY 198S KEY ISSUES IDENTIFIED AND PRESENTED TO AIF NESP TASK FORCE-APRIL 1986 DRAFT REPORT REVIEWED I

WITH PROJECT ADVISORY l

GROUP l

l JUNE 1986 DRAFT REPORT REVIEWED l

WITH AIF NESP TASK FORCE J

i

'FOR COMMENT JULY 1986 AIF TASK FORCE COMPLETE REVIEW AND COMMENT ON REPORT AUGUST 1986 GROVE ENGINEERING REVISE AND SUBMIT FINAL REPORT OCTOBER 1986 NESP TECHNICAL ADVISORY GROUP _ APPROVAL DECEMBER 1986 FINAL REPORT PUBLISHED

SLIDE # 7 I

CONCLUSION RE: PROCESS FOR POLICY DEVELOPMENT l

(CHAPTER 2-APPROACH AND SCHEDULE) t FRAMEWORK OBSERVATIONS AD HOC APPROACH VERSUS FORMAL POLICY MECHANISM RECOMMENDED THREE' TIER APPROACH-WHATITIS AND RATIONALE TIERS 1 AND 2-POLICY STATEMENT AND CHANGES TO

' REGULATIONS TIER 3-IMPLEMENTING PROCEDURES AND GUIDES u_____.

e SLIDE (/ 8 1

I First Tier Establish Polley

. principles and objectives j

= scope and standards for license renewal

. review time application timing e

. Identify regulations to be changed

. pubil:: comment

[

V SeSend Tier:

l Modify Regulations

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. modify timely re,ewal period 10CFR50.51, need for a plant specific EIS?

. use of amendment versus relicensing

. other modifications identitled Dy the C4,:nmission

. public comment V

Third Tier:

Provide Guidance To Licensees (examples only) i contents of a submittal safety review methods e

evaluations of degradation based on operating records

=

evaluations of degradation based on examinations

'. Inspection A tect in fleu of records

= evidence of non degradation for various materiale Three Tiered Approach To Estabilshing A License Renewal Process

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SLIDE # 10 t

l THEMES RE: APPROACH (CHAPTER 5 - SECTIONS 5.2 TO 5.9)

THEME 1 - THE CONTINUITY THEME

" EXTENDING PLANT LIFE BEYOND 40 YEARS IS A REAFFIRMATION OF THE ONGOING AND CONTINUOUS PROCESS OF HARDWARE RENEWAL THAT IS AN INTEGRAL PART OF EVERY NUCLEAR POWER PLANT'S OPERATING PROGRAM...

THE PRACTICE OF FOCUSING ON SPECIFIC DEGRADATION MECHANISMS AND ESTABLISHING CRITERIA TO ASSURE CONTINUED SAFETY OF THE PUBLIC IS THUS ALREADY AN ESTABLISHED POLICY AT THE NRC. LICENSE RENEWAL CAN BE VIEWED AS A CONTINUATION OF THIS POLICY, AND AN OPPORTUNITY TO OVERSEE ITS OVERALL APPLICATION TO BE SURE NOTHING HAS BEEN i

MISSED."

THEME 2 THE EXTANT LICENSING B ASIS CONCLUSION

" BASED ON THE OVERALL SAFETY RECORD OF NUCLEAR POWER PLANTS DURING THEIR INITIAL TERMS, IT DOES NOT SEEM APPROPRIATE FOR NRC TO INCLUDE NEW CRITERIA IN THE SAFETY EVALUATION OF INDIVIDUAL COMPONENTS OR STRUCTURES FOR UCENSE RENEWAL ITIS RECOMMENDED THAT THE OVERALL COMMISSION POLICY BE ESTABLISHED ON THIS PREMISE."

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SLIDE # 11 THEME RE: APPROACH -The Continuity Theme i

OWNERS ALREADY PERIODICALLY EVALUATE MATERIAL CONDITIONS 4

AND OWNERS UPGRADE AND MAINTAIN HARDWARE BASED ON THESE PERIODIC EVALUATIONS

)

NRC OVERSEES THE OWNER PROGRAMS TO MAINTAIN THE i

l MATERIAL CONDITION OF THE PLANT k

THE PERIODIC OWNER EVALUATION PROGRAMS ALSO PROJECT FUTURE PERFORMANCE l

LIFE EXTENSION EVALUATIONS MERELY LEMGTHEN THE PROJECTION TIME FRAME LICENSE RENEWAL EVALUATIONS LOOK AT THE SAFETY RELATED ASPECTS OF SUCH OWNER EVALUATIONS i

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SUMMARY

, THE " CONTINUITY" THEME SAYS THAT AN EVALUATION FOR LICENSE RENEWAL IS REALLY AN EXPANSION OF i

WHAT THE LICENSEE ALREADY DOES PERIODICALLY.

