[Federal Register Volume 90, Number 8 (Tuesday, January 14, 2025)]
[Notices]
[Pages 3261-3264]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2025-00598]
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NUCLEAR REGULATORY COMMISSION
[Docket No. 50-328; NRC-2024-0226]
Tennessee Valley Authority; Sequoyah Nuclear Plant, Unit 2;
Exemption
AGENCY: Nuclear Regulatory Commission.
ACTION: Notice; issuance.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) has issued an
exemption in response to a request dated November 27, 2024, from
Tennessee Valley Authority. The exemption authorizes a one-time
exemption for Sequoyah Nuclear Plant, Unit 2, to allow the use of the
less restrictive work hour limitations described in NRC regulations for
a 21-day period starting no earlier than January 6, 2025, and no later
than January 31, 2025.
DATES: The exemption was issued on December 23, 2024.
ADDRESSES: Please refer to Docket ID NRC-2024-0226 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 website: Go to https://www.regulations.gov and search for Docket ID NRC-2024-0226. Address
questions about Docket IDs in Regulations.gov to Stacy Schumann;
telephone: 301-415-0624; 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 https://www.nrc.gov/reading-rm/adams.html. To begin the search, 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, at 301-415-4737,
or by email to [email protected]. The exemption request dated
November 27, 2024, is available in ADAMS under Accession No.
ML24332A119.
NRC's PDR: The PDR, where you may examine and order copies
of publicly available documents, is open by appointment. To make an
appointment to visit the PDR, please send an email to
[email protected] or call 1-800-397-4209 or 301-415-4737, between 8
a.m. and 4 p.m. eastern time (ET), Monday through Friday, except
Federal holidays.
FOR FURTHER INFORMATION CONTACT: Perry Buckberg, Office of Nuclear
Reactor Regulation, U.S. Nuclear Regulatory Commission, Washington, DC
20555-0001, telephone: 301-415-1383, email: [email protected].
SUPPLEMENTARY INFORMATION: The text of the exemption is attached.
Dated: January 8, 2025.
For the Nuclear Regulatory Commission.
Perry H. Buckberg,
Senior Project Manager, Plant Licensing Branch II-2, Division of
Operating Reactor Licensing, Office of Nuclear Reactor Regulation.
Attachment--Exemption
NUCLEAR REGULATORY COMMISSION
Docket No. 50-328
Tennessee Valley Authority, Sequoyah Nuclear Plant, Unit 2; Exemption
I. Background
The Tennessee Valley Authority (TVA, the licensee) is the holder of
Renewed Facility Operating License No. DPR-79, which authorizes
operation of Sequoyah Nuclear Plant (Sequoyah), Unit 2. The license
provides, among other things, that the facility is subject to all
applicable rules, regulations, and orders of the U.S. Nuclear
Regulatory Commission (NRC, the Commission) now or hereafter in effect.
Sequoyah consists of two pressurized-water reactors located in Hamilton
County, Tennessee.
II. Request/Action
By letter dated November 27, 2024 (Agencywide Documents Access and
Management System (ADAMS) Accession No. ML24332A119), and pursuant to
title 10 of the Code of Federal Regulations (10 CFR) part 26, ``Fitness
for Duty Programs,'' section 26.9, ``Specific exemptions,'' TVA
requested a one-time exemption from the work hour requirements in 10
CFR 26.205, ``Work hours,'' paragraph (d)(7). Specifically, TVA
requested to use the work hour requirements in 10 CFR 26.205(d)(4),
which are applicable during the first 60 days of a unit outage, in lieu
of the work hour requirements in 10 CFR 26.205(d)(7), for a period of
no more than 21 days for individuals specified in 10 CFR 26.4(a)(1),
(a)(2), and (a)(4).
Licensees are required to control the work hours of any individual
who performs the duties identified in 10 CFR 26.4(a). One way of doing
this is by complying with the 10 CFR 26.205(d)(7) requirements for
maximum average work hours wherein the individuals may not work more
than a weekly average of 54 hours, calculated using an averaging period
of up to 6 weeks, which advances by 7 consecutive calendar days at the
finish of every averaging period. However, according to 10 CFR
26.205(d)(4), licensees need not meet these requirements during the
first 60 days of a unit outage for individuals specified in 10 CFR
26.4(a)(1) through
[[Page 3262]]
(a)(4), while those individuals are working on outage activities.
Instead, licensees shall ensure that the individuals specified in 10
CFR 26.4(a)(1) through (a)(3) have at least 3 days off in each
successive (i.e., non-rolling) 15-day period and that the individuals
specified in 10 CFR 26.4(a)(4) have at least 1 day off in any 7-day
period. This alternative work hour requirement is known as the outage
minimum days off (MDO) requirement.
