july 21, 1995, doe letter forwarding the 94-5 implementation plan. · 2013. 11. 5. · the...

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The Secretary of Energy Washington, DC 20585 July 21, 1995 The Honorable John T. Conway Chairman Defense Nuclear Facilities Safety Board 625 Indiana Avenue, N.W. Suite 700 Washington, D.C. 20004 . Dear Mr. .Conway: Enclosed is the Department of Energy’s Plan for Management of Standards- Related Activities (Implementation Plan for Board Recommendation 94-5). The Department shares the Board’s concern about providing adequate definition and direction during the transition to standards-based safety management. If you have any questions, please contact me or have a member of your staff contact Mr. Orin Pearson, Deputy Assistant Secretary for Nuclear and Facility Safety, at (202) 586-2407. Sincerely, &R@J2h’p Enclosure

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Page 1: July 21, 1995, DOE letter forwarding the 94-5 implementation plan. · 2013. 11. 5. · The Secretary of Energy Washington, DC 20585 July 21, 1995 The Honorable John T. Conway Chairman

The Secretary of EnergyWashington, DC 20585

July 21, 1995

The Honorable John T. ConwayChairmanDefense Nuclear Facilities Safety Board625 Indiana Avenue, N.W.Suite 700Washington, D.C. 20004

. Dear Mr. .Conway:

Enclosed is the Department of Energy’s Plan for Management of Standards-Related Activities (Implementation Plan for Board Recommendation 94-5).The Department shares the Board’s concern about providing adequate definitionand direction during the transition to standards-based safety management.

If you have any questions, please contact me or have a member of your staffcontact Mr. Orin Pearson, Deputy Assistant Secretary for Nuclear and FacilitySafety, at (202) 586-2407.

Sincerely,

&R@J2h’pEnclosure

Page 2: July 21, 1995, DOE letter forwarding the 94-5 implementation plan. · 2013. 11. 5. · The Secretary of Energy Washington, DC 20585 July 21, 1995 The Honorable John T. Conway Chairman

Plan For Managementof Standards-RelatedActivities(ImplementationPIan for BoardRecommendation94-5)

ExecutiveSummary

The Departmentof Energy(Departmentor DOE) acceptedRecommendation94-5 ofthe DefenseNuclearFaci1ities SafetyBoard (theBoardor DNFSB). InRecommendation94-5,the Boardnoteda fundamentalconcernaboutthe apparentlackof integrationand coordinationof a numberof DOE activitiesrelatingtothe development,implementation,and managementof DOE standards. TheDepartmenthas previouslycommittedto a standards-basedsafetymanagementprogram. However,DOE and the Boardrecognizethat severalrecently-initiatedstandardsactivitiesmay have impededprogresson the standards-basedsafetymanagementprogram. In acceptingRecommendation94-5,DOE committedtoaddressconcernsrelatingto confusionand lackof effectiveprogresson thestandards-basedsafetymanagementprogramand establisha path forwardtoassuresafetythrougheffectivemanagementof the variousstandardsactivities. .

The transitionto the standards-basedsafetymanagementprogramhas resultedin severalstandards-relatedactivitiesthat are not uniformlyunderstoodinconception,are not effectivelyintegratedand coordinatedin development,andare not properlymanagedin implementation.While a commonthreadofdevelopingand managingappropriatestandardsfor diverseDOE work weavesthroughoutall the activities,that threadis often not visibleand not wellunderstoodby all. Clearly,theseactivitiesrequirecoordinationandintegrationthroughan overallDepartment-widestandardsmanagementplan.

In recognitionof the transitionproblems,the Secretarytaskedthe AssistantSecretaryfor Environment,Safetyand Healthin February1994to definecriteriafor an acceptablestandardsprogramand to assistin developingeffectivemeansto satisfythe criteria. The DepartmentStandardsCommittee(DSC)chairedby the AssistantSecretaryfor Environment,Safetyand Healthwas establishedto integratethe Departmentstandardseffortsand establishthe criteriafor a DepartmentStandardsProgram. Thesecriteriawereestablishedin August1994 (DOE/EH/-O4l6)and elementsof the programare invariousstagesof development.TheDSC membershipconsistsof seniorexecutivesfrommajorHeadquartersand FieldOffices.

The DSC is the commonthreadthat linksand coordinatesmajor standards-relatedactivities. Itwill do so by developinga plan for the actions,schedules,and responsibilitiesnecessaryto tie togetherall the currentstandardsactivitiesin a coherentfashion. Althoughthe DSC actionplanwillnot be completeduntilSeptember1995,the major standards-relatedactivitiesin the DSC actionplanwill be summarilydescribedin this implementationpland in responseto Recommendation94-5 and the Boardwill be informedof theongoingactionplan activities. Simi1arly, the Boardwi11 be informedof thedefenselaboratories’standards-relatedactivitiesin responseto the Board’sApril 28, 1995 letterthatwill be coordinatedwith the DSC and the actionplan activities.

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The DSC actionplanwill provideDOE the coordinatedactions,frameworkandinfrastructurethatwas lackingin previouscommitmentsin the transitionfroman experts-basedsystemto a standards-basedsafetymanagementprogram. Thiswill permitthe Department,in consultationwith the Board,to determinethecontinuedneed for and/orscopeof severalongoingactivities,i.e.,Recommendations90-2 and 93-1,and Department-wideauthorizationbasisdevelopment.As actionsare developedand go forward,DOE recognizesthatseveralnear-termactionsare necessaryto assurethatcommitmentsto existingstandardsare understoodand followedwhere It is appropriateto do so. Theidentifiednear-termactionsare also crucialfor effectiveprogressin thetransitionto a standards-basedsafetymanagementprogram. Those near-termactions,the conditionswhere theywill be imposed,and the expectedoutcomesare the essenceof this ImplementationPlan.

Tableof Contents

1. BackgroundZ. UnderlyingCauses3. Assumptions4. Summaryof Completedand Near-TermActions5. SafetyIssueResolution6. Managementand Organization

1. Background

Internaland externaldemandshave causedDOE to changethe way it managesitscontractors. Internally,DOE acknowledgesthat the development,implementation,and enforcementof safetyrequirementsimposedthroughcontractualmechanisms(i.e.,the impositionof DOE Ordersthroughcontractterms)has been ineffectiveand costly. Remediesto thesecontractualproblemsinclude: (a) improvementsto the DOE Directivesto streamlineOrdersand removeunnecessaryand conflictingrequirements;(b) revisionsto contracttermsand conditionsto properlymeasureand rewardperformance;(c)developmentof a closuremethodologyto assure“necessaryand sufficient”requirementsare imposedby contractand implemented;and (d) transitionfromDOE Ordersto rulesto provideopportunitiesfor publicinput,stabilityandbetterregulatoryenforcementof safetyrequirements.

