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Policy Department D: Budgetary Affairs ____________________________________________________________________________________________ 2.4.2. Transitional issues The decommissioning phase of a reactor always starts with the existing organisation, its structures, traditions, etc. On one side, this brings strong advantages, because Management and workforce are familiar with the facility, know all about the components, the technology, are familiar with plans, drawings and all other documentation and other knowledge sources; The operation history of rooms, components, items, is – normally - well known; The routine work includes such valuable knowledge as radiation protection procedures, quality requirements and safety culture, and all those behavioral aspects are well trained and, hopefully, in an excellent shape. On the other side, the transition from operation to decommissioning requires a complete transition of the organisation (for transitional experiences see IAEA 2004, for a systematic overview on changes see IAEA 2008b, there especially chapter 3 and Table 1 on page 45). Within a few years most of the knowledge and experience gained in the operational phase makes no sense any more (e.g. on how to maintain quality and reliability of components, test and repair certain components) and absolutely new knowledge and experience (e.g. on how to finally remove those components, to decontaminate them, to cut them into pieces and to place them in the correct waste collection container) is required. To support this view that operation and decommissioning require a re-organisation of the existing structures, Figure 10 provides an overview over all those changes. Figure 10: Relevant areas of necessary changes to the organisation when shifting from operation to decommissioning Operation of the NPP Operational planning (Driver/shift management etc.) Safety management Unnecessary // Complete change of scope Decommissioning of the NPP Project management Safety management Check and Maintenance Instrumentation and control Substantially reduced Substantially reduced Risk management Financial management New or substantially changed Personnel management Complete change of scope Personnel management Licensing division Complete change of scope Licensing Radiation Protection Substantial change of tasks Radiation Protection Source: Authors 48
Nuclear Decommissioning: Management of Costs and Risks ____________________________________________________________________________________________ As can be seen none of the well-organised and well trained areas during operation stay the same, all require at least substantial addition to their tasks (radiation protection) or substantial or complete changes of their scope. Project management in the operational phase is required only to a rather small extent, over very limited time periods and under a rather limited complexity. Nearly no one in the management of a reactor is familiar with project management of the more complex type, as required for decommissioning, or has experience with it. So the necessary experienced persons have to be hired at the beginning of the decommissioning phase. This is the case for many other specialized knowledge and experience, too, so that the question arises in many cases if it is more effective to teach and train internal workforce or to hire experienced persons from outside the organisation. In any case this requires early planning of the necessary knowledge, experience and personnel qualification that will be required during the different phases of decommissioning ('Personnel, knowledge & qualification management plan') that fits to the overall decommissioning plan. Learning to work in a project-oriented environment also requires new qualifications and habits. No operational handbook gives any indications on how to saw a steam generator with hundreds of small internal pipes into pieces or to cut and package graphite blocks for final disposal: this requires mechanical knowledge, knowledge and experience with – so far unknown - tools, basic material science, the associated radiation protection issues, fire prevention and protection issues, waste management basics, etc. etc., so developing those technologies and procedures and optimizing them requires a broad multidisciplinary approach that has never been developed during the operational phase. Learning multidisciplinary work so is thus a great challenge. The transition of the organisation is one of the main factors determining time requirements and overall costs of a decommissioning project. Too slow transition can mean delays, lack of technical/safety/economical optimization, safety-related incompatibilities and failures, unnecessary blockages, and errors. Too rapid transition, on the other side, can mean overestimating learning curves, demotivating individuals and reducing the overall performance. The main issue in the transition from operation to decommissioning is psychological, i.e. the main issue is to get rid of the operation mentality among the personnel and to create a motivated workforce although their new job is limited in time and their previous work and pride will be destroyed. 2.4.3. Strategic and operational decisions In the previous chapters several basic decisions were described that have to be taken in an early stage of decommissioning (e.g. chapter 2.2.3 for basic strategic decisions, chapter 2.2.5 on schedule strategies). These basic decisions affect the whole decommissioning process and determine all the underlying planning and processes. A number of management areas, some of them very specific to decommissioning, were identified (in chapter 2.4.1). In these management areas several additional strategic decisions have to be taken. Strategic decisions in this field also affect all underlying planning and processes. Such basic decisions have to be accompanied by an even larger number of operational decisions that have to be in accordance with the overall strategic framework, but are more day-to-day decisions to implement the necessary steps. 49
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