Confirmatory Order Modifying License of National Institute of Standards and Technology, Center for Neutron Research, 48203-48211 [2022-16949]
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head for the emergency core cooling and
containment heat removal pumps.
DATES: Revision 5 to RG 1.82 is available
on August 8, 2022.
ADDRESSES: Please refer to Docket ID
NRC–2022–0036 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–2022–0036. Address
questions about Docket IDs in
Regulations.gov to Stacy Schumann;
telephone: 301–415–0624; email:
Stacy.Schumann@nrc.gov. For technical
questions, contact the individuals 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
questions regarding use of ADAMS,
please contact the NRC’s Public
Document Room (PDR) reference staff at
1–800–397–4209, 301–415–4737, or by
email to PDR.Resource@nrc.gov. The
ADAMS accession number for each
document referenced (if it is available in
ADAMS) is provided the first time that
it is mentioned in this document.
• NRC’s PDR: You may examine and
purchase copies of public documents,
by appointment, at the NRC’s PDR,
Room P1 B35, One White Flint North,
11555 Rockville Pike, Rockville,
Maryland 20852. To make an
appointment to visit the PDR, please
send an email to PDR.Resource@nrc.gov
or call 1–800–397–4209 or 301–415–
4737, between 8:00 a.m. and 4:00 p.m.
Eastern Time (ET), Monday through
Friday, except Federal holidays
Revision 5 to RG 1.82 may be found
in ADAMS under Accession No.
ML22152A114.
Regulatory guides are not
copyrighted, and NRC approval is not
required to reproduce them.
FOR FURTHER INFORMATION CONTACT:
Ahsan Sallman, Office of Nuclear
Reactor Regulation, telephone: 301–
415–2380, email: Ahsan.Sallman@
nrc.gov, and James Steckel, Office of
Nuclear Regulatory Research, telephone:
301–415–1026, email: James.Steckel@
nrc.gov. Both are staff of the U.S.
Nuclear Regulatory Commission,
Washington, DC 20555–0001.
SUPPLEMENTARY INFORMATION:
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I. Discussion
The NRC is issuing a revision to an
existing guide in the NRC’s ‘‘Regulatory
Guide’’ series. This series was
developed to describe and make
available to the public information
regarding methods that are acceptable to
the NRC staff for implementing specific
parts of the agency’s regulations, to
explain techniques that the staff uses in
evaluating specific issues or postulated
events, and to describe information that
the staff needs in its review of
applications for permits and licenses.
Revision 5 of RG 1.82 was issued with
a temporary identification number of
DG–1385 (ADAMS Accession No.
ML21266A185).
Revision 5 of RG 1.82, describes an
approach that may be used to determine
quality standards acceptable to the NRC
staff to meet the regulatory requirements
for sumps and suppression pools that
provide water sources for emergency
core cooling, containment heat removal,
or containment atmosphere cleanup
systems. Revision 5 of RG 1.82 also
provides acceptable methods for
evaluating the adequacy and the
availability of the sump or suppression
pool for long-term recirculation cooling
following a loss-of-coolant accident, and
the use of containment accident
pressure in determining the net positive
suction head for the emergency core
cooling and containment heat removal
pumps.
II. Additional Information
In January 2015 the staff conducted a
periodic review of Revision 4 to RG
1.82, and on January 21, 2015, the staff
reported the results of the periodic
review, ‘‘Result of Periodic Review of
Regulatory Guide 1.82,’’ (ADAMS
Accession No. ML14345A333). Based on
the results of the periodic review, the
staff concluded that a revision of RG
1.82 was warranted.
The NRC published a notice of
availability of DG–1385 in the Federal
Register on February 8, 2022 (87 FR
7209) for a 30-day public comment
period. A request from the Nuclear
Energy Institute to allow more time for
members of the public to submit their
comments was accepted, and the public
comment period was extended to April
8, 2022 (87 FR 13019). Public comments
and staff responses to those comments
are available in ADAMS under
Accession No. ML22145A479. In
addition, staff considered and addressed
technical issues related to the periodic
review of RG 1.82, Revision 4.
III. Congressional Review Act
This RG is a rule as defined in the
Congressional Review Act (5 U.S.C.
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48203
801–808). However, the Office of
Management and Budget has not found
it to be a major rule as defined in the
Congressional Review Act.
IV. Backfitting, Forward Fitting, and
Issue Finality
The issuance of this regulatory guide
does not constitute backfitting as
defined in section 50.109 of title 10 of
the Code of Federal Regulations (10
CFR), ‘‘Backfitting,’’ and as described in
NRC Management Directive 8.4,
‘‘Management of Backfitting, Forward
Fitting, Issue Finality, and Information
Requests,’’ or affect issue finality of any
approval issued under 10 CFR part 52,
‘‘Licenses, Certificates, and Approvals
for Nuclear Power Plants,’’ because, as
explained in this regulatory guide,
licensees are not required to comply
with the positions set forth in this
regulatory guide.
V. Submitting Suggestions for
Improvement of Regulatory Guides
A member of the public may, at any
time, submit suggestions to the NRC for
improvement of existing RGs or for the
development of new RGs. Suggestions
can be submitted on the NRC’s public
website at https://www.nrc.gov/readingrm/doc-collections/reg-guides/
contactus.html. Suggestions will be
considered in future updates and
enhancements to the ‘‘Regulatory
Guide’’ series.
Dated: August 3, 2022.
For the Nuclear Regulatory Commission.
Meraj Rahimi,
Chief, Regulatory Guide and Programs
Management Branch, Division of Engineering,
Office of Nuclear Regulatory Research.
[FR Doc. 2022–16960 Filed 8–5–22; 8:45 am]
BILLING CODE 7590–01–P
NUCLEAR REGULATORY
COMMISSION
[Docket No. 05000184; EA–21–148; NRC–
2022–0150]
Confirmatory Order Modifying License
of National Institute of Standards and
Technology, Center for Neutron
Research
Nuclear Regulatory
Commission.
ACTION: Confirmatory Order; issuance.
AGENCY:
The U.S. Nuclear Regulatory
Commission (NRC) is issuing a
Confirmatory Order to the National
Institute of Standards and Technology,
Center for Neutron Research, as a result
of a successful alternative dispute
resolution mediation session. The
commitments outlined in the
SUMMARY:
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Federal Register / Vol. 87, No. 151 / Monday, August 8, 2022 / Notices
Confirmatory Order were made as a part
of a settlement agreement concerning
violations of NRC requirements related
to an event involving the exceedance of
a safety limit for fuel cladding
temperature.
For the Nuclear Regulatory Commission.
Tania Martı´nez Navedo,
Deputy Director, Office of Enforcement.
The Confirmatory Order became
effective on August 1, 2022.
NUCLEAR REGULATORY
COMMISSION
In the Matter of
National Institute of Standards and
Technology
Center for Neutron Research
U.S. Department of Commerce
Docket No.: 05000184
License No.: TR–5
EA–21–148
DATES:
Please refer to Docket ID
NRC–2022–0150 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–2022–0150. Address
questions about Docket IDs in
Regulations.gov to Stacy Schumann;
telephone: 301–415–0624; email:
Stacy.Schumann@nrc.gov. 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, 301–
415–4737, or by email to
PDR.Resource@nrc.gov. The
Confirmatory Order Modifying License
of National Institute of Standards and
Technology, Center for Neutron
Research, is available in ADAMS under
Accession No. ML22206A213.
• NRC’s PDR: You may examine and
purchase copies of public documents,
by appointment, at the NRC’s PDR,
Room P1 B35, One White Flint North,
11555 Rockville Pike, Rockville,
Maryland 20852. To make an
appointment to visit the PDR, please
send an email to PDR.Resource@nrc.gov
or call 1–800–397–4209 or 301–415–
4737, between 8:00 a.m. and 4:00 p.m.
Eastern Time (ET), Monday through
Friday, except Federal holidays.
ADDRESSES:
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FOR FURTHER INFORMATION CONTACT:
David Jones, Office of Enforcement, U.S.
Nuclear Regulatory Commission,
Washington, DC 20555–0001, telephone:
301–415–9525, email: David.Jones@
nrc.gov.
SUPPLEMENTARY INFORMATION:
The text of
the Order is attached.
Dated: August 3, 2022.
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Attachment—Confirmatory Order
UNITED STATES OF AMERICA
CONFIRMATORY ORDER
MODIFYING LICENSE
EFFECTIVE UPON ISSUANCE
The National Institute of Standards
and Technology (NIST), Center for
Neutron Research (NCNR or licensee),
U.S. Department of Commerce (DOC) is
the holder of License No. TR–5, issued
by the U.S. Nuclear Regulatory
Commission (NRC or Commission)
pursuant to Part 50 of Title 10 of the
Code of Federal Regulations (10 CFR).
NIST refers to the larger National
Institute of Standards and Technology
organization while NCNR refers
specifically to the licensee and operator
of the National Bureau of Standards Test
Reactor (NBSR or reactor). The license
authorizes the operation of the NBSR in
accordance with conditions specified
therein. The facility is located on the
NIST campus in Gaithersburg,
Maryland.
This Confirmatory Order (CO) is the
result of an agreement reached during
an Alternative Dispute Resolution
(ADR) mediation session conducted on
May 10, 2022, May 19, 2022, and June
2, 2022, to address seven apparent
violations.
II
The NBSR is a heavy-water (D2O)moderated-and-cooled, enriched-fuel,
tank-type reactor designed to operate at
20 megawatts thermal (MW(t)) power.
The facility operates continuously
during a 7-week operational cycle that
consists of approximately 38 days of
operation, followed by 10-day refueling
and maintenance outages.
On December 20, 2020, operators shut
down the reactor for a refueling outage.
During the refueling outage on January
4, 2021, fuel elements were shuffled
within the reactor vessel during day
shift. After the fuel elements were
placed in each core position, height
verification was performed using a
height gauge to ensure that the fuel
elements were fully latched in the lower
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grid plate. Following the February 3,
2021, event discussed below, the NRC
inspectors reviewed video footage of the
placement of fuel element S–1175 in the
J–7 core position and determined that
the fuel element was initially latched
after placement. However, the
inspectors observed that operators had
difficulty lowering the tool to fuel
element S–1175 during the subsequent
height verification. Performance of this
height verification likely contributed to
fuel element S–1175 becoming
unlatched. Further, the inspectors
observed that the operators improperly
performed the latch verification rotation
checks on the evening shift. Through
post-event interviews and observation of
the video footage of the refueling and
latch verification evolutions, the
inspectors determined that fuel element
S–1175 was likely not fully latched in
the J–7 core position at the end of fuel
handling operations on January 4, 2021.
On February 3, 2021, following the
refueling outage, NCNR reactor
operators were performing a normal
reactor startup when the reactor
automatically shut down in response to
indications of high confinement exhaust
stack radiation. Once the reactor was
placed in a safe condition, all personnel
evacuated the control room and reactor
confinement. The reactor was then
monitored by operators from the remote
Emergency Control Station. NCNR
subsequently declared an alert in
accordance with the facility emergency
plan and procedures. During the event,
six NCNR reactor personnel became
externally contaminated and were
monitored for internal exposure to
radioactive materials. Following the
event, NCNR personnel performed
environmental monitoring at the
confinement exhaust stack and at the
400-meter emergency planning site
boundary, which is located within the
fence line of the NIST Gaithersburg
campus. Environmental sampling for
radioactive material releases, as well as
radiological surveys, confirmed that
release amounts were a small fraction of
the alert and notification of unusual
event criteria in the emergency
procedures, which led to event
termination by NCNR later that day.
On March 2, 2021, NCNR submitted a
related event notification (EN 55120) to
inform the NRC that it had violated the
fuel cladding temperature safety limit
for damaged fuel element S–1175.
During subsequent visual inspection
activities where NCNR moved fuel
elements from the reactor core to the
fuel storage pool, the NRC inspectors
observed melted material deposited on
the lower grid plate. The inspectors also
observed that the damaged fuel element
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S–1175 nozzle was almost completely
blocked by melted material. The
inspectors noted that additional tests
would need to be performed to
determine the exact composition of the
melted material. The damaged fuel
element S–1175 is currently in a
container located within the fuel storage
pool awaiting shipment for further
analysis. The licensee has contracted
with Framatome to clean up the reactor
vessel and remove the melted material
from the lower grid plate, vessel, and
primary piping. Framatome is assisting
with various operations during this
recovery.