Externally,DOE is part of a fundamentalchangein FederalGovernmentthat isreevaluatingthe relationshipbetweenfederalagenciesand the activitiestheycontrolor regulate. An overallgoal is to removethe heavygovernmentfootprintof bureaucraticrequirementsthat do not add valueand are costlytoimplementand manage. In addition,downsizing,reducingbudgets,usingappropriategovernmentand non-governmentstandards,and the transitionofDepartmentalmissionsare significantexternalfactorsimpactingthemanagementof contractorsand standards-relatedactivities.These externalfactorsneedcarefulconsiderationand balancingwith the overridingobjectiveof assuringadequateprotection.

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The numerousstandardsactivitiesthatwere notedin Recommendation94-5wereinitiatedby DOE to respondin somemeasureto these internaland externaldemands. Theseactivities,however,have not been guidedby an overallDepartment-wideprocess. While all the standards-relatedactivitieshavemadeprogressand wi11 logically convergeat some pointinto a standards-basedsafetymanagementprogram,itwill not be effectiveor successfulwithoutaDOE-wideapproach. The Departmentwill assurecontinuedprogress,efficientconvergence,and propermanagementcoordinationand directionthroughactionsoutlinedin this implementationplan and the DSC actionplan. Coordinationand integratedplanningof major standardsactivitieswill be providedby theDSC.

2. UnderlyingCauses

The Departmenthas carefullyand openlyevaluatedthe underlyingcausesof itsdifficultiesin makingan effectivetransitionto standards-basedsafetymanagement. The followingcauseshave been identified:

.

.

.

Existingstandardscontainconflicting,redundant,and unnecessarydirection.

Headquartersand Fieldofficeshavecommunicatedpoorlyregardingstandardsperformanceexpectationsand implementation.

The processesfor tailoringand implementingrequirementsto site andfacility-specificactivitieshave been inadequate.

The processof incorporatingrequirementsintocontractshas beeninadequate.

The generalconditionand historyof the complexmakes this culturechangedifficult.

The De~artmenthas not providedmanagementresolveand a corPoratePlan forcoordinatingstandards-relatedactivities.

Each of thesemajorcausesis discussedbelow.

ExistingStandards. Severaldifferentrevieweffortsidentifiedthat existingDepartmentstandards’containconflicting,redundant,and unnecessaryrequirements.Many DepartmentOrderswere not uniformlydevelopedandresultedin a mixtureof statementson policy,requirements,guidance,andtechnicalstandards. Becauseof this condition,exacerbatedby the confusionaboutthe processfor implementation,many concludedthat the existingOrderscontainunproductiveand burdensomerequirements.

Communications.PoorcommunicationsamongHeadquarters,Fieldoffices,andcontractorsled to fragmentedand inconsistentinterpretationsand

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applicationsof standardsto conductwork. In the past,each Iinemanagementofficewas more or less free to manageits contractorsconsistentwith its owninterpretationand applicationof the DepartmentOrdersand other standards.The lessonslearnedfrom the nuclearsafetyprogramindicatethat riskaversionby decisionmakers,coupledwith poorlydefinedor executedimplementationand exemptionprocesses,resultsin ineffectiveand costlyprogramsfor understandingperformanceexpectationsafidimplementingrequirements.In many situations,implementationprogramswere “over-kill”and resultedin the diversionof resourcesaway fromotherongoingprogramsestablishedto improvesafetyperformance.In othercases,Order requirementswere effectivelyignoredwith the consentof DOE withoutjustificationordocumentationas to why theywere not implemented.

Tailoringand Implementing.The existingnuclearsafetyOrderswere developedtypicallywith an operatingnuclearpower reactorin mind. Althoughdevelopedfor reactoractivities,the Departmentallowed“grading”of those requirementsso that theycouldbe tailoredto lesserhazardousactivities.The Departmenthas fai1ed to clearlyarticulate,successful1y demonstrate,or effectivelyimplementthe gradedapproach. The Departmenthas not developedcompleteortiseableguidanceon an acceptableapproachnor did it effectivelymanagecontractorapplicationand tailoring. Accordingly,reactor-typeprogramswereimplementedwhere theywere neverintended.

The DefensePrograms’OrderComplianceSelf-Assessmentprocess,developedinresponseto DNFSBRecommendation90-2 to assessthe applicabilityofapproximately14,000mandatoryrequirementsin DepartmentOrders,has alsoproventime-consumingand costly,withoutsignificantdeviationsfrom themandatoryrequirementsthroughgradingdeterminations.DefenseProgramsissuedin February1995,supplementalguidanceon the conductof Ordercomplianceself-assessmentwhich permitsvalue-addedassessmentsof Orderrequirements.This guidanceis consistentwith SRID developmentand theproposedNecessaryand Sufficientprocess. Implementationof this guidancehas been lacking.

The Departmenthas spentseveralarduousyears developingprogramsandactivitiesto implementand complywith the existingOrders. Theseeffortswere initiatedunderthe ImplementationPlansfor Recommendations90-2 and 93-1 and are referredto as Standards/RequirementsIdentificationDocuments(SRIDS)and OrderCompliance. Theseeffortsare now scheduledand are showingsome degreeof effectivenessand success. But the effortsare slowingdownand schedulesare slippingto awaitthe issuanceof new Ordersand rules,and/orthe necessaryand sufficientprocess. This situationisunderstandable.Yet lack of progresson SRIDSand OrderCompliancecommitmentsis not justifiedgiventhat appropriateimplementationof the newOrdersand ruleswill not relaxnecessarysafetyrequirementsand that thenecessaryand sufficientprocessbuildson existingSRID and OrderComplianceprocesses.

Contracts. Littleguidancewas givento the Fieldon what activitiesorcontractswere subjectto the requirements.When many olderDepartmentnuclearfacilitieswere designedand approvedfor operation,appropriatenuclearsafetyrequirementsdid not existand the Departmentreliedon

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existingbuildingcodesand the knowledgeof contractorsto developtheirowntechnicalstandardsfor uniqueapplications.Headquartersexpectedthe Fieldofficesto negotiatewiththeircontractorsto have new requirementsincludedin contractswhen a newor revisedOrderwas promulgated.

