[Federal Register Volume 76, Number 4 (Thursday, January 6, 2011)]
[Notices]
[Pages 802-805]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-10]



[[Page 802]]

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NUCLEAR REGULATORY COMMISSION

[Docket Nos. 50-250 and 50-251; NRC-2010-0025]


Florida Power and Light Company, Turkey Point, Units 3 and 4; 
Exemption

1.0 Background

    Florida Power and Light Company (FPL, the licensee) is the holder 
of Facility Operating License Nos. DPR-31 and DPR-41, which authorize 
operation of Turkey Point, Unit Nos. 3 and 4 (Turkey Point 3 and 4). 
The license provides, among other things, that the facility is subject 
to all rules, regulations, and orders of the U.S. Nuclear Regulatory 
Commission (NRC) now or hereafter in effect. The facility consists of 
two pressurized-water reactors located in Florida City, Florida.

2.0 Request/Action

    By letter dated October 13, 2009 (Agencywide Documents Access and 
Management System (ADAMS) Accession No. ML092950342), and pursuant to 
Title 10 of the Code of Federal Regulations (CFR), Section 26.9, FPL 
requested an exemption from the requirements of 10 CFR 26.205(c), 
``Work hours scheduling,'' and (d), ``Work hour controls,'' during 
declarations of severe weather conditions such as tropical storm and 
hurricane force winds at the Turkey Point site. Supplemental responses 
and responses to requests for additional information (RAI) are dated 
March 9, 2010 (ADAMS Accession No. ML100770099), September 2, 2010 
(ADAMS Accession No. ML102580335), October 6, 2010 (ADAMS Accession No. 
ML102850047), and October 20, 2010 (ADAMS Accession No. ML103060463).
    The requested exemption applies to individuals who perform duties 
identified in 10 CFR 26.4(a)(1) through (a)(5) who are sequestered 
onsite during the severe wind event, as travel to and from the site 
during severe wind conditions may be hazardous or not possible. The 
exemption request states that because of the unpredictable nature and 
potential speed of a storm, a need to activate the storm crew could 
occur on short notice and without the ability to meet work hour 
controls. The exemption request also states that although the plant may 
not meet the criteria for declaring an emergency based on the NRC-
approved emergency action levels, emergency preparedness would require 
the implementation of the site emergency plan.
    After the high wind conditions pass, wind damage to the plant and 
surrounding area might preclude sufficient numbers of individuals from 
immediately returning to the site. Additionally, if mandatory civil 
evacuations were ordered, this could also delay the return of 
sufficient relief personnel. The Emergency Coordinator (a senior 
management official at Turkey Point) will decide when weather 
conditions permit sufficient personnel to travel safely to and from the 
site. When this declaration is made, full compliance with 10 CFR 
26.205(c) and (d) is again required.
    The exemption would allow Turkey Point to sequester individuals 
onsite, when travel to and from the site during high wind conditions is 
hazardous or not possible due to severe weather conditions. According 
to the National Weather Service, sustained wind speed of 40 miles per 
hour (mph) makes travel unsafe for the common traveler.
    If conditions are such that sustained winds of 73 mph are present 
onsite, then Turkey Point will declare a Notice of Unusual Event (UE). 
When this declaration is made, an exemption from these same work hour 
controls is available under 10 CFR 26.207(d).

3.0 Discussion

    The NRC staff has reviewed the licensee's overall request against 
the regulations contained in 10 CFR 26.205 and 26.207 and related 
Federal Register Notice Statements of Consideration [73 FR 16965]. 
Also, the NRC staff reviewed the guidance in Regulatory Guide 5.73, 
Fatigue Management for Nuclear Power Plant Personnel. Information from 
the National Hurricane Center (NHC) (http://www.nhc.noaa.gov/) was used 
to understand various conditions or effects related to tropical storm 
and hurricane wind speeds.