On March 16, 2022, the NRC’s Office
of Nuclear Reactor Regulation, Division
of Advanced Reactors and Non-Power
Production and Utilization Facilities,
issued a special inspection report to the
licensee. The inspection report included
the following seven apparent violations,
five of which NCNR identified in its
own review and reported to NRC staff:
1. Apparent Violation of Technical
Specification 2.1, ‘‘Safety Limit,’’ which
states that the reactor fuel cladding
temperature shall not exceed 842 °F
(420 °C) for any operating conditions of
power and flow. The NRC inspectors
observed once-molten material in and
around the fuel element nozzle of
element S–1175 in the J–7 grid position
indicating that the licensee exceeded
the fuel temperature safety limit.
2. Apparent Violation of Technical
Specification 3.1.3, ‘‘Core
Configuration,’’ which states that ‘‘[t]he
reactor shall not operate unless all grid
positions are filled with full length fuel
elements or thimbles, except during
subcritical and critical startup testing
with natural convection flow.’’ The NRC
inspectors observed that the fuel
element S–1175 was not latched, was
raised approximately 3–4 inches above
the upper grid plate, and was angled out
of its proper position, causing it to rest
on the lower grid plate surface.
3. Apparent Violation of Technical
Specification 6.4, ‘‘Procedures,’’ which
states, in part, that ‘‘[w]ritten
procedures shall be prepared, reviewed
and approved prior to initiating any of
the activities listed in this section
[including] . . . [f]uel loading,
unloading, and fuel movement within
the reactor vessel.’’ The NRC inspectors
determined that the procedure for fuel
handling activities was not suitable for
the circumstances and did not contain
necessary information to ensure that the
fuel elements were latched prior to
startup. As a result, the inspectors
determined that the fuel handling
procedure was inadequate to ensure that
the fuel element in question was latched
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during refueling activities on January 4,
2021.
4. Apparent Violation of Technical
Specification 6.4, ‘‘Procedures,’’ which
states, in part, that ‘‘[w]ritten
procedures shall be prepared, reviewed
and approved prior to initiating any of
the activities listed in this section
[including] . . . [s]tartup, operation,
and shutdown of the reactor.’’ The
reactor startup procedure instructs the
operators to monitor for abnormal
fluctuations or oscillations on nuclear
channel indications. However, the NRC
inspectors found that the procedure
does not provide amplifying guidance
for operators to use when conducting
this monitoring.
5. Apparent Violation of Technical
Specification 6.4, ‘‘Procedures,’’ which
states, in part, that ‘‘[w]ritten
procedures shall be prepared, reviewed
and approved prior to initiating any of
the activities listed in this section
[including] . . . [i]mplementation of
required plans such as emergency or
security plans.’’ The NRC inspectors
determined that NCNR emergency
response procedures were not suitable
for the circumstances and caused NCNR
to unnecessarily (although still within
the required timeframe) delay their
response to the event.
6. Apparent Violation of Technical
Specification 3.9.2.1, ‘‘Fuel Handling;
Within the Reactor Vessel,’’ which
states that ‘‘[f]ollowing handling of fuel
within the reactor vessel, the reactor
shall not be operated until all fuel
elements that have been handled are
inspected to determine that they are
locked in their proper positions in the
core grid structure. This shall be
accomplished by one of the following
methods: (1) Elevation check of the fuel
element with main pump flow. (2)
Rotational check of the element head in
the latching direction only. (3) Visual
inspection of the fuel element head or
latching bar.’’ The NRC inspectors
determined that NCNR operators failed
to implement one of the methods
required by the technical specifications
to ensure that fuel element S–1175 was
adequately latched.
7. Apparent violation of 10 CFR 50.59,
‘‘Changes, tests and experiments,’’
paragraph (c)(1), which states, in part,
that a licensee may make changes in the
facility without obtaining a license
amendment only if a change to the
technical specifications is not required.
The NRC inspectors determined that
NCNR made changes to the refueling
tooling that should have required a
change to the technical specifications
because dimensional differences of the
new tooling invalidated the capability of
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48205
operators to verify that a fuel element
was adequately latched.
For the seven apparent violations, the
NRC offered NCNR an opportunity to (1)
attend a pre-decisional enforcement
conference or (2) to participate in an
ADR mediation session to resolve this
concern. In response to the NRC’s offer,
NCNR requested the use of the NRC’s
ADR process to resolve the seven
apparent violations. On May 10, 2022,
the NRC and NCNR conducted an ADR
session mediated by a professional
mediator, arranged through Cornell
University’s Scheinman Institute on
Conflict Resolution. The ADR process is
one in which a neutral mediator, with
no decision-making authority, assists
the parties in reaching an agreement to
resolve any differences regarding the
dispute. This CO is issued pursuant to
the agreement reached as a result of the
full-day mediation session that occurred
on May 10, 2022, and two subsequent
virtual meetings that occurred on May
17, 2022, and June 2, 2022. The NRC
and NCNR signed the agreement in
principle (AIP) for the mediation
session on June 3, 2022.
III
NCNR and the NRC reached a
preliminary settlement agreement
during mediations. The elements of the
agreement included (1) corrective
actions completed by NCNR, (2)
corrective actions planned by NCNR, (3)
additional agreed upon future actions by
NCNR, and (4) general provisions.
Additionally, the NRC and NCNR
agreed that the apparent violations
described in Section II of this Order
were violations of regulatory
requirements. The NRC and NCNR
agreed that the safety significance of
these violations is normally
characterized at Severity Level 1 in
accordance with the NRC Enforcement
Policy. Additionally, the NRC
concluded that a civil penalty of up to
$432,000 would normally be proposed
for this violation, as assessed in
accordance with the civil penalty
assessment process discussed in Section
2.3.4 of the NRC Enforcement Policy.
However, due to the robust nature of
corrective actions taken and planned by
NCNR as documented in Sections III
and V, the NRC determined that waiving
a civil penalty is appropriate in this
case.
The parties agreed in the AIP to refine
the language of the AIP to reflect the
appropriate level of detail when
included in Section III of the CO. The
following is the refined language:
1. Based on a review of the incident,
NCNR completed corrective actions and
enhancements to preclude recurrence of
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the violation, including but not limited
to the following:
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a. NIST/NCNR Safety Culture
i. NCNR staff secured additional
funds for the Nuclear Safety Culture
Improvement Program (NSCIP), with
additional funds included in current
budget proposals.
ii. NCNR staff has drafted the NSCIP
program documents addressing problem
identification and resolution, root cause
investigations, training, procedures, and
oversight. These will be used to develop
a request for proposals to assist the
NCNR in program development and
implementation.
iii. NCNR has identified comparable
reactor facilities for purposes of
benchmarking various safety culture
programs, with in-person visits planned
or completed. Results from these
benchmarking visits will be used to
inform further development of the
NSCIP.
iv. NCNR staff reevaluated the root
cause analysis with an emphasis on
nuclear safety culture and is using this
evaluation to develop the NSCIP plan.
b. Management
i. NCNR leadership has engaged the
NIST Director and Department of
Commerce leadership for oversight and
secured additional funding for
corrective actions (including additional
operations personnel) and reactor
recovery and clean-up.
ii. NCNR currently staffs four rotating
shifts during normal operation and is
challenged to complete additional work
such as training, employee
development, and emergent
maintenance. NCNR leadership has
initiated hiring actions to establish a
fifth operating shift dedicated to
training and maintenance.
iii. Elevated Enterprise Risk
Management of NCNR to institutional
(NIST) level through the chartered NIST
Enterprise Risk Management Council.
The Council, which includes NIST
Senior Executives, identifies NIST
enterprise-level risks, tracks those risks
and their impacts, and reviews risk
mitigation progress and strategy.
iv. NCNR leadership appointed a
permanent Chief of Reactor Operations
to provide more continuity and stability.
v. NCNR hired a new Chief of the
Aging Reactor Management (ARM)
program. This position will provide
oversight of communications between
engineering and operations to help
ensure that identified issues are
resolved.
vi. NCNR confirmed or updated
management Performance Plans to
ensure that expectations for procedure
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use and adherence with consequences
for failure to follow required procedures
is part of employee reviews.
vii. Licensee staff including Reactor
Operations and Engineering leadership
took part in safety culture training given
by NCNR staff experienced in safety
culture training. The training covered
the following topics:
1. Human Performance Tools
2. Procedure Use and Adherence
3. Procedure Writing and Routing
Guides
4. SharePoint Use
5. Procedure Theory
6. Hazard Review
7. Risk Assessment
8. Mitigation Actions
9. Pre-Job Brief and Post-Job Critique
viii. NCNR conducted leadership
training for reactor supervisors. The
training was led by the Chief of Reactor
Operations and included the following
modules of leadership training for the
Commerce Learning Center:
1. Accountable Leadership
2. Influencing and Persuading Others
3. Becoming an Emotionally Intelligent
Leader
4. Networking to Improve Leadership
Effectiveness
5. New Leadership Transitions
6. Leading Others through Conflict
c. Corrective Action Program
i. NCNR implemented ‘‘Safety Good
Catch/Good Idea’’ program to
incentivize staff to identify, raise, and
address safety concerns in April 2021.
ii. Established Safety Evaluation
Committee (SEC) subcommittee to track
and oversee corrective actions.
iii. Established the Engineering
Change Management Program to provide
an administrative gate for 50.59
screening and execution for facility and
procedure modifications.
d. Procedures
i. NCNR modified Administrative
Requirement (AR) 5.0, ‘‘Procedure Use
and Adherence,’’ which guides conduct
of operations, to strengthen the
oversight role supervisors must play and
to require that all personnel be trained.
The required procedure use and
adherence training has been completed.
ii. Drafted and approved AR 5.1,
‘‘Procedure Writer’s Guide,’’ related to
procedure writing, which includes
addressing improvements to writing
quality.
iii. Identified procedures that will be
updated according to new guidance in
AR 5.1 prior to reactor startup.
iv. Updated procedure standards to
comply with PPA AP–907–005,
‘‘Procedure Writers’ Manual.’’
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v. Implemented AR 1.1, ‘‘Human
Performance Tools,’’ related to
improving training on a continuous
basis.
vi. Modified Operating Instruction
(OI) 1.1, ‘‘Reactor Startup,’’ to provide
detailed guidance on evaluation of
abnormal fluctuations in nuclear
instrumentation.
e. Technical
i. NCNR conducted 40 hours of
proficiency training for all Operations
Staff, emphasizing the importance of
latching and procedural compliance.
ii. Established proficiency
requirements for operators performing
fuel handling, including core loading,
shuffle, rotational latch checks, and
visual latch checks.
iii. Created Emergency Instructions
(EI) 3.8, ‘‘Recovery Operations,’’ and 3.9
‘‘Confinement Re-entry,’’ to provide
detailed guidance on building
reoccupation. In addition, EI 0.4,
‘‘Control Room Evacuation,’’ and EI 0.5,
‘‘Post-evacuation Checklist,’’ were
created to include an evacuation
checklist required to be used during an
evacuation to ensure confinement is safe
for operator re-entry.
iv. Performed Latch Improvement
Safety Analysis to document that
improved latching and latch check
processes provide adequate defense
against unlatching.
v. Assessed the efficacy of all tools
used in refueling to determine whether
improvements are needed and
concluded that, given the
discontinuation of height checks, the
tools are adequate to meet all new
refueling and latch check requirements.
vi. Conducted analysis as to whether
no-flow height checks should be
continued and concluded that the
equipment does not support height
checks with sufficient precision; heightrelated latch checks are no longer
prescribed.
vii. Reinstituted requirement for latch
checks prior to final pump restart and
modified OI 2.1.1, ‘‘Startup of the
Primary System for Criticality,’’ and OI
1.1.0, ‘‘Reactor Startup Checklist.’’
viii. Instituted a required rotation
latch check, performed by a second
individual and modified OI 6.1,
‘‘Fueling and Defueling.’’
ix. Instituted a redundant Technical
Specifications required method of visual
checks (using a digital camera plus
image analysis software) and modified
Operating Instruction (OI) 6.1.
x. Verified that the index plate is
consistently positioned by the use of
alignment pins and that rotational
fiduciary marks are clear to ensure fuel
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movement evolutions are performed
properly.
xi. Modified OI 6.1 series and OI 1.1A
CL to ensure that there will be no tool
contact with fuel head following final
visual latch verification prior to reactor
startup.
xii. Submitted License Amendment
Request to NRC to modify Technical
Specification 3.9.2.1 to require latch
verification through both mechanical
rotational and visual methods.