However,in recentyears the volume,pace,and complexityof DepartmentOrdersoverwhelmedthe capacityof the Fieldto effectivelynegotiateand properlyimplementnew Order requirements.Accordingly,the Orderswere routinelyincorporatedintocontractsas boilerplateand “thrownover the transom”tocontractorswithoutadequatecontractorownershipand responsibilityandcorrespondingDepartmentmonitoringand control. Contractorswere expectedtoimplementappropriaterequirementsthrough“grading”or someotherdisciplinedreviewand qualitymanagementprocess. However,the award-feecontractsprovidedlittleeconomicincentivefor contractorsto properlymanageandcontrolthe programsand plans requiredby Ordersand other requirements.

Conditionand History. Many of the Department’sdefensenuclearfacilitiesare aged facl[ltleswith.inadequatedesign,authorization,and safetybasisinform~tionbasedon today’sstandards. Missionshave changedand facilitiesdesignedfor operationsare now decommissionedor mothballed. Personnelandtheircorporateknowledgehave been lost and that knowledge(e.g.,operationalconditions,designchanges,and operationalresults)has not been adequatelypreserved. As a resultof these and otherconditions,many contractorscannotdemonstratethat they have fullyimplementedor are in compliancewith theappropriaterequirementsreferencedin theircontracts. Similarly,the safetymanagementprocessesimplementedby some contractorsoftendo not have a clearlineage,definition,or purpose,and compliancecannotbe demonstratedreadily.

ManagementResolveand a CorporatePlan. The lackof managementresolveand acorDoratet)lanand mocess for standardsactivitieshas led to a lack ofintegrationand coordinationof a numberof Departmentactivitiesandinitiativesrelatedto the development,implementation,and managementofstandards. Therehave been problemsdue to the Department’sinabilitytoreachinternalagreementfor supportof Headquartersprogramsto ensureproperimplementationof commitments;repetitivefailureto providepropertrainingto ensureadequateunderstandingof programgoals and expectedoperationalpractices;lackof technicalcompetenceor experiencein key areas:andmanagementproblemsin maintainingconsistentprogress. The DSC was formedlargelyin recognitionthat the Department’sexistingstandardsmanagementeffortsacrossthe variousprogramofficeswere ineffective,costly,anduncoordinated.The proliferationof standards-relatedactivitiesimpartedarangeof actionsthroughoutthe Departmentcomplexrangingfrommild confusionto benignneglecttowardprogressof ongoingactivities. DOE managementwasslow in recognizingthe rootcausesof standardsproblemsand assigningresponsibilitiesand resourcesto confrontthe issueswith directandeffectiveactions.

DOE responsibilitiesand functionsfor standards-relatedactivitiesareassignedcurrentlyin the Manualof Functions,Assignments,andResponsibilities(FAR)for NuclearSafety. The FAR Manualhas not adequatelycapturedcurrentresponsibilities,some of the responsibilitiesdo not reflect

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recentorganizationalchanges,and many of the functionsand responsibilitiesare unnecessaryor insufficientas missionschange.

3. Assumptions

The DSC will addressthe properplanning,coordinationand integrationofstandards-relatedactivities. The DSC actionplanwill be a Department-wideplan to resolveissuesand providea path forwardfor the integration,coordination,and implementationof standardsactivities.This ImplementationPlan for 94-5 is intendedto addressthe specificconcernsexpressedby the.Boardand includesthe near term actionsto assureeffectiveunderstandingandcoordinationof activitiesneededfor safetymanagementcontrolas the DSCactionplan develops. The followingassumptionsare made for this Plan:

. ExistingOrdersand rules,if appropriatelyimplemented,areeffectiveand adequateto assuresafetyuntilreplacedby newOrdersand rules.

. ExistingSRID,OrderCompliance,rule implementationactions,andauthorizationbasisprocessesare adequateuntilreplacedby otheractionsand processesauthorizedby the DSC actionplan.

. FurtherDepartmentguidanceand directionis necessaryon thetransitionto and understandingof the standards-basedsafetymanagementprogram,the actionsnecessaryto “staythe course”undercurrentactivitiesand continuecomplyingwith existingstandards,programsand plans,and the actionsnecessaryto assureproperimplementationof any new Ordersand rules.

. Departmentdirectionand guidanceon existingor new standards-relatedactivitiesrequirescomplex-widetrainingandcommunicationand managementinteractionsto effectivelyreachallDOE and contractorpersonnel.

4. Summaryof Completedand

CompletedActionsto support

Near-TermActions

this ImplementationPlan:

The Secretaryannouncedon May 5, 1993 a comprehensivenuclearandoccupationalsafetyinitiativeto emphasizethe Department’sstrongcommitmentto continuousimprovementinsafetyand healthfor workers,the public,and the environment.

The Secretaryestablishedthe DSC in February1994 to establishcriteriafor a Departmentstandardsprogramand to managetheimplementationof that program.

● The DepartmentissuedDOE/EH/-O4l6,“Criteriafor the Department’sStandardsProgram,” in August1994 as a Departmentalstandard.

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. The Officesof DefenseProgramsand EnvironmentalissuedDNFSB90-2 ProgramImplementationInstruct1994.

● The Secretaryapprovedand forwardedto the DNFSB“ImplementationP1an for Recommendation90-2 (Rev1994.

. The Secretaryissued“MajorInitiativeon Nuclear

Managementons in September

the5)” in November

SafetyAccountability,(Forwardscopy of the Department’sresponseto theBoard’sMay 6, 1994 letter),” to SecretarialOfficerson December2, 1994.

. The AssistantSecretaryfor Environment,Safetyand Healthissueda memorandumto all Headsof HeadquartersElementson April 21,1995discussingthe Directivesimprovementinitiative(newOrdersand rules)and providingdirectionand guidanceon the need tostaythe courseand continuecomplyingwith existingplansandp~ogramsundercurrentOrdersuntilnew plans/programsareapprovedundernewOrders/rules.

. The DeputyAssistantSecretaryfor FacilityTransitionandTechnicalSupport(DP-30)for DefenseProgramsissueda memorandumto the Albuquerque,SavannahRiver,Nevada,Oakland,and Oak RidgeOperationsOfficeson February8, 1995directingadherenceto theRecommendation90-2 milestones.

