Project Execution Planfor theU.S. CONTRIBUTIONS TO ITER
(US ITER)
Project Number: 14-SC-60
at
Oak Ridge National Laboratory

Office of Fusion Energy Sciences
Office of Science
U.S. Department of Energy
January 2017i

US ITER Project Execution Plan
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US ITER Project Execution Plan
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Project Execution Plan for the
U.S. Contributions to ITER
at Oak Ridge National Laboratory
Change Log
Revision History
Rev.

Date

Reason0

10/10/2007

Initial release of PPEP

1

07/24/2014

2

12/10/2014

Updated primarily to account for:
• SC’s exemption from the requirements of DOE Order413.3B;• Removal of US ITER’s designation as a capital asset
project;• Addition of US ITER as a Congressional Line Item as
directed by Congress;• Changes in the project’s preliminary cost and schedule
estimates; and• Changes in the assumed annual funding plan.
Updated to account for:
• FES Associate Director has approval authority for US
ITER annual Performance Plans.

3

12/13/16

Updated the PPEP to a PEP. Significant changes include:• Designation of the Deputy Secretary (S-2) as the ProjectManagement Executive;• Dividing the in-kind hardware scope into two
subprojects (SP-1 and SP-2) that will be sequentiallybaselined; each with their own CD-2/3 and CD-4; and• Establishing separate subordinate PEP documents foreach subproject.

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Table of Contents
Signature Page .............................................................................................................................. iii
Acronym List ................................................................................................................................ ix
1.0
Introduction ......................................................................................................................... 1
1.1 Project Background ............................................................................................................. 2
1.2 Justification of Mission Need ............................................................................................. 5
1.3 Alternative Selection ........................................................................................................... 6
1.4 Critical Decision-1 ................................................................................................................ 6
2.0 TAILORING OF THE PROJECT EXECUTION STRATEGY .............................................. 7
3.0 PROJECT BASELINE ............................................................................................................. 9
3.1 Scope ..................................................................................................................................... 9
3.2 Cost ................................................................................................................................... 11
3.3 Schedule ............................................................................................................................ 11
3.4 Work Breakdown Structure (WBS) .................................................................................. 12
3.5 Funding Profile ................................................................................................................. 13
4.0 U.S. CONTRIBUTIONS TO ITER LIFE-CYCLE COST ................................................... 13
5.0 ACQUISITION APPROACH .............................................................................................. 14
5.1 Acquisition Strategy.......................................................................................................... 14
5.1.1 Prime Contract ............................................................................................................... 14
5.1.2 Subcontracts ................................................................................................................... 15
5.1.3 Small and Disadvantaged Business ............................................................................... 15
6.0
BASELINE MANAGEMENT ......................................................................................... 15
6.1 Change Management ........................................................................................................ 15
6.2 Performance Measurement ............................................................................................... 16
6.3 Contingency Management ................................................................................................ 16
6.4 Estimate at Completion (EAC) ......................................................................................... 17
7.0 MANAGEMENT STRUCTURE and INTEGRATED PROJECT TEAM (IPT) ................ 17
7.1 Organizational Roles and Responsibilities ....................................................................... 17
7.2 Project Management Executive ........................................................................................ 18
7.3 Director of the Office of Science (SC-1) .......................................................................... 18
7.4 SC Office of Project Assessment (OPA) .......................................................................... 19
7.5 FES Associate Director ..................................................................................................... 19
7.6 FES Program Manager ...................................................................................................... 19vi

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7.7 Federal Project Director .................................................................................................... 20
7.8 US ITER Project Manager ................................................................................................ 22
7.9 Integrated Project Team .................................................................................................... 23
7.10 Critical Interfaces and Roles and Responsibilities.......................................................... 23
7.11 Domestic Agency Function and Delegation ................................................................... 23
7.12 Project Summary Schedule ............................................................................................. 24
7.13 Financial Management .................................................................................................... 24
8.0 PROJECT MANAGEMENT/OVERSIGHT ........................................................................ 24
8.1

Risk Management ............................................................................................................ 24

8.2 Project Reporting and Communication Management Plan ............................................... 25
8.3 Earned Value Management System (EVMS) ................................................................... 26
8.4 Project Reviews ................................................................................................................ 26
8.4.1 Project Monitoring and Assessment .............................................................................. 26
8.5 Engineering and Technology Readiness ........................................................................... 26
8.6 Alternative Analysis and Selection ................................................................................... 27
8.7 Environment, Safety and Health ....................................................................................... 27
8.8 Safeguards and Security.................................................................................................... 27
8.9 Systems Engineering......................................................................................................... 27
8.10 Value Management ......................................................................................................... 28
8.11 Value Engineering .......................................................................................................... 28
8.12 Configuration Management/Document Control ............................................................. 28
8.13 Vendor Management ....................................................................................................... 28
8.14 Quality Assurance and Testing and Evaluation .............................................................. 29
8.15 Transition to Operations ................................................................................................. 29
8.16 Project Closeout .............................................................................................................. 29vii