2. Based on a review of the incident,
NCNR plans to complete additional
corrective actions, including but not
limited to the following:
a. Management Systems
i. Conduct regular briefings of NIST
and DOC leadership regarding the
progress of operational safety and
corrective actions, and review of safety
culture.
ii. Participate in Enterprise Risk
Management reviews twice a year to
assess elevated risk impact of NCNR for
NIST.
iii. Develop and implement a change
management framework to evaluate
sufficiency of existing change
management processes and identify
gaps and areas for improvement.
iv. Develop a system for knowledge
and skills management in the presence
of personnel attrition.
v. Develop a plan for involving staff
in continuous improvement of reactor
operations, through participation in a
preventive action program that
encourages and rewards proactive
efforts to improve quality, safety, and
efficiency of operations.
vi. Hire a Deputy Chief of Reactor
Operations to provide additional
oversight and consistent leadership.
vii. Increase management engagement
by implementing AR 5.4, ‘‘Observation
Program,’’ which details requirements
for management and others to perform
observations with documentation of
findings and suggested improvements.
viii. Define requirements for
qualification as Crew Chief and
implement Crew Chief leadership and
development training.
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b. Qualification and Training
i. Develop a technical training
program for robust qualification and
training of supervisors, operators, and
candidates for: moving and handling
fuel; proficiency checks on key refueling
tasks; and proficiency checks for core
loading, shuffle, rotational latch checks
and visual latch checks. The program
will include training materials (e.g.,
qualification cards) and practical
experience with the use of the fuel
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handling stand, reflecting stated
learning objectives.
ii. Provide consistent and structured
training and immediate and continual
feedback to Non-Licensed Operators
(NLO) during on-the-job training to
ensure comprehension of performance
expectations.
iii. Develop consistent standard by
which all supervisors evaluate
qualifications.
iv. Develop a continuous formal
operator training program to provide
ongoing training through rotating
assignments of operators to a ‘‘fifth
shift’’ dedicated to training, procedure
development, and maintenance.
v. Implement mandatory oversight
training for supervisors.
vi. Require additional training in
leadership training and reactor
supervisor leadership training.
vii. Conduct proficiency training prior
to all future refueling events.
c. Procedures
i. Rewrite Operating Instruction (OI)
series 6.1, ‘‘Fueling and Defueling,’’ and
OI 6.2, ‘‘Operation of the Fuel Transfer
System,’’ to capture detail of fuel and
latch movements to align with training.
ii. Revise procedures necessary prior
to any reactor restart to be consistent
with INPO 11–003, ‘‘Guideline for
Excellence in Procedure and Work
Instruction Use and Adherence,’’ and
conducted training on procedure
protocols.
iii. Complete revision to procedures
required for startup.
iv. Design, test, and install noise gates
on selected nuclear instrumentation
channels to alert operator of abnormal
signal in progress.
d. Event Response
i. Develop guidelines that outline
methods for making measurements,
interpreting results, performing
calculations, and making dose
projections (e.g., dose projections that
are used as basis for 10 radiological
protective action recommendations and
those used to upgrade and downgrade
emergency classes).
ii. Develop a process to communicate
and track deficiencies in emergency
drills and exercises identified during
follow-up critiques; ensure corrective
and preventive actions are assigned
appropriately and tracked for timely
resolution.
iii. Implement an ethernet-based data
display for the emergency control
station, post-reactor startup to improve
remote monitoring and control
capabilities.
3. Based on NCNR’s review of the
incident and NRC’s concerns with
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48207
respect to precluding recurrence of the
violation, NCNR agrees to implement
corrective actions and enhancements in
the following areas:
a. Communications
b. Nuclear safety program assessments
to include:
i. Nuclear safety culture assessment
ii. Nuclear program assessment(s)
iii. Problem Identification and
Resolution program
iv. Employee concerns
v. Safety Culture Monitoring Panel
c. Training
d. Procedures
e. Benchmarking
f. Employee engagement
g. Leadership accountability
h. Technical issues
4. Based on the completed and
planned actions described above, and
the commitments described in Section V
of this Order, the NRC agrees to reduce
the civil penalty to $0, refrain from
issuing a cited notice of violation, and
not pursue any further enforcement
action based on the seven apparent
violations identified in the NRC’s March
16, 2022, letter.
5. The NRC will consider the
Confirmatory Order an escalated
enforcement action with respect to any
future enforcement actions.
6. On July 21, 2022, NCNR consented
to the issuance of this Confirmatory
Order with the requirements, as
described in Section V below. NCNR
further agreed that this Confirmatory
Order is to be effective upon issuance,
the agreement memorialized in this
Confirmatory Order settles the matter
between the parties, and that the
licensee has waived its right to a
hearing.
IV
Any decision of the NRC to approve
restart under 10 CFR 50.36(c)(1) would
be informed by but not solely reliant
upon this CO.
I find that the actions completed by
NCNR, as described in Section III above,
combined with the commitments as set
forth in Section V are acceptable and
necessary, and conclude that with these
completed actions and commitments the
public health and safety are reasonably
assured. In view of the foregoing, I have
determined that public health and safety
require that NCNR’s commitments be
confirmed by this Order. Based on the
above and NCNR’s consent, this
Confirmatory Order is effective upon
issuance.
V
Accordingly, pursuant to Sections
104b, 161b, 161i, 161o, 182, and 186 of
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the Atomic Energy Act of 1954, as
amended, and the Commission’s
regulations in 10 CFR 2.202 and 10 CFR
part 50 as applicable, it is hereby
ordered, effective upon issuance, that
license No. TR–5 is modified as follows:
1. Communications
a. Within 3 months of issuance of the
Confirmatory Order, the NIST Director
will issue a statement to NIST
employees communicating the specific
strategy to improve NCNR’s nuclear
safety culture. The communication will
include (1) a summary regarding the
Nuclear Safety Culture Improvement
Program, (2) the NRC’s concerns
expressed in its Special Inspection
Report, (3) specific lessons learned from
previously applied corrective actions,
and (4) corrective actions both taken
and planned. At least 30 days prior to
issuing the statement, NIST will provide
the statement for NRC staff review.
Within 15 days of receiving the
statement, the NRC staff will provide
feedback to NIST. NIST will incorporate
NRC staff feedback and notify the NRC
when the statement is issued.
b. Within 2 months of the NIST
Director’s statement, the NCNR Director
will hold an all-hands meeting with
NCNR employees for management to
discuss the importance of the above
communication. NCNR will require and
document attendance for the all-hands
meeting and maintain that
documentation in the NCNR employees
training records.
2. Nuclear Safety Program Assessments
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a. Nuclear Safety Culture Assessment
i. Within 6 months of issuance of the
CO, NCNR will hire a third-party,
independent nuclear consultant
(consultant) to conduct an independent
third-party nuclear safety culture
assessment. The contract will specify
that the consultant will assist NCNR in
the implementation of the
recommendations and corrective actions
identified in the assessment to prevent
recurrence of the February 3, 2021,
event or similar events at the NBSR.
ii. Prior to issuance of the Request for
Quotations, NCNR will include criteria
equivalent to the those described in
Section 03.02.c.1, c.2, and c.3 of
Inspection Procedure 95003,
‘‘Supplemental Inspection for Repetitive
Degraded Cornerstones, Multiple
Degraded Cornerstones, Multiple
Yellow Inputs or One Red Input,’’ dated
June 7, 2022, to ensure a consultant
with the appropriate qualifications is
identified.
iii. Within 6 months of contract award
to the consultant, NCNR will submit a
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copy of the safety assessment report and
NCNR’s written response to the
assessment report to the NRC. NCNR’s
written response will either address
how it will implement the
recommendations and corrective actions
of the assessment report, including a
proposed timeline; or provide an
explanation and justification for why
the recommendation(s) and corrective
action(s) will not be implemented.
iv. Within 2 months of submitting the
assessment report to the NRC, the NCNR
Director shall issue written and verbal
communications providing the results of
the assessment, recommendations, and
corrective actions to the NCNR staff. At
least 30 days prior to issuing the written
communication, NCNR will provide the
statement for NRC staff review. Within
15 days of receiving the statement, the
NRC staff will provide feedback to
NCNR staff. NCNR will notify the NRC
when the statement is issued.
v. The assessment will include
employee surveys, the review of
anonymous reports, and contractorconducted interviews and focus groups
to assess the effectiveness of the
programs.
vi. NCNR will ensure this consultant
is provided with all necessary materials,
reports, and access to personnel to
complete its assessment. The reports
shall include the NRC special
inspection report dated March 16, 2022,
future NRC inspections reports
regarding the February 3, 2021, event,
and NCNR safety evaluation committee
and safety assessment committee (SEC/
SAC) reports.
vii. Within 12 months of completing
the initial assessment, the consultant
will perform a second assessment to
ensure the sustainability and
effectiveness of the corrective actions
within the identified areas. Within 30
days of receiving the report, NCNR will
submit a copy of the second assessment
report to the NRC.
viii. Within 12 months of completing
the second assessment, the consultant
will conduct a third assessment to
ensure long term sustainability and
effectiveness of the identified
recommendations and corrective
actions. Within 30 days of receiving the
report, NCNR will submit a copy of the
third assessment report to the NRC.
b. Nuclear Program Assessment(s)
i. Within 12 months of the issuance of
the CO, NCNR will hire one or more
third-party, independent nuclear
consultant(s) to conduct an independent
third-party assessment(s) and notify the
NRC of the timeline for the completion
of the assessment(s). The contract will
specify that the nuclear consultant(s)
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will assist NCNR in the implementation
of the recommendations and corrective
actions identified in the assessment(s) to
prevent recurrence of the February 3,
2021, event or similar events at the
NBSR. The consultant’s (or consultants’)
assessment(s) will include
recommended corrective actions in the
following areas:
1. Problem Identification and Resolution
2. Event Root Cause
3. Training
4. Procedures
5. Safety Assessment Committee
6. Safety Evaluation Committee
independence and effective oversight
ii. Within 3 months of issuance of the
assessment report(s) (or within 3
months of the issuance of the last report,
if multiple contracts are awarded),
NCNR will submit a copy of the safety
assessment report(s) and NCNR’s
written response to the assessment
report(s) to the NRC. NCNR’s written
response will either address how it will
implement the recommendations and
corrective actions of the assessment
report(s), including a proposed timeline;
or provide an explanation and
justification for why the
recommendation(s) and corrective
action(s) will not be implemented.
iii. Within 2 months of submitting the
assessment report(s) to the NRC, the
NCNR Director shall issue written and
verbal communications providing the
results of the assessment,
recommendations, and corrective
actions to the NCNR staff. At least 30
days prior to issuing the written
communication, NCNR will provide the
statement for NRC staff review. Within
15 days of receiving the statement, the
NRC staff will provide feedback to
NCNR staff. NCNR will notify the NRC
when the statement is issued.
iv. NCNR will ensure this consultant
is provided with all necessary materials
and access to personnel to complete its
assessment, including NRC inspection
reports, SEC/SAC reports, and the
interim and final special inspection
reports.
c. Problem Identification and Resolution
Program
i. By September 30, 2022, NCNR will
develop an Observation program with
program goals to provide for periodic
management oversight of procedures
and procedure adherence.
ii. By September 30, 2022, NCNR will
develop a System Review Team program
with program goals of reviewing system
changes, including but not limited to
components and procedures, and
generating reports for the Aging Reactor
Management review.
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iii. By October 31, 2022, NCNR will
develop and implement the Level 3
Corrective Action Program.
iv. By December 31, 2022, NCNR will
develop and implement the Level 2
Corrective Action Program.
v. By March 31, 2023, NCNR will
develop and implement the Level 1
Corrective Action Program.
vi. Within 1 month of program
finalization, NCNR will submit program
documentation to the NRC for review
and comment.
vii. Within 3 months of NRC
comment, NCNR will incorporate NRC
staff feedback.
viii. The NCNR will maintain these
programs to track, trend, and correct
failures and deficiencies to prevent
recurrence.
d. Employee Concerns
i. Within 6 months of issuance of the
CO, NCNR will develop a formal
program for NCNR employees to raise
concerns. The program will describe
and include methods to address the
following types of concerns:
1. anonymous employee concerns
2. employee protection
3. nuclear safety culture
4. chilling effect
ii. Within 1 month of program
development, NCNR will submit
program documentation to the NRC for
review and comment.
iii. Within 2 months of NRC
comment, NCNR will incorporate NRC
staff feedback and implement and
maintain the program.
