[Federal Register Volume 82, Number 136 (Tuesday, July 18, 2017)]
[Notices]
[Pages 32890-32893]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-15069]
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NUCLEAR REGULATORY COMMISSION
[Docket No. 50-285; NRC-2017-0160]
Omaha Public Power District; Fort Calhoun Station, Unit No. 1
AGENCY: Nuclear Regulatory Commission.
ACTION: Exemption; issuance.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) is issuing an
exemption in response to a October 7, 2016, request from Omaha Public
Power District (OPPD or the licensee), from certain regulatory
requirements. The exemption would permit a certified fuel handler
(CFH), in addition to a licensed senior operator, to approve the
emergency suspension of security measures for Fort Calhoun Station,
Unit No. 1 (FCS) during certain emergency conditions or during severe
weather.
DATES: The exemption was issued on July 7, 2017.
ADDRESSES: Please refer to Docket ID NRC-2017-0160 when contacting the
NRC about the availability of information regarding this document. You
may obtain publicly-available information related to this document
using any of the following methods:
Federal Rulemaking Web site: Go to http://www.regulations.gov and search
[[Page 32891]]
for Docket ID NRC-2017-0160. Address questions about NRC dockets to
Carol Gallagher; telephone: 301-415-3463; email:
[email protected]. For technical questions, contact the
individual listed in the FOR FURTHER INFORMATION CONTACT section of
this document.
NRC's Agencywide Documents Access and Management System
(ADAMS): You may obtain publicly available documents online in the
ADAMS Public Documents collection at http://www.nrc.gov/reading-rm/adams.html. To begin the search, select ``ADAMS Public Documents'' and
then select ``Begin Web-based ADAMS Search.'' For problems with ADAMS,
please contact the NRC's Public Document Room (PDR) reference staff at
1-800-397-4209, 301-415-4737, or by email to [email protected]. The
ADAMS accession number for each document referenced in this document
(if that document is available in ADAMS) is provided the first time
that a document is referenced.
NRC's PDR: You may examine and purchase copies of public
documents at the NRC's PDR, Room O1-F21, One White Flint North, 11555
Rockville Pike, Rockville, Maryland 20852.
FOR FURTHER INFORMATION CONTACT: James Kim, Office of Nuclear Reactor
Regulation, U.S. Nuclear Regulatory Commission, Washington DC 20555-
0001; telephone: 301-415-4125; email: [email protected].
I. Background
Omaha Public Power District (OPPD) is the holder of Renewed
Facility Operating License No. DPR-40 for Fort Calhoun Station (FCS).
The license provides, among other things, that the facility is subject
to all rules, regulations, and orders of the NRC now or hereafter in
effect. The facility consists of a pressurized-water reactor located in
Washington County, Nebraska.
By letter dated August 25, 2016 (ADAMS Accession No. ML16242A127),
OPPD submitted a certification to the NRC indicating it would
permanently cease power operations at FCS on October 24, 2016. On
October 24, 2016, OPPD permanently ceased power operation at FCS. On
November 13, 2016 (ADAMS Accession No. ML16319A254), OPPD certified
that it had permanently defueled the FCS reactor vessel.
In accordance with Sec. 50.82(a)(1)(i) and (ii), and Sec.
50.82(a)(2) of title 10 of the Code of Federal Regulations (10 CFR),
the specific license for the facility no longer authorizes reactor
operation, or emplacement or retention of fuel in the respective
reactor vessel, after certifications of permanent cessation of
operations and of permanent removal of fuel from the reactor vessel are
docketed for FCS.
By letter dated June 21, 2017 (ADAMS Accession No. ML17144A246),
the NRC approved the Certified Fuel Handler Training and Retraining
Program for FCS that supports the exemption request discussed herein.
