No Impacts on Off-site Environmental Resources from Leaks at the Three Plants to Date Have Been Discernible, but Future On-site Impacts Are Less Certain, and Some Risks May Not Be Fully Understood, according to Experts in Our Environmental Impacts Discussion Group

Based on the information that is available on the case studies considered  by the experts, the experts in our environmental impacts discussion group  concluded that the leaks have had no discernible impact on off-site  environmental resources. Consequently, some of the experts noted  that when a licensee decommissions a plant with this level of groundwater  contamination, the licensee may have to conduct costly remediation to be  able to meet NRC regulations for unrestricted release of the site, or the  site could have deed restrictions placed on its future use. Finally, experts identified the need for licensees’ monitoring data and  assessments of impacts to be more transparent and to be independently  reviewed to provide greater public confidence in them. NRC Requires Licensees to Inspect the Function of Their Safety-Related Underground Piping Systems, Monitor the Plant Environs for Radiation, and Report Releases in a Timely Manner

NRC inspection requirements related to underground piping systems at all  104 U.S. nuclear power plants focus on ensuring the functionality of  safety-related piping systems, monitoring the plant environs for radiation,  and reporting planned and unplanned releases. Even though NRC has not generally required licensees to have  on-site groundwater monitoring wells, most plants have installed some on- site wells that could help detect and monitor leaks. The Nuclear Power Industry, Licensees, and NRC Have Taken a Variety of Actions in Response to Underground Piping Leaks

In response to underground piping leaks at nuclear power plants, the  nuclear power industry adopted two voluntary initiatives largely intended,  according to the Nuclear Energy Institute (NEI), to enhance public  confidence in the operation and maintenance of their plants. This second initiative—called the Buried  Piping Integrity Initiative—was designed to provide reasonable assurance  of structural and leaktight integrity of all buried pipes. Licensees’ actions in response to identified leaks at their power plants  have varied, ranging from simply repairing the leak source and  documenting the extent of the leak for future cleanup, to performing  extensive mitigation. Moreover, some of the  stakeholders we interviewed noted that some of the inspection techniques  used in the oil and gas industry to provide additional information about  the structural integrity of underground pipes could be used in the nuclear  power industry. Some Stakeholders Said That NRC Should Require More Timely Leak Information from Licensees and Should Make It More Accessible to the Public

According to some stakeholders, NRC should require licensees to report  information about the level and extent of groundwater contamination from  a leak and the licensee’s assessment of a leak’s impact in a more timely  manner. For example, some of  these stakeholders said that NRC could improve the accessibility of  information on its Web site. NRC’s groundwater monitoring requirements are intended to identify  when the public could be or has been exposed through drinking water to  radiation doses above certain limits rather than to promptly detect  underground piping system leaks. NRC also agreed  with each of the report recommendations and asserted that they have  established activities to address the recommendations. In responding to our recommendation to periodically evaluate the extent  to which the industry voluntary Groundwater Protection Initiative will  result in prompt detection of leaks and, based on these evaluations,  determine whether the agency should expand its groundwater monitoring  requirements, NRC stated that “the public can be assured that the NRC  will continue to review the status of industry implementation of the  initiative and consider regulatory changes as appropriate.” Specifically,  NRC said that it reviews reported groundwater monitoring results and  changes to licensees’ programs for identifying and controlling spills and  leaks. Appendix I: Objectives, Scope, and Methodology

Our objectives were to (1) determine experts’ opinions on the impacts, if  any, that underground piping system leaks have had on public health and  the environment; (2) assess Nuclear Regulatory Commission (NRC)  requirements of licensees for inspecting underground piping systems and  monitoring and reporting on leaks from these systems; (3) identify actions  the nuclear power industry, licensees, and NRC have taken in response to  underground piping system leaks; and (4) identify, according to key  stakeholders, what additional NRC requirements, if any, could help  prevent, detect, and disclose leaks from underground piping systems. Appendix II: Case Studies for Experts’ Consideration

We worked with the National Academy of Sciences to convene groups of  experts to discuss the impacts that underground piping system leaks have  had on public health and the environment.
Why GAO Did This Study

All U.S. nuclear power plant sites have had some groundwater contamination from radioactive leaks, and some of these leaks came from underground piping systems. The Nuclear Regulatory Commission (NRC) regulates nuclear power plants to protect public health and the environment from radiation hazards. GAO was asked to (1) determine experts' opinions on the impacts, if any, of underground piping system leaks on public health and the environment; (2) assess NRC requirements of licensees for inspecting these systems and monitoring and reporting on leaks; (3) identify actions the nuclear power industry, licensees, and NRC have taken in response to leaks; and (4) identify additional NRC requirements, if any, that key stakeholders think could help prevent, detect, and disclose leaks. GAO convened expert discussion groups through the National Academy of Sciences and asked experts to review three case studies, analyzed documents, visited seven plant sites and two NRC regional offices, and interviewed stakeholders.

What GAO Found

While experts in our public health discussion group generally agreed that radioactive leaks at the three nuclear power plants in our case studies of actual events had no discernible impact on the public's health, these experts noted that additional information could enhance the identification of the leaks and the characterization of their impacts. The experts in our environmental impact discussion group concluded that environmental resources beyond the plant site have not been impacted discernibly, but that on-site contamination could affect plant decommissioning; for example, the licensee may have to conduct costly remediation to meet NRC regulations for unrestricted release of the site. Experts also identified the need for licensees to transparently report monitoring data and for licensees' groundwater monitoring programs to be independently reviewed. NRC inspection requirements focus on ensuring the functionality of underground piping systems that are essential for both the safe operation and the shutdown of plants rather than providing information about the condition of the underground piping systems. In addition, NRC's groundwater monitoring requirements generally focus on monitoring off-site locations, where a member of the public could be exposed to radiation, but not on onsite groundwater monitoring, which can improve the likelihood that leaks will be detected before they migrate off-site. In response to leaks, the nuclear power industry has implemented two voluntary initiatives to increase public confidence in plant safety. The first initiative was intended to improve on-site groundwater monitoring to promptly detect leaks. The second was intended to provide reasonable assurance of underground piping systems' structural and leaktight integrity. Licensees' responses to detected leaks have varied, ranging from repairing the leak source and documenting the leak's extent, to performing extensive mitigation. In addition, NRC has assessed its regulatory framework for, and oversight of, inspection of underground piping systems and groundwater monitoring. Based on the low risk posed by spills to date, NRC determined that no further regulations are needed at this time but has committed to such actions as gathering information on underground piping leak trends and reviewing codes and standards for underground piping. Key stakeholders identified additional NRC requirements that they thought could help prevent, detect, and disclose leaks. Some saw a need for NRC to require licensees to inspect the structural integrity of underground piping using techniques used in the oil and gas industry, while noting the challenges to applying such techniques at nuclear power plants. Industry is undertaking research to overcome these challenges. Stakeholders also noted that NRC should enhance its on-site groundwater monitoring requirements to promptly detect leaks and minimize their impacts. Finally, stakeholders said that NRC should require licensees to provide leak information in a more timely fashion and should make that information more accessible to the public.

What GAO Recommends

GAO recommends that NRC periodically assess the effectiveness of the groundwater initiative and determine whether structural integrity tests should be included in licensee inspection requirements, when they become feasible, based on industry research. NRC stated it agrees with the report and recommendations and asserted that NRC has taken relevant actions.