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e. Safety Culture Monitoring Panel
i. Within 9 months of issuance of the
CO, NCNR will develop a formal
program to monitor the nuclear safety
culture informed by the elements of NEI
09–07, ‘‘Fostering a Healthy Nuclear
Safety Culture,’’ Revision 1.
ii. Within 1 month of program
development, NCNR will submit
program documentation to the NRC for
review and comment.
iii. Within 2 months of NRC
comment, NCNR will incorporate NRC
staff feedback and implement and
maintain the program.
3. Training
In addition to the recommendations
and corrective actions related to training
identified during the above assessment
(see Provision 2.b.i):
a. Prior to any restart, NCNR will
conduct training of all licensed
operators on the performance of fuel
loading and latch checking procedures
in accordance with ANSI/ANS–15.4–
2016, ‘‘American National Standard
Selection and Training of Personnel for
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Research Reactors.’’ NCNR will
maintain records of training completion
for all licensed operators.
b. Within 3 months of issuance of the
CO, NCNR will modify its
requalification plan to specify that every
‘‘reactor operating test or evaluation’’
portion of NCNR licensed operator
requalification training must include
‘‘other reactivity tasks including fuel
movements, insertion and removal of
experiments, and rod exchange or
movements without power change’’ as
one of the five tasks selected from
Section 5.4 (as specified in Section
6.2.5) of ANSI/ANS–15.4–2016,
‘‘American National Standard Selection
and Training of Personnel for Research
Reactors.’’
4. Procedures
a. Prior to any restart, NCNR will
develop, implement, and maintain a
written procedure that covers
procedural use and adherence in
accordance with the most recent version
of INPO 11–003, ‘‘Guideline for
Excellence in Procedure and Work
Instruction Use and Adherence.’’
b. Procedures referenced in paragraph
1.d of Section III of this CO will be
subject to inspection prior to any restart.
c. Within 30 months of issuance of the
CO, NCNR will develop, implement,
and maintain all procedures involving
reactor operations activities in
accordance with the most recent version
of PPA AP–907–005, ‘‘Procedure
Writers’ Manual.’’
5. Benchmarking
a. Starting 12 months after CO
issuance, NCNR will benchmark one
program (e.g., training, procedure
process, corrective action program,
configuration control/change
management etc.) each calendar year, to
include site visits and observations at
another facility. Because NCNR is much
larger in both thermal output and
staffing than most research and test
reactors (RTRs) and operates at a
cadence similar to commercial power
reactors, NCNR will not solely
benchmark RTRs. Conversely, the NCNR
is a much smaller organization than a
commercial power reactor, so NCNR
will also not solely benchmark power
reactors. NCNR shall be strategic when
deciding the appropriate facility to
benchmark, selecting a facility with a
program commensurate to the one
NCNR is benchmarking. NCNR should
also consider input from the nuclear
consultants identified in Provisions 2.a
and 2.b on the appropriate facility
programs to benchmark (i.e., a
commercial power reactor’s safety
culture program; Advanced Test
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48209
Reactor’s problem identification and
resolution program, etc.). Furthermore,
benchmarking shall include multiple
levels of NCNR staff and shall not be
limited to NCNR senior management.
NCNR will document this activity,
observations, and decisions regarding
changes to NCNR’s programs.
b. For 3 years following issuance of
the CO, at least one NCNR staff member
shall attend 2 of the following relevant
industry conferences per calendar year:
i. National Organization of Test,
Research and Training Reactors
(TRTR)
ii. National Association of Employee
Concerns Professionals (NAECP)
iii. NRC’s Regulatory Information
Conference (RIC)
iv. American Nuclear Society (ANS)
v. Department of Energy (DOE), if
applicable
6. Employee Engagement
Within 6 months of the issuance of
the CO, NCNR will establish and
maintain a rewards and recognition
program to encourage employees to
raise concerns and will incorporate a
safety recognition program into the
performance evaluation process. The
program will include the following:
a. encourage informal recognition of
safety achievements;
b. establish a formal recognition
program with tangible rewards;
c. encourage the staff to seek advice
and to proceed with caution;
d. communicate expectations and
ensure that safety correspondence such
as near misses, good catches, operating
experience, and safety flash
communications are developed and
communicated to the workforce.
7. Leadership Accountability
a. Within 12 months of consultant
contract award, NCNR will provide the
NRC with documentation of any
revisions to the Safety Evaluation
Committee charter as informed by the
nuclear consultant(s) selected under
item 2.b.
b. Within 12 months of the contract
award discussed in Provision 2.b, NCNR
will conduct training for all senior
leaders, with support of the nuclear
consultant selected under Provision 2.b,
and which will include training on
NUREG–2165, ‘‘Safety Culture Common
Language’’ (INPO 12–012, ‘‘Traits of a
Healthy Nuclear Safety Culture,’’
Revision 1). NCNR will incorporate this
leadership training into an annual
required safety culture refresher training
for senior leaders.
c. By the beginning of fiscal year
2023, NCNR will develop and maintain
performance appraisal assessment
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criteria for periodic annual evaluations
of NCNR supervisors and managers to
assess their performance regarding
nuclear safety culture.
d. Within 12 months of the issuance
of the CO, NCNR will present at a
publicly attended annual conference
(such as TRTR, NAECP, ANS). If asked
by the NRC, NCNR will also present at
the RIC. The presentation will address
the cause of the February 3, 2021, event
and corrective actions taken by NCNR
and will include a discussion of the
NRC’s findings. Two months prior to the
conference, NCNR will submit the
presentation to the NRC for review and
comment, and NCNR will incorporate
any comments from the NRC staff into
the final presentation.
e. Within 3 months of issuance of the
CO, NCNR will provide a timeline to
address staffing challenges to the NRC
for review.
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8. Technical Issues
a. Within 3 months of the issuance of
the CO, NCNR will provide an
assessment of options to replace NCNR’s
reliance upon administrative controls/
actions to ensure that fuel assemblies
are adequately latched.
b. Within 6 months of any restart of
regular reactor operations (defined as
the return to 24 hour/day operations at
20 MW), NCNR will implement the
condition-based monitoring systems for
nuclear instrumentation that could
provide a very early warning to control
room operators of mechanical anomalies
during reactor startup.
c. Within 12 months of the issuance
of the CO, NCNR will develop an
engineered solution to automatically
secure carbon dioxide following a major
SCRAM. NCNR will implement the
proposed solution using the appropriate
regulatory process or provide the NRC
with an engineering analysis that
includes a justification for not
implementing a design change.
d. Within 12 months of issuance of
the CO, NCNR will provide an
assessment of the configuration
management process and how it is
incorporated with problem
identification and resolution processes.
9. Upon completion of the terms of
items of the CO, NCNR will provide the
NRC with a letter discussing its basis for
concluding that the requirements of this
Order have been adequately
implemented.
In the event of the transfer of the
license of NCNR to another entity, the
terms and conditions set forth
hereunder shall continue to apply to the
new entity and accordingly survive any
transfer of ownership or license.
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The Director, Office of Enforcement,
may, in writing, relax, rescind, or
withdraw any of the above conditions
upon demonstration by NCNR or its
successors of good cause.
VI
In accordance with 10 CFR 2.202 and
10 CFR 2.309, any person adversely
affected by this CO, other than NIST/
NCNR, may request a hearing within 30
calendar days of the date of issuance of
this CO. Where good cause is shown,
consideration will be given to extending
the time to request a hearing. A request
for extension of time must be made in
writing to the Director, Office of
Enforcement, U.S. Nuclear Regulatory
Commission, Washington, DC 20555,
and include a statement of good cause
for the extension.
All documents filed in NRC
adjudicatory proceedings, including a
request for hearing and petition for
leave to intervene (petition), any motion
or other document filed in the
proceeding prior to the submission of a
petition, and documents filed by
interested governmental entities that
request to participate under 10 CFR
2.315(c), must be filed in accordance
with the NRC’s E-Filing rule (72 FR
49139; August 28, 2007, as amended at
77 FR 46562; August 3, 2012). The EFiling process requires participants to
submit and serve all adjudicatory
documents over the internet, or in some
cases to mail copies on electronic
storage media. Detailed guidance on
making electronic submissions may be
found in the Guidance for Electronic
Submissions to the NRC and on the NRC
website at https://www.nrc.gov/sitehelp/esubmittals.html. Participants may
not submit paper copies of their filings
unless they seek an exemption in
accordance with the procedures
described below.
To comply with the procedural
requirements of E-Filing, at least 10
days prior to the filing deadline, the
participant should contact the Office of
the Secretary by email at
hearing.docket@nrc.gov, or by telephone
at 301–415–1677, to (1) request a digital
identification (ID) certificate, which
allows the participant (or its counsel or
representative) to digitally sign
submissions and access the E-Filing
system for any proceeding in which it
is participating; and (2) advise the
Secretary that the participant will be
submitting a petition or other
adjudicatory document (even in
instances in which the participant, or its
counsel or representative, already holds
an NRC-issued digital ID certificate).
Based upon this information, the
Secretary will establish an electronic
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docket for the hearing in this proceeding
if the Secretary has not already
established an electronic docket.
Information about applying for a
digital ID certificate is available on the
NRC’s public website at https://
www.nrc.gov/site-help/e-submittals/
getting-started.html. Once a participant
has obtained a digital ID certificate and
a docket has been created, the
participant can then submit
adjudicatory documents. Submissions
must be in Portable Document Format
(PDF). Additional guidance on PDF
submissions is available on the NRC’s
public website at https://www.nrc.gov/
site-help/electronic-sub-ref-mat.html. A
filing is considered complete at the time
the document is submitted through the
NRC’s E-Filing system. To be timely, an
electronic filing must be submitted to
the E-Filing system no later than 11:59
p.m. Eastern Time on the due date.
Upon receipt of a transmission, the EFiling system time-stamps the document
and sends the submitter an email notice
confirming receipt of the document. The
E-Filing system also distributes an email
notice that provides access to the
document to the NRC’s Office of the
General Counsel and any others who
have advised the Office of the Secretary
that they wish to participate in the
proceeding, so that the filer need not
serve the document on those
participants separately. Therefore,
applicants and other participants (or
their counsel or representative) must
apply for and receive a digital ID
certificate before adjudicatory
documents are filed so that they can
obtain access to the documents via the
E-Filing system.
A person filing electronically using
the NRC’s adjudicatory E-Filing system
may seek assistance by contacting the
NRC’s Electronic Filing Help Desk
through the ‘‘Contact Us’’ link located
on the NRC’s public website at https://
www.nrc.gov/site-help/
e-submittals.html, by email to
MSHD.Resource@nrc.gov, or by a tollfree call at 1–866–672–7640. The NRC
Electronic Filing Help Desk is available
between 9 a.m. and 6 p.m., Eastern
Time, Monday through Friday,
excluding government holidays.
Participants who believe that they
have good cause for not submitting
documents electronically must file an
exemption request, in accordance with
10 CFR 2.302(g), with their initial paper
filing stating why there is good cause for
not filing electronically and requesting
authorization to continue to submit
documents in paper format. Such filings
must be submitted by (1) first class mail
addressed to the Office of the Secretary
of the Commission, U.S. Nuclear
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Regulatory Commission, Washington,
DC 20555–0001, Attention: Rulemaking
and Adjudications Staff; or (2) courier,
express mail, or expedited delivery
service to the Office of the Secretary,
11555 Rockville Pike, Rockville,
Maryland 20852, Attention: Rulemaking
and Adjudications Staff. Participants
filing adjudicatory documents in this
manner are responsible for serving the
document on all other participants.
Filing is considered complete by firstclass mail as of the time of deposit in
the mail, or by courier, express mail, or
expedited delivery service upon
depositing the document with the
provider of the service. A presiding
officer, having granted an exemption
request from using E-Filing, may require
a participant or party to use E-Filing if
the presiding officer subsequently
determines that the reason for granting
the exemption from use of E-Filing no
longer exists.
