Draft Summary of Plant Life Management in Transition from Operation to Decommissioning for Nuclear Power Plants. Prepared by core team

Transcription

1 Draft Summary of Plant Life Management in Transition from Operation to Decommissioning for Nuclear Power Plants Prepared by core team

2 Development of Guidelines Consultancy Meetings at Vienna Austria : 8-11 December 2015, 6-8 June 2016 Two small group meetings Prepare a draft for review through technical meeting Technical meeting at Kyung Ju, Korea Review process Make consensus and get new inputs from participants Draft/ TOCs Dec Extende d Draft Final Report June Q 2017

3 Draft Contributors Boniface S. NDA, UK Glorennec C. EDF, France Granak P. JAVYS, Slovakia Snyder M. Sustainable Storage Systems, USA Tuunanen J. Fortum, Finland Scientific Secretary K. S. Kang IAEA/ Nuclear Power V. Michal IAEA/ Waste Technology

4 Objectives of the report NPPs SSCs need to remain sound during the transition and decommissioning phases To safely contain residual radioactivity, Certain ageing management activities such as maintenance and inspections during this period To share the principal technical, management and organizational issues arising during the transition period; To provide guidance to minimize delays and undue costs; To optimize personnel and other resources; and to initiate preparatory activities for decommissioning in a planned, timely and cost effective manner.

5 Table of Contents Cha. 1 : Introduction Cha. 2 : Definitions Cha. 3 : Description of the Transition Period Cha. 4 : Strategic Issues Cha. 5 : Activities before Transition Period Cha. 6 : Activities during Transition Period Cha. 7 : Cost Estimation and Funding of transition activities

6 Cha. 3: Description of the Transition Period Michael Snyder Sustainable Storage Systems

7 3.1. Defining the Transition Period In general transition period Somewhere between decision to shutdown and the start of decommissioning activities. Time frame and activities performed will vary based on Nature of shutdown, regulatory body requirements, societal factors. Definition can encompass all activities performed by operational team under current safety case like used nuclear fuel movement. Experience has proven that without a planned transition period into decommissioning significant delays and increased costs will result. 7

8 Maintain during the transition period? 1. Construction Phase 2. Operation Phase 3 3. Safety Enclosure Preparation Phase 4?? 5 4. Safety Enclosure Phase 5. Dismantling and Disposal Phase

9 3.2 Successful Transition Period Handoff. to decommissioning at a defined point with following objectives Decommissioning organisation is established Appropriate tested project management system and corporate ownership. Regulatory permissions and approvals obtained. Decommissioning plan and associated safety case implemented Revised technical specification. Sufficient characterisation of the facility completed to ensure no surprises during decommissioning. Sufficient knowledge of the operational history and state of the plant has been acquired and documented. Initial state and end state sufficiently known. Decommissioning scenario sufficiently developed. Risk analysis and risks register completed 9

10 3.3. Transition Timeline

11 Thank you! Questions? Michael Snyder Sustainable Storage Systems

12 Chapter 4. Transition from Operations to Decommissioning Strategic Issues Simon M Boniface Nuclear Decommissioning Authority, UK Jari Tuunanen Fortum, Finland

13 4.1. General Planning for decommissioning starts well before final shutdown The changes required to go from operations through to the start of decommissioning is the Transition Phase Transition ends at a specific point in time and condition, normally the start of decommissioning. Transition phase includes: The organisational changes The Safety Case changes Control and management of plant operational knowledge and expertise Plant characterisation and the waste management strategy Plant clean out All these have to be delivered at the same time at the agreed specific point in time 13

14 4.2. Organisational Transition At the heart of successful transition Need to know chosen decommissioning delivery model Organisation transition intended to ensure decommissioning organisation is competent to deliver the program. Often significant change to local employment - significant stakeholder issue Early stakeholder engagement critical to managing the organisational transition Failure to manage expectations and staff retention could result in this aspect of transition being forced (staff leaving for example) Impact on knowledge management transition Organisational transition generally done in a series of steps which coincide with the wider transition i.e. clean out activities 14

15 4.3. Knowledge Management Linked to the organisational transition Covers the capture and documentation of plant condition Changes made during operations may not be captured or represented in drawings Some aspects of operational history (events / leaks) may not be documented fully Objective is to capture sufficient knowledge as to the condition and layout of the facility to ensure efficient decommissioning with no surprises 15

16 4.4. Waste Management Plant clean out following cessation of operations Completed using operational state of facility, safety mechanisms, operators and processes / procedures Maximising the existing systems, personnel and processes to remove as much of the hazard as possible minimise the decommissioning mission Use the extant waste processing and storage facilities Plant Characterisation Identify and quantify what waste will be encountered and when during decommissioning Ensure waste routes are available when required Verification that site drawings and other info required during decommissioning are accurate 16