. DP-30issueda memorandumon February21, 1995 to the Albuquerque,Nevada,Oakland,Oak Ridge,and SavannahRiverOperationsOfficeson SupplementalProgramGuidanceRegardingthe Conductof OrderComplianceSelf-Assessmentsat DefenseProgramFacilities.

. DP-30issueda memorandumon May 4, 1995 to the Albuquerque,SavannahRiver,Nevada,Oakland,and Oak RidgeOperationalOfficesdirectingcontinuationof OrderComplianceactivities,issuingtheSupplementalProgramGuidance,underexistingOrdersnotwithstandingthe imminenceof new Orders/rules.

. The Departmentissueda DOE-widestandard,“Preparation,Review,and Approval’of ImplementationPlansfor NuclearSafetyRequirements,” (DOE-STD-1O82-94)in October1994 that describesanacceptablemethodto prepare,review,and approveimplementationplansfor DOE nuclearsafetyrequirements.

. The Departmentissueda DOE-widestandard,“RequestingandGrantingExemptionsto NuclearSafetyRules,”(DOE-STD-1O83-95)inFebruary1995 that describesthe processand criteriafor grantingexemptionsto nuclearsafetyrequirementsin DOE rules.

. The DepartmentissueddraftproposedDOE Order 251.1and Manual,“DOEDirectivesSystem”,for simultaneousimplementationand

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reviewin June 1995which clearlyexplainedthe relationshipbetweenmandatoryrequirementsthat are establishedin DOE Policy,Orders,rulesand Manuals,and optionalmethodsto implementtherequirementsthat are set forthin guidancedocumentssuch asImplementationGuidesand TechnicalStandards. A major purposeofthisOrder is to definethe DOE DirectivesSystemand to explainthe separationof guidancefrom requirementsand to provideguidanceon the Department’sexpectationson the implementationofrequirements.

Near-termactionsto be completed:

. (September1995)The Departmentissuesa memorandumto al1Headquartersand Fieldelementsregardingthe properinterpretationand implementationof new Ordersand rules,and howapplicableand appropriaterequirementsare implementedthroughthe use of technicalstandardsand other referencedstandardsinDOE approvedimplementationplans.

. (September1995)The Departmentissuesa PolicyStatementonProceduresfor Developing,Implementingand AchievingCompliancewith NuclearSafetyRequirementsthat sets forththe legal,procedural,and policyframeworkfor developing,implementingandachievingcompliancewith the Department’snuclearsafetyrequirements.The Policy Statementwi11 includedirectionthatthe transitionfrom existingOrdersto new Ordersand ruleswillnot providean excusefor delayin achievingcompliancewithcommitmentsconcerningrequirementsin existingDOE Ordersandwill provideguidanceto ensurethat existingOrdersmay bepreservedin contractswhere they have been appropriatelyimplemented.

(September1995) The DSC issuesthe actionplanwhich establishesactions,schedulesand responsibilitiesto coordinateandintegratestandards-relatedactivities,includingthe “necessaryand sufficient”process. This plan is a livingdocumentand willbe revisedappropriately.

(September1995) The DeputyAssistantSecretaryfor FacilityTransitionand TechnicalSupport(DP-30)and the DeputyAssistantSecretaryfor Complianceand ProgramCoordination(EM-20)initiatediscussionswith the Boardrelativeto the path forwardand thevaluein continuationof Recommendation90-2 and 93-1implementationin viewof the integratedstandards-basedsafetymanagementprogramset forthin the DSC actionplan.

(October1995) DP -30 and EM-20in cooperationwith all ProgramSecretarialOfficers(PSOS)with facilityinterests,establishtrainingseminarformat,content,and schedules,coordinatedwiththe DSC, to assurethat DOE and contractorpersonnelunderstand

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Departmentstandardsinitiativesand expectations,decisionmakingprocesses1eading to the implementationof and compliantewithapplicableand appropriaterequirements,and the overallgoalsofa standards-basedsafetymanagementprogram,and consistentwiththe DSC actionplan.

(October1995)The AssjstantSecretaryfor HumanResources(HR-1)issuesa finalDOE Order251.1on the DOE DirectivesSystemandcoordinatesissuanceof a documentthatcompletesthe “mapping”60days thereafterto show how elementsjn existingOrdersrelatetorequirementsand guidancein the new DOE DirectivesSystem.

. (Early1996)The DSC issuesfurtherguidanceand criteriaon howfacilitiesthat may applythe necessaryand sufficientprocessafterit js authorizedfor DOE-wideuse.

. (Early1996)The DeputyAssistantSecretaryfor NuclearandFacilitySafety(EH-3)issuesa revisedFAR Manualthat

. establishesthe functionsand responsibilitiesof DOE linemanagementand oversightpersonnelfor the new rulesand otherappropriatedirectives.

5. Safety Issue Resolution

This Plan addressesthe followingprincipalissuesinvolvedeffectivetransitionto standards-basedsafetymanagement:

in makingan

Communicatingthe Department’scommitmentto a standards-basedsafetymanagementprogramDefiningand directingcontinuationof approvedactivitiesunderexistingOrdersto assureeffectivesafetymanagementcontrolduringtransitionEnsuringimplementationof and compliancewith appropriatesafetystandardsEstablishingpropercontractand regulatorycompliancemeasuresandmechanismsfor approvedstandards

Each of theseissuesis describedbelowalongwith the resolutionapproachandassociateddeliverablesand milestones.

5.1 Communicatingthe Department’sCommitmentto Standards-BasedSafetyManagement

IssueDescription

In orderto accomplisha significantculturalchangesuch as the transitionfromcurrentmanagementpracticesto standards-basedsafetymanagement,theDepartmentand contractorpersonnelneed to receivea clearmessagethat theDepartmentis committedto thiscourseof actionand.actuallyhas a corporateplan to achieveits goal. To date,the difficultyin achievingthisculturechangehas been compoundeddue to variousdiverseDepartmentinitiativesrelatedto Departmentrulesand Orders,confusionsurroundingimplementation

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approaches,and the uncertaintyof Departmentmissions, AlthoughDepartmentmanagementis fullycommittedto a standards-basedsafetymanagementsystem,the Departmentpersonnelhave not receiveda consistentand integratedmessageand plan regardingthis commitment.

BoardRecommendation

In BoardRecommendation94-5,the Boardrecommendsthat the Department:

“(l ) MidelY disseminate the in formdt ion provided to the Board in response toour tidy 6, 1994 7etter on DOE’sSafety ManagementProgram, dnd take steps toensure that key technical and contracts personne7 are well schoo7ed in thistopic.”