Documents submitted in adjudicatory
proceedings will appear in the NRC’s
electronic hearing docket which is
available to the public at https://
adams.nrc.gov/ehd, unless excluded
pursuant to an order of the Commission
or the presiding officer. If you do not
have an NRC-issued digital ID certificate
as described above, click ‘‘cancel’’ when
the link requests certificates and you
will be automatically directed to the
NRC’s electronic hearing dockets where
you will be able to access any publicly
available documents in a particular
hearing docket. Participants are
requested not to include personal
privacy information, such as social
security numbers, home addresses, or
personal phone numbers in their filings,
unless an NRC regulation or other law
requires submission of such
information. For example, in some
instances, individuals provide home
addresses in order to demonstrate
proximity to a facility or site. With
respect to copyrighted works, except for
limited excerpts that serve the purpose
of the adjudicatory filings and would
constitute a Fair Use application,
participants are requested not to include
copyrighted materials in their
submission.
The Commission will issue a notice or
order granting or denying a petition,
designating the issues for any hearing
that will be held, and designating the
Presiding Officer. A notice granting a
hearing will be published in the Federal
Register and served on the parties to the
hearing.
If a person (other than NIST/NCNR)
requests a hearing, that person shall set
forth with particularity the manner in
which his interest is adversely affected
by this CO and shall address the criteria
VerDate Sep<11>2014
21:34 Aug 05, 2022
Jkt 256001
set forth in 10 CFR 2.309(d) and (f). If
a hearing is requested by a person
whose interest is adversely affected, the
Commission will issue an order
designating the time and place of any
hearings. If a hearing is held, the issue
to be considered at such hearing shall be
whether this CO should be sustained.
In the absence of any request for
hearing, or written approval of an
extension of time in which to request a
hearing, the provisions specified in
Section V above shall be final 30 days
from the date of this CO without further
order or proceedings. If an extension of
time for requesting a hearing has been
approved, the provisions specified in
Section V shall be final when the
extension expires if a hearing request
has not been received.
For the Nuclear Regulatory Commission.
Dated this 1st day of August 2022.
Mark D. Lombard,
Director, Office of Enforcement.
[FR Doc. 2022–16949 Filed 8–5–22; 8:45 am]
BILLING CODE 7590–01–P
POSTAL REGULATORY COMMISSION
[Docket Nos. MC2022–93 and CP2022–97]
New Postal Products
Postal Regulatory Commission.
Notice.
AGENCY:
ACTION:
The Commission is noticing a
recent Postal Service filing for the
Commission’s consideration concerning
a negotiated service agreement. This
notice informs the public of the filing,
invites public comment, and takes other
administrative steps.
DATES: Comments are due: August 9,
2022.
SUMMARY:
Submit comments
electronically via the Commission’s
Filing Online system at https://
www.prc.gov. Those who cannot submit
comments electronically should contact
the person identified in the FOR FURTHER
INFORMATION CONTACT section by
telephone for advice on filing
alternatives.
ADDRESSES:
FOR FURTHER INFORMATION CONTACT:
David A. Trissell, General Counsel, at
202–789–6820.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Introduction
II. Docketed Proceeding(s)
48211
to negotiated service agreement(s). The
request(s) may propose the addition or
removal of a negotiated service
agreement from the market dominant or
the competitive product list, or the
modification of an existing product
currently appearing on the market
dominant or the competitive product
list.
Section II identifies the docket
number(s) associated with each Postal
Service request, the title of each Postal
Service request, the request’s acceptance
date, and the authority cited by the
Postal Service for each request. For each
request, the Commission appoints an
officer of the Commission to represent
the interests of the general public in the
proceeding, pursuant to 39 U.S.C. 505
(Public Representative). Section II also
establishes comment deadline(s)
pertaining to each request.
The public portions of the Postal
Service’s request(s) can be accessed via
the Commission’s website (https://
www.prc.gov). Non-public portions of
the Postal Service’s request(s), if any,
can be accessed through compliance
with the requirements of 39 CFR
3011.301.1
The Commission invites comments on
whether the Postal Service’s request(s)
in the captioned docket(s) are consistent
with the policies of title 39. For
request(s) that the Postal Service states
concern market dominant product(s),
applicable statutory and regulatory
requirements include 39 U.S.C. 3622, 39
U.S.C. 3642, 39 CFR part 3030, and 39
CFR part 3040, subpart B. For request(s)
that the Postal Service states concern
competitive product(s), applicable
statutory and regulatory requirements
include 39 U.S.C. 3632, 39 U.S.C. 3633,
39 U.S.C. 3642, 39 CFR part 3035, and
39 CFR part 3040, subpart B. Comment
deadline(s) for each request appear in
section II.
II. Docketed Proceeding(s)
1. Docket No(s).: MC2022–93 and
CP2022–97; Filing Title: USPS Request
to Add Priority Mail Contract 753 to
Competitive Product List and Notice of
Filing Materials Under Seal; Filing
Acceptance Date: August 1, 2022; Filing
Authority: 39 U.S.C. 3642, 39 CFR
3040.130 through 3040.135, and 39 CFR
3035.105; Public Representative:
Christopher C. Mohr; Comments Due:
August 9, 2022.
I. Introduction
The Commission gives notice that the
Postal Service filed request(s) for the
Commission to consider matters related
PO 00000
Frm 00065
Fmt 4703
Sfmt 4703
1 See Docket No. RM2018–3, Order Adopting
Final Rules Relating to Non-Public Information,
June 27, 2018, Attachment A at 19–22 (Order No.
4679).
E:\FR\FM\08AUN1.SGM
08AUN1
Agencies
[Federal Register Volume 87, Number 151 (Monday, August 8, 2022)]
[Notices]
[Pages 48203-48211]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-16949]
-----------------------------------------------------------------------
NUCLEAR REGULATORY COMMISSION
[Docket No. 05000184; EA-21-148; NRC-2022-0150]
Confirmatory Order Modifying License of National Institute of
Standards and Technology, Center for Neutron Research
AGENCY: Nuclear Regulatory Commission.
ACTION: Confirmatory Order; issuance.
-----------------------------------------------------------------------
SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) is issuing a
Confirmatory Order to the National Institute of Standards and
Technology, Center for Neutron Research, as a result of a successful
alternative dispute resolution mediation session. The commitments
outlined in the
[[Page 48204]]
Confirmatory Order were made as a part of a settlement agreement
concerning violations of NRC requirements related to an event involving
the exceedance of a safety limit for fuel cladding temperature.
DATES: The Confirmatory Order became effective on August 1, 2022.
ADDRESSES: Please refer to Docket ID NRC-2022-0150 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-2022-0150. 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, 301-415-4737, or
by email to [email protected]. The Confirmatory Order Modifying
License of National Institute of Standards and Technology, Center for
Neutron Research, is available in ADAMS under Accession No.
ML22206A213.
NRC's PDR: You may examine and purchase copies of public
documents, by appointment, at the NRC's PDR, Room P1 B35, One White
Flint North, 11555 Rockville Pike, Rockville, Maryland 20852. 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
8:00 a.m. and 4:00 p.m. Eastern Time (ET), Monday through Friday,
except Federal holidays.
FOR FURTHER INFORMATION CONTACT: David Jones, Office of Enforcement,
U.S. Nuclear Regulatory Commission, Washington, DC 20555-0001,
telephone: 301-415-9525, email: [email protected].
SUPPLEMENTARY INFORMATION: The text of the Order is attached.
Dated: August 3, 2022.
For the Nuclear Regulatory Commission.
Tania Mart[iacute]nez Navedo,
Deputy Director, Office of Enforcement.
Attachment--Confirmatory Order
UNITED STATES OF AMERICA
NUCLEAR REGULATORY COMMISSION
In the Matter of
National Institute of Standards and Technology
Center for Neutron Research
U.S. Department of Commerce
Docket No.: 05000184
License No.: TR-5
EA-21-148
CONFIRMATORY ORDER MODIFYING LICENSE
EFFECTIVE UPON ISSUANCE
The National Institute of Standards and Technology (NIST), Center
for Neutron Research (NCNR or licensee), U.S. Department of Commerce
(DOC) is the holder of License No. TR-5, issued by the U.S. Nuclear
Regulatory Commission (NRC or Commission) pursuant to Part 50 of Title
10 of the Code of Federal Regulations (10 CFR). NIST refers to the
larger National Institute of Standards and Technology organization
while NCNR refers specifically to the licensee and operator of the
National Bureau of Standards Test Reactor (NBSR or reactor). The
license authorizes the operation of the NBSR in accordance with
conditions specified therein. The facility is located on the NIST
campus in Gaithersburg, Maryland.
This Confirmatory Order (CO) is the result of an agreement reached
during an Alternative Dispute Resolution (ADR) mediation session
conducted on May 10, 2022, May 19, 2022, and June 2, 2022, to address
seven apparent violations.
II
The NBSR is a heavy-water (D2O)-moderated-and-cooled, enriched-
fuel, tank-type reactor designed to operate at 20 megawatts thermal
(MW(t)) power. The facility operates continuously during a 7-week
operational cycle that consists of approximately 38 days of operation,
followed by 10-day refueling and maintenance outages.
On December 20, 2020, operators shut down the reactor for a
refueling outage. During the refueling outage on January 4, 2021, fuel
elements were shuffled within the reactor vessel during day shift.
After the fuel elements were placed in each core position, height
verification was performed using a height gauge to ensure that the fuel
elements were fully latched in the lower grid plate. Following the
February 3, 2021, event discussed below, the NRC inspectors reviewed
video footage of the placement of fuel element S-1175 in the J-7 core
position and determined that the fuel element was initially latched
after placement. However, the inspectors observed that operators had
difficulty lowering the tool to fuel element S-1175 during the
subsequent height verification. Performance of this height verification
likely contributed to fuel element S-1175 becoming unlatched. Further,
the inspectors observed that the operators improperly performed the
latch verification rotation checks on the evening shift. Through post-
event interviews and observation of the video footage of the refueling
and latch verification evolutions, the inspectors determined that fuel
element S-1175 was likely not fully latched in the J-7 core position at
the end of fuel handling operations on January 4, 2021.
On February 3, 2021, following the refueling outage, NCNR reactor
operators were performing a normal reactor startup when the reactor
automatically shut down in response to indications of high confinement
exhaust stack radiation. Once the reactor was placed in a safe
condition, all personnel evacuated the control room and reactor
confinement. The reactor was then monitored by operators from the
remote Emergency Control Station. NCNR subsequently declared an alert
in accordance with the facility emergency plan and procedures. During
the event, six NCNR reactor personnel became externally contaminated
and were monitored for internal exposure to radioactive materials.
Following the event, NCNR personnel performed environmental monitoring
at the confinement exhaust stack and at the 400-meter emergency
planning site boundary, which is located within the fence line of the
NIST Gaithersburg campus. Environmental sampling for radioactive
material releases, as well as radiological surveys, confirmed that
release amounts were a small fraction of the alert and notification of
unusual event criteria in the emergency procedures, which led to event
termination by NCNR later that day.
On March 2, 2021, NCNR submitted a related event notification (EN
55120) to inform the NRC that it had violated the fuel cladding
temperature safety limit for damaged fuel element S-1175. During
subsequent visual inspection activities where NCNR moved fuel elements
from the reactor core to the fuel storage pool, the NRC inspectors
observed melted material deposited on the lower grid plate. The
inspectors also observed that the damaged fuel element
[[Page 48205]]
S-1175 nozzle was almost completely blocked by melted material. The
inspectors noted that additional tests would need to be performed to
determine the exact composition of the melted material. The damaged
fuel element S-1175 is currently in a container located within the fuel
storage pool awaiting shipment for further analysis. The licensee has
contracted with Framatome to clean up the reactor vessel and remove the
melted material from the lower grid plate, vessel, and primary piping.
Framatome is assisting with various operations during this recovery.
On March 16, 2022, the NRC's Office of Nuclear Reactor Regulation,
Division of Advanced Reactors and Non-Power Production and Utilization
Facilities, issued a special inspection report to the licensee. The
inspection report included the following seven apparent violations,
five of which NCNR identified in its own review and reported to NRC
staff:
1. Apparent Violation of Technical Specification 2.1, ``Safety
Limit,'' which states that the reactor fuel cladding temperature shall
not exceed 842 [deg]F (420 [deg]C) for any operating conditions of
power and flow. The NRC inspectors observed once-molten material in and
around the fuel element nozzle of element S-1175 in the J-7 grid
position indicating that the licensee exceeded the fuel temperature
safety limit.