17 4.5. Integrated Waste Management Strategy Objective is to ensure no surprises are encountered during decommissioning Removal of uncertainty and minimise embedded assumptions within decommissioning plan Impact on decommissioning programme could be significant No Is function of facility still required? Yes Can it be used cost-effectively for something else? No Is it cost-effective to maintain facility for this use? Yes Decommission now or later? Yes Now Later Maintain for reuse Decommission now Maintain and decommission later Maintain for continued use Decision-making and demonstrating progress Ref :Transition from Operations to Decommissioning, UK, Simon Boniface 17

18 4.5. Integrated Waste Management Strategy Strategy should include the following objectives as a minimum: Minimise waste generation by looking to reuse or repurpose materials Minimise the generation of so called orphan wastes, by ensuring that waste treatment or storage facilities are available when required. Ensure the waste hierarchy is embedded within the decommissioning plan Ensure characterisation during transition is sufficiently comprehensive to compile an inventory of radioactive and nonradioactive wastes (such as asbestos for example).

19 4.6. Decommissioning Strategy The decommissioning strategy should in particular define the integrated waste management strategy and detail the subsequent waste management plan What type of organisation or approach is to be used to complete the decommissioning, What is the scope of the work to be completed under each of the decommissioning phases What wastes are generated when, and what treatment / processing / storage routes they will use

20 4.7. Contract strategy There are a number of options for managing large decommissioning projects: Use the operating organisation to carry on from operations through transition and into decommissioning Use the operating organisation to complete particular items of transition such as the completion of plant characterisation, post operation cleanout and radiological surveys. The other transitional activities such as the organisational changes, safety case changes from operational to decommissioning as well as changes to be management system being managed by a separate organisation or body.

21 4.8. Communication and stakeholder engagement Stakeholders in this context may include the following: National government Local authorities Regulators Local population Industry groups Experience within member states indicates strongly that early engagement is most effective, and that such engagement should commence well before shutdown. It would be good practice to develop a communication plan as part of the decommissioning strategy.

22 4.9. Site organisational changes Project Management The successful management will require a clear picture of the objectives and associated staff changes before it is required to be implemented, and to be able to clearly communicate this plan to stakeholders before it starts. Staffing Key positions The unplanned loss of key staff from operations and maintenance teams could have a significant impact on costs and schedule Labour agreement impacts The smooth management of overall staff reductions without trades unions cooperation would be challenging Relocation and training of other staff

23 4.10. Safety Case Operational activities tend to be repeated low number of one off tasks Maintenance requirements generally fixed also Decommissioning features a series of tasks often never repeated - safety case (and management system) need to anticipate this need During transition, Safe Operating Envelope (Technical Specification) will shrink as activities such as fuel retrievals are no longer required. Safety mechanisms should be removed when no longer required tied to changes to safety case. Asset management a key component of the new safety case maintained only as required by decommissioning mission and not beyond. How do decommissioning contractors comply with the safety case? At end of transition, decommissioning safety case implemented 23

24 Any questions to Chapter 4? Jari Tuunanen, Fortum, Finland

25 Chapter 5: Activities Before Transition Period Michael Snyder - U.S. Sales and Global Strategy

26 5.1. Strategic Planning Activities Strategic Activities with objective to keep history up-to date Consider impact of plant changes and regulatory commitments on decommissioning Collection of operational information Contamination incidents : Consider future effect on decommissioning Aid in development of historical site assessment (HAS) Identify & collect engineered drawings, technical manuals Inventory of physical plant Determination of hazardous constituents Aid in determination for plant segmentation and waste sizing Waste Characterization records Plant operational history : power years / effective power Operational waste streams can be used inform decommissioning waste sampling for site and component characterization Aid in developing waste management plan Regulatory Guide 4.22; Decommissioning Planning during Operations provides useful information 26

27 5.2. Develop Project Management Model The project management (PM) model must consider whether the utility will self-manage the decommissioning or contract the project to a decommissioning operations contractor (DOC) Benchmarking Decommissioning TVA undertook an effort to visit Zion, SONGs, Kewaunee and Crystal River Attend Workshops and Technical Meetings Identify PM tools for planning, scheduling, conduct of work, performance indicators 27

28 5.3. Develop Communications Plan Consider impact to plant workers Retain for operational period Retrain for inclusion into Decommissioning Organization Severance at completion of employment Local community Reduction of income base Reduction of tax base Concern over decommissioning impact Environment Impact Evaluation and End state UNF storage 28