ResolutionApproach

The Department’scommitmentto standards-basedsafetymanagementis clearlyreflectedin a numberof Departmentdocuments,includingthe following:

1) DOE News ReleasedatedMay 5, 1993by SecretaryO’Learyon Department’sstrongcommitmentto a comprehensivenuclearand occupationalsafetyinitiative.

2) DOE/EH/-O4l6,“Criteriafor the Department’sStandardsProgram,” issuedinAugust1994 as a Department-widestandard.

3) “MajorInitiat~ve on NuclearSafetyAccountabi1ity, (Forwardscopy of theDepartment’sresponseto the Board’sMay 6, 1994 letter),” O’Learyto’SecretarialOfficersissuedon December2, 1994 and disseminatedto allheadquartersand fieldofficemanagers.

4) DraftDOE Order251.1,DOE DirectivesSystem,issuedfor implementationandreviewin June 1995.

In the Department’sResponseto BoardRecommendation94-5, the Departmentreportedthat the responseto the Board’sMay 6, 1994 letteron the DOE’sSafetyManagementProgramhad beenwidelydisseminated.In addition,thisImplementationPlanwill furthersignaland reiteratethe Department’scommitmentto implementingstandards-basedsafetymanagement. The rolloutof the DSC actionplan,addressedunderSafetyIssue#2, and actionsforcommunicationof its elementswill includetop managementparticipationandfinalexecutionby the Secretaryor the UnderSecretary,as appropriate.TheDepartmentrecognizesthat part of the communicationproblemsthat led toconfusionis that issuanceof plansand paperfrom Headquartersis not enoughto get effectiveaction-- managementmust get out in the Fieldto explainexpectationsand answerquestionsand resourcesmust be committedto assureeffectiveimplementation.

Deliverables/Milestones

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Basedon the abovecompletedactions,the Departmentconsidersthis issuetobe largelyresolved. However,the messageon safetystandardsmust bereinforcedand made clearer. Whilemuch of the standards-relatedtrainingwill be an elementof the DSC actionplan as thoseactivitiesare developed,this plan includesa commitmentto issuea memorandumto explainthe newstandardsand directives,to finalizethe Orderon the DOE DirectivesSystem,and to conductinterimtrainingon the Department’sapproachto standards.This memorandumwill expressthe need to “staythe course”pendingissuanceofthe DSC actionplan throughthe use of authorizationbasisdocumentation,OrderCompliance,and SRID developmentactivities,and continuecomplyingwithexistingprogramsand planswhere it makes senseto do so. This 94-5 trainingwill focuson the actionsnecessaryto aligncurrentactivitieswith theDepartment’sexpectationsfor a standards-basedsafetymanagementprogramandto properlyimplementand complywith applicableand appropriaterequirements.To assurethat a properfoundationis establishedfor the transitionto thestandards-basedsafetyprogramand that key DOE and contractorpersonnelfullyunderstandthe relationshipof standardsissuesand initiatives,theDepartmentwill completethe following:

“Commitrnent1.1:

Responsibility:

Applicability:

Deliverable:

Due Date:

Commitment1.2:

Responsibility:

Applicability:

Deliverable:

Issuea memorandumto explainthe relationshipof thenew directives(policy,requirements,guidance,andtechnicalstandards),acceptableimplementationprocesses,including“stayingthe course”asappropriateunderexistingrequirementsand theproposed“necessaryand sufficient”process,andperformanceexpectations.

AssistantSecretaryfor Environment,Safetyand Health(EH-1),Dr. Tara O’TooleGeneralCounsel(GC-1),RobertNordhaus

Department-wide

MemorandumOn Requirementsand Guidance

September15, 1995

Issuea finalDOE Order251.1on the DOE DirectivesSystem(alreadyimplementedas a proposedOrder inJune 1995)to betterexplainthe relationshipbetweenpolicy, requirements,guidance,and technicalstandards,and implementationprocessesandexpectations.

HumanResourcesOfficeof Organizationand Management(HR-6),Ms. MarciaMorris

Department-wide

ApprovedfinalOrder.

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Due Date: October15, 1995

Commitment1.3: Developthe scope,format,seminartrainingto assureschooledon the transition

contentand schedulesforkey personnelare wellto standards-basedsafety

management,and currentexpectationsregardingimplementingand complyingwith applicableandappropriatestandards/requirementsconsistentwith theDSC actionplan. This actionwill be coordinatedwithall ProgramOfficeswith facilityinterestsandcontractor/laboratorypersonnelas appropriate.

Responsibility: DeputyAssistantSecretaryfor FacilityTransitionandTechnicalSupport(DP-30),Mr. Don KnuthDeputyAssistantSecretaryfor Complianceand ProgramCoordination(EM-20),Mr. RandalScott

. Applicability: Department-wide.

Deliverable: ApprovedSeminarTrainingand CommunicationsPlanconsistentwith the DSC actionplan.

Due Date: October30, 1995

5.2 Definingand directingcontinuationof approvedimplementationactivitiesto assuresafetymanagementcontrolduringtransition.

IssueDescription

The Departmenthas multiplestandards-relatedinitiativescurrentlyin variousstagesof conception,development,and implementation.In particular,newrulesalongwith associatedimplementationguidesare beingpreparedtoreplaceexistingOrdersin certainkey nuclearsafetyfunctionalareas. Inaddition,otherOrdersare being revisedand rearrangedto eliminateconflicting,redundant,and unnecessaryrequirements,and to improveuser-friendliness.Additionally,the necessaryand sufficientimplementationandclosureprocessis undergoingpilotdemonstrations.

Theseinitiativesare not yet completeand the DSC actionplan is notfinalized. The Departmentwill providefurtherdirectionon safetymanagementcontrolduringthe transition. The processfor transitioningfrom the oldorders-basedframeworkto the new standards-basedframeworkneedsto be fullydefinedand clearlycommunicatedto effectivelymanagethoseactivitieswherethe Departmenthas assignedits highestsafetypriorities. Furthermore,thetransitionfrom existingOrdersto newOrders/rulesrequirescarefulimplementationdefinitionand directionto avoideliminationor relaxationofappropriaterequirements,to avoidimpositionof unnecessaryrequirements,and

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to avoidthe modificationof effectiveprogramsand plansundercurrentdirectives.

