ML20215E620

Provides First Quarterly Progress Rept on Prelicensing Phase of DOE Civilian High Level Radwaste Mgt Program.Current Status of Seven Action Items Re Key Aspects of Nrc/Doe Prelicensing Program Addressed in Particular

ML20215E620
Person / Time
Issue date:	06/08/1987
From:	Stello V NRC OFFICE OF THE EXECUTIVE DIRECTOR FOR OPERATIONS (EDO)
To:
References
TASK-PII, TASK-SE SECY-87-137, NUDOCS 8706220047
Download: ML20215E620 (42)

Text

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pp Krt POLICY ISSUE l

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June 8, 1987 (InfOrmation}

szcy-87-137 F,or:

The Comissioners o

From:

Victor Stello, Jr.

l Executive Director for Operations

Subject:

FIRST QUARTERLY PROGRESS REPORT ON THE PRE-LICENSING PHASE OF CCE'S CIVILIAN HIGH-LEVEL RADI0 ACTIVE WASTE MANAGEMENT PROGRAM

Purpose:

To provide the Commission with the first ouarterly progress report eri the pre-licensing phase of DOE's Civilian High-Level

. Radioactive Waste Management Program, Summary:

The NRC staff has completed the first quarterly progress report on the pre licensing phase of DOE's Civilian High-Level Radioactive Waste Managelsent Program.

This progress report was requested by the Commission and referenced in the Chairman's April 7, 118? Jetter to DOE transmitting the NRC staff's comments on the Draft Missien Plan Amenoment, issued in January l

-1987.

The t'ocus of this report is on the current status of I

seven action items which cover the key aspects of the NRC/00E pre-licensing consu?tation prosram.

Focusing on these items should provide the Commission with the overall NRC staff perspective on the progress of the repository program. Also, this report will provide information to the Commission on NRC/ DOE interactions ' prior to meeting with the Director of DOE's Office of Civilian Radioactive Waste Management.on June.11, 1987.

Contact $:

Wayne C. Waiker, NMSS 427-4686 Robert L. Johnson, NMSS 427-4674 o

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Background:

In the Draft Mission Plan Amendment 'of January 1987, the DOE committed to six activities to make maximum use'of the near-term.

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schedule 1 extension'and to increase confidence that the' I

Commission's review of the license application could be-completed within the sthree year period required by the Nuclear L Waste Policy Act-(NWpA) of 1982.

The.six activities listed-in the DOE Draft Mission plan Amendment are:

1.

Interactions with the Nuclear Regulatory Commission on technical issues, using available options (e.g.,

e rulemaking) to resolve issues.

2.

The' development and' operation of a: licensing support system that will provide storage and retrieval for;specified lirensing information.

'3.

T' implementation of, and intsractions with the Nuclear -

-R%;1atory Commission on, 'a quality-assurance program that will fully satisfy the Commission's: requirements"for. the acquisition of data used.in the licensing 1 process.

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The implementation of'the issue-resolution strategy, which 1s' based on the. performance-allocation process requested by

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the Nuclear Regulatory C, omission.

5.

Provisions for greater involvement by the States an'd affected Indian Tribes in the technical program.

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The implementation of a program cf licensing tcpical reports,. which will allow the NRC staff to consider various issues before the submittal of the license application ano should gredtly reduce the volume of material to be included -

in the app 11 cation.

Five of the six activities directly correlate with the six

. action items identified in NRC comments on the-draft project Decision Schedule (pDS) 06ted October 24, 1985, as needing to be j

-completed by DOE in a timely fashion during the pre-licensing pnase' of DOE's high-level waste repository program, if there is i

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to be any real possibility that NRC can review the license-

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application within the thrce year period required by the NWPA.

l The six action items from NRC staff coments on the draft _ PDS are:

1.

Implementation by DOE of Scheduled and Systematic Consultations 2.

Development of an Information Retrieval System 3..

Early Implementation of a Quality Assurance Program 4.

Early Establishment of Repository Design Parameters 5.

Eccly Resolution of Major State and Indian Tribe Concerns 6.

Adoption of Conservatism The one action item that DOE does not address is adoption of-conservatism and a new item which DOE listed as an activity in the Draft Mission Plan Amendment is the implementation of a program of licensing topicale. reports to work towards resolution-of issues before the submittal of the license application.

This is an activity.which NRC staff did not specifically identify as an action item to be tracked in the draft PDS coments but considers important to the success of the pre-licensing program and will include in the ~ quarterly progress reports to the Commission as identified below.

l 7.

Early Resolution of Issues through a Program of Licensing Topical Reports and Other Mechanisms.

In summary, for purposes of keeping the Commission informed of the status and progress made on the six DOE identifieo activities and the six NRC action items identified in our PDS comments, the staff will track the six NRC identified action items and the tcpical report activity f oentifiec by DOE as listed above.

The NRC staff would appreciate any suggestions l

the Commissica might have to make the Quarterly Progress

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Reports more effective.

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1 In addition to a-discussion of the status of these seven items, enclosed.is information on the current status of NRC's actiyities required b.y the NWPA (Enclosure'1).

Discussion:.

The current status of seven NRC action items is given below.

(The original wording-of the action. item frcm the NRC j

staff comments on the draft PDS'is_ given following the title'ahd 1

'then followeo by the status.)

1.