The CFH Training and Retraining Program is to be used to satisfy
training requirements for the plant personnel responsible for
supervising and directing the monitoring, storage, handling, and
cooling of irradiated nuclear fuel in a manner consistent with ensuring
the health and safety of the public. As stated in section 10 CFR 50.2,
``Definitions,'' CFHs are qualified in accordance with an NRC-approved
training program.
II. Request/Action
On October 7, 2016 (ADAMS Accession No. ML16281A469), the licensee
requested an exemption from Sec. 73.55(p)(1)(i) and (ii), pursuant to
Sec. 73.5, ``Specific exemptions.'' The current Sec. 73.55(p)(1)(i)
and (ii) regulations state that a licensed senior operator, as a
minimum, must approve the suspension of security measures during
certain situations. The proposed exemption would authorize an CFH, in
addition to the licensed senior operator, to approve the suspension of
security measures under 10 CFR 73.55(p)(1)(i) and (ii) at FCS.
III. Discussion
The NRC's regulations related to security address the potential
need to suspend security or safeguards measures under certain
conditions. Accordingly, 10 CFR 50.54(x) and (y), first published in
1983, allow a licensee to take reasonable steps in an emergency that
deviate from license conditions when those steps are ``needed to
protect the public health and safety'' and there are no conforming
comparable measures (48 FR 13966; April 1, 1983). As originally issued,
the deviation from license conditions had to be approved by, as a
minimum, a licensed senior operator. In 1986, in its final rule,
``Miscellaneous Amendments Concerning the Physical Protection of
Nuclear Power Plants'' (51 FR 27817; August 4, 1986), the Commission
issued Sec. 73.55(a), which provided that the licensee may suspend any
safeguards measures pursuant to Sec. 73.55 in an emergency when this
action is immediately needed to protect the public health and safety
and no action consistent with license conditions and technical
specifications that can provide adequate or equivalent protection is
immediately apparent. The regulation further required that this
suspension be approved as a minimum by a senior licensed operator prior
to taking action.
In 1996, the NRC made a number of regulatory changes to address
decommissioning. One of the changes was to amend Sec. 50.54(x) and (y)
to authorize a non-licensed operator called a ``Certified Fuel
Handler,'' in addition to a licensed senior operator, to approve such
protective steps. In addressing the role of the CFH during emergencies
in Sec. 50.54(y), the Commission stated in the proposed rule,
``Decommissioning of Nuclear Power Reactors'' (60 FR 37374; July 20,
1995):
A nuclear power reactor that has permanently ceased
operations and no longer has fuel in the reactor vessel does not
require a licensed individual to monitor core conditions.
A certified fuel handler at a permanently shutdown and
defueled nuclear power reactor undergoing decommissioning is an
individual who has the requisite knowledge and experience to evaluate
plant conditions and make these judgments.
In the 1996 final rulemaking, ``Decommissioning of Nuclear Power
Reactors'' (61 FR 39278; July 29, 1996), the NRC added the following
definition to Sec. 50.2: ``Certified fuel handler means, for a nuclear
power reactor facility, a non-licensed operator who has qualified in
accordance with a fuel handler training program approved by the
Commission.'' However, this rule did not propose or make parallel
changes to the provisions governing suspension of security requirements
set forth in Sec. 73.55(a), and did not discuss the role of a non-
licensed CFH.
In the 2009 final rule, ``Power Reactor Security Requirements'' (74
FR 13926; March 27, 2009), the NRC moved the security suspension
requirements from Sec. 73.55(a) to Sec. 73.55(p)(1)(i) and (ii). The
role of a CFH was not discussed in this rulemaking, so the suspension
of security measures in accordance with Sec. 73.55(p) continued to
require approval as a minimum by a licensed senior operator, even for a
site that otherwise is no longer operational.
However, pursuant to Sec. 73.5, the Commission may, upon
application by any interested person or upon its own initiative, grant
exemptions from the requirements of 10 CFR part 73, as it determines
are authorized by law and will not endanger life or property or the
common defense and security, and are otherwise in the public interest.