BoardRecommendation

In BoardRecommendation94-5,the Boardrecommendsthat the Department:

“(2)

(d)

(b)

(c)-

(d)

(e)

Promptly issue appropriate directives dnd procedures to DOEHeadquarters, Field Offices and O&Mcontrdctors which:

embrdCe the bdsic principle that work d]reddy commenced orpldnnedto develop dnd implement requirements in existing or revisedOrders or SRIDSshould cent inue while ru lemdking is Underwdy;

explain in detdi~ the relationship between safety requirementscontained in Orders in O&Mcontracts dnd those contained in newrules, df?d the process by which a rulemdy ‘supersede’ parts, orthe entirety, ofd sdfety@der;

eXpldin thdt compliance with d requirement whether in d rule,Order or other directive is not accomplished bysubmittdl ofdnddeqUdte implementation plan but requires completion of actionproposedby thdtp]dn;

provide guiddnce to contractors dnd DOEprOgrdfl OffiCes on how toCOOrdindte implementation pldns for multiple requirements such asthose in Orders, rules, SRIDSand other binding directives; and

in the Drocess of eliminatincl duD7icdte requirements and indrrangi’ng the remaining ones-a76ng more user-friendly guidelines,which the BOdrd dgrees is desirdble, ensure thdt existingrequirements that dre necessdry df?d dppropridte dre not reldxednor eliminated, dnd schedu7e conm?itments for dCh7eVing CO/np7idnCedre not de7dyed. ”

ResolutionApproach

The firststep in assuringa smoothtransitionis to continuedevelopmentofthe authorizationbasisdocumentation,SRID development,and OrderComplianceusingthe supplementalguidanceissuedby DefenseProgramson February21,1995. The Departmenthas alreadyissuedfurtherdirectionand guidanceon howto identifyand implementappropriaterequirements(i.e.,tailoring)and theneed to stay the courseand continuecomplyingwith existingplansanOdprogramsundercurrentOrdersuntilnewplans/programsare approvedundernewOrders/rules.Thesedirectionand guidancememos have been identifiedabove.

In addition,the Departmentwill issuea supplementalmemorandumon the newdirectivessystemand acceptableways to implementnew requirements,includingstayingthe courseunderexistingrequirements,and a policystatementtofurtheremphasizethe directionand the proceduresto followin the transitionfromOrdersto rules.

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The Departmenthas also issueda standardon the “Preparation,Review,andApprovalof ImplementationP1ans for NuclearSafetyRequirements”(DOE-STD-1082-94,Oct. 1994). This standarddescribesacceptablemethodsto prepare,review,and approveimplementationplansfor DOE nuclearsafetyrequirementsthat originatefrommultiplesourcessuch as DOE Ordersand rules. It is theDepartment’sgoal to fullyimplementapplicableand appropriaterequirementsfor site or facilityspecificactivitiesregardlessof the sourceof thestandardor the processby which the requirementsare identifiedand justifiedfor use.

Acceptableimplementationof performance-basednuclearsafetyrequirementsisachievedby the appropriateimplementationof DOE Orders,rules,technicalstandards,commercialpractices,voluntarystandards,and best practices. TheDepartmenthas developedimplementationprocesses(e.g.,SRIDS,DOE-STD-1082-94, safetyauthorizationagreements)which are designedto achievethis goalalthoughthey may vary in approach. Becauseof this variance,the Departmentwill explainthe differentapproachesand demonstratehow, if correctlyapplied,theywill lead to the rightset of requirementsto implementand,follow.

As indicatedearlier,some of the SRID and OrderComplianceactionshavesloweddown or even haltedto awaitnew Ordersand rulesand the next set ofimplementationinstructions.Indeed,many in the complexbelievethat theproposed“necessaryand sufficient”decisionmakingand closureprocessand theissuanceof new Ordersand rulesmakescurrentSRID and OrderComplianceactivitiesfutileand meaningless.That is not the case. The Departmentiscommittedto implementingapplicableand appropriaterequirementsfor adequateprotection. The appropriateimplementationof new Ordersand ruleswill notrelaxor eliminatenecessarysafetyand healthrequirements.Additionally,the proposed“necessaryand sufficient”processbuildson the currentinstructionsfor SRID,OrderCompliance,and rule implementationprocesses,andwill be a key elementin the facilityauthorizationbasis. Sinceimplementationprocessesare similarand shouldresultin the selectionofsubstantiallysimilarrequirementsfor safety,currentSRID,OrderComplianceincorporatingthe DP supplementalguidance,and authorizationbasisdevelopmentshouldcontinuewithoutinterruption.

ApprovedSRIDSor OrderCompliancedocumentsdevelopedunderexistingOrderswill be sufficientto demonstrateimplementationand compliancewithrequirementsin the new Ordersand ruleswithoutany furthergeneraldemonstration.Assumingthe “necessaryand sufficient”processis authorizedfor use afterthe pilotdemonstrations,approvedSRIDSand OrderCompliancedocumentsmay remodified in an orderlyfashionif valueis addedand it makessenseto do so. The overallgoal of the “necessaryand sufficient”processisto providea single,coherentDOE-wideapproachfor the development,approval,and use of setsof standardsas a fundamentalbasisfor the authorizationofwork. The processneedsto be flexibleto fit the wide spectrumof work andhazards,but consistentto provideaccountabilityand controlfor theresponsibilitiesof linemanagementand an acceptablebasisfor complianceassessments.At this time,it is recognizedthat the proposed“necessaryandsufficient”decisionmakingand closureprocessrequirestesting,developmentand implementationcriteriaand guidancebeforeit can be authorized. DOE

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will timelyadviseand informthe Boardof progressand issuesin the“necessaryand sufficient”developmentprocess,includingresultsof the pilotefforts.

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Deliverables/Milestones

In orderto resolvethisactions:

Commitment2.1:

Responsibi1ity:

App’

Del

Due

icability:

verable:

Date:

Commitment2.2:

Responsibility:

Applicability:

Deliverable:

Due Date:

Commitment2.3:

Responsibility:

Applicability:

Deliverable:

Due Date:

issue,the Departmentwill completethe following

1ss e pollcyst tement9n proce~resfor devel ping,Ylm ementlnganP

~h?

7 ?c levlngcomp lancewith nuc earsa ety requlremens.

AssociateGeneralCounselfor EnergyPolicy(GC-70),Mr. DouglasSmith

Department-wide

Approvedpolicyor

September15, 1995

notice.