10 CRF Part 26 Subpart I, Managing Fatigue

    The fatigue management provisions in 10 CFR Part 26 Subpart I are 
designed as an integrated approach to managing both cumulative and 
acute fatigue. The requirement to schedule individuals' work hours 
consistent with the objective of preventing impairment from fatigue is 
found in 10 CFR 26.205(c). Section 26.205(d) of 10 CFR provides the 
actual work hour controls--which are 16 work hours in any 24-hour 
period, 26 work hours in any 48-hour period, and 72 work hours in any 
7-day period. This section also provides limits on the number of hours 
an individual may work; limits on the minimum break times between work 
periods; and limits for the minimum number of days off an individual 
must be given.
    Section 26.205(b) of 10 CFR is the requirement to count work hours 
and days worked. Section 26.205(b)(3) is the requirement to consider 
other periods of work not included in Section 26.205(d) so that they 
can be included in the work hour control calculations when a covered 
individual resumes covered work.

Regulatory Guide 5.73

    Regulatory Guide 5.73, Fatigue Management for Nuclear Power Plant 
Personnel, endorses the Nuclear Energy Institute (NEI) report NEI 06-
11, revision 1, ``Managing Personnel Fatigue at Nuclear Power Plants,'' 
with certain clarifications, additions and exceptions.
    Staff has endorsed this guidance for use during declared 
emergencies. After exiting the emergency, the licensee is immediately 
subject to the scheduling requirements of 10 CFR 26.205(c) and the work 
hour/rest break/minimum day off requirements of 10 CFR 26.205(d). As 
required by 26.205(b)(3), all time worked during the emergency must be 
tracked to ensure that individuals are not fatigued when work hour 
controls are reinstated. In a public meeting on July 2, 2010, to 
discuss lessons learned regarding submitting an exemption request from 
Part 26, Subpart I work hour controls during periods of severe winds 
such as a tropical storm or hurricane, the staff concluded that it 
finds NEI 06-11 Section 7.5 ``Reset from Deviations'' to be an 
acceptable method for resuming work hour controls after the recovery 
period.

Precedence

    STP Nuclear Operating Company, the licensee for South Texas Project 
Units 1 and 2 has been granted a similar exemption from severe wind 
conditions, which can be found in the Federal Register dated July 12, 
2010 (75 FR 39707).

Lessons Learned

    The effects of Hurricane Andrew on the Turkey Point site were used 
to identify lessons learned to consider when evaluating this request. 
The following sources were reviewed:
     NUREG-1474, ``Effect of Hurricane Andrew on the Turkey 
Point Nuclear Generating Station from August 20-30, 1992.''
     NRC Information Notice 93-53, ``Effect of Hurricane Andrew 
on Turkey Point Nuclear Generating Station and Lessons Learned.''
     NRC Information Notice 93-53, Supplement 1, ``Effect of 
Hurricane Andrew on Turkey Point Nuclear Generating Station and Lessons 
Learned.''

[[Page 803]]

     NUREG-0933, ``Resolution of Generic Safety Issues,'' Issue 
178: Effect of Hurricane Andrew on Turkey Point (Rev 2).
    Hurricane Andrew was a Category 5 hurricane that struck the Turkey 
Point site on August 24, 1992. On September 10, 1992, the NRC and the 
Institute of Nuclear Power Operations jointly sponsored a team to 
review the damage of Hurricane Andrew on the nuclear units and the 
utility's actions to prepare for the storm and recover from it and 
compile lessons learned that might benefit other nuclear utilities. The 
licensee exemption request and the licensee's site procedures related 
to severe winds were compared to the actions and lessons learned 
documented in NUREG-1474, including an indication that detailed 
methodical preparations should be made prior to the onset of hurricane 
force winds.
    The NRC staff has reviewed the FPL exemption request for the Turkey 
Point site and agrees that preparing the site for the onset of severe 
wind conditions such as hurricanes, including sequestering enough 
essential personnel to provide for shift relief, is prudent to ensure 
plant and personnel safety.