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Appendices
Appendix A. Reference Document on Tailoring of the Project Execution Strategy ............A-1
Appendix B. Description of US ITER Hardware Contributions and Allocation of Scope
Between Subprojects 1 and 2 ...........................................................................B-1
Appendix C. Integrated Project Team Charter .....................................................................C-1
Appendix D. Key Assumptions Memorandum .................................................................... D-1

List of Figures
Figure 1. Hardware Schedule Range ..................................................................................... 11
Figure 2. US ITER Project Organization ............................................................................... 18
Figure 3. DOE Field Organization for the US ITER Project ................................................. 21

List of Tables
Table 1. Schedule of Critical Decisions for the US ITER Project ......................................... 12
Table 2. US ITER Project Level 2 WBS ............................................................................... 12
Table 3. Notional Near-Term US ITER Annual Budget Authority (BA) Funding Profile
for Construction Cash (in $M) ............................................................................... 13
Table 4. US ITER Project Change Control Thresholds ......................................................... 16viii

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Acronym List
AD
BA
BAC
CD
CS
CX
DA
DOE
EAC
EDA
ES&H
ESAAB
EU
EURATOM
EVMS
FES
FESAC
FPD
FY
IO
IPR
IPT
ISMS
JIA
KPP
M&O
MAC
MIE
MR
MW
NEPA
OMB
OPA
OR-ISC
ORNL
OSO
PA
PEP
PME
PM
PPEP
PPPL
PSO
QA
R&D

Associate Director
Budget Authority
budget at completion
Critical Decision
Central Solenoid
Categorical Exclusion
Domestic Agency
Department of Energy
estimate at completion
Engineering Design Activities
environment, safety and health
Energy Systems Acquisition Advisory Board
European Union
European Atomic Energy Community
Earned Value Management System
Fusion Energy Sciences
Fusion Energy Sciences Advisory Committee
Federal Project Director
fiscal year
ITER Organization
Independent Project Review
Integrated Project Team
Integrated Safety Management System
Agreement on the Establishment of the ITER International Fusion Energy
Organization for the Joint Implementation of the ITER Project
Key Performance Parameters
Management & Operating
Management Advisory Committee
Major Item of Equipment
Management Reserve
megawatt
National Environmental Policy Act
Office of Management and Budget
Office of Project Assessment
DOE Oak Ridge Office Integrated Support Center
Oak Ridge National Laboratory
ORNL Site Office (DOE)
Procurement Arrangement
Project Execution Plan
Project Management Executive
Office of Acquisition and Project Management
Preliminary Project Execution Plan
Princeton Plasma Physics Laboratory
Program Secretarial Officer
Quality Assurance
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RMP
SC
SC-1
SP
SRNL
TPC
U.S.
USDA
US ITER
USIPO
UT-Battelle, LLC
VE
WBS

Risk Management Plan
Office of Science (DOE)
Director of the Office of Science
Subproject
Savannah River National Laboratory
Total Project Cost
United States
United States Domestic Agency
U.S. Contributions to ITER
US ITER Project Office
University of Tennessee – Battelle, Limited Liability Corporation
Value Engineering
work breakdown structurex