[[Page 32892]]
A. The Exemption Is Authorized by Law
The requested exemption from Sec. 73.55(p)(1)(i) and (ii) would
allow a CFH, in addition to a licensed senior operator, to approve the
suspension of security measures, under certain emergency conditions or
severe weather. The NRC's current regulations in 50.54(y) allow a CFH
to suspend security measures under certain conditions. Granting the
exemption would align the licensee's practice under 73.55(p) with what
is done under 50.54(y).
Consistent with 10 CFR 73.5, the Commission is allowed to grant
exemptions from the regulations in 10 CFR part 73, as authorized by
law. The NRC staff has determined that granting the licensee's proposed
exemption will not result in a violation of the Atomic Energy Act of
1954, as amended, or other laws. Therefore, the exemption is authorized
by law.
B. Will Not Endanger Life or Property or the Common Defense and
Security
Modifying the requirement to allow a CFH, in addition to a licensed
senior operator, to approve suspension of security measures during
emergencies or severe weather will not endanger life or property or the
common defense and security for the reasons described in this section.
First, the requested exemption would not exempt the licensee from
meeting the requirements set forth in 10 CFR 73.55(p)(2) that the
``[s]uspended security measures must be reinstated as soon as
conditions permit.'' Therefore, the exemption would not prevent the
licensee from meeting the underlying purpose of Sec. 73.55(p)(1)(i) to
protect public health and safety even after the exemption is granted.
Second, the suspension for non-weather emergency conditions under
Sec. 73.55(p)(1)(i) will continue to be invoked only ``when this
action is immediately needed to protect the public health and safety
and no action consistent with license conditions and technical
specifications that can provide adequate or equivalent protection is
immediately apparent.'' Therefore, the exemption would not prevent the
licensee from meeting the underlying purpose of Sec. 73.55(p)(1)(i) to
protect public health and safety even after the exemption is granted.
Third, the suspension for severe weather under Sec.
73.55(p)(1)(ii) will continue to be used only when ``the suspension of
affected security measures is immediately needed to protect the
personal health and safety of security force personnel and no other
immediately apparent action consistent with the license conditions and
technical specifications can provide adequate or equivalent
protection.'' The requirement to receive input from the security
supervisor or manager will remain. Therefore, the exemption would not
prevent the licensee from meeting the underlying purpose of Sec.
73.55(p)(1)(ii) to protect the health and safety of the security force.
Fourth, by letter dated June 21, 2017, the NRC approved OPPD's CFH
training and retraining program for the FCS facility. The NRC staff
found that, among other things, the program addresses the safe conduct
of decommissioning activities, safe handling and storage of spent fuel,
and the appropriate response to plant emergencies. Because the CFH will
be sufficiently trained and qualified under an NRC-approved program,
the NRC staff considers a CFH to have sufficient knowledge of
operational and safety concerns, such that allowing a CFH to suspend
security measures during emergencies or severe weather will not result
in undue risk to public health and safety.
In addition, the exemption does not reduce the overall
effectiveness of the licensee's physical security plan or affect the
licensee's ability to protect special nuclear material at FCS. Thus,
the exemption would not have an adverse effect on the common defense
and security. For the reasons set forth above, the NRC staff has
concluded that the exemption would not reduce security measures
currently in place to protect against radiological sabotage. Therefore,
modifying the requirement to allow a CFH, in addition to a licensed
senior operator, to approve the suspension of security measures in an
emergency or during severe weather, does not adversely affect public
health and safety issues or the assurance of the common defense and
security.