Sequoyah, Unit 2, entered an unplanned shutdown on July 30, 2024.
During this unplanned outage, the licensee commenced an extended
turbine generator outage. This allowed the licensee to administer
outage work hour controls in accordance with 10 CFR 26.205(d)(4).
Although these outage work hour controls ended after the first 60 days
of the outage on September 29, 2024, the outage remains in progress and
is scheduled to be completed in April 2025. Due to the unplanned nature
of the shutdown, TVA was unable to complete the testing of the main
steam safety valves. In its exemption request, TVA stated that the
operating experience with past refueling outages establishes the need
to use outage work hour controls to provide the necessary conditions to
complete the testing of the main steam safety valves and the associated
activities to identify and resolve any issues. Since the outage work
hour controls have already ended for this outage, TVA requested a one-
time exemption from the non-outage work hour controls in 10 CFR
26.205(d)(7) for personnel in the categories described in 10 CFR
26.4(a)(1), (a)(2), and (a)(4) so that they may work the less
restrictive outage work hours as described in 10 CFR 26.205(d)(4) to
support a main steam safety valve maintenance window from January 6,
2025, to January 31, 2025, for a period not to exceed 21 days.
Additionally, the licensee stated that the emergency diesel generator
(EDG) outages are scheduled to immediately follow the proposed 3-week
maintenance window. Several individuals in operations and maintenance
roles included in the proposed exemption request would also work on EDG
outage activities. The licensee plans to perform that work in
compliance with the non-outage work hour controls in 10 CFR
26.205(d)(7) with the averaging period beginning immediately after the
exemption period. Therefore, this exemption would also relieve the
licensee from the 10 CFR 26.205(d)(7) requirements of including the
preceding 21-day period in the rolling 6-week average of 54 hours, and
instead the licensee would be able to treat the proposed maintenance
window as an outage as described in 10 CFR 26.205(d)(4).
III. Discussion
Pursuant to 10 CFR 26.9, the Commission may, upon application of
any interested person or on its own initiative, grant exemptions from
the requirements of 10 CFR part 26 as it determines (1) are authorized
by law; (2) will not endanger life or property; (3) will not endanger
the common defense and security; and (4) are otherwise in the public
interest.
A. The Exemption Is Authorized by Law
The proposed exemption would authorize a one-time exemption from
the requirements of 10 CFR 26.205(d)(7) to allow the use of the less
restrictive work hour controls in 10 CFR 26.205(d)(4) for up to an
additional 21 days. As stated, 10 CFR 26.9 allows the Commission to
grant exemptions from the requirements of 10 CFR part 26, including 10
CFR 26.205(d)(7), when, in part, the exemptions are authorized by law.
Exemptions are authorized by law where they are not expressly
prohibited by statute or regulation. A proposed exemption is implicitly
authorized by law if it will not endanger life or property or the
common defense and security and is otherwise in the public interest and
no other provisions in law prohibit, or otherwise restrict, its
application. The NRC staff has determined that no provisions in law
expressly prohibit or otherwise restrict the application of the
requested exemption. The NRC staff has also determined, as explained in
subsequent sections of this document, that the requested exemption will
not endanger life or property or the common defense and security and is
otherwise in the public interest. Therefore, the exemption is
authorized by law.
B. The Exemption Will Not Endanger Life or Property
The purpose of 10 CFR part 26, subpart I, ``Managing Fatigue,'' is
to ensure that fatigue does not compromise the abilities of specified
individuals to perform their duties safely and competently. The purpose
of 10 CFR 26.205(d)(4) is to provide licensees flexibility in
scheduling required days off while accommodating more intense work
schedules associated with a unit outage for a limited period of time.
Under the proposed exemption, personnel in the categories described
in 10 CFR 26.4(a)(1), (a)(2), and (a)(4) would be permitted to work in
accordance with the less restrictive outage MDO requirements in 10 CFR
26.205(d)(4) for up to an additional 21 days. TVA cited regulatory
position C.10 of NRC Regulatory Guide 5.73, ``Fatigue Management for
Nuclear Power Plant Personnel'' (ML083450028), which discusses the
expectation that licensees should confirm that an individual
transitioning from an outage at one plant to another ``has had a 34-
hour break period within the 9 days that precede the day on which the
individual begins working for the receiving licensee.'' TVA stated that
the workers affected by the proposed exemption will have received a
rest and reset period prior to starting the 72-hour work weeks during
the maintenance window. In addition, TVA stated that from September 30,
2024, through November 17, 2024, personnel in the categories described
in 10 CFR 26.4(a)(1), (a)(2), and (a)(4) have worked under the non-
outage work hour controls in 10 CFR 26.205(d)(7) and will continue to
do so until the proposed period of the exemption, and have been granted
annual leave and other personal time-off as requested.