10 CFR 26.207(d) Exemption

    Pursuant to 10 CFR 26.207(d) licensees need not meet the 
requirements of Section 26.205(c) and (d) during declared emergencies 
as defined in the licensee's emergency plan. The FPL RAI response 
letter dated March 9, 2010, clarified that the entry condition for the 
exemption is when site preparations are commenced per the licensee's 
severe weather preparation procedure (confirmed tropical storm watch or 
warning, or confirmed hurricane watch or warning). As defined by the 
NHC, a tropical storm watch is declared when sustained winds of at 
least 39 mph are expected somewhere within the specified coastal area. 
The entry condition for a Turkey Point declaration of an Unusual Event 
is a confirmed hurricane warning, which is defined by the NHC when 
sustained winds of 74 mph are expected somewhere within the specified 
coastal area. Therefore, entry conditions for the requested exemption 
may precede the declaration of a UE.
    Section 26.207(d) states that licensees need not meet the 
requirements of 26.205(c) and (d) during declared emergencies, 
therefore there is no need for an additional exemption to be granted 
during the period of a declared emergency for severe winds. Although 
work hours, breaks, and days off are calculated as usual during a 
license-declared plant emergency, licensees are unconstrained in the 
number of hours they may allow individuals to work performing covered 
duties or the timing and duration of breaks they must require them to 
take.
    The FPL RAI response letter dated March 9, 2010, clarifies that the 
exit condition for the exemption is when the Emergency Coordinator 
determines there are sufficient personnel available to meet the 
requirements of 10 CFR 26.205 (c) and (d). Therefore, exit conditions 
for this exemption request can possibly come well after the exit of the 
UE.
    To summarize, the FPL exemption request for Turkey Point Units 3 
and 4 can be characterized, as having three parts: A high wind 
exemption; a recovery exemption immediately following an Emergency Plan 
exemption; and a recovery exemption immediately following a high wind 
exemption.

High Wind Exemption

    A high wind exemption encompasses the period starting with the 
entry conditions prior to the declaration of a UE (confirmed hurricane 
warning is in effect). As a tropical storm or hurricane approaches 
landfall, high wind speeds--in excess of wind speeds that create unsafe 
travel conditions--are expected. During these times, the National 
Weather Service typically publishes a projected path of the storm. This 
condition will be described as the ``high wind condition,'' or ``period 
of high winds.''
    FPL requests an exemption from 10 CFR 26.205(c) and (d) work hour 
controls during periods of high winds. For the purposes of this 
exemption, declaration of the entry condition allows any onsite 
individual who performs duties identified in 10 CFR 26.4(a)(1) through 
(a)(5) to not have to meet the requirements of 10 CFR 26.205(c) and (d) 
if they are designated as part of the storm crew. This entry condition 
occurs when there is a confirmed tropical storm watch or warning or 
when there is a confirmed hurricane watch or warning and the Emergency 
Coordinator indicates that site preparations should be commenced per 
the severe weather preparation procedure.
    The NHC defines a hurricane warning as an announcement that 
hurricane conditions (sustained winds of 74 mph or higher) are expected 
somewhere within the specified coastal area. Because severe wind 
preparedness activities become difficult once winds reach tropical 
storm force, a hurricane warning is issued 36 hours in advance of the 
anticipated onset of tropical-storm-force winds (39 to 73 mph).
    Lessons learned that are published in NUREG-1474 include the 
acknowledgement that detailed, methodical preparations should be made 
prior to the onset of hurricane force winds. The NRC staff finds the 
Turkey Point proceduralized actions are consistent with the lessons 
learned.

Recovery Exemption Immediately Following a High Wind Exemption

    The period immediately following the high wind exemption, but when 
the conditions for a UE no longer exist, may still require a recovery 
period. Also, high winds that make travel unsafe but that fall below 
the threshold of an emergency, could be present for several days. After 
the high wind condition has passed, sufficient numbers of personnel may 
not be able to access the site to relieve the sequestered individuals. 
An exemption during these conditions is consistent with the intent of 
the 10 CFR 26.207(d) exemption.

