IAEA Activities in The Field of Research Reactors Safety
IAEA Activities in The Field of Research Reactors Safety
IAEA Activities in The Field of Research Reactors Safety
Abstract
IAEA activities in the field of research reactor safety are included in the
programme of the Division of Nuclear Installations Safety. Following the
objectives of the Division, the results of the IAEA missions and the
recommendations from International Advisory Groups, the IAEA has conducted
in recent years a certain number of activities aiming to enhance the safety of
research reactors. The following activities will be presented: (a) the new
Requirements for the Safety of Research Reactors, main features and differences
with previous standards (SS-35-S1 and SS-35-S2) and the grading approach for
implementation; (b) new documents being developed (safety guides, safety reports
and TECDOC’s); (c) activities related to the Incident Reporting System for
Research Reactor (IRSRR); (d) the new features implemented for the INSARR
missions; (e) the Code of Conduct on the Safety of Research Reactors adopted by
the Board of Governors on 8 March 2004, following the General Conference
Resolution GC(45)/RES/10 ; and (f) the survey on the safety of research reactors
published on the IAEA website on February 2003 and the results obtained.
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1- INTRODUCTION
The objective of the programme implemented by the Division of Nuclear Installation Safety
(NSNI) of the Department of Nuclear Safety and Security of the IAEA is to achieve and
maintain a high level of safety of nuclear installations under siting, design, construction or
operating worldwide by: establishing standards of safety for the protection of health including
standards for research reactors, nuclear power plants and other non-reactor installations; and
providing for the application of these standards through, inter alia, support for the Agency's
technical co-operation programme, the rendering of services, the promotion of education and
training, the fostering of information exchange and the co-ordination of research and
development.
Relating to Research Reactors, services are offered to Member States in the following areas:
safety in the design and operation of research reactors (INSARR - Integrated Nuclear Safety
Assessment of Research Reactor - missions); regulatory supervision of research reactors
(IRRT - International Regulatory Review Team - missions); and experience feedback on
safety issues for research reactors (IRSRR -Incident Reporting System for Research Reactors-
database). Emphasis is also given to the development of new safety documents covering areas
where there is a lack of guidance. Also efforts are done to review and update the old safety
standards.
In 1998 the chairman of the International Nuclear Safety Advisory Group (INSAG) reported
to the IAEA Director General the group concern about the safety of research reactors. INSAG
has identified three major safety issues: the increasing age of research reactors; the number of
research reactors that are not operating anymore but have not been decommissioned yet; and
the number of research reactors in countries that do not have appropriate regulatory
authorities.
In April 2000, INSAG (now appointed for its fifth term) reported again to the Director
General. It stated, “While fully endorsing the concerns expressed by the previous INSAG, it
must regretfully recognize that in spite of a prompt reaction by the Secretariat … the problem
remains very serious”. The April 2000 letter repeated the issues raised in the earlier
correspondence and also referred to a low level of safety culture surrounding many research
reactors. While noting the efforts of the Secretariat, it stated “the Member States may as yet
have realized neither the urgency of the issue nor the dimension of the problem.” INSAG
suggested the development of a Protocol to the Convention on Nuclear Safety or some similar
legal instrument as a way of establishing a better international safety framework for research
reactors. The General Conference GC(44)/RES/14 requested “the Secretariat, within its
available resources, to continue work on exploring options to strengthen the international
nuclear safety arrangements for civil research reactors, taking due account of input from
INSAG and the views of other relevant bodies”.
A Working Group (WG) was convened by the IAEA Secretariat as part of its response to the
above GC resolution. The WG, consisting of 15 experts from 7 Member States, met in the
Agency Headquarters in May 2001 to discuss options for an international arrangement on the
safety of research reactors. The WG recommendations were submitted to the Board of
Governors, which requested the Secretariat (GOV/2001/28-GC(45)/11-paragraph 18) to
develop and implement, in conjunction with Member States, an international research reactor
safety enhancement plan. The Board of Governors decision was endorsed by the General
Conference GC(45)/RES/10. The plan includes the following elements:
conduct a survey on research reactor safety in Member States;
preparation of a Code of Conduct on the safety of research reactors with a view to
establishing the desirable attributes for management of research reactor safety; and
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exploration of possible means to strengthen the system for monitoring the safety of
research reactors, taking account of the experience of organizations working in other
fields.