THE METHOD USED TO CONDUCT THE PERIODIC EVALUATIONS, AND THE SPECIFIC ONE FOR LICENSE RENEWAL, CAN TAKE MANY DIFFERENT FORMS.

'IF NEW EVALUATION METHODS, CODES AND STANDARDS AND REGULATORY APPROACHES ARE REQUIRED FOR AGING,THEY ARE l

NEEDED DURING THE INITIAL TERM AND NOT JUST FOR LICENSE l

RENEWAL. THEY SHOULD NOT BE TIED TO LICENSE RENEWAL.

THEREFORE, LICENSE RENEWAL ITSELF IS NOT A " WATERSHED" j

EVENT FROM AN ENGINEERING POINT OF VIEW. THE REGULATORY PROCESS SELECTED FOR LICENSE RENEWAL SHOULD BE l

ESTABLISHED ACCORDINGLY.

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ALTERNATIVE CONSIDERED THE NESP STUDY CONCLUDED THAT SUBJECTING THE ENTIRE PLANT TO A THOROUGH AND COMPREHENSIVE SAFETY EVALUATION, EITHER DETERMINISTIC OP PROBABLISTIC, OR SOME COMBINATION, WAS NOT RECOMMENDED FOR SEVERAL REASONS:

l OPERATING EXPERIENCE AND DATA ON THE CONTINUING MATERIAL CONDITION OF THE PLANT ARE A MORE RELIABLE INDICATION OF SAFETY THAN ANALYSES OF HYPOTHETICAL EVENTS.

SUCH AN APPROACH IS INCONSISTENT WITH THE REGULATORY POSITION J

WHICH SAYS THE PLANT IS SAFE ON THE 40TH YEAR OF OPERATION.

t ANY CONCERNS ABOUT THE OVERALL SAFETY OF THE PLANT AFTER YEAR 40, l

WOULD ALSO BE RELEVANT TO EVALUATING T}-lE PLANT DURING ITS INITlAL l

TERM. THE OWNERS' AND REGULATORS' ACTIONS TO ASSURE SAFETY DURING THE INITIAL TORM, MUST, BY DEFINITION, BE SUFFICIENT TO ASSURE f

SAFETY DURING THE EXTENDED TERM.

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SLIDE # 14 1

THEMES RE: APPROACH -The Licensina Basis l

j RATIONALE SIM:LAR TO CONTINUITY RATIONALE IF PUBLIC SAFETY IS PROTECTED AT YEAR 40...ALSO PROTECTED AT YEAR 41 l

IF NEW INFORMATION DEVELOPS AFTER INITIAL LICENSING, NRC l

l APPLIES ON CASE B ASIS...DOESNT WAIT FOR RENEWAL l

TMI ACTION PLAN ITEMS PRESSURIZED THERMAL SHOCK CONSISTENT WITH CURRENT PRACTICE TO APPLY HIGHER STANDARDS TO NEWER PLANTS, WHILE ALLOWING OLDER I

PLANTS TO CONTINUE OPERATING UNDER PRIOR STANDARDS l

CURRENT NEW SOURCE PERFORM ANCE STANDARDS FOR FOSSIL PLANTS NAVAL PLANTS SAFETY IS COMBINATION OF OPERATING SKILL AND MATERIAL CONDITION OF PLANT. OLDER PLANTS HAVE LONG TERM DEMONSTRATION OF SAFETY VIA OPERATING RECORD O

_.____-____-_____m

SLIDE # 15 TECHNICAL ASPECTS OF LICENSE RENEWAL PRESUMPTION - CONTINUITY THEME IS ACCEPTED SCREENING PROCESS For Owner: system-by-system review for age-related degradation For NRC: that subset of owner evaluation which affects safety For Both: identify subsubset which involves routine inspection, maintenance, replacement. Assure program remains effective.

Remaining components / systems need to have special evaluations l

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COMPONENT EVALUATION PROCESS Key is to evaluate and project performance of remaining

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t components against approved design criteria. Use operational and inspection data, and analytical tools.

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Use generic methods where possible... industry Topical Reports Codes and standards amended as appropriate l

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I SLIDE # 16 2

THE B ACKFIT RULE i

If,in projecting the future performance of a key component, NRC chooses to use new technical criteria, 'Backfit Rule should apply.

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- PLANT UPGRADES AND MODIFICATIONS

- OPERATING EXPERIENCE Main rationale for selecting review process and criteria...

Therefore, should consider in renewal review.