Recovery Exemption Immediately Following an Emergency Plan Exemption

    Following a declared emergency, under 10 CFR 26.207(d), due to high 
wind conditions, the site may not be accessible by sufficient numbers 
of personnel to allow relief of the sequestered individuals. Once the 
high wind conditions have passed and the UE exited, a recovery period 
might be necessary. An exemption during these circumstances is 
consistent with the intent of 10 CFR 26.207(d).
    Once Turkey Point has entered into either the high wind exemption 
or the 10 CFR 26.207(d) exemption, the licensee should not need to make 
a declaration that it is invoking the recovery exemption.

Unit Shutdown

    If a hurricane warning is in effect and the storm is projected to 
reach the site as a Category 1 or 2 hurricane, then shutdown of the 
units to hot standby (mode 3) is commenced at least two (2) hours 
before the projected onset of sustained hurricane force winds at the 
site. Both units will remain offline for the duration of the hurricane 
force winds (or restoration of reliable offsite power). If the storm is 
projected to reach the site as a category 3, 4, and 5 hurricane prior 
to landfall, specific shutdown conditions are established at least two 
(2) hours before the projected onset of sustained hurricane force winds 
at the site. Because severe weather preparations are likely commenced 
prior to the shutdown of the units, then

[[Page 804]]

this exemption will allow sufficient personnel onsite to ensure that 
the facility is properly secured for severe weather.
    Lessons learned from Hurricane Andrew, NUREG-1474, include having 
both units shutdown and on residual heat removal when the storm strikes 
so that a loss of offsite power will not jeopardize core cooling. The 
NRC staff finds the Turkey Point plan is consistent with the lessons 
learned.

Storm Crew

    Turkey Point plans to sequester sufficient individuals to staff two 
12-hour shifts of workers consisting of personnel from operations, 
maintenance, health physics, chemistry, and security, to maintain the 
safe and secure operation of the facility. The Turkey Point hurricane 
plan provides for bunking facilities that provide an accommodation for 
restorative rest for the off crew. A 12-hour break provides each 
individual with an opportunity for restorative rest. Although, the 
accommodations and potentially stressful circumstances may not be ideal 
for restorative rest, the NRC finds that these actions are consistent 
with the practice of fatigue management when limited personnel are 
available during severe weather conditions.

Maintenance

    The FPL RAI response letter dated September 2, 2010, clarified that 
the exemption request does not apply to discretionary maintenance 
activities. Suspension of work hour controls is for storm preparation 
activities and those deemed critical for plant and public safety. The 
staff finds the exclusion of discretionary maintenance from the 
exemption request to be consistent with the intent of the exemption.

Procedural Guidance

    By letter dated October 20, 2010, Turkey Point committed to 
maintain the following guidance, applicable to this exemption, in a 
site procedure:
     The conditions necessary to sequester site personnel that 
are consistent with the conditions specified in the Turkey Point 
exemption request.
     Provisions for ensuring that personnel who are not 
performing duties are provided an opportunity as well as accommodations 
for restorative rest.
     The condition for departure from the exemption is based on 
the Emergency Coordinator's determination that adequate staffing is 
available to meet the requirements of 10 CFR 26.205(c) and (d).

Returning to Work Hour Controls

    Turkey Point must return to work hour controls when the Emergency 
Coordinator determines that adequate staff is available to meet the 10 
CFR 26.205(c) and (d) requirements. Upon exiting the exemption, the 
work hour controls in Section 26.205(c) and (d) apply and the 
requirements in 26.205(b)(3) must be met.

Authorized by Law

    As stated above, this exemption would apply to the storm crew 
sequestered on site. The licensee's request states that adherence to 
all work hour controls could impede the licensee's ability to use 
whatever staff resources may be necessary to respond to a plant 
emergency and ensure that the plant maintains a safe and secure status. 
As stated above, 10 CFR 26.9 allows the NRC to grant exemptions from 
the requirements of 10 CFR 26.205(c) and (d). The NRC staff has 
determined that granting of the licensee's proposed exemption will not 
result in a violation of the Atomic Energy Act of 1954, as amended, or 
the Commission's regulations. Therefore, the exemption is authorized by 
law.