2. Apparent Violation of Technical Specification 3.1.3, ``Core
Configuration,'' which states that ``[t]he reactor shall not operate
unless all grid positions are filled with full length fuel elements or
thimbles, except during subcritical and critical startup testing with
natural convection flow.'' The NRC inspectors observed that the fuel
element S-1175 was not latched, was raised approximately 3-4 inches
above the upper grid plate, and was angled out of its proper position,
causing it to rest on the lower grid plate surface.
3. Apparent Violation of Technical Specification 6.4,
``Procedures,'' which states, in part, that ``[w]ritten procedures
shall be prepared, reviewed and approved prior to initiating any of the
activities listed in this section [including] . . . [f]uel loading,
unloading, and fuel movement within the reactor vessel.'' The NRC
inspectors determined that the procedure for fuel handling activities
was not suitable for the circumstances and did not contain necessary
information to ensure that the fuel elements were latched prior to
startup. As a result, the inspectors determined that the fuel handling
procedure was inadequate to ensure that the fuel element in question
was latched during refueling activities on January 4, 2021.
4. Apparent Violation of Technical Specification 6.4,
``Procedures,'' which states, in part, that ``[w]ritten procedures
shall be prepared, reviewed and approved prior to initiating any of the
activities listed in this section [including] . . . [s]tartup,
operation, and shutdown of the reactor.'' The reactor startup procedure
instructs the operators to monitor for abnormal fluctuations or
oscillations on nuclear channel indications. However, the NRC
inspectors found that the procedure does not provide amplifying
guidance for operators to use when conducting this monitoring.
5. Apparent Violation of Technical Specification 6.4,
``Procedures,'' which states, in part, that ``[w]ritten procedures
shall be prepared, reviewed and approved prior to initiating any of the
activities listed in this section [including] . . . [i]mplementation of
required plans such as emergency or security plans.'' The NRC
inspectors determined that NCNR emergency response procedures were not
suitable for the circumstances and caused NCNR to unnecessarily
(although still within the required timeframe) delay their response to
the event.
6. Apparent Violation of Technical Specification 3.9.2.1, ``Fuel
Handling; Within the Reactor Vessel,'' which states that ``[f]ollowing
handling of fuel within the reactor vessel, the reactor shall not be
operated until all fuel elements that have been handled are inspected
to determine that they are locked in their proper positions in the core
grid structure. This shall be accomplished by one of the following
methods: (1) Elevation check of the fuel element with main pump flow.
(2) Rotational check of the element head in the latching direction
only. (3) Visual inspection of the fuel element head or latching bar.''
The NRC inspectors determined that NCNR operators failed to implement
one of the methods required by the technical specifications to ensure
that fuel element S-1175 was adequately latched.
7. Apparent violation of 10 CFR 50.59, ``Changes, tests and
experiments,'' paragraph (c)(1), which states, in part, that a licensee
may make changes in the facility without obtaining a license amendment
only if a change to the technical specifications is not required. The
NRC inspectors determined that NCNR made changes to the refueling
tooling that should have required a change to the technical
specifications because dimensional differences of the new tooling
invalidated the capability of operators to verify that a fuel element
was adequately latched.
For the seven apparent violations, the NRC offered NCNR an
opportunity to (1) attend a pre-decisional enforcement conference or
(2) to participate in an ADR mediation session to resolve this concern.
In response to the NRC's offer, NCNR requested the use of the NRC's ADR
process to resolve the seven apparent violations. On May 10, 2022, the
NRC and NCNR conducted an ADR session mediated by a professional
mediator, arranged through Cornell University's Scheinman Institute on
Conflict Resolution. The ADR process is one in which a neutral
mediator, with no decision-making authority, assists the parties in
reaching an agreement to resolve any differences regarding the dispute.
This CO is issued pursuant to the agreement reached as a result of the
full-day mediation session that occurred on May 10, 2022, and two
subsequent virtual meetings that occurred on May 17, 2022, and June 2,
2022. The NRC and NCNR signed the agreement in principle (AIP) for the
mediation session on June 3, 2022.
III
NCNR and the NRC reached a preliminary settlement agreement during
mediations. The elements of the agreement included (1) corrective
actions completed by NCNR, (2) corrective actions planned by NCNR, (3)
additional agreed upon future actions by NCNR, and (4) general
provisions. Additionally, the NRC and NCNR agreed that the apparent
violations described in Section II of this Order were violations of
regulatory requirements. The NRC and NCNR agreed that the safety
significance of these violations is normally characterized at Severity
Level 1 in accordance with the NRC Enforcement Policy. Additionally,
the NRC concluded that a civil penalty of up to $432,000 would normally
be proposed for this violation, as assessed in accordance with the
civil penalty assessment process discussed in Section 2.3.4 of the NRC
Enforcement Policy. However, due to the robust nature of corrective
actions taken and planned by NCNR as documented in Sections III and V,
the NRC determined that waiving a civil penalty is appropriate in this
case.
The parties agreed in the AIP to refine the language of the AIP to
reflect the appropriate level of detail when included in Section III of
the CO. The following is the refined language:
1. Based on a review of the incident, NCNR completed corrective
actions and enhancements to preclude recurrence of
[[Page 48206]]
the violation, including but not limited to the following:
a. NIST/NCNR Safety Culture
i. NCNR staff secured additional funds for the Nuclear Safety
Culture Improvement Program (NSCIP), with additional funds included in
current budget proposals.
ii. NCNR staff has drafted the NSCIP program documents addressing
problem identification and resolution, root cause investigations,
training, procedures, and oversight. These will be used to develop a
request for proposals to assist the NCNR in program development and
implementation.
iii. NCNR has identified comparable reactor facilities for purposes
of benchmarking various safety culture programs, with in-person visits
planned or completed. Results from these benchmarking visits will be
used to inform further development of the NSCIP.
iv. NCNR staff reevaluated the root cause analysis with an emphasis
on nuclear safety culture and is using this evaluation to develop the
NSCIP plan.
b. Management
i. NCNR leadership has engaged the NIST Director and Department of
Commerce leadership for oversight and secured additional funding for
corrective actions (including additional operations personnel) and
reactor recovery and clean-up.
ii. NCNR currently staffs four rotating shifts during normal
operation and is challenged to complete additional work such as
training, employee development, and emergent maintenance. NCNR
leadership has initiated hiring actions to establish a fifth operating
shift dedicated to training and maintenance.
iii. Elevated Enterprise Risk Management of NCNR to institutional
(NIST) level through the chartered NIST Enterprise Risk Management
Council. The Council, which includes NIST Senior Executives, identifies
NIST enterprise-level risks, tracks those risks and their impacts, and
reviews risk mitigation progress and strategy.
iv. NCNR leadership appointed a permanent Chief of Reactor
Operations to provide more continuity and stability.
v. NCNR hired a new Chief of the Aging Reactor Management (ARM)
program. This position will provide oversight of communications between
engineering and operations to help ensure that identified issues are
resolved.
vi. NCNR confirmed or updated management Performance Plans to
ensure that expectations for procedure use and adherence with
consequences for failure to follow required procedures is part of
employee reviews.
vii. Licensee staff including Reactor Operations and Engineering
leadership took part in safety culture training given by NCNR staff
experienced in safety culture training. The training covered the
following topics:
1. Human Performance Tools
2. Procedure Use and Adherence
3. Procedure Writing and Routing Guides
4. SharePoint Use
5. Procedure Theory
6. Hazard Review
7. Risk Assessment
8. Mitigation Actions
9. Pre-Job Brief and Post-Job Critique
viii. NCNR conducted leadership training for reactor supervisors.
The training was led by the Chief of Reactor Operations and included
the following modules of leadership training for the Commerce Learning
Center:
1. Accountable Leadership
2. Influencing and Persuading Others
3. Becoming an Emotionally Intelligent Leader
4. Networking to Improve Leadership Effectiveness
5. New Leadership Transitions
6. Leading Others through Conflict
c. Corrective Action Program
i. NCNR implemented ``Safety Good Catch/Good Idea'' program to
incentivize staff to identify, raise, and address safety concerns in
April 2021.
ii. Established Safety Evaluation Committee (SEC) subcommittee to
track and oversee corrective actions.
iii. Established the Engineering Change Management Program to
provide an administrative gate for 50.59 screening and execution for
facility and procedure modifications.
d. Procedures
i. NCNR modified Administrative Requirement (AR) 5.0, ``Procedure
Use and Adherence,'' which guides conduct of operations, to strengthen
the oversight role supervisors must play and to require that all
personnel be trained. The required procedure use and adherence training
has been completed.
ii. Drafted and approved AR 5.1, ``Procedure Writer's Guide,''
related to procedure writing, which includes addressing improvements to
writing quality.
iii. Identified procedures that will be updated according to new
guidance in AR 5.1 prior to reactor startup.
iv. Updated procedure standards to comply with PPA AP-907-005,
``Procedure Writers' Manual.''
v. Implemented AR 1.1, ``Human Performance Tools,'' related to
improving training on a continuous basis.
vi. Modified Operating Instruction (OI) 1.1, ``Reactor Startup,''
to provide detailed guidance on evaluation of abnormal fluctuations in
nuclear instrumentation.
e. Technical
i. NCNR conducted 40 hours of proficiency training for all
Operations Staff, emphasizing the importance of latching and procedural
compliance.
ii. Established proficiency requirements for operators performing
fuel handling, including core loading, shuffle, rotational latch
checks, and visual latch checks.
iii. Created Emergency Instructions (EI) 3.8, ``Recovery
Operations,'' and 3.9 ``Confinement Re-entry,'' to provide detailed
guidance on building reoccupation. In addition, EI 0.4, ``Control Room
Evacuation,'' and EI 0.5, ``Post-evacuation Checklist,'' were created
to include an evacuation checklist required to be used during an
evacuation to ensure confinement is safe for operator re-entry.
iv. Performed Latch Improvement Safety Analysis to document that
improved latching and latch check processes provide adequate defense
against unlatching.
v. Assessed the efficacy of all tools used in refueling to
determine whether improvements are needed and concluded that, given the
discontinuation of height checks, the tools are adequate to meet all
new refueling and latch check requirements.
vi. Conducted analysis as to whether no-flow height checks should
be continued and concluded that the equipment does not support height
checks with sufficient precision; height-related latch checks are no
longer prescribed.
vii. Reinstituted requirement for latch checks prior to final pump
restart and modified OI 2.1.1, ``Startup of the Primary System for
Criticality,'' and OI 1.1.0, ``Reactor Startup Checklist.''
viii. Instituted a required rotation latch check, performed by a
second individual and modified OI 6.1, ``Fueling and Defueling.''
ix. Instituted a redundant Technical Specifications required method
of visual checks (using a digital camera plus image analysis software)
and modified Operating Instruction (OI) 6.1.
x. Verified that the index plate is consistently positioned by the
use of alignment pins and that rotational fiduciary marks are clear to
ensure fuel
[[Page 48207]]
movement evolutions are performed properly.
xi. Modified OI 6.1 series and OI 1.1A CL to ensure that there will
be no tool contact with fuel head following final visual latch
verification prior to reactor startup.
xii. Submitted License Amendment Request to NRC to modify Technical
Specification 3.9.2.1 to require latch verification through both
mechanical rotational and visual methods.