The activities implemented in the field of research reactor safety, by IAEA, Division of
Nuclear Installation Safety, are addressed below.
Under the terms of its Statute, the Agency is authorized to establish or adopt standards of
safety for the protection of health, life and property; and to provide for the application of these
standards to its own operations as well as to other operations and, at the request of the parties,
to operations under any bilateral or multilateral arrangement, or, at the request of a State, to
any of that State’s activities in the field of atomic energy [2].
The Safety Standards Series embodies an international consensus on objectives, concepts,
principles, logic, methods and facts that is necessary to promote a common approach to
ensuring safety in the peaceful applications of nuclear energy. They are categorized, as: (1)
Safety Fundamentals; (2) Safety Requirements (3) Safety Guides.The categorization is
intended to ensure that users of the safety standards are aware of the status and
interrelationship of the various publications.
Besides the safety standards there are safety publications named Safety Reports and Technical
Documents (TECDOC), which are descriptive reports on safety and protection in nuclear
activities, describing good practices, practical examples and detailed methods of meeting
safety requirements. They do not establish requirements or make recommendation and so they
do not contain prescriptive “shall” or “should” statements.
Table 1 presents the Safety Documents for research reactors as well as more informational
document on topics important to safety (the documents generated directly for research
reactors application are typed in italic letter). The IAEA Publications are available on the
website: http://www-pub.iaea.org/MTCD/publications/publications.asp
From 1997 to 1998 two Consultant Meetings and one Technical Committee Meeting were
organized for developing and reviewing the Safety Requirements of Research Reactor NS-R-4
(formerly draft document DS-272). Comments from Member States were received and IAEA
staff members prepared a final draft version in 2002. Most of the comments were
implemented in a final draft version approved by NUSSC (Nuclear Safety Standard
Committee) and by the CSS (Commission of Safety Standards) and is awaiting the approval
by the Board of Governors (status at beginning September 2004).
NS-R-4 revises the two former safety standards of the IAEA Safety Series: No. 35-S1 and 35-
S2. Besides updating the material, it places the publication within the new structure and
categorization of the IAEA Safety Publications and updates its content to be consistent with
the rest of the publications developed within the framework of the IAEA programme on
research reactor safety.
The document covers all the important areas of research reactor safety with particular
emphasis on requirements on design and operation. Pursuant requests from end-users, mainly
from Member States with small nuclear programmes, to have a single and autonomous
publication it also includes basic statements and requirements on regulatory supervision,
management and verification of safety including quality assurance and site evaluation. These
topics constitute the main differences from the new document to the previous standards. The
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NS-R-4 applies to research reactors including critical facilities, but does not apply to sub
critical facilities, prototypes, naval reactors, industrial reactors, heat generation reactors, etc.
Research reactors are used for specific and varying purposes, e.g. research, training,
radioisotope production, neutron radiography, material tests, etc, resulting in different design
features and operational regimes. Design and operating characteristics may vary significantly
since experimental devices may impact the performance of reactors. In addition, the need for
greater flexibility in their use requires a different approach to achieving or managing safety.
Considering the important differences between the different types of research reactors the
application of the requirements shall be commensurate to the potential hazard of the reactor
using a graded approach, ensuring that the design and operation of a research reactor lead to
adequate safety of the facility.
2.3- Technical Reports and Documents (Safety Report Series and TECDOC Series)
Publications in the (numbered) Safety Reports Series may complement, and be directly related
to, Safety Requirements or Safety Guides. They may give practical examples and detailed
methods that can be used to ensure the compliance with Safety Requirements or Safety
Guides. They may, for example, describe methods for performing certain calculations,
illustrate types or form to be used in an auditing process, provide a compilation of data or
describe methods for making a specific judgment concerning the fulfillment of safety
requirements or recommendations. Safety Reports may describe good practices but they do
not establish requirements or present recommendations and therefore they do not generally
contain binding ‘shall’ or ‘should’ statements.