Issue the DSC actionplan that integratesandcoordinatesall standards-relatedactivities.Thisactionplan is a livingdocumentand will be revisedas appropriate.

DepartmentStandardsCommitteeChair,Dr. TaraO’Toole, AssistantSecretaryof Environment,Safetyand Health

Department-wide

ApprovedDSC initialactionplan for standardsintegration

September15, 1995

Developa plan and schedulefor the conductof aDepartment-wideworkshopthat explainsthe DSC actionplan and assuresprogramand fieldquestionsrelativeto the standards-basedsafetymanagementprogramareaddressed.

DepartmentStandardsCommitteeChair,Dr. TaraO’Toole, AssistantSecretaryof Environment,Safetyand Health

Department-wide

Workshopplan

September29, 1995

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Commitment2.4: Discusswith the Boardthe path forwardand valueofcontinuationof Recommendation90-2 and 93-1implementationin lightof the DSC actionplan.

Responsibility: DP-30,Mr. Don Knuth

EM-20,Mr. RandalScott

Applicability: All defensenuclearfacilitiesand programs

Deliverable: Path forwardrelativeto Recommendations90-2 and93-1

Due Date: September29, 1995

Commitment2.5: Establishinterimtrainingscope,format,content,andschedule(SeeCommitment1.3)

‘Commitinent2.6: Issuememorandumon the new Directivessystemandacceptableimplementationapproaches,includingstayingthe courseunderexistingrequirements(SeeCommitment1.1)

5.3 Ensuringimplementationof and compliancewith appropriatesafetystandards

IssueDescription

With the transitionto new nuclearsafetyrules,the Departmentand contractormanagerswill developimplementationplansto assurecompliancewith theregulatoryrequirements.Unlessproperlymanaged,this regulatoryemphasisonrule implementationand compliancecouldpossiblylead to a reductioninemphasison othersafetyrequirementsnot associatedwith rules. TheDepartmentand contractormanagersmust ensurecompliancewith the full andcomprehensiveset of appropriatesafetystandards/requirements.

BoardRecommendation

In BoardRecommendation94-5,the Boardrecommendsthat the Department:

“(3) Ensure that compliance with theminima7 (bdse-7ine) set of safetyrequirements contained in Ru7es is not COnstruedds fullcompliance with d77 necessary safety requirements dnd does notciisp 7ace effort to develop and imp7ement through RIDs the bestnuclear safety requirements and practices embodied in rules,Orders, standards, and other safety directives. ”

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ResolutionApproach

The fundamentalresolutionof this issueis to approachthe entirerequirementsprocess,includingidentification,application,implementation,and compliance,as an integratedprocesswhich encompassesall appropriatesafetyand healthstandards,not just thosecontainedin nuclearsafetyrules.The Departmenthas developedvariousapproachesto standardsdecisionmakingand implementationincludingSRIDS,OrderCompliance,Necessaryand SufficientClosureProcess,rule implementation,and authorizationbasisdevelopment.Theseapproachesdefineand establishthe completeset of standardsthatwhenimplementedwill providereasonableassurancethat the healthand safetyofthe workers,public,and environmentwill be protected. Thesedecisionmakingand implementationprocessespermitconsiderationof all potentiallyapplicablesafetystandardsincludingnuclearsafetyrules,other legalrequirements,Departmentsafetyordersand other healthand safetydirectives,Departmenttechnicalstandards,industryconsensusstandards,industrygoodpractices,and otherapplicablestandards,practices,and requirements.

The implementationplansand the standardsset developedby a disciplinedteam“approachthrohghthe implementationprocesseswill be the primarydriverforimplementingstandards-basedsafetymanagement. Rule implementationandcompliancewill be fullyintegrated,and not separatedor segregated,withimplementationand complianceof the applicableand appropriateset of safetyand healthrequirementsat each facility.

Continuousimprovementand commitmentsto excellencebeyondminimalcomplianceare a cornerstoneof the standards-basedmanagementprogramand need to beintegratedinto implementationprocesses. This is particularlytrue fornuclearsafetyand is so statedin the currentDepartmentNuclearSafetyPolicy Statement(SEN-35). The DSC actionplan for standardsintegrationandmanagement(Commitment2.2)will definethe overallprocessfor identifying,applying,implementing,and verifyingcompliancewith all appropriatesafety,healthand environmentalstandards. In additionto the DSC actionplan,theDepartmentwill also emphasizecompliancepolicythrougha policystatementonimplementationand complianceproceduresfor nuclearsafetyrequirements(Commitment2.1),and will reemphasizecontinuousimprovementand a consistentapproachto safetybeyondminimalcomplianceas statedin the Department’sEnvironment,Safety,and HealthPolicystatement,issuedby SecretaryO’Learyon July 20, 1993 in responseto the Secretary’sMay 5, 1993 SafetyInitiative.

Deliverables/Milestones

Commitment3.1: IssueDSC actionplan (SeeCommitment2.2)

Commitment3.2: Issuepolicystatementornoticeon implementationandcomplianceproceduresfor nuclearsafetyrequirements(SeeCommitment2.1)

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Commitment3.3: Issuememorandumon new directivessystemandacceptableimplementationapproaches.(Seecommitment1.1)

Commitment3.4: Reemphasizedirectionon continuousimprovementand aconsistentapproachfor all safetyand healthactivitiesbeyondminimalcomplianceas statedin theEnvironment,Safetyand HealthPolicyfor theDepartmentof EnergyComplex,datedJuly 20, 1993.

Responsibility: EH-1,Dr. Tara O’Toole(EH-1)

Applicability: Department-wide

Deliverable: RevisedDepartmentEnvironmentPolicyStatement

Due Date: September15, 1995

5.4 EstablishingDroDerDOE amroval. oversiqhtand

Safetyand Health

-,, ,, egal responsibilitiesfor contractrequirementsdocumentsto assureconsistency

IssueDescription

The Departmentinitiatedcontractreformto redefinethe basic relationshipsbetweenthe Departmentand its contractors.Major reforminitiativesincludeimprovedprovisionsto identifyexpectationsand measureperformanceforaccountabilityand responsibility.One of the goalsof the Department’scontractreformeffortsis increasedclarityand contractoraccountabilityonenvironment,health,and safetyrequirements.Appropriatechangesto thestandardcontractualprovisionsare beingdeveloped.