2. Based on a review of the incident, NCNR plans to complete
additional corrective actions, including but not limited to the
following:
a. Management Systems
i. Conduct regular briefings of NIST and DOC leadership regarding
the progress of operational safety and corrective actions, and review
of safety culture.
ii. Participate in Enterprise Risk Management reviews twice a year
to assess elevated risk impact of NCNR for NIST.
iii. Develop and implement a change management framework to
evaluate sufficiency of existing change management processes and
identify gaps and areas for improvement.
iv. Develop a system for knowledge and skills management in the
presence of personnel attrition.
v. Develop a plan for involving staff in continuous improvement of
reactor operations, through participation in a preventive action
program that encourages and rewards proactive efforts to improve
quality, safety, and efficiency of operations.
vi. Hire a Deputy Chief of Reactor Operations to provide additional
oversight and consistent leadership.
vii. Increase management engagement by implementing AR 5.4,
``Observation Program,'' which details requirements for management and
others to perform observations with documentation of findings and
suggested improvements.
viii. Define requirements for qualification as Crew Chief and
implement Crew Chief leadership and development training.
b. Qualification and Training
i. Develop a technical training program for robust qualification
and training of supervisors, operators, and candidates for: moving and
handling fuel; proficiency checks on key refueling tasks; and
proficiency checks for core loading, shuffle, rotational latch checks
and visual latch checks. The program will include training materials
(e.g., qualification cards) and practical experience with the use of
the fuel handling stand, reflecting stated learning objectives.
ii. Provide consistent and structured training and immediate and
continual feedback to Non-Licensed Operators (NLO) during on-the-job
training to ensure comprehension of performance expectations.
iii. Develop consistent standard by which all supervisors evaluate
qualifications.
iv. Develop a continuous formal operator training program to
provide ongoing training through rotating assignments of operators to a
``fifth shift'' dedicated to training, procedure development, and
maintenance.
v. Implement mandatory oversight training for supervisors.
vi. Require additional training in leadership training and reactor
supervisor leadership training.
vii. Conduct proficiency training prior to all future refueling
events.
c. Procedures
i. Rewrite Operating Instruction (OI) series 6.1, ``Fueling and
Defueling,'' and OI 6.2, ``Operation of the Fuel Transfer System,'' to
capture detail of fuel and latch movements to align with training.
ii. Revise procedures necessary prior to any reactor restart to be
consistent with INPO 11-003, ``Guideline for Excellence in Procedure
and Work Instruction Use and Adherence,'' and conducted training on
procedure protocols.
iii. Complete revision to procedures required for startup.
iv. Design, test, and install noise gates on selected nuclear
instrumentation channels to alert operator of abnormal signal in
progress.
d. Event Response
i. Develop guidelines that outline methods for making measurements,
interpreting results, performing calculations, and making dose
projections (e.g., dose projections that are used as basis for 10
radiological protective action recommendations and those used to
upgrade and downgrade emergency classes).
ii. Develop a process to communicate and track deficiencies in
emergency drills and exercises identified during follow-up critiques;
ensure corrective and preventive actions are assigned appropriately and
tracked for timely resolution.
iii. Implement an ethernet-based data display for the emergency
control station, post-reactor startup to improve remote monitoring and
control capabilities.
3. Based on NCNR's review of the incident and NRC's concerns with
respect to precluding recurrence of the violation, NCNR agrees to
implement corrective actions and enhancements in the following areas:
a. Communications
b. Nuclear safety program assessments to include:
i. Nuclear safety culture assessment
ii. Nuclear program assessment(s)
iii. Problem Identification and Resolution program
iv. Employee concerns
v. Safety Culture Monitoring Panel
c. Training
d. Procedures
e. Benchmarking
f. Employee engagement
g. Leadership accountability
h. Technical issues
4. Based on the completed and planned actions described above, and
the commitments described in Section V of this Order, the NRC agrees to
reduce the civil penalty to $0, refrain from issuing a cited notice of
violation, and not pursue any further enforcement action based on the
seven apparent violations identified in the NRC's March 16, 2022,
letter.
5. The NRC will consider the Confirmatory Order an escalated
enforcement action with respect to any future enforcement actions.
6. On July 21, 2022, NCNR consented to the issuance of this
Confirmatory Order with the requirements, as described in Section V
below. NCNR further agreed that this Confirmatory Order is to be
effective upon issuance, the agreement memorialized in this
Confirmatory Order settles the matter between the parties, and that the
licensee has waived its right to a hearing.
IV
Any decision of the NRC to approve restart under 10 CFR 50.36(c)(1)
would be informed by but not solely reliant upon this CO.
I find that the actions completed by NCNR, as described in Section
III above, combined with the commitments as set forth in Section V are
acceptable and necessary, and conclude that with these completed
actions and commitments the public health and safety are reasonably
assured. In view of the foregoing, I have determined that public health
and safety require that NCNR's commitments be confirmed by this Order.
Based on the above and NCNR's consent, this Confirmatory Order is
effective upon issuance.
V
Accordingly, pursuant to Sections 104b, 161b, 161i, 161o, 182, and
186 of
[[Page 48208]]
the Atomic Energy Act of 1954, as amended, and the Commission's
regulations in 10 CFR 2.202 and 10 CFR part 50 as applicable, it is
hereby ordered, effective upon issuance, that license No. TR-5 is
modified as follows:
1. Communications
a. Within 3 months of issuance of the Confirmatory Order, the NIST
Director will issue a statement to NIST employees communicating the
specific strategy to improve NCNR's nuclear safety culture. The
communication will include (1) a summary regarding the Nuclear Safety
Culture Improvement Program, (2) the NRC's concerns expressed in its
Special Inspection Report, (3) specific lessons learned from previously
applied corrective actions, and (4) corrective actions both taken and
planned. At least 30 days prior to issuing the statement, NIST will
provide the statement for NRC staff review. Within 15 days of receiving
the statement, the NRC staff will provide feedback to NIST. NIST will
incorporate NRC staff feedback and notify the NRC when the statement is
issued.
b. Within 2 months of the NIST Director's statement, the NCNR
Director will hold an all-hands meeting with NCNR employees for
management to discuss the importance of the above communication. NCNR
will require and document attendance for the all-hands meeting and
maintain that documentation in the NCNR employees training records.
2. Nuclear Safety Program Assessments
a. Nuclear Safety Culture Assessment
i. Within 6 months of issuance of the CO, NCNR will hire a third-
party, independent nuclear consultant (consultant) to conduct an
independent third-party nuclear safety culture assessment. The contract
will specify that the consultant will assist NCNR in the implementation
of the recommendations and corrective actions identified in the
assessment to prevent recurrence of the February 3, 2021, event or
similar events at the NBSR.
ii. Prior to issuance of the Request for Quotations, NCNR will
include criteria equivalent to the those described in Section
03.02.c.1, c.2, and c.3 of Inspection Procedure 95003, ``Supplemental
Inspection for Repetitive Degraded Cornerstones, Multiple Degraded
Cornerstones, Multiple Yellow Inputs or One Red Input,'' dated June 7,
2022, to ensure a consultant with the appropriate qualifications is
identified.
iii. Within 6 months of contract award to the consultant, NCNR will
submit a copy of the safety assessment report and NCNR's written
response to the assessment report to the NRC. NCNR's written response
will either address how it will implement the recommendations and
corrective actions of the assessment report, including a proposed
timeline; or provide an explanation and justification for why the
recommendation(s) and corrective action(s) will not be implemented.
iv. Within 2 months of submitting the assessment report to the NRC,
the NCNR Director shall issue written and verbal communications
providing the results of the assessment, recommendations, and
corrective actions to the NCNR staff. At least 30 days prior to issuing
the written communication, NCNR will provide the statement for NRC
staff review. Within 15 days of receiving the statement, the NRC staff
will provide feedback to NCNR staff. NCNR will notify the NRC when the
statement is issued.
v. The assessment will include employee surveys, the review of
anonymous reports, and contractor-conducted interviews and focus groups
to assess the effectiveness of the programs.
vi. NCNR will ensure this consultant is provided with all necessary
materials, reports, and access to personnel to complete its assessment.
The reports shall include the NRC special inspection report dated March
16, 2022, future NRC inspections reports regarding the February 3,
2021, event, and NCNR safety evaluation committee and safety assessment
committee (SEC/SAC) reports.
vii. Within 12 months of completing the initial assessment, the
consultant will perform a second assessment to ensure the
sustainability and effectiveness of the corrective actions within the
identified areas. Within 30 days of receiving the report, NCNR will
submit a copy of the second assessment report to the NRC.
viii. Within 12 months of completing the second assessment, the
consultant will conduct a third assessment to ensure long term
sustainability and effectiveness of the identified recommendations and
corrective actions. Within 30 days of receiving the report, NCNR will
submit a copy of the third assessment report to the NRC.
b. Nuclear Program Assessment(s)
i. Within 12 months of the issuance of the CO, NCNR will hire one
or more third-party, independent nuclear consultant(s) to conduct an
independent third-party assessment(s) and notify the NRC of the
timeline for the completion of the assessment(s). The contract will
specify that the nuclear consultant(s) will assist NCNR in the
implementation of the recommendations and corrective actions identified
in the assessment(s) to prevent recurrence of the February 3, 2021,
event or similar events at the NBSR. The consultant's (or consultants')
assessment(s) will include recommended corrective actions in the
following areas:
1. Problem Identification and Resolution
2. Event Root Cause
3. Training
4. Procedures
5. Safety Assessment Committee
6. Safety Evaluation Committee independence and effective oversight
ii. Within 3 months of issuance of the assessment report(s) (or
within 3 months of the issuance of the last report, if multiple
contracts are awarded), NCNR will submit a copy of the safety
assessment report(s) and NCNR's written response to the assessment
report(s) to the NRC. NCNR's written response will either address how
it will implement the recommendations and corrective actions of the
assessment report(s), including a proposed timeline; or provide an
explanation and justification for why the recommendation(s) and
corrective action(s) will not be implemented.
iii. Within 2 months of submitting the assessment report(s) to the
NRC, the NCNR Director shall issue written and verbal communications
providing the results of the assessment, recommendations, and
corrective actions to the NCNR staff. At least 30 days prior to issuing
the written communication, NCNR will provide the statement for NRC
staff review. Within 15 days of receiving the statement, the NRC staff
will provide feedback to NCNR staff. NCNR will notify the NRC when the
statement is issued.
iv. NCNR will ensure this consultant is provided with all necessary
materials and access to personnel to complete its assessment, including
NRC inspection reports, SEC/SAC reports, and the interim and final
special inspection reports.
c. Problem Identification and Resolution Program
i. By September 30, 2022, NCNR will develop an Observation program
with program goals to provide for periodic management oversight of
procedures and procedure adherence.
ii. By September 30, 2022, NCNR will develop a System Review Team
program with program goals of reviewing system changes, including but
not limited to components and procedures, and generating reports for
the Aging Reactor Management review.
[[Page 48209]]
iii. By October 31, 2022, NCNR will develop and implement the Level
3 Corrective Action Program.
iv. By December 31, 2022, NCNR will develop and implement the Level
2 Corrective Action Program.
v. By March 31, 2023, NCNR will develop and implement the Level 1
Corrective Action Program.
vi. Within 1 month of program finalization, NCNR will submit
program documentation to the NRC for review and comment.
vii. Within 3 months of NRC comment, NCNR will incorporate NRC
staff feedback.
viii. The NCNR will maintain these programs to track, trend, and
correct failures and deficiencies to prevent recurrence.
d. Employee Concerns
i. Within 6 months of issuance of the CO, NCNR will develop a
formal program for NCNR employees to raise concerns. The program will
describe and include methods to address the following types of
concerns:
1. anonymous employee concerns
2. employee protection
3. nuclear safety culture
4. chilling effect
ii. Within 1 month of program development, NCNR will submit program
documentation to the NRC for review and comment.
iii. Within 2 months of NRC comment, NCNR will incorporate NRC
staff feedback and implement and maintain the program.
e. Safety Culture Monitoring Panel
i. Within 9 months of issuance of the CO, NCNR will develop a
formal program to monitor the nuclear safety culture informed by the
elements of NEI 09-07, ``Fostering a Healthy Nuclear Safety Culture,''
Revision 1.
ii. Within 1 month of program development, NCNR will submit program
documentation to the NRC for review and comment.
iii. Within 2 months of NRC comment, NCNR will incorporate NRC
staff feedback and implement and maintain the program.
3. Training
In addition to the recommendations and corrective actions related
to training identified during the above assessment (see Provision
2.b.i):
a. Prior to any restart, NCNR will conduct training of all licensed
operators on the performance of fuel loading and latch checking
procedures in accordance with ANSI/ANS-15.4-2016, ``American National
Standard Selection and Training of Personnel for Research Reactors.''
NCNR will maintain records of training completion for all licensed
operators.
b. Within 3 months of issuance of the CO, NCNR will modify its
requalification plan to specify that every ``reactor operating test or
evaluation'' portion of NCNR licensed operator requalification training
must include ``other reactivity tasks including fuel movements,
insertion and removal of experiments, and rod exchange or movements
without power change'' as one of the five tasks selected from Section
5.4 (as specified in Section 6.2.5) of ANSI/ANS-15.4-2016, ``American
National Standard Selection and Training of Personnel for Research
Reactors.''