Implementation by DOE of' Scheduled and Systematic 4

Consultations:.00E would meet with NRC staff to lay cut current planned activities and milestones for site -

characterization (including preparadons for characterization) to provide a: detailed and systematic 1

basis for determining the appropriate points for-j consultation.

Timely consultation will become increasingly a

important given the long leaci times for the development of-j plans and procedures, and.fnr the timely ~ procurement of i

essential services and equipment.

The primary method.of pre-licensing consultation between NRC and

' DOE, established under the NWPA,'is NRC's review and-comment on-DOE's Site Characterization Plans (SCPs) and semiannual progress reports. ' To facilitate' this formal process', a Procedural Agreement between NRC and DOE was estabitshed in 1983 (Enclosure 2) which cutlined procedures for const/1tation and

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exchange of information during investigaticn and i

characterization of sites for a geologic repository.

These i

pre-licensing consultaticns are intended to assure that NRC receives adequate information on the'D0E program in a timely manner to facilitate early identification and resolution of potential licensing issues.

To be most effective these l

consultations should be scheduled sufficiently early so that NRC comments can be resolvv1 by DOE with enough lead time so as not to delay DOE activities or the NRC licensing process.

They.

should also contribute to the DOE's development of adequate i

SCP's ano a License Application (LA) as well as increase the ccnfidence that NPC can review the DOE's LA within the three year period required by the the NWPA.

Under the Procedural I

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5 Agreement the pre-licensing consultation interactions consist of technical meetings, data and document reviews, and prompt information exchange by an NRC On-site Licensing Representative p'

(OR) at each 00E project office.

(At present there are ors stationed at-the DOE Hanford and Nevada project. sites.

An OR will be selected for the Texas project site once DOE moves its salt' staff to Texas).

In addition, these interactions have been i

supplemented by periodically sending NRC headquartdrs staff co the DOE project offices to wark with the NRC ors.

While. DOE ~ revised their geaeral milestones and schedules in the Draft Mission Plan Amendment.of January 1987, they'have not yet provided to NRC project-specific milestones and schedules. The ESCPs which DOE 1s currently preparing will -lay out detailed

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milestones'and schedules for each project.

Project-specific milestones and schedules are needed to enable NP.C and DOE to scheaule. appropriate consultotions as-the project work; proceeds.

The' current status of NRC/D0E consultations is as follows:

For' the period from August 1985 (when it began to appear that DOE.was having difficulty scheduling agreed to technical meetings) through March 1987, the following interactions occurred. - There were no formal technical meetings between the NRC staff and the DOE's Nevada Nuclear Waste Storage Investigations (NNWSI)' Project.

For the DOE's Hanford B.asalt Waste Isolation Project (BWIP), two technical meetings wers held i

in December 1985, and for the 00i's Texas Salt Repository Project (SRPO), two'technica1' meetings were held in November-1985 and January 1986.

In addition, there were also nine NRC/ DOE technical meetings on generic topics (as opposso to site-specific).

There were only two data reviews:

one at BWiP and one at SRP0.

However,- during the'scme period the NRC ors and NRC headquarters staff assignea to the ors offices were much more successful in rarking with anc cbtaining information from 00E.

Such staff interactions have been frequent and successful for NNWS1 and SRP0 while et BWIP they have been less frequent end~ access to_information limited.

Hence while the NRC staff has been able to keep generally current with the NNWSI anc

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-e-i SRP0 activities and to a lesser extent with the BWIP activities, there is a need for more site specific technical interactions and better access for the OR at the BWIP site.

Despite i.he difficulties ioentified, the pre-licensing consultation has been generally adequate to permit NRC to perform its review of DOE progrummatic documents issued to date in a timely manner.

However, the main etreat of the' lack of interactions is that the SCPs prepared by DOE w 11 not reflect the hRC comments and feedback that would have been generated in these interactions.

l This will probably result in the identification of more concerns and issues in the NRC's review of the SCPs, that will have to be resolved by DOE prior to the start of major site characterization activities and excavatica of the exploratory shaft.

The need to increase tne frequency and effectiveness of NRC/00E L

site-specific technical interactions has been a. focus of DOE and l

NRC management attention for all three DOE projects.

Since DOE L

has been almost continuously occupied with writing the L

Environmental Assessments (EAs) and SCPs over the past three l

years--documents which then consume NRC's time ano resources during the comprehensive review required--it has been difficult to find mutually acceptable times to hold as many technical interactions as would have been desirable.

However, both NRC and DOE management have committed to improving the extent and effectiveness of technical interactions, particularly formal l

technical meetings.

DOE and HRC agreed in December 1986 to have seven te:hnical meetings during the first half of 1987.

Four of these meetings (i.e. Hanford Hydrologic Testir,9, Texas Exploratory Shaft Design, Nevada Exploratory Shaft, and Issues Hierarchy and Perforearce Allocation) were held.

The NRC staff considers that these meetings succeeded in making progress toward resolving 1

technical issues previously identified by NRC staff.

The dates l

tentatively scheduled for the remaining meetings have slipped.

l NRC and DOE management are scheduled to meet in early June 1987 to agree on a revised schedule for future NRC/D0E meetings for l

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Due to ' uncertainties in DOE's schedules, particularly regarding when exploratory-shafts will be sunk,:NRC staff considers _that future technical interactions with DOE,' States and Tribes should be focused on near-term information needs.. We will be proposing to DOE, in-the upcoming management' meetings that near-term technical meetings should address specific' concerns related to surface-based testing strategies.

