[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