29 5.4. Develop Regulatory & Licensing Actions Perform analysis for decommissioning safety case System abandonment criteria Decommissioning accident analyses Development of cold and dark protocol Prepare revisions to Fire Hazards Analysis and Fire Protection Plan Revisions to Plant Design Bases FSAR to DSAR Technical Specifications to Defueled TS Preparation of Submittals that will be required by Regulator Certification of Permanent Cessation of Operation Post Shutdown Decommissioning Activities Report 29

30 SSCs are generally evaluated and categorized by their ability Protect workers and the public from the consequences of design basis accident conditions. Safely store and handle radioactive waste and spent fuel. Monitor and control potential effluent release paths as described in the radiological effluent monitoring/ off-site dose calculation manual. Maintain exposures to personnel ALARA. Maintain compliance with regulatory, insurance, and other commitments. The requirements of SSCs that support the execution of plans and programs of the plant (i.e., Security Plan, Fire Protection Plan, Emergency Management Plan, Radiation Protection Program). Plant day to day operations. Plant decommissioning efforts.

31 5.6. Decommissioning Cost Estimate Assess adequacy of Decommissioning Trust Fund IAEA and OECD/NEA focus on initiative Uncertainty in decommissioning estimation Preliminary DCE Identify up-to-date estimate of costs and major factors that could affect cost Every 2 years to NRC Important to focus on what should be done and not just what could be done 31

32 5.7. Used Nuclear Fuel Management If Used Nuclear Fuel is to remain onsite, then consider design, permitting and construction of Independent Spent Fuel Storage Installation Ready for fuel transfer at appropriate time post shutdown Also develop a Certified Fuel Hander Program Perform appropriate surveys of area before ISFSI construction 32

33 5.8. Other Strategic Planning Activities Decommissioning Scenario End State determination Work control process Consideration of chemical decontamination Decontamination and dismantlement/segmentatio n techniques Waste management plans Fire Protection plans Radiation Protection Program Industrial Hygiene Ref: Status of the decommissioning plans for Loviisa NPP, Fortum Jari Tuunanen, 33

34 Any questions to Chapter 5? Michael Snyder Sustainable Storage Systems

35 Cha. 6 : Activities during Transition Period Peter Granak, JAVYS, a.s., Slovakia

36 6. Changes in three main areas: After NPP shut down, NPP needs to implement changes in following areas: 6.1 Organisational Transition : adaptation of organization to the new conditions 6.2 Regulatory framework and licensing of decommissioning : New conditions accompanied with new regulatory aspects 6.3 Engineering : what kind of technical changes and challenges brings transition

37 6.1. Organisational Transition Underestimated the importance of organization change Leading to the repeating of failures at extra costs and time delays. Mainly changes in the following areas Project management model Re-design work control process Management site organization

38 6.1. Organisational Transition Changes in Project management model Project Organization and Operator s Role Role of the operator in the future decommissioning Capacity to perform the future role Identification of the capabilities that are missing within the organization - How to maintain these capabilities Identification of the activities to be implemented by internal resources Line management structure to the Project management structure Managing structure and links with other organizational structures

39 6.1. Organisational Transition Changes in Project management model Personnel Identification of key personnel and its assignment Keep operating personnel for decommissioning purposes Retraining the personnel for future positions Hiring new staff to perform the Project management activities Transferring the corporate and individual operator knowledge on new staff Adaptation of the remuneration system on the new conditions Strategic planning to lay off of the unneeded and abundant personnel During period Bugey 1 staffing decreased from 260 to 13 peoples BUGEY 1 NPP- TRANSITION PERIODS Ref : EDF decommissioning management: Case Study Transition period, Glorennec C. EDF, France

40 6.1. Organisational Transition Changes in Re-design work control process Work packages in the transition period differ from those in operation Permanent new challenges and management challenges occurrence continuously Shift from the individual Work order/task sheet to multiple Work order for acceleration Re-assessment of the application of the operating manual for the specific activities Modification of operating manual Considering changing the preventive maintenance to corrective maintenance

41 6.1. Organisational Transition Changes in Management site organization Staffing key positions Indentify key activities performed by your organization and people suitable for that, Hire experienced project managers, Create mixed teams and manage to keep historical memory in the company Labour agreement impacts Renegotiate the labour agreements to guarantee that the key staff will not leave the company Relocation and training of other staff In multiple site, multiple power plant organizations, consider relocation of the staff prior to lay off