In our comments on the Draft Mission' Plan' Amendment'we indicated that some surface-based testing may be needed prior to construction of tne shafts because'(a) shaft construction may render some' testing impossible or useless; and (b) such testing may reveal information about site suitability important to know before major resources are committed for shaft construction.

Significant progress towarc resolution can be made for some areas.of technical concern at each site through surface-based testing' before. sinking exploratory shafts (see Enclosure 3).

Conducting meetings to. discuss. surface-based testing strategies-will also-allow the staff the opportunity to determine.how DOE is incorporating many of the c.oncerns identified in our-final EA comments into the SCPs. This will,:in turn, provide' valuable insight on DOE's current approach to implementing conservatism in their program, by seeing how uncertainties'and alternative

-interpretations are being identified and factored into test plans.

2.

Development of a'n Information Retrieval System:

DdEwould devolop an information retrieval system with the Capability to~ assure that all relevant documents will be readily available when needed.

The production of documents to support an application is typically ~a time consuming step in the licensing process, and it can be shortened with the proper type of text storage and retrievability, and sufficient degree of accessibility for the information management system.

Potential host states, affected tribes-ano other interested parties should have the same degree of access to this-system, since they also will be raisir.g issues that DOE and NRC will need tc be prepared to address in licensing.

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The' purpose in developing and implemencing; the Licensing Support System-(LSS) is to facilitate compliance with Section 114(d) of

- the NWPA, which requires a Commission decis1&n on Construction Authorization for a geologic repository for higiblevel waste within three years of DOE submission cf a license application.

Without a technologically modern document management system as is planned for the LSS, a three year license hearing is not r

likely to be achieved. ' DOE and NRC recognize that one of the most significant contributors to the length of past licensing reviews has been the time associated with finding, senoing,-

receiving, and handling of information and data for discovery 1

and for filing of motions.

NRC.has demonstrated a Transitional LSS capable of searchable data bases, and DOE has agreed to promptly develop for large fuil-text.and document image storage and retrieval the LSS as 4 major step in streamlining the licensing process.

An Agreement In Principle was signed between the NRC.and DOE (February 20, 1987)'to set forth understandings and measures for cooperation in developing the LSF (Enclosure 4).. The DOE has issued a Request For Proposals (RFP) for development of an LSS and is currently reviewing those proposals.

Hcwever, the system'is not scheduled to be fully operational until 1990..

The NRC staff is pursuing a negotiated rulemaking to change 10 CFR 2' to provide for the use of the LSS in the hearing process.

Involved States, Indian tribes and other interested groups will be represented in this rulemaking.

It 1s intended that the 3

rulemaking will-also describe the requirements for the system necessary to serve all parties.in the licensing proceedings.

.l The NRC and DOE staffs will meet this summer to develop an implementation plan for the Agreement In Principle.

In particular, an agreement should be reacned on the approach for collection and access to license related dccuments in the interim, until. the LSS is fully cperational.

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Early Implementation of a Oua11ty Assurance program:

DOE i

would implement.a quality assurance program'as soon es possible, but not later than the beginning of site characterization.

NRC is prepared to review DOE's QA programs once DOE considers that they are in place and implemented.

The implementation of DOE's QA programs at all-appropriate levels should be reviewed by NRC staff prior to starting site character 12ation.

DOE has committed to having a " fully qualified" quality assurance (QA) program in place when the SCps are issued.,

Such a commitment is necessary since most of the data to be coiiected' during the site character 12ation program for a site is expected to be utilized in the licensing process and'must, therefore. be of.

demonstrable quality.

Only those QA programs covering activities that are important to public health:and safety and to waste isolation that will be performed shortly after the SCPs are issued, need to be " fully qualified" at that time.+

As site characterization proceeds and DOE issues its semi-annual progress reports describing additional studies, it'will also j

need to describe QA measures that will be applied to'the work l

fo# review and approval by NRC.

1 DOE continues to make steady but slow progress in developing 1

their QA programs.

The schedule slips for the' SCP have provided Meded additional time to develop QA programs 'for. DOE' q

organizations and their contractors.

Additional time is still 1

needed to meet their current objective of having fully quc11fied program in place for specific program areas prior to the start

>i of activities in these areas.

The general approach that has been taken by the NRC staff is to observe DOE audits of its i

programs and, when DOE determines a part of the program is qualified, for the NRC staff to conduct cn audit of selected critical portions of the program.

This is to ensure DOE's QA program is checked by DOE to their satisfaction first, and then by the NRC.

The NRC staff's first audit of the implementatien of this program is scheduled for Jure 1987 when Ine staff will be conducting an audit of the mineralogy / petro!ogy program for the Nevada project at the Los Alamos National Lacoratory.

DOE has assessed this program area, ano believes that the QA program l

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is qualified.

The NRC audit will confirm that assertion or identify weaknesses in the technical progr6m area and/cr DOE's QA oversight of that specific technical program.

The audit team.

will include technical staff and contractors with expertise in the areas to be audited and will use audit techniques being developed based on lessons learned from reactor QA problems.

They will focus both on the quality of technical work and on the effectiveness of the QA program.to detect any quality problems and to ensure that appropriate corrective measures are taken.

Similar audits are being scheduled for the other two sites.