The NRC staff determined that the added mitigating actions of
providing a rest and reset period prior to the proposed exemption
period, maintaining the non-outage work hour controls in 10 CFR
26.205(d)(7) during the 14-week period from the end of the 60-day
initial outage period until the proposed exemption period while
allowing the affected workers to use annual leave or other personal
time-off as requested, and the use of an outage oversight plan for
fatigue assessments during the proposed work period will allow TVA to
adequately manage cumulative fatigue during the proposed exemption
period of up to 21 days. Acute fatigue will be managed using the outage
MDO requirements combined with fatigue assessments by supervisors,
which is consistent with common practice during unit outages. Based on
this, the NRC staff finds that the proposed mitigating actions will
adequately manage cumulative and acute fatigue. Therefore, the
exemption will not endanger life or property.
C. The Exemption Will Not Endanger the Common Defense and Security
The proposed exemption would authorize a one-time exemption from
the requirements of 10 CFR 26.205(d)(7) to allow the use of the less
restrictive work hour controls in 10 CFR 26.205(d)(4) for up to an
additional 21 days. The proposed exemption is not applicable to
security personnel, nor does it have any relation to or impact on
security issues. Therefore, the
[[Page 3263]]
exemption will not endanger the common defense and security.
D. The Exemption Is Otherwise in the Public Interest
The proposed exemption would authorize a one-time exemption from
the requirements of 10 CFR 26.205(d)(7) to allow the use of the less
restrictive work hour controls in 10 CFR 26.205(d)(4) for up to an
additional 21 days. In considering whether this exemption would be in
the public interest, the NRC staff considered several factors,
including:
the unplanned nature of the shutdown and extended outage;
the public health and safety interests of the communities
impacted by the safe operation of the plant; and
the potential adverse impacts on communities resulting
from any further extension of the shutdown of the unit, which could
challenge the reliability of the service territory and result in not
meeting reserve capacity for the warmer months.
The NRC staff considered that the current outage was not planned
and has extended beyond the initial 60 days of the less restrictive
outage work hour controls in 10 CFR 26.205(d)(4) and that the required
work needed to complete testing, discovery, and resolution of issues
has not been completed. The NRC staff also considered TVA's reasonable
efforts to develop a proposed maintenance window schedule that
accommodates the completion of items needed for testing and to make
potential repairs that may require a long-lead time. The NRC staff
noted that TVA also plans to complete maintenance on the EDGs while
additional resources are onsite immediately following the proposed
exemption period. These maintenance activities are important to
assuring the safe operation of the unit.
In its exemption request, TVA discussed the potential impacts of
the Commission not granting the proposed exemption. TVA stated that
without this exemption, TVA would be challenged from a reliability
perspective, as the area supplied by the unit transitions further into
a period of the year characterized by warmer weather and higher loads.
TVA discussed the likelihood that without the exemption, TVA may need
to commit other generating assets or purchase replacement power from
the market, which could introduce reliability risk.
The NRC staff considered the balance of public interest
considerations. The NRC staff considered the importance of the
maintenance activities and the potential impacts of not granting the
exemption, including the potential need for TVA to extend the Sequoyah,
Unit 2, outage if non-outage work hour controls were to reduce the
availability of personnel. The NRC staff also considered the potential
impacts of granting the exemption, including impacts that could result
from an increase in overall cumulative fatigue due to personnel working
longer hours for an extended period beyond that of a typical outage
under the established regulatory limits. However, as explained, TVA
currently has mitigating actions in place for managing cumulative and
acute fatigue that include adequate rest intervals and assessments for
fatigue. Also, TVA will have adequately managed fatigue for personnel
in the categories described in 10 CFR 26.4(a)(1), (a)(2), and (a)(4)
leading up to the exemption period through compliance with the
requirements in 10 CFR 26.205(d)(7). Based on these considerations, the
NRC staff finds that there are no expectations for an impact on the
public health and safety as a result of an increase in fatigue for the
proposed period of up to 21 days. The NRC staff also finds that an
earlier conclusion of the Sequoyah, Unit 2, extended outage may allow
TVA to meet elevated electrical demands without relying on purchasing
replacement power. Finally, the NRC staff finds that TVA took
reasonable measures in its project planning to ensure that all testing,
maintenance, and resolution of discovery items will be completed within
the proposed exemption period. Therefore, the exemption is otherwise in
the public interest.