Owing to the experience and results of IAEA safety related missions to Member States’
research reactors there is a perception that additional information is needed to Operating
Organizations and to Regulatory Bodies either to implement or to improve the application of
the Agency Standards.
Efforts are done for further development of the following documents applicable to research
reactors: Source-Term Derivation and Radiological Consequences Analysis for Accidents;;
Safety Analysis; Safety Related Process and their Implications for OLCs [7], Implementation
of a Management System for Operating Organizations of Research Reactors
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On the IAEA web page: http://www-pub.iaea.org/MTCD/publications/PDF/te_1387_web.pdf
is available the IAEA TECDOC Series No.1387 “Safety Considerations for Research
Reactors in Extended Shutdown” is available.
Other links for publication on research reactors may be find on http://www-ns.iaea.org/tech-
areas/research-reactor-safety/default.htm#1
The systematic collection and evaluation of operational experience with unusual events is a
very useful way to improve operational safety. A proper analysis of unusual events can
identify root causes and provide valuable lessons to be learned by, for example, reactor
operators or reactor designers [3].
The Incident Reporting System for Research Reactors (IRSRR) collects, maintains and
disseminates reports on unusual events that are received from Member States of the IAEA
participating in the system (this includes reports on unusual events that occurred before the
IRSRR came into effect).
Participation in the IRSRR is voluntary and open to Member States that have a research
reactor programme. The IAEA recommends that each Member State appoint a national
coordinator (preferably from the regulatory body) and local coordinators (from operating
organizations or constructors). Each coordinator should be a professional, knowledgeable
with research reactors or should be assisted by such a professional.
The IRSRR is based on the principle that each participant will provide timely information on
its experience with unusual events in research reactors so that the information is available to
all other participants. Unusual events with safety significance or of general interest to the
research reactor community should be identified by the national or local coordinators and
transmitted to the IAEA. The IRSRR web based system is under operation and the access is
available only for IRSRR co-ordinators (officially nominated by Member States) through the
IAEA web page: http://www.iaea.org/irsrr/
Besides receiving, storing and distributing information, the IAEA prepares periodic reports on
IRSRR activity and organizes periodic meetings to review and evaluate the material available
on unusual events and invites lecturers to develop special subjects on each meeting. The last
meeting of coordinators was held in November 2003 in Bariloche (Argentina), and the next
meeting is scheduled for the 2nd quarter of 2005.
Until now 42 Member States jointed the IRSRR and the group represents more than 85% of
the research reactors in the world. Nevertheless, the Agency was encouraged to continue to
extend the number of participants to all Member States having research reactors.
4- INSARR MISSIONS
Although the IAEA has been carrying out safety reviews to research reactors since 1972 in
order to meet the Member States’ increasing requests for assistance to ensure and enhance
research reactor safety, the IAEA announced in 1987 the creation of a more formal approach
for providing this service. This approach was named Integrated Safety Assessment of
Research Reactors (INSARR) [4]. In 1999 the INSARR methodology was modified to
incorporate some of the features of the well-known Operational Safety Review Teams
(OSART) service dedicated to power reactors, addressing recommendations provided during
an external evaluation held in the year 1999. Following the new methodology, an INSARR
Mission is constituted of three stages: Pre-INSARR, Main Mission and Follow-up.
The duration of the Main Mission is one week, but the number of team members depends on
the reactor complexity and topics to be reviewed. A team leader and a deputy team leader
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(both Agency staff) and a minimum of three external experts constitute the review team.
Observers from organizations receiving an INSARR Mission in the future are invited to
participate in the mission depending on the acceptance of the recipient country.
The main objective of INSARR missions is to conduct a comprehensive operational safety
review of the research reactor facility and to verify compliance with the IAEA Safety
Standards. However, an important spin-off from INSARR missions has been the mutual
transfer of knowledge and experience between mission experts and reactor personnel and the
development of self-assessment capabilities among the team members to be applied in their
own countries. Certain missions have identified areas where the operating organization had
developed a particularly good approach to certain safety topics, to the extent that the IAEA
team recognized it as good practice and recommended it for application at other facilities.
The activities associated with a safety review cover a number of specific areas that depend on
the objective of the review. However, the main areas to be examined during a safety review
can be divided into four categories.