C. Is Otherwise in the Public Interest
NRC regulations currently require that a licensed senior operator
at a minimum must approve the suspension of security measures in 10 CFR
73.55(p)(1)(i) and (ii). However, since FCS is shutdown, the licensee
is not required to have a licensed senior operator onsite. Therefore,
it is unclear how the licensee would implement emergency or severe
weather suspensions of security measures in the absence of a licensed
senior operator. Omaha Public Power District's proposed exemption would
allow a certified fuel handler, in addition to a licensed senior
operator, to approve suspension of security measures in an emergency
when ``immediately needed to protect the public health and safety'' or
during severe weather when ``immediately needed to protect the personal
health and safety of security force personnel.'' Granting this
exemption request to authorize a CFH to approve temporary suspension of
security regulations during an emergency or severe weather would align
with the comparable authority given to the CFH in 10 CFR 50.54(y).
This exemption is in the interest of the public for two reasons.
First, the exemption provides the licensee with an efficient and
rational method for invoking the temporary suspension of security
matters that may be needed for protecting public health and safety or
the safety of the security forces during emergencies and severe
weather. Additionally, the consistent and efficient regulation of
nuclear power plants serves the public interest by assuring consistency
between the security regulations in 10 CFR part 73 and the operating
reactor regulations in 10 CFR part 50, as well as the requirements
concerning licensed operators in 10 CFR part 55. The NRC staff has
determined that granting the licensee's proposed exemption would allow
the licensee to designate a CFH with the appropriate qualifications for
a permanently shutdown and defueled reactor to approve the suspension
of security measures during an emergency to protect the public health
and safety, and during severe weather to protect the safety of the
security force. These provisions are consistent with the authority
provided by Sec. 50.54(y). Therefore, the exemption is in the public
interest.
D. Environmental Considerations
The NRC's approval of the exemption from certain 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 Sec. 51.22(c)(25).
Under Sec. 51.22(c)(25), the granting of an exemption from the
requirements of any regulation of chapter I to 10 CFR 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
[[Page 32893]]
radiation exposure; (iv) there is no significant construction impact;
(v) there is no significant increase in the potential for or
consequences from radiological accidents; and (vi) the requirements
from which an exemption is sought are in one of several categories,
including requirements involving safeguard plans, and materials control
and accounting inventory scheduling requirements; and requirements of
an administrative, managerial, or organizational nature.
The Director, Division of Operating Reactor Licensing, Office of
Nuclear Reactor Regulation, has determined that approval of the
exemption request in accordance with Sec. 51.22(c)(25), involves no
significant hazards consideration because permitting a CFH, in addition
to a licensed senior operator, to approve the suspension of security
requirements at a defueled shutdown power plant 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. Also there
will be no significant change in the types or a significant increase in
the amounts of any effluents that may be released offsite as well as no
significant increase in individual or cumulative public or occupational
radiation exposure. The exempted regulation is not associated with
construction, so there is no significant construction impact. The
exempted regulation neither concerns the source term (i.e., potential
amount of radiation in an accident), nor accident mitigation measures.
Thus, there is no significant increase in the potential for, or
consequences of, a radiological accident. The requirement to have a
licensed senior operator approve departures from security requirements
involves safeguards plans, materials control, and managerial and
organizational matters.
Therefore, pursuant to Sec. 51.22(b) and (c)(25), no environmental
impact statement or environmental assessment need be prepared in
connection with the approval of this exemption request.
IV. Conclusions
Accordingly, the Commission has determined that, pursuant to 10 CFR
73.5, the exemption is authorized by law and will not endanger life or
property or the common defense and security, and is otherwise in the
public interest. Therefore, the Commission hereby grants the licensee's
request for an exemption from the requirements of 10 CFR 73.55(p)(1)(i)
and (ii), to authorize that the suspension of security measures at FCS
must be approved as a minimum by either a licensed senior operator or a
certified fuel handler.
The exemption is effective upon receipt.
Dated at Rockville, Maryland, this 7th day of July 2017.
For the Nuclear Regulatory Commission.
Kathryn M. Brock,
Acting Director, Division of Operating Reactor Licensing, Office of
Nuclear Reactor Regulation.
[FR Doc. 2017-15069 Filed 7-17-17; 8:45 am]
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