Similarly,the NuclearSafetyManagementrulesin 10 CFR Part 830,whenissued,will clearlydelineateDOE’s implementationand compliancerequirements.The Departmentneedsto clearlydefineimplementationresponsibilityes, includingthosefor the line,oversight,and legalroles,inreviewingand approvingrequirementdocumentsthat are consistentwith the newcontractualand regulatoryprovisions.

BoardRecommendation

In BoardRecommendation94-5,the Boardrecommendsthat the Department:

“(4) clE?dr]y eStdb]iSh such line, oversight, dnd legal respons~bilitiesfor review dnddpprovdl ofcontractua7 provisions specjfy7n9environment, hed7th, and safety requirements for DOEcontractorsto ensure that the requirements-based sdfety management programexpectedly the DOEwi71 be uniformly deve/opeddndconsjstent7yjmposed dcross the comp7ex. ”

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ResolutionApproach

DOE contractorsare legallyrequiredto implementand followapplicablerequirements,includingthosein DOE Ordersthat are referencedin contractsand thosein all applicablerules. As mentionedpreviously,in recentyearsDOE Orderswere incorporatedintocontractsas boilerplate withoutcleardirectionon implementationand complianceobjectives.A componentofcontractreformis the revisionof contractclausesto specifytheapplicabilityof DOE Ordersto governspecificwork activities.As new setsof standardsare developedusingthe SRID or necessaryand sufficientprocessesand are approvedby the Department,theserequirementswill beimposedon the contractorby meansof a contractmodification.Theseapprovedstandardswould constitutethe basisfor complianceassessmentsof thoseworkactivitiessubjectto the approvedstandardsset. RegulatoryrequirementsandDOE Ordersreferencedin the contractwould continueto be binding. Revisedcontractualclausesare underdevelopmentand will be adoptedas standardDepartmentof EnergyAcquisitionRegulation(DEAR)clausesafter rulemaking.

Alongyith developmentof the standardcontractuallanguage,the Department“willformalizeline,oversight,and legalresponsibilitiesfor theseenvironment,health,and safetycontractualand legalprovisions.The primaryvehiclefor establishingtheseresponsibilitiesis the responsibilitysectionof each DOE Order and the Department’sFunctions,AssignmentsandResponsibilities(FAR)Manual. The FAR Manualwas developedto captureDOEline and oversightfunctionsand responsibilitiesin currentOrdersandcompilethem in one sourcedocument. Sincethe nuclearsafetyrulesdo notspecifythe responsibilitiesof DOE personnel,the FAR Manualwas intendedtoservethat function. However,the FAR ManualrequiressubstantialrevisiontoreflectcurrentDOE organizationsand functionsand responsibilitiesthatwillbe associatedwith the implementationof rulesor otherappropriatedirectiveswhen they are issued.

The Department’sreviewand approvalfunctionsfor rule implementationplansare describedin DOE-STD-1O82-94and ruleexemptionfunctionsare describedinDOE-STD-1O83-95.However,a consistentapproachfor reviewand approvalofexemptionrequestsfrom applicableDOE Orders,Notices,Manualsand otherrequire~entdirectivesneedsdevelopment.This exemptionprocessrequirescoordinationwith the necessaryand sufficientdecisionmakingand closureprocessand actionsdevelopedin accordancewith the DSC actionplan(Commitment2.2). The rule and Order implementation/exemptionprocessesandthe necessaryand sufficientclosureprocesswill establishthe DOE reviewandapprovalcriteria,functionsand responsibilitiesto assurethat appropriaterequirementsare uniformlydevelopedand consistentlyimposedacrossthecomplex.

Deliverables/Milestones

Commitment4.1: Reviseand reorganizethe FAR Manualto establishtheDepartmentline,oversight,and legalresponsibilitiesfor reviewand approvalof requirementdocuments.

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Responsibi1ity: EH-3,Mr. Orin Pearson

Applicabi1ity: Department-wide

Deliverable: ApprovedRevisedFAR Manual,

Due Date: February1, 1996or 60 days afterissuanceof thenuclearsafetymanagementrulesin 10 CFR Part 830.

Commitment4.2: IssueDOE guidanceor standardon the Orderexemptionprocess

Responsibility: EH-3,Mr. Orin Pearson

Applicability: Department-wide

Deliverable: DOE Standardon OrderExemptionProcess

Due-Date:‘ October15, 1995

Commitment4.3: Completedevelopmentand issueinitialDSC actionplan,includingactionsfor necessaryand sufficientclosureprocess(SeeCommitment2.2).

6. Organizationand Management

The Departmentwill managethis ImplementationPlan,includinganyinteractionswith the Board,throughOrin Pearsonthe DeputyAssistantSecretaryfor Nuclearand FacilitySafety(EH-3)in the Officeof Environment,Safetyand Health. Mr. Pearsonwill haveoverallresponsibilityto ensurethat DOE managementand the Boardis timelyinformedof any actionsthatmayaffectthe assumptionsor commitmentsset forthin this Plan. He also hm theresponsibilityto act as an interfacebetweenthe Boardand the DepartmentStandardsCommitteewhichwill play an integralrole in the Department’simplementationof a standards-basedsafetymanagementprogram,the primaryconcernof the Boardin Recommendation94-5. The issues,the resolutions,andthe path forwardto assureeffectivecoordinationof all Departmentstandardsactivitieswill be establishedin the actionplan to be developedby the DSC.Mr. Pearsonwill have the responsibilityto assurethat the Boardhas completeand timelyinformationregardingany DSC activities,includingthe DSC actionplan,that may impactany informationin this Plan.

w: The Departmentwill followits policyto (1) bringto theoar s a entlonany substantivechangesto this ImplementationPlan as soonas identifiedand priorto passingmilestonedates,(2) have the Secretaryapproveall revisionsto the scopeand scheduleof Plan commitments,and (3)clearlyidentifyand describethe revisions,and basesfor the revisions.Fundamentalchangesto Plan’sstrategy,scope,or schedulewill be providedtothe Boardthroughformalrevisionof the ImplementationPlan. Otherchanges

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to the actionswill be reportedin periodicprogressreportsor otherappropriatecorrespondence,alongwith the basisfor the changesandappropriatecorrectiveactions.

%%In orderto assurethat DOE management,the variousDepartment

Imp emen lng elements,and the Boardremainsinformedof the statusof theprogressof plan implementation,the Departmentwill provideperiodicprogressreports. For this Plan,the Departmentwill issueprogressreportsquarterly,withinone monthof the closeof each quarterduringPlan implementation,withthe firstprogressreportto be submittedby November1995for the periodJulyto October1995.

22