(a) General: nuclear regulations; regulatory supervision and licensing process; operating
organization; reactor management and personnel training; quality assurance programme (QA);
and emergency planning.
(b) Nuclear Operational Safety: safety analysis; safety analysis report (SAR); operational
limits and conditions (OLC); operating procedures; maintenance and periodic testing;
experiments and modifications; and conduct of operations including records and reports.
(c) Radiation Protection: radiation protection programme; waste management; airborne and
liquid effluents; and radiological impact.
(d) Special Issues - which may consider unique topics such as: siting; design; construction;
commissioning, major modifications; decommissioning; reactor ageing; and safety culture.
Topics such as design or safety culture are included in the area of special issues. In general,
topics in this area require substantial effort and time from the reviewer. Therefore, these
topics are not usually covered by typical INSARR missions, which focus on the topics in
areas (a), (b) and (c).
The mission team designates issues for which it addresses either a recommendation or a
suggestion. Good practices are also indicated.
The Follow-up Mission takes place no earlier than 12 months after the Main Mission. The
scope of the Follow-up Mission is: evaluation of the safety improvements based on the
recommendations provided at the final report; feedback from counterparts on the INSARR
service and the means to improve it; preparation of a Follow-up Report.
The main areas in which recommendations have been done during recent INSARR mission
were legal and regulatory supervision; operating organization and reactor management;
training and qualification; safety analysis; OLC; QA; conduct of operation; maintenance and
periodic testing; and emergency preparedness.
The benefit of Member States from the INSARR Mission may be concluded as: (1)
Improvement of RR safety by the operating organization following the mission
recommendations, suggestions and comments; (2) further Technical Assistance received from
IAEA through TC Projects to help address certain safety issues identified during INSARR
Missions; (3) Experience gained in performing safety assessment of research reactors by the
experts, observers and the requesting operating organization.
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5- CODE OF CONDUCT ON THE SAFETY OF RESEARCH REACTORS
The Board of Governors adopted the Code of Conduct on the Safety of Research Reactors at
its March 2004 session. The Code is now before the General Conference with the
recommendation that the Conference endorses it and call for its wide application. (Status at
beginning of September 2004)
The Code is a non-binding, stand-alone, international legal instrument. Its purpose is to
achieve and maintain a high level of safety in research reactors through enhancement of
national measures and international cooperation.
The Code provides guidance to States on development and harmonization of policies, laws
and regulations. The basic structure of the Code of Conduct is given by: scope, objective,
implementation, role of the State, role of the Regulatory Body, role of the Operating
Organization, and role of the IAEA. The technical provisions of the Code are based on
international consensus documents, primarily IAEA Safety Fundamentals and Requirements.
The Code of Conduct includes recommendations on ‘best practices’ in management of
research reactor safety and outlines the attributes of safety to be implemented in the site
evaluation, design, construction, operation, utilization, modification, and decommissioning of
a research reactor. Its three major sections identify the roles of the State, the Regulatory Body
and the Operator. While the majority of the Code is drawn from requirements of the IAEA
safety standard series, it focuses on current problematic issues such as reactors in extended
shutdown or in need of improved ageing management. [5] (http://www-
ns.iaea.org/downloads/ni/code-rr/code_conduct_March04.pdf)
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7- CONCLUDING REMARKS
Research reactor safety is gaining in importance within the general scope of nuclear
installation safety worldwide. The IAEA develops activities and offers various programmes to
assist Member States in enhancing the safety of research reactors.
This paper outlined some of these activities and services performed recently on the area of
Research Reactors Safety inside of Department of Nuclear Installation Safety.