' These aucits will provide a basis for the staff findings on the adequacy of the DOE QA program as presented in the SCPs.

The NRC staff will be providing written reports to DOE on the effectiveness of the QA programs and the quality of the technical work at each site visited.

This will be a key update item for the next Quarterly Progress Report to the Commission.

4.

Early Establishment of Repcsitory Desian Parameters:

In orcer to establish specific 611y what information site characterization activities will have to produce to meet PDS schedules, 00E should select tent 6tive values for the contributions that each'of.the natural and engineered barriers can redsonably be expected to provide to the overall waste isolation performance of each site.

Design requirements for the waste package and underground.

facility, for example, determine much of the information that site character 1:ation will have to produce.

Neither

'NRC nor DOE can determine with the requisite timeliness and detail what tests will be needed for a particular design, nor how much testing will be enough, if the basis for thst 1

des?gn--the expected performance of each component of the weste isolation system--is not clear at the start.

DOE has developed an issue-resolution strategy that incorporates NRC's suggested concept of performsnee allocation (previously' referreo to as establishment of repository design parameters).

Performance ellocation is the systemetic process of assigning performance goals for subsystems and components of tne I

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The goals are not criteria that must be met

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, testing' program and may be changed as.new information is jdthered.' Therefore, these. goals are used to establish specifically what informatica site characterization will have to-prdcuce for licensing.

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yL ThiD0E issues hierarchy ;was developed to provide a framework

for presenting issues relatea to the regulatory requirements for Jsir.fng and licensing a' mined geologic disposal system and for describing the work-that needs to ba '

nmpleted during site r characterization to resolve those issues.. The issues in the

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hierarchy includn the questions reldting to the performance of

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m the repository that must be resolved to demonstrate compliance M'8 with the applicable Federal regulations, (b'

To resolve the issues in the issues hierarchy, the DOE has

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adopted a general " issue-reso7ution strategy"- that guides;the development of SCPs and which wGVcontain the rationale and plans for resolving each issue.

The inue resolution strategy provioes d general procedure that can bsyused te address

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sppific issues.

At the D0E/NRC Issues disrarchy/ Performance Allocation meeting

. held in March 1987, LGE presented their current apprcach to identification of issues and the data needed to resolve them f' f with performance allocation as the mechanism. Althcugh'NRC staff has found the DOE approach to be reasonable, we need to see how.00E implements the.coproacn in the SCPs.

The NRC staff will selectively review ' drafts of test plans when they become

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'l-available; however, the fina0.SCPs will be the most definitive indication of DOE's overall progress.

5.

Early Resolution of State and Indi6n Tribe Contentions:

We believethatthegreatestuncertaintTTntheestimateof s

the time required for the CA review D relate 1 to the The state' hevs substantibi rescurces l

h hearing process.

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, available to them, end appear' tc be willfr.g w strcngly i

cor, test any unresolved issues which they believe i

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We believe the magnitude of the uncertainty in the. hearing period wil1 continue to.be large until the more significant. states _ contentions are-resolved.

Section 117(a)-of-the NWPA requires the DOE, Commission, and-other agencies involved in any aspect of a repository to provide information to -States and affected Indian. tribes.

The NRC and LDOE have'both recognized the need for consultation with States and. Indian tribes for early identification and-. subsequent resolution of-thcir-technical concerns. As' DOE acknowledged in the Draft Mission Plan Amendment, no formal consultation and cooperation: agreements' have been concluded with any-of the

' States and Tribes.

DOE recognizes that, given the nature of the program and the reality that the. perspectives of the States and

. affected Indian. tribes often differ from its: own ; formal agreements may be difficult to reach.

The DOE in the Draft Mission Amendment Plan recognizes the need for greater involvement by the States and affected Indian tribes in the technical program.

The most recent indicator.of participation by the States and Indian tribes was in the three recent DOE /NRC site-specific technical meetings held during April and.May of 1987.

In these meetings the. States and Indian tribes presented their concerns verbally and'in the written meeting summaries, and in some cases joined in agreements.

For example, in the NNWSI/NRC Exploratory Shaft. meeting, ~ the State of-Nevada not only. participated in discussions but eventually signed the meeting summary and agreed with the DOE and the NRC staff on the changes in the shaft configuration proposed by the DOE.

This recent participation might be an indication that NRC/D0E interactions which involve the States and affected Indian tribes are working better than in the past.

Continued improvement is e

needed so that an effective forum of'open dialogue 1s

. established for the'early identification and resolution of State / tribal technical-ccncerns.

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. Adoption of Conservatism:

DOE should be more conservative in the treatment of uncertainty in geotechnical investigations'.

We believe~this'is the best way to provice s' reasonable assurance'that:the Mission Plan's site characterization schedules will be met..The uncertainties inherent in investigations can be compensated for by incorporating more conservatism into_ initial designs.

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l conservative design can be made -less restrictive if the -

information from _ site _cheracterfration clearly warrants a relaxation in design criteria. Any sucn chsnge would be far less costly than a discovery ' late in the program that

- the design for critic &lisystem component was not conservative encugh.

Over the past'few years the NRC staff has suggested to DOE that-acopcing a conservative approach in their program is one way to treat uncertainties in repository performance.

The NRC staff recently pointed out'in its comments on -the Draft Mission Plan-Amendment that it was unclear in the Amendment how DOE would address conservat1sm in the treatment of uncertainty. Another recent indicator of DOE's approach regarding this question was in the final EAs'and the resulting staff comments on them in December of 1986'(SECY-86-357).