E. Environmental Considerations
The Commission has determined that granting the proposed one-time
exemption from the requirements of 10 CFR 26.205(d)(7) to allow the use
of the less restrictive work hour controls in 10 CFR 26.205(d)(4) for
up to an additional 21 days involves (1) no significant hazards
consideration, (2) no significant change in the types or significant
increase in the amounts of any effluents that may be released offsite,
(3) no significant increase in individual or cumulative public or
occupational radiation exposure, (4) no significant construction
impact, and (5) no significant increase in the potential for or
consequences from radiological accidents.
(1) Under 10 CFR 50.92(c), there is no significant hazards
consideration if the action does not (1) involve a significant increase
in the probability or consequences of an accident previously evaluated;
(2) create the possibility of a new or different kind of accident from
any accident previously evaluated; or (3) involve a significant
reduction in a margin of safety.
The proposed exemption is administrative in nature because it
provides an additional period when less restrictive outage work hour
controls can apply for personnel in the categories described in 10 CFR
26.4(a)(1), (a)(2), and (a)(4). The proposed exemption has no effect on
structures, systems, and components (SSCs) and no effect on the
capability of the SSCs to perform their design function. The proposed
exemption does not make any changes to the facility or operating
procedures and does not alter the design, function, or operation of any
plant equipment. Therefore, the exemption does not increase the
probability or consequences of an accident previously evaluated.
Similarly, the proposed exemption does not authorize any physical
changes to any SSCs involved in the mitigation of any accidents.
Therefore, the exemption does not create the possibility of a new or
different kind of accident from any accident previously evaluated.
The proposed exemption does not authorize alteration of the design
basis or any safety limits for the plant. The exemption would not
impact station operation or any SSC that is relied upon for accident
mitigation. Therefore, the exemption does not involve a significant
reduction in a margin of safety.
For these reasons, the NRC staff has determined that approval of
the proposed exemption involves no significant hazards consideration.
(2) The proposed exemption does not authorize any changes to the
design basis requirements for the SSCs at Sequoyah, Unit 2, that
function to limit the release of non-radiological effluents,
radiological liquid effluents, or radiological gaseous effluents during
and following postulated accidents. Additionally, the exemption does
not change any requirements with respect to the conduct of radiation
surveys and monitoring. Therefore, there is no significant change in
the types or significant increase in the amounts of any effluents that
may be released offsite.
(3) The proposed exemption does not affect the limits on the
release of any radioactive material or the limits provided in 10 CFR
part 20 for radiation exposure to workers or members of the public.
Additionally, the exemption will not increase or decrease the amount of
work activities that must be completed in order to connect the reactor
unit to the electrical grid. Therefore, there is no significant
increase in individual or
[[Page 3264]]
cumulative public or occupational radiation exposure.
(4) The proposed exemption does not involve any construction.
Therefore, there is no significant construction impact.
(5) The proposed exemption does not alter any of the assumptions or
limits in the licensee's accident analyses. Therefore, there is no
significant increase in the potential for or consequences from
radiological accidents.
Based on the foregoing and because the requirements from which the
exemption is sought involve other requirements of an administrative,
managerial, or organizational nature, the exemption meets the
eligibility criteria for categorical exclusion set forth in 10 CFR
51.22(c)(25)(vi)(I). Therefore, in accordance with 10 CFR 51.22(b), no
environmental impact statement or environmental assessment need be
prepared in connection with granting the proposed exemption.
IV. Conclusion
Accordingly, the Commission has determined that, pursuant to 10 CFR
26.9, the exemption is authorized by law, will not endanger life or
property or the common defense and security, and is otherwise in the
public interest. Therefore, the Commission hereby grants TVA a one-time
exemption from 10 CFR 26.205(d)(7) for personnel in the categories
described in 10 CFR 26.4(a)(1), (a)(2), and (a)(4) to allow the use of
the outage MDO requirements in 10 CFR 26.205(d)(4) for a 21-day period
starting no earlier than January 6, 2025, and no later than January 31,
2025. While the exemption is in effect, TVA will ensure that
individuals specified in 10 CFR 26.4(a)(1) and (a)(2) have at least 3
days off in each successive (i.e., non-rolling) 15-day period and that
individuals specified in 10 CFR 26.4(a)(4) have at least 1 day off in
any 7-day period. The use of the outage MDO requirements and an outage
plan will adequately manage cumulative and acute fatigue for covered
personnel. The exemption ends either at the end of the approved 21-day
period or at the time when Sequoyah, Unit 2, is connected to the
electrical grid, whichever occurs first.
Dated: December 23, 2024.
For the Nuclear Regulatory Commission.
Aida Rivera-Varona,
Deputy Director, Division of Operating Reactor Licensing, Office of
Nuclear Reactor Regulation.
[FR Doc. 2025-00598 Filed 1-13-25; 8:45 am]
BILLING CODE 7590-01-P