8- REFERENCES
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SAFETY ASSESSMENT OF RR AND PREPARATION OF THE SAR, SS No.35-G1
SAFETY IN THE UTILIZATION & MODIFICATION OF RR, SS No.35-G2
DECOMMISSIONING OF NUCLEAR POWER PLANTS AND RESEARCH
REACTORS, WS-G-2.1
DESIGN OF SPENT FUEL STORAGE FACILITIES, SS No.116
OPERATION OF SPENT FUEL STORAGE FACILITIES, SS No.117
ASSESSMENT OF OCCUPATIONAL EXPOSURE DUE TO EXTERNAL
SOURCES OF RADIATION, RS-G-1.3
ASSESSMENT OF OCCUPATIONAL EXPOSURE DUE TO INTAKES OF
RADIONUCLIDES, RS-G-1.2
REGULATORY CONTROL OF RADIOACTIVE DISCHARGES TO THE
ENVIRONMENT, WS-G-2.3
COMMISSIONING OF RESEARCH REACTORS, DS 259, for approval
MAINTENANCE AND PERIODIC TESTING AND INSPECTIONS OF RR, DS 260,
for approval
OPERATIONAL LIMITS AND CONDITIONS FOR RESEARCH REACTORS, DS 261,
for approval
THE OPERATING ORGANIZATION AND THE RECRUITMENT, TRAINING AND
QUALIFICATION OF PERSONNEL FOR RESEARCH REACTORS FACILITIES, DS
325, for approval
OPERATIONAL RADIATION PROTECTION FOR RESEARCH REACTORS, in
preparation
TECHNICAL REPORTS (Safety Report Series)
SAFETY ASSESSMENT FOR SPENT FUEL STORAGE FACILITIES, SS No.118
DEVELOPING SAFETY CULTURE IN NUCLEAR ACTIVITIES, Safety Report
No.11
CALIBRATION OF RADIOLOGICAL PROTECTION MONITORING
INSTRUMENTS, Safety Report No.16
INDIRECT METHODS FOR ASSESSING INTAKES OF RADIONUCLIDES
CAUSING OCCUPATIONAL EXPOSURE, Safety Report No.18
TRAINING IN RADIATION PROTECTION, Safety Report No.20
SOURCE TERM DERIVATION AND RADIOLOGICAL CONSEQUENCES
ANALYSIS FOR RESEARCH REACTOR ACCIDENTS, in preparation
OPERATING PROCEDURES FOR RESEARCH REACTORS, in preparation
SAFETY OF CORE MANAGEMENT AND FUEL HANDLING FOR RESEARCH
REACTORS, in preparation
INSTRUMENTATION & CONTROL, in preparation
SAFETY OF NEW AND EXISTING RR FACILITIES IN RELATION OF EXTERNAL
EVENTS, in preparation
SAFETY ANALYSIS FOR RESEARCH REACTORS, in preparation
SAFETY RELATED PROCESSES AND THEIR IMPLICATIONS FOR OLCs, in
preparation
TECHNICAL DOCUMENTS (TECDOC Series) and others
SITING, TECDOC-403
EARTHQUAKE RESISTANCE, TECDOC-348
GUIDELINES FOR THE REVIEW OF RESEARCH REACTOR SAFETY, Services
Series No.1
AGEING MANAGEMENT, TECDOC-792
EMERGENCY RESPONSE PREPAREDNESS FOR NUCLEAR OR
RADIOLOGICAL ACCIDENTS, TECDOC-953
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COMPARISON BETWEEN IAEA 50-C/SG AND ISO 9001:1994, TECDOC-1182
CORE CONVERSION, TECDOC-233, TECDOC-643
MTR FUEL, TECDOC-467
GENERIC COMPONENT RELIABILITY DATA FOR RESEARCH REACTOR,
TECDOC-930
RELIABILITY DATA, TECDOC-636
PSA, TECDOC-400, TECDOC-517
APPLICATION OF NON-DESTRUCTIVE TESTING AND IN-SERVICE
INSPECTION TO RR, TECDOC-1263
EXTENDED SHUTDOWN TECDOC - 1387
INSARR MISSION RESULTS, working material
EXPERIENCE W/ ACCIDENTS 1999, working material
EXPERIENCE W/ ACCIDENTS 2000, working material
PLANNING AND MANAGEMENT FOR THE DECOMMISSIONING OF RESEARCH
REACTORS AND OTHER SMALL NUCLEAR FACILITIES -TRS No. 351
DECOMMISSIONING TECHNIQUES FOR RESEARCH REACTORS, TRS No. 373
DECOMMISSIONING TECHNIQUES FOR RESEARCH REACTORS- CRP REPORT,
TECDOC-1273
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