The staff concluded that while DOE. had made improvements with. respect to adopting a conservative approach over the draft EAs,.in each of the fin &l EAs the staff's reviewLidentified' remaining concerns related to,

' lack of conservatism,'such as not identifying the range of uncertainties, and incorporating a reasonable range of-uncertainties into evaluations and conclusions.

Based on these concerns, the staff considered that-some conclusions in all five EAs were still overly favorable or optimistic for the areas of

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comment. _ Recognition of uncertainties and alternative-interpretations'is necessary for a conservative approach to the

-development of the test plans that will lead to adequate characterization-of the sites ano treatment of uncertainties.

In the letter transmitting the NRC staff's final EA comments, DOE was asked to consider our contents in developing the SCPs.

In addition, we proposeo that DOE and NRC staffs 01scuss in technical' meetings hcw representative comments will be I

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, considered in. DOE's 'developme'nt of test plans.

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in future technical. meetings will provide the most timely J

feedback to DOE.

This mechenism will be discussed in an 4

upcoming management _ meeting with DOE.

Finally, progress was also made in the NRC/ DOE meeting on Level j

of Detail in the SCP in May 1986.

In this meeting, DOE and NRC agreed in a general sense on now uncertainties and alternative

' interpretations will be considered by the SCPs and supporting study plans. 'The NRC staff Will selectively review drafts of test plans when-they become available; however, the final.SCPs will be.the most cefinitive indication of DOE's overall progress in adopting a conservative approach. -

7.

Early Resolution of Issues Through a Prooram of Licensing-Topical Reports and Other Nechanisms In January 1986, the Division of Waste Management developed a Five Year Plin which identified four major goals' for NRC's High-Level Waste Management Program.

One of these goals is to

. assure, to the extent practicable, resolution of licensing issues prior to' the licensing hearing.

Consistent with this goal,'in its comments.on the EAs and in the technical meetings-

~ hat have been held, the NRC staff has continued to give DOE t

feedback on new 1ssues or the progress DOE is making toward resolving issues.. The NRC staff considers that the SCPs, are the primary mechanism for resolution of issues; however, the staff has also proposed using generic cod site technical positions as an additional mechanism for involving all parties in early 1

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I resolution of selected issues.

I DOE has recently made comitments in the Draft Mission Plan Amendment to focus on resolving licensing issues prior to licensing, in much the same manner as th'e NRC staff.

3 Specifically, DOE committed to (1) interactions with the NRC on 1

technical issues and to use available options.to resolve issues; I

(2) implementation.of an issue-resolution strategy in the SCP; i

-and (3) implementation of a program of 11.:ensing topical reports focusing on various issues.

While the NRC staff ccnsiders these DOE comitments a very positive step, effective implementation and coordination with sfinilar NRC staff activities is essentici I

for making progress in this area.

The NRC staff will meet with DOE to develop a strategy for resolution of issues, and to consider how technical positions, topical reports, and SCP semi-annual progress reports fit into this strategy.

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L Vi'ctor Ste1]p, F Executive Director for Operaticns

Enclosures:

1.

NRC's Activities required by the HWPA 2.

NRC-00E Prucedural Agreement 3.

Major issues and Resolution Approach 4.

Agreement In Principie on the Development of a Licensing Support System DISTRIBUTION:

Commissioners OGC (H Street)

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Federal Register / Vol. 46..* o.168 / Thursdav. August 25. 1983 / Notices 3gyog i

then sent to the IAEA Senier Advisory fer interf, ace dunng site investisat:en conducted at a candidate site or ths #

Croup which reviews and t. edifies as and site charactenzation of sites for a submission of reports on the nature at:d ecessary the drafts of all ccdes and geologic repesitory under the.iuclear event of site charactentanon acuvines r.;: des enor to their being forwarded to Waste Policy Act of 1982. The text of at a candidate site and the informanen tne IAEA Secretariat anc thence to the this agreement is publisned below.

developed from such activittes.

IAEA Mv=cer States for comments.

som rumen mpomuatiou contacit

1. 1. 1. D"*'#U*

I Taking into account the comments Mr. Robert E. Brownmg. Acttng D: rector.

received from the Member States. the Division of Waste Management. Nuclear As early as practicable. following Senior Advisory Group then modifies Regulatory Commission. Mail Stop e23 area phase field work. NRC on. site the draft as necessary to resch SS. Washington. DC 20353:(301) 42N representatives will be stationed at each agreement before forwarding tt to the 4200.

site undergoing investigation principally to serve as a point of prompt (AEA Director General with a DWd at Silver Spring. Maryland. this 16th Informational exchange and recommendation that it be accepted.

day of Ausust 19s3.

censultation and to preliminanly As part of this program. Safety Guide For the Nuclear Regulatory Commission.

SC411. " Operational Management of ide*fy concuns about such Io eph 0. Buntins.

investigsti a relating to potential Radioactive Effluents and Waetes Chi'/ ll"g,#i## ^w8 8"ya#F',i'"

Ucenstng tesun.

a dl Artsing in Nuclear Power Finnts. has gnacy, p j,jon of a,g, nagem pg been developed. The working group consisting of Mr. E. Hladky from Proceduraj Agreement Between the U.S.