42 6.2. Regulatory Framework and Licensing of Decommissioning Regulating decommissioning at the global level Joint Convention on the Safety of Spent Fuel Management and on the Safety of Radioactive Waste Management, Article 26. Each contracting party shall take the appropriate steps to ensure the safety of decommissioning of a nuclear facility. Such steps shall ensure that (i) Qualified staff and adequate financial resources are available; (ii) Provisions of Article 24 with respect to operational radiation protection, discharges and unplanned and uncontrolled releases are applied; (iii) Provisions of Article 25 with respect to emergency preparedness are applied; and (iv) Records of information important to decommissioning are kept

43 6.2. Regulatory Framework and Licensing of Decommissioning Revised technical specifications After the spent fuel transport, significant reduction in risks and therefore NPP operator should consider reducing the technical specifications on Component availability and maintenance criterion Survey and control organization Preparation for regulatory decommissioning permissions Varies from country to country However some documentation needed to shift from operation to decommissioning

44 Engineering Post operation Transfer of spent fuel to Interim/final storage Historical waste plan management - Treatment, storage and disposal of historical waste Decontamination, Hot spot reduction Removal of hazardous and flammable materials Implement radiological characterization (sampling) Pre dismantling - preparation and anticipation Modification of SSCs for decommissioning Site security arrangements Ensuring appropriate skills, experience and technology Ref :Transition from Operations to Decommissioning, UK, Simon Boniface

45 6.3. Engineering Post operation Re-Categorization of Systems, Structures and Component Cold and Dark Program (repower certain systems) Upgrade Plant /Infrastructure (e.g. rail) to Facilitate Removal of Wastes Risks Management Impacts of premature closure of the plant on transition period Change of risk matrix, probability and affections Risk of the loss of the historical memory and nonexistence of the as built-in documentation and/or inability to recover the NPP drawings Impacts of various actions on hazard reduction Dose and risk assessment

46 Cha. 7 : Cost Estimation and Funding of transition activities Peter Granak, JAVYS, a.s., Slovakia

47 Cost Estimation and Funding of transition activities Transition Financial aspect of transition in the nuclear power plant life cycle NPP does not generate the income anymore Comes before the real decommissioning when it can start to use the resources from the trusted devoted decommissioning fund

48 Cost Estimation and Funding of transition activities Due to financial limitation, shorten transition period as much as possible Advisable: Do only activities that must be done, although there are no reasons besides economical to do also other activities ( need to check???)

49 Cost Estimation and Funding of transition activities Major cost drivers: Removal and transport of the spent fuel Processing and treatment of the historical waste Licensing process

50 Cost Estimation and Funding of transition activities IAEA with European Commission and OECD NEA jointly developed a methodology for cost estimates of the decommissioning projects and part of it refers also to the activities in the transition. International structure for decommissioning costing ISDC

51 Cost Estimation and Funding of transition activities Source of financing: Savings from the operational times (mostly post-operation activities) From the devoted decommissioning fund (mostly pre-dismantling activities)

52 Cost Estimation and Funding of transition activities Conclusions: Be aware of the specific characters of transition period Discuss and agree with the licensing authority on the decommissioning ( financing?? )scheme prior to the shut down General approach shorten the period as much as possible, due to the financial source

53 Cha. 8 : Conclusions Ki Sig KANG, IAEA

54 Issues to resolve during transition period A safety case that underpins the derivation of the technical specification, defining the safe operating envelope for the facility A management system suitable for an operating facility with a framework for the delivery of work control including maintenance activities An organisation suitably staffed and assessed competence to safety operate an operating nuclear facility Waste processing a storage routes that facilitate delivery of operational tasks including refuelling, maintenance and other routine operations

55 Specific objectives to support decommissioning schedule or plan Make use of the operational status of the facility after shutdown to remove as much of the hazard as possible Complete a full characterisation of the facility in terms of what radioactive wastes remain and where, radiological surveys Review the operational history of the facility, including any events and changes to plant configuration, essentially managing the transfer of knowledge from the operators

56 Timing is a crucial success factor Decide on the decommissioning strategy, Choice of contract model Nature of the organisational change Establishment of the decommissioning schedule Timings of fuel retrieval from the core Change safety case and associated shrinkage of the operating envelope and technical specification. Schedule or plan should also clearly articulate the various interim states or milestones, When transition to be have been completed and decommissioning formally starts.

57 Dominant success criteria associated with transition Sufficient characterisation of the facility completed Few assumptions required within the decommissioning schedule or plan. Characterisation has been completed with sufficient rigour All wastes generated during decommissioning phases Point of handover to the start of decommissioning is clearly defined Expressed as milestones with associated metrics Choices of decommissioning technologies are defined

58 atoms for peace IAEA