4. Procedures
a. Prior to any restart, NCNR will develop, implement, and maintain
a written procedure that covers procedural use and adherence in
accordance with the most recent version of INPO 11-003, ``Guideline for
Excellence in Procedure and Work Instruction Use and Adherence.''
b. Procedures referenced in paragraph 1.d of Section III of this CO
will be subject to inspection prior to any restart.
c. Within 30 months of issuance of the CO, NCNR will develop,
implement, and maintain all procedures involving reactor operations
activities in accordance with the most recent version of PPA AP-907-
005, ``Procedure Writers' Manual.''
5. Benchmarking
a. Starting 12 months after CO issuance, NCNR will benchmark one
program (e.g., training, procedure process, corrective action program,
configuration control/change management etc.) each calendar year, to
include site visits and observations at another facility. Because NCNR
is much larger in both thermal output and staffing than most research
and test reactors (RTRs) and operates at a cadence similar to
commercial power reactors, NCNR will not solely benchmark RTRs.
Conversely, the NCNR is a much smaller organization than a commercial
power reactor, so NCNR will also not solely benchmark power reactors.
NCNR shall be strategic when deciding the appropriate facility to
benchmark, selecting a facility with a program commensurate to the one
NCNR is benchmarking. NCNR should also consider input from the nuclear
consultants identified in Provisions 2.a and 2.b on the appropriate
facility programs to benchmark (i.e., a commercial power reactor's
safety culture program; Advanced Test Reactor's problem identification
and resolution program, etc.). Furthermore, benchmarking shall include
multiple levels of NCNR staff and shall not be limited to NCNR senior
management. NCNR will document this activity, observations, and
decisions regarding changes to NCNR's programs.
b. For 3 years following issuance of the CO, at least one NCNR
staff member shall attend 2 of the following relevant industry
conferences per calendar year:
i. National Organization of Test, Research and Training Reactors (TRTR)
ii. National Association of Employee Concerns Professionals (NAECP)
iii. NRC's Regulatory Information Conference (RIC)
iv. American Nuclear Society (ANS)
v. Department of Energy (DOE), if applicable
6. Employee Engagement
Within 6 months of the issuance of the CO, NCNR will establish and
maintain a rewards and recognition program to encourage employees to
raise concerns and will incorporate a safety recognition program into
the performance evaluation process. The program will include the
following:
a. encourage informal recognition of safety achievements;
b. establish a formal recognition program with tangible rewards;
c. encourage the staff to seek advice and to proceed with caution;
d. communicate expectations and ensure that safety correspondence
such as near misses, good catches, operating experience, and safety
flash communications are developed and communicated to the workforce.
7. Leadership Accountability
a. Within 12 months of consultant contract award, NCNR will provide
the NRC with documentation of any revisions to the Safety Evaluation
Committee charter as informed by the nuclear consultant(s) selected
under item 2.b.
b. Within 12 months of the contract award discussed in Provision
2.b, NCNR will conduct training for all senior leaders, with support of
the nuclear consultant selected under Provision 2.b, and which will
include training on NUREG-2165, ``Safety Culture Common Language''
(INPO 12-012, ``Traits of a Healthy Nuclear Safety Culture,'' Revision
1). NCNR will incorporate this leadership training into an annual
required safety culture refresher training for senior leaders.
c. By the beginning of fiscal year 2023, NCNR will develop and
maintain performance appraisal assessment
[[Page 48210]]
criteria for periodic annual evaluations of NCNR supervisors and
managers to assess their performance regarding nuclear safety culture.
d. Within 12 months of the issuance of the CO, NCNR will present at
a publicly attended annual conference (such as TRTR, NAECP, ANS). If
asked by the NRC, NCNR will also present at the RIC. The presentation
will address the cause of the February 3, 2021, event and corrective
actions taken by NCNR and will include a discussion of the NRC's
findings. Two months prior to the conference, NCNR will submit the
presentation to the NRC for review and comment, and NCNR will
incorporate any comments from the NRC staff into the final
presentation.
e. Within 3 months of issuance of the CO, NCNR will provide a
timeline to address staffing challenges to the NRC for review.
8. Technical Issues
a. Within 3 months of the issuance of the CO, NCNR will provide an
assessment of options to replace NCNR's reliance upon administrative
controls/actions to ensure that fuel assemblies are adequately latched.
b. Within 6 months of any restart of regular reactor operations
(defined as the return to 24 hour/day operations at 20 MW), NCNR will
implement the condition-based monitoring systems for nuclear
instrumentation that could provide a very early warning to control room
operators of mechanical anomalies during reactor startup.
c. Within 12 months of the issuance of the CO, NCNR will develop an
engineered solution to automatically secure carbon dioxide following a
major SCRAM. NCNR will implement the proposed solution using the
appropriate regulatory process or provide the NRC with an engineering
analysis that includes a justification for not implementing a design
change.
d. Within 12 months of issuance of the CO, NCNR will provide an
assessment of the configuration management process and how it is
incorporated with problem identification and resolution processes.
9. Upon completion of the terms of items of the CO, NCNR will
provide the NRC with a letter discussing its basis for concluding that
the requirements of this Order have been adequately implemented.
In the event of the transfer of the license of NCNR to another
entity, the terms and conditions set forth hereunder shall continue to
apply to the new entity and accordingly survive any transfer of
ownership or license.
The Director, Office of Enforcement, may, in writing, relax,
rescind, or withdraw any of the above conditions upon demonstration by
NCNR or its successors of good cause.
VI
In accordance with 10 CFR 2.202 and 10 CFR 2.309, any person
adversely affected by this CO, other than NIST/NCNR, may request a
hearing within 30 calendar days of the date of issuance of this CO.
Where good cause is shown, consideration will be given to extending the
time to request a hearing. A request for extension of time must be made
in writing to the Director, Office of Enforcement, U.S. Nuclear
Regulatory Commission, Washington, DC 20555, and include a statement of
good cause for the extension.
All documents filed in NRC adjudicatory proceedings, including a
request for hearing and petition for leave to intervene (petition), any
motion or other document filed in the proceeding prior to the
submission of a petition, and documents filed by interested
governmental entities that request to participate under 10 CFR
2.315(c), must be filed in accordance with the NRC's E-Filing rule (72
FR 49139; August 28, 2007, as amended at 77 FR 46562; August 3, 2012).
The E-Filing process requires participants to submit and serve all
adjudicatory documents over the internet, or in some cases to mail
copies on electronic storage media. Detailed guidance on making
electronic submissions may be found in the Guidance for Electronic
Submissions to the NRC and on the NRC website at https://www.nrc.gov/site-help/esubmittals.html. Participants may not submit paper copies of
their filings unless they seek an exemption in accordance with the
procedures described below.
To comply with the procedural requirements of E-Filing, at least 10
days prior to the filing deadline, the participant should contact the
Office of the Secretary by email at [email protected], or by
telephone at 301-415-1677, to (1) request a digital identification (ID)
certificate, which allows the participant (or its counsel or
representative) to digitally sign submissions and access the E-Filing
system for any proceeding in which it is participating; and (2) advise
the Secretary that the participant will be submitting a petition or
other adjudicatory document (even in instances in which the
participant, or its counsel or representative, already holds an NRC-
issued digital ID certificate). Based upon this information, the
Secretary will establish an electronic docket for the hearing in this
proceeding if the Secretary has not already established an electronic
docket.
Information about applying for a digital ID certificate is
available on the NRC's public website at https://www.nrc.gov/site-help/e-submittals/getting-started.html. Once a participant has obtained a
digital ID certificate and a docket has been created, the participant
can then submit adjudicatory documents. Submissions must be in Portable
Document Format (PDF). Additional guidance on PDF submissions is
available on the NRC's public website at https://www.nrc.gov/site-help/electronic-sub-ref-mat.html. A filing is considered complete at the
time the document is submitted through the NRC's E-Filing system. To be
timely, an electronic filing must be submitted to the E-Filing system
no later than 11:59 p.m. Eastern Time on the due date. Upon receipt of
a transmission, the E-Filing system time-stamps the document and sends
the submitter an email notice confirming receipt of the document. The
E-Filing system also distributes an email notice that provides access
to the document to the NRC's Office of the General Counsel and any
others who have advised the Office of the Secretary that they wish to
participate in the proceeding, so that the filer need not serve the
document on those participants separately. Therefore, applicants and
other participants (or their counsel or representative) must apply for
and receive a digital ID certificate before adjudicatory documents are
filed so that they can obtain access to the documents via the E-Filing
system.
A person filing electronically using the NRC's adjudicatory E-
Filing system may seek assistance by contacting the NRC's Electronic
Filing Help Desk through the ``Contact Us'' link located on the NRC's
public website at https://www.nrc.gov/site-help/e-submittals.html, by
email to [email protected], or by a toll-free call at 1-866-672-
7640. The NRC Electronic Filing Help Desk is available between 9 a.m.
and 6 p.m., Eastern Time, Monday through Friday, excluding government
holidays.
Participants who believe that they have good cause for not
submitting documents electronically must file an exemption request, in
accordance with 10 CFR 2.302(g), with their initial paper filing
stating why there is good cause for not filing electronically and
requesting authorization to continue to submit documents in paper
format. Such filings must be submitted by (1) first class mail
addressed to the Office of the Secretary of the Commission, U.S.
Nuclear
[[Page 48211]]
Regulatory Commission, Washington, DC 20555-0001, Attention: Rulemaking
and Adjudications Staff; or (2) courier, express mail, or expedited
delivery service to the Office of the Secretary, 11555 Rockville Pike,
Rockville, Maryland 20852, Attention: Rulemaking and Adjudications
Staff. Participants filing adjudicatory documents in this manner are
responsible for serving the document on all other participants. Filing
is considered complete by first-class mail as of the time of deposit in
the mail, or by courier, express mail, or expedited delivery service
upon depositing the document with the provider of the service. A
presiding officer, having granted an exemption request from using E-
Filing, may require a participant or party to use E-Filing if the
presiding officer subsequently determines that the reason for granting
the exemption from use of E-Filing no longer exists.
Documents submitted in adjudicatory proceedings will appear in the
NRC's electronic hearing docket which is available to the public at
https://adams.nrc.gov/ehd, unless excluded pursuant to an order of the
Commission or the presiding officer. If you do not have an NRC-issued
digital ID certificate as described above, click ``cancel'' when the
link requests certificates and you will be automatically directed to
the NRC's electronic hearing dockets where you will be able to access
any publicly available documents in a particular hearing docket.
Participants are requested not to include personal privacy information,
such as social security numbers, home addresses, or personal phone
numbers in their filings, unless an NRC regulation or other law
requires submission of such information. For example, in some
instances, individuals provide home addresses in order to demonstrate
proximity to a facility or site. With respect to copyrighted works,
except for limited excerpts that serve the purpose of the adjudicatory
filings and would constitute a Fair Use application, participants are
requested not to include copyrighted materials in their submission.
The Commission will issue a notice or order granting or denying a
petition, designating the issues for any hearing that will be held, and
designating the Presiding Officer. A notice granting a hearing will be
published in the Federal Register and served on the parties to the
hearing.
If a person (other than NIST/NCNR) requests a hearing, that person
shall set forth with particularity the manner in which his interest is
adversely affected by this CO and shall address the criteria set forth
in 10 CFR 2.309(d) and (f). If a hearing is requested by a person whose
interest is adversely affected, the Commission will issue an order
designating the time and place of any hearings. If a hearing is held,
the issue to be considered at such hearing shall be whether this CO
should be sustained.
In the absence of any request for hearing, or written approval of
an extension of time in which to request a hearing, the provisions
specified in Section V above shall be final 30 days from the date of
this CO without further order or proceedings. If an extension of time
for requesting a hearing has been approved, the provisions specified in
Section V shall be final when the extension expires if a hearing
request has not been received.
For the Nuclear Regulatory Commission.
Dated this 1st day of August 2022.
Mark D. Lombard,
Director, Office of Enforcement.
[FR Doc. 2022-16949 Filed 8-5-22; 8:45 am]
BILLING CODE 7590-01-P