The most relevant information which supports engineering 4

determination on material condition of plant.

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Maintenance'and inspection results and data - system by system.

Operational performance of entire systems as evidence of continued satisfactory openation.

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I A__-_-__----_-.-_

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SLIDE # 17 i

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ENV!RONMENTAL REPORT 1

Evaluate e.ny changes in site factors - cooling water, etc.,

i which could Affect safe plant performance.

Evaluate efforts to minimize worker exposure and projected future exposure.

Basis for NRC environmental assessment.

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PROCEDURAL ASPECTS OF LICENSE RENEWAL

- NEPA CONSIDERATIONS PEIS EIS versus EA l

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-TIMELY RENEWAL DOCTRINE l

- HEARINGS 1

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NATURE l

TIMING 1

- EFFECTIVE DATE OF RENEWED LICENSE TACK-ON 1

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SLIDE # 21 INDUSTRY LIFE EXTENSION ORGANIZATIONS NUMARC - EXECUTIVE OVERSIGHT NUPLEX STEERING COMMITTEE - OVERALL INDUSTRY COORDINATION AND INTERFACE WITH NRC TECHNICAL SUBCOMMITTEE LICENSING SUBCOMM117EE CODES AND STANDARDS SUBCOMMITTEE OWNERS GROUPS (B&W, BWR, CE, W)

EPRI DOE l

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CONTRACTORS l

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. SLIDE # 22 NUPLEX OBJECTIVES COORDINATE INDUSTRY, DOE, EPRI PROGRAM EFFORTS DEVELOP GENERIC UTILITY ASSISTANCE SEEK REGULATORY POLICY, FRAMEWORK, PROCESS r

- CLEAR. PREDICTABLE, WORKABLE IN PLACE ON TIME TO MEET INDUSTRY NEED REASONABLE APPLICATION PROCESS TIME COMPATIBLE WITH UTILITY PLANNING CYCLE LEAD TIME PROVIDE A FOCUS FOR RAPIDLY GROWING INDUSTRY INTEREST AND PARTICIPATION l

OPTIMl2ES RESOURCE REQUIREMENTS FOR BOTH INDUSTRY AND NRC 4

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SLIDE # 23 I

NUPLEX PROGRAM i

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!N ORDER TO PLAN FOR FUTURE POWER NEEDS, SOME OWNERS WILL NEED LICENSE RENEWAL IN HAND BY 1995.

l FlRM NRC POLICY AND PROCESS FOR LICENSE RENEWAL ARE NEEDED IN 1991 TO SUPPORT PREPARATION, REVIEW, AND APPROVAL OF THE FIRST APPLICATIONS.

l NRC'S RECENT EFFORTS TO ACCELERATE DEVELOPMENT OF LICENSE RENEWAL POLICY ARE APPRECIATED BY THE INDUSTRY.

l l

l NUPLEX STEERING COMMITTEE EFFORTS FOCUS ON GENERIC l

ACTIVITIES SO OWNERS CAN USE COMMON TECHNIQUES FOR LIFE j

EXTENSION EVALUATIONS.

A GENERIC APPROACH IS ALSO DESIREABLF. FOR REGULATORY REVIEW BY NRC.

THE DEVELOPMENT OF AN EFFICIENT AND STABLE LIC5NSE RENEWAL PROCESS WILL BE OF BENEFIT TO BOTH THE INDUSTRY AND THE NRC THEREFORE, WE BELIEVE THAT CLOSE INTERACTION BETWEEN NUPLEX AND NRC IS ESSENTIAL.

THE NUPLEX APPROACH DRAWS HEAVILY ON THE RECOMMENDATIONS OF THE AIF/NESP STUDY ON THE REGULATORY ASPECTS OF LIFE EXTENSION.

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SLIDE # 25 OVERVIEW OF PLANNED STEERING COMMITTEE ACTIVITIES 1.

TECHNICAL SUBCOMMITTEE ACTIVITIES b

EXISTING PILOT STUDIES

. VARIANCE STUDIES 3

INDUSTRY TOPICAL REPORTS AND NRC ITERATION IDENTIFY AND MONITOR RESOLUTION OF TECHNOLOGY ISSUES PLANNING AND INFORMATION SYSTEMS DECISIONMAKING TOOLS GENERIC METHODOLOGIES 2.

CODES AND STANDARDS SUBCOMMITTEE ACTIVITIES LIAISON WITH CODES AND STANDARDS COMMITTEES LIAISON WITH STEERING COMMITTEE SUBCOMMITTEES

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LICENSING SUBCOMMITTEE ACTIVITIES l

TIMINGISSUES AND SCHEDULES i

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