Czechoslovakia: Mr. A. Higashi from Nuclear Regulatory Commiasion and From the time this agreement is Japan: Mr. A. B. Fleisnman from the the U.S. Department of Energy entered into. and for so long as site United Kingdom: and Mr. L C. Oyen, Identifying Guiding Principles for characterization activitfes are being (Sargens and Lundy Enginars) from the Interface During Site Investigation and planned or are in progress. DOE and U.S.A.. developed the initial draft of this Site Characterization NRC will schedule and hold meetings periodically as provided in this section.

gu;de from an !AEA collation.This draft This Procedural Agreement ou'hes A wntten report agreed to by both DOE was subsequently modified by the IAEA IO 0ns" Technical Review Committee for

{'*[,d

,gy,, na o w( h and NRC willbe prepared for each muting including agruments reached, Operation. and we are now soliciting Commission (NRC) and the Department

a. Technical matings will be beW pub!Ic comment on a modified draft (DOE) will observe in connection with between DOE and NRC techr.641 staff (Rev. 2. dated June 24.1983). Comments se characterizadon of situ for a to: review and consult on interpretations -

received by the Director. Office of geologic repository under the Nuclear of data: identify potentia!!!cansing Nuclear. Regulatory Research. U.S.

Waste Policy Act of1982.The purpose issues: a6ree upon the sufHelencyof**

Nuclear Regulatory Commission.

of these procedures is to assure that an available information and data: and Washington. D.C. 2c555. by October 10.

Information flow is maintained between agree upon methods and approaches for -

~.

1983. will be particularly useful to the the two agencies which will facilitate the acquisition of additionallaformation U.S. representatives to the Technical the accomplishment by each agency of and data saneeded to facilitate NRC Review Committee and the Senior.

Its responsibilites reladve to site Advisory Group in developing their,

i.,*aatintion and characterization under reviews and evalustfons and for staff positions onits adequacy pnor to their the !Mvn. Waste Policy Act(NWPA).

resolution of such potentiallicensing issues.

mxt IAEA muungs.

The agreement is to assure that NRC

b. Periodic management meetings will Single copies of this draft Safety receives adquate information on a be held at the site. specific project 1(vel Guide may be obtained by a written timely basis to enable NRC to review, whenever necessary, but at least request to the Director. Office of Nuclear evaluate, and comment on those DOE to review the summary results quarterly,hnical meetings: to review the Regulatcry Research. U.S. Nuclear activities of regulatory interest in of the tec Regulatory Commission. Washington, accordance with DOE's project decision I

D.C.20555.

schedule and thereby facilitate early status of outstanding concerns and (s USC. $20(all identtfication of potentiallicensing issues: discuss plans for resolution of Dated at Washington. D.C. this 19th day of issues for timely stall resolution. The outstanding items and issues: to update Augusi loss.

agreementis to assure that DOE has the schedule of technical meetings and For the Nuclear Regulatory Corr, mission.

pro:npt access to NRC for discussions other actions needed for staff resolutfun Robert B. Minogue, and explanations relative to the intent.

of open items tsgarding site Director. Ofice e/ Nuclear Aeyuletory meaning and purpose of NRC comments characterization programs: and to Assearch.

and evaluations on DOE activities and consult on what genene guidance is I

so that DOE can be aware. on a current advisable and necessary for NRC to j

ire on o.nns rnea.ea n.s basis, of the status of NRC setions prepare. Unresolved management issues an.uma coon rumm.e will be promptly elevated to upper relative to DOE activities.

This Precedural Agreement shall be manenement for resolution.

HRC/ DOE Procedural Agreement subject to the provisions of any project

c. Early technical meetmgs will be decisten schedule that may hereafter be scheduled to discuss wntten NRC acancy: Nuclear Regulatory estab!ished by DCE. 2nd any comments on DOE documents such as Commission.

regulations that may hereafter be Site Charactenzation Flans. CCE's semi-action: Notice of NRC/ DOE procedural adepted by NRC. pursuant to law. In annual progress reports, and technical Agreement.

panicular, nothing herein shall be reports to foster a mutual understandmg suwwamvt The Nuclear Regulatory construed to limit the authenty of the of comments and the information or l~ommission and the Department of Commission to require the submission of activities needed for staff resolution of Energy have signed a Procedural information as part of a general plan for the comments.

Agreement identifying guiding pnneiples site charactenzatien activities to be

d. In formulating plans for activities

33rge Federal Register / Vol. 48. No.166 / Thursday. Aunist 25, 1983 / Notices i

^

l which DOE wdl undertake to develop Deted:li.nezr.uss.

Power r, quested that the Commiss:e t infcreation needed for staff resoPauon Robert L Morgen.

halt cperation of Maine Yankee unn! thr-of potenual bcensing assues. DOE wd1 prometonerar N eleer waterdey,ter license "has demonstrated that it has me:t with NRC to provide an overr.ew proicer o* ice. US Cecortment o' Energy.

adecuate f'anncial backms and of the plans so that NRC can comment

• Doe? lune tr. na2.

adequate fi anetal suppert,

to rese on their su!!icioccy. These discussions John C. Davis, capital requirement to cont;nue will be held sufficiently early so that gj,,,wf, o,,j,,,,yy,f,,f y,,,3,f g,,,,y operatien. to make and chanses or j

any changes that NRC comments may cad Ss'er.cids. U.S. Nuclect / ten!: tory capitalinvestmen:s requ;ted oy the entail can be duly considered by DOE in Commission.