No Undue Risk to Public Health and Safety

    The underlying purposes of 10 CFR 26.205(c) and (d) are to prevent 
impairment from fatigue due to duration, frequency, or sequencing of 
successive shifts. Based on the above evaluation, no new accident 
precursors are created by utilizing whatever staff resources may be 
necessary to respond to a plant emergency and ensure that the plant 
maintains a safe and secure status; therefore, the probability of 
postulated accidents is not increased. Even though it might be 
necessary to utilize whatever staff resources during severe weather 
preparation and storm crew activation, opportunities for restorative 
sleep will be maintained. Also, the consequences of postulated 
accidents are not increased, because there is no change in the types of 
accidents previously evaluated. Therefore, there is no undue risk to 
public health and safety.

Consistent With Common Defense and Security

    The proposed exemption would allow the licensee to utilize whatever 
staff resources may be necessary to respond to a plant emergency and 
ensure that the plant maintains a safe and secure status. The licensee 
will provide sufficient numbers of management and supervision over the 
storm crew or the resources utilized during the plant emergency to 
provide additional oversight for monitoring the effects of fatigue to 
ensure that the safety and security of the facility are maintained. 
Also, during the plant emergency, opportunities for restorative sleep 
will be maintained. Therefore, the common defense and security is not 
impacted by this exemption.

Otherwise in the Public Interest

    The proposed exemption would increase the availability of the 
licensee staff. The exemption would allow licensee staff to return to 
the site and perform additional duties to ensure the plant is in a safe 
configuration during the emergency. Therefore, granting this exemption 
is otherwise in the public interest.

4.0 Conclusion

    Granting this exemption is consistent with 10 CFR 26.207(d) Plant 
Emergencies, which allows the licensee to not meet the requirements of 
10 CFR 26.205 (c) and (d) during declared emergencies as defined in the 
licensee's emergency plan. The Part 26 Statements of Consideration, 
page 17148 states that ``Plant emergencies are extraordinary 
circumstances that may be most effectively addressed through staff 
augmentation that can only be practically achieved through the use of 
work hours in excess of the limits of Sec.  26.205(c) and (d).'' The 
objective of the exemption is to ensure that the control of work hours 
do not impede a licensee's ability to use whatever staff resources may 
be necessary to respond to a plant emergency and ensure that the plant 
reaches and maintains a safe and secure status.
    The actions described in the exemption request and submitted 
procedures are consistent with the recommendations in NUREG-1474. Also 
consistent with NUREG-1474, NRC staff expects the licensee would have 
completed a reasonable amount of hurricane preparation prior to the 
need to sequester personnel, in order to minimize personnel exposure to 
high winds.
    Based on the considerations discussed above, the NRC staff has 
determined that (1) the proposed exemption is authorized by law, (2) 
there is a reasonable assurance that the health and safety of the 
public will not be endangered by the proposed exemption (3) such 
activities will be consistent with the Commission's regulations and 
guidance, and (4) the issuance of the exemption will not be contrary to 
the common defense and security or to the health and safety of the 
public. Therefore, the staff finds this request to be acceptable.

[[Page 805]]

    Pursuant to 10 CFR 51.32, the Commission has determined that the 
granting of this exemption will not have a significant effect on the 
quality of the human environment (75FR 34776; June 18, 2010). This 
exemption is effective upon issuance.

    Dated at Rockville, Maryland, this 27th day of December 2010.

    For the Nuclear Regulatory Commission.
Allen G. Howe,
Acting Director, Division of Operating Reactor Licensing, Office of 
Nuclear Reactor Regulation.
[FR Doc. 2011-10 Filed 1-5-11; 8:45 am]
BILLING CODE 7590-01-P