NRC and tu provide for me fune.ns of a manner not to delay DOE actmnes.-

ra o. n.wo r m.a : us.ao its shutdown and d;.pos ! of spent fuel

e. Schedules of activities pertainina to ' su.uma caos rese ei o at tne end ci sts 1: censed term." Sc.fe techmcal meetings will be made publicly power s!so asked that trae Commaston available. Potent al host States and deterrrune what amounts Maine Ya.-J n 4

effected Indian tnbes will be notified (Doomeme, so-30st CU-as-H) should collect to provide for 1

and inytted to attend technical rneeungs Maine Yankee Atomic Poww Co.

decommiss;oning and disposal cf spent esvured in this section (Section 2.

(Maine tankee Atomic power Station);

fuel and order the cresuon of a trust Meetings).The nodfication will be given Memwandum and Ordw fund in whica these monies would on a timely basis by the DOE.These accumulate until needed.

technical meetings wdl be open The Commission has considered and nestings wius members of the public affit7ns the Directur s Decision. DD in denying Safe Power's petition the Director correctly observed that the 3

e au 1

un e 10 oeing permatted to attend as oburvws.

u,e Ccmmissions' concern with 6.ancial I

g i Timely Aalease afinformation -

2,pe P,,y,h hich those robler e m y a\\e en of Saf Po e f t

e.Dets collected during site and John (wabek (collectively " Safe to the protectio t of public health and -

inv:stigations w!!! be made available to Pown") for acuan pursuant to to CHL safety

• Allegations about financial NRC on a current, continuing basis atier

2. 06. Safe Poww sought an order to difficulties at an operating facility are the DOE (or DOE contrector) quality show cause why Maine Yankee Atomic not be themselves a su!Yicient basis for assurance checks that are inherent in Power Company (" Maine Yankee" or actica to rentnet operations. In the det:rmming that the d.;ta has been

"!!censee") should not be ordwed to Commission rulemaking, cited by the

' obtained and documented properly..

discontinue opwation of its nuclear Director, w!uch eliminated the financial,,,,,.

b. DOE's analyses and evaluations of power plant at Wiscasset. Maine. in quali!! cation review for electnc utilities.

data will be made available to NRC in a light of Safe Poww's allegations of

' 47 F.R.13750. the Commissten noted the timely manner.

Maine Yankee's financialimespebility absence of evidence that Anancial to operate the Wiscasset facility safely problems are inevitably linked with

4. Site Specific Samples and dispose of spent fuel now stored cornet. cutting on safety *Thus, even there and to be generated during the had the Commission retained its Consistent with mutually agreed on remamder of the !! censing penod. The financ;al qualifications review procedures. DOE will provide NRC with Commission has concluded that denla!

requirements a showing the Maine site specific samples to be used by NRC of this petition lay withm the Director's Yankee was undersomg financial it independent analysis and discretion but notes that subsequent difficulues would not by itself require v:luation, developments provide additional that the Commission helt operations at jusufication for the Director's decision.

that planu On the other hand.

, A Agency use of fn/prmation Accordingly, rather than simply It is undestood that information made declining to review the Director's evallable to either Agency under this decision the Commission is issums the

,,' 8***","g,*ga*ga **y,, dh*g',',*[

agreement may be used at that Agency's memorandum and order to enlarge the mia iiinaeum a um comm m.an a ensern =>m option in carrymg out its discussion of the issues raised by the econmu responsibilitirbag petihon.

De Mm aerulatry Comminia lNaC) * *

• In its petition for a show cause order doa = Purewi to amia ia mne'r ***d a

& Pro /ect Specific Agreemente Safe Power alleged a number of C*",'*g',d,","y"',,C8[,f,,'Q*(

circumstances indicating poor financial fin.ncini su.hacauvas and caseoilinee es e uuhiy Protect specific agreements to condition of Maine Yankee". 8 Safe pros eins to consecuct and oper i. e nucie r so-er implement the above principles will be pieni. er F n. ts*st. In ne nonee er rule o.et is negotiated within 1:0 daye of the time i s..wc m. den of the sur,t.,y,munt NRC 8M th*' aul"r fina*"i **hfi'***a8 =

l this agreement is entered into. These to to Crn 2.m. me ius m.nma in. Comnun.on (algf 84"*gt' '8' NRC ";'d * ** Pu*"*

prelectipecific agreements will be

• • ' '*"*y,j" N""" ' 0"*'** ""

henee ces e t/ mar cs v.&ste saw

tiiltred to the speelfic projects to reflect

'Dm pacted carnrutanen eclude:N IJu of Amune Caserveuen and Developrnent the differences in sites and project funds octsined thrown ptedse of me company's CM" nasion.

UA

.rst Ed.3d71,.rst 1

orfent2ations' siock of nucim W for pumm omer caen N

pursnase. remaeulacte.r.s and aanchne of nucJoer

• De Ca.tn.usea a rWe a cut-enur ear reiew

7. Nothing m this agreement shall be fwet. m nne to us I,e ariy p.yment from Cnirst m se o C. Circuit m Ne-tosised cuaun on Coristrued as limitm3 forms of informal McM ro*" Cornpany to mut Mame Yuin s Nue!nr hdutie v NAC No s21:sst.

consultstion net mentiened in this d'd?****'"'*'"'******'"'""'""d

• !!"d" 5'on ise nf the Atomic r.aergy Act the bwowms hmit has been reasaeqL (31 unausboe of Commtsoon may renke a beeen when a tonomen agrumsnt (for exemple. telephene

.a.I umn v.n.se, uw on.ne u,ces or e.,n.i

..,.i m., w,.d n,..,e,mnie, ime conun,..e n, convnsation or exchanges of reports),

with tite enceouon of mlusion of addauonal comunes cany ine hcease in ias firsi iasiance. bei it is not These other cwnsultations will be

""'iv swnbunm by as opensort and it; and req. red to do es upecially whm muna enort of documented in a time 1y mantier.

''"""8""*"'"""""***"

h"* """'" " "'chs heanh and safe ry.

• • • *"d*

fluncms continwd suursou of pu I

w.

6 6

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i ENCLOSURE 3 t

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NAJoht ISSUES AND RESbLUTION APPROACI

ESSUE PREDOMINANT MPROACH J.)

Surface-based and/or Underground Testing and/or Laboratory % sting Shaft Sinking

<s Hanford Site

ff '

7;.

o Characterization of x

~ '

Groundwater Flow Systs1 J t

o Tectonic Stability W

1 k,' s'o Radionuciide RetOdatfor; x

,. v.

i)..

{

ohntainer Lifetiene x

p,,

b o'R$pusitoryConstructability/

x High In Situ Stress v;.

y i

Yucca Mountain Site h-o Presence of Potentially7 x

x Active Faults in the Vicinity 1

n of Yucca M.ountain l

o Pctential foriHydrothermal x

Activity in the Vicinity of i

i Yucca Mountain s

o Groundwater Flow x

o Effectiveness of the Potential x

1 Radionuclide Retarda(*n Mecha-nisms Available at -Yucca Mountain o Potential fur Volcanjia in x

the Vicinity of Yucca.Nounthin

(

l s

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Enclesure 3 j

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a

'4 2

' Deaf Smith Site o Potential for localized salt-E dissolution along. faults acting as groundwater flow paths x

o Effects of heterogenetties x

x in the seit units on repost-tory constructability and retrievability o Potential for shaft seal x

failures resulting in ground water inflow o Putential for localized corrosion of waste package in a brine environment

--Brine migration / chemistry-x

--Localized corrosion x

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4 I

ENCLOSURE 4 i

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Department of Energy Washington, DC 20585 a

~

wM'00CKET C05' POL cis t s".

F E B 2,.,':,3 7

'87 W : -3 R2 :24

)

n Mr. Hugh L. Thompson, Jr.

Director, Office of Nuclear Material Safety and Safeguards J

Nuclear Regulatory Commission

. Washington, DC-20555 J

Dear Mr. Tham

/

1 I an enclosing a signed copy of the agreement on the LSS which i

- John Davis signed on Friday, February 20, 1987.

I especially appreciated your note which pledges your support to the development and implementation of the LSS.

As we talked last Thursday, I believe the LSS will play a key role in the i

implementation of.the NWPA.

I look forward to working with you on this and other opportunities in your new responsibilities with the commission.

Cincerely,

('

uA.cfut

~

Ben C. Rusche, Director-office'of Civilian Radioactive Wasta M&nagement

Enclosure:

As stated I

i t

Enclosate 4

H, i

J Agreement in Principle between the Decartment of Energy (00E) and tne NLclear Regulat:ry C:mmission (NRC) on tne Development of a ticensing Sup ort System (LSS)

This' Agreement in Principle (AIP) sets forth tne mutual policy and ecmmitment j

~

ey the two agencies for prompt cevelopment of.a Licensing Support System l

(LSS), in support of the Commission's high-level radioactive waste (HLW)

The objective of the LSS will be to facilitate i

,1icensing proceeding.

compliance with Section ll4d of the Nuclear. Waste. Policy Act which requires a

'j t

Commission decision on Construction Authorization for a geologic repository 00E

' for HLW within three years of 00E submission of a licensa application.

and NRC recognize-tnat one of the most significant contributors to the length l

.of past licensing reviews nas been the time associated with finding, sending, receiving and handling of information and data. This is true for both l'

day-to-day technical work to address licensing issues as well as for filing of motions and for the discovery process associated with adjudicatory proceedings.-

Accordingly, the parties agree that l

i There is a need to promptly develop the L55 as a major step in 1.

streamlining the licensing procsss.

In concert with 00E and other interested parties, e negotiated 2.

j rulemaking should be initiated by NRC to describe the. requirements for the system and for all parties in the. licensing proceedings to-fully participate in the use of the LSS in the licensing process.

l In concert with the NRC rulemaking, 00E will have the responsibility j

3.

i for designing and providing the L55 and for incorporating on-line j

full text and image storage and retrieval techniques.

4.

'In the interim,- until the L55 is operational. 00E.and NRC both agree that there is a need to promptly collect documents significant to HLW repository licensing in a form that can readily be entered into the LSS.-

The undersigned parties (or their successors), representing their Agency's commitments, shall confer not less than quarterly to assure that the objectives of this memorandum are being effectuated.

i

!cba 2 265 \\

M Ben C. Ruschi. Director o 'n G. DavTs, Director Office of Civilian Radioactive ffice.of Nuclear Material Safety and Safeguards (NRC)

Waste Management (00E) 1 W7 e

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