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1.0

INTRODUCTIONThe United States (U.S.) Contributions to ITER (US ITER) is a U.S. Department of Energy(DOE) project that was established to provide the U.S. share of ITER hardware and cash
contributions to support ITER construction. The Project Management Executive (PME) is the
Deputy Secretary of Energy (S-2), and the Director of the Office of Science (SC-1) is theProgram Secretarial Officer (PSO) for the US ITER Project. These designations are consistent
with overall policy direction provided from the Deputy Secretary in a memorandum dated
December 4, 2012, to the Office of Science (see Appendix A), and also with DOE’s
commitments to Congress about applying rigorous project management oversight to this project.
The mission of the Department’s Office of Science (SC), which is the responsible program officefor this acquisition, is “the delivery of scientific discoveries and major scientific tools totransform our understanding of nature and to advance the energy, economic, and national
security of the United States.” Within SC, the Fusion Energy Sciences (FES) program is the“Project Owner” for the US ITER Project. The FES mission is to expand the fundamental
understanding of matter at very high temperatures and densities and to build the scientificfoundation needed to develop a fusion energy source. This is accomplished through the study ofplasma, the fourth state of matter, and how it interacts with its surroundings. The next frontier,
not only for the FES program, but also for all the major fusion programs around the world, is thestudy of the burning plasma regime, in which the fusion process itself provides the dominant heatsource for sustaining the plasma temperature (i.e. self-heating). Production of strongly selfheated fusion plasma will allow the discovery and study of a number of new scientificphenomena.
In the field, a qualified Federal Project Director (FPD) from DOE’s Oak Ridge National
Laboratory (ORNL) Site Office is in place to oversee project execution by the US ITER Project
Office (USIPO), which is located in Oak Ridge, Tennessee. While ORNL is the lead laboratory,
it is supported by two partner laboratories, Princeton Plasma Physics Laboratory (PPPL) and
Savannah River National Laboratory (SRNL). This arrangement takes advantage of ORNL’s
fusion, nuclear and large-scale project management capabilities, PPPL’s scientific and technicalexpertise as DOE’s only single-purpose fusion research laboratory, and SRNL’s considerable
expertise in tritium handling. Under DOE’s direction, the USIPO has responsibility for planning,
managing, and delivering the entire scope of all hardware contributions for the US ITER Project.
This Project Execution Plan (PEP) was prepared in accordance with provisions of the delegationof authority granted to SC for implementation of project management, and describes the
management and project execution processes that are used to ensure that US ITER Project scopeis completed on time and within budget. The PEP outlines the project scope, describes theorganizational framework and overall management systems for the project, and identifies roles
and responsibilities of the project participants. As explained in Section 2.0 (Tailoring of the
Project Execution Strategy), the US ITER Project is divided into two separate subprojects, eachgoverned by its own PEP that is subordinate to this PEP. These two PEPs contain theirrespective subproject completion criteria (similar to key performance parameters (KPPs)), andbaseline scope, schedule, cost, and funding profile information. Administrative updates to thisPEP and the two subproject PEPs can be made from time to time as deemed necessary by the US
ITER FPD, without going through the formal concurrence and approval process. The FPD will
ensure dissemination of the latest updated versions to all project participants and stakeholders.
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1.1 Project Background
The idea to cooperatively design and build a larger and more powerful magnetic confinement
device to create the self-sustaining burning plasma conditions required in a working fusion
power plant and to demonstrate its scientific and technical feasibility originated from a Geneva
superpower summit in November 1985. At that meeting, Soviet General Secretary Gorbachev
proposed to President Reagan that an international project be set up to develop fusion energy forpeaceful purposes. The project subsequently began as a four-member collaboration between theSoviet Union [later, the Russian Federation], the United States, the European Union (EU) and1
Japan. As a technical basis for ITER, the four parties agreed that the tokamak configuration ofmagnetic plasma confinement devices would be the logical choice given its superior performance(both then and now) in plasma energy confinement. The ITER Conceptual Design Activities
began in 1988, followed in 1992 by the Engineering Design Activities (EDA), which involved agreat deal of research and development (R&D); the EDA concluded in 1998. At that point,
Congress directed DOE not to participate in a three-year extension of the EDA primarily becauseof concerns over the magnitude of ITER’s construction cost estimate. The remaining threemembers continued to work on the ITER design, with an emphasis on dramatically reducing its
construction cost. The result was the 2001 ITER Final Design Report, from which the existing
ITER technical baseline was subsequently developed. The next logical steps were to select aconstruction site and commence construction of the ITER facility.
Following the collapse of the Soviet Union, the Russian Federation took its place as an ITER
member. The U.S. joined ITER negotiations in 2003, as the result of a Presidential Initiative. The
People´s Republic of China and the Republic of Korea both joined the project in 2003, andfinally India joined in December 2005. Thus, there are now seven Members in the ITER Project.
Negotiations between Japan and the EU, two members who offered to host ITER, weresuccessfully concluded in the summer of 2005 with St. Paul lez Durance, France, designated as
the construction site, and Europe agreed that they would support a qualified Japanese candidate
as Director General (DG) to initially lead the international project organization.
A series of international negotiations then took place that culminated in a signing ceremony on
November 21, 2006, when representatives of all seven ITER members signed the Agreement on
the Establishment of the ITER International Fusion Energy Organization for the Joint
Implementation of the ITER Project (ITER Joint Implementation Agreement, or JIA). The ITER
JIA was ratified on October 24, 2007, and it provides the legal framework for the four phases ofthe program: Construction, Operation, Deactivation, and Decommissioning. With regard to theConstruction Phase, the JIA (and subsequent modifications) specifies that, as the Host, the EU(represented by the European Atomic Energy Community, or EURATOM) will provide fiveelevenths (45.45 percent) of the ITER facility’s construction cost, while the other six members,
including the U.S., will each contribute one eleventh (9.09 percent) of construction cost. Once
ITER’s construction is completed, the JIA provides for operation, deactivation, and

1 The tokamak is a torus-shaped magnetic confinement configuration that was pioneered by Russian scientists in the
1960s. The word tokamak is actually a Russian acronym that means “toroidal chamber in magnetic coils.”

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decommissioning of the facility to be funded through a different cost sharing formula in which
the U.S. will contribute a 13 percent share.
The ITER Organization (IO) in St. Paul lez Durance (near Cadarache) is an internationalorganization that is an independent legal entity and is not part of any national institution. The IO
was officially established on December 1, 2006, and it is led by a DG and governed by the ITER
Council (IC), which is comprised of senior government officials of the seven members. The IC
serves as the primary governing and decision-making body for ITER. The majority of thecomponent fabrication effort will be accomplished by the members’ Domestic Agencies (DAs)in their home territories. This is accomplished through an “in-kind” contribution approach, whichallows each member to retain its currency largely within its own territory. The JIA, andsubsequent changes approved by the IC, identify the hardware procurement allocations among
the seven members. The allocations are based upon a negotiated valuation scheme that provides
an amount of “credit” associated with each hardware item or set of items. 2 The resulting U.S.
hardware scope is described in Section 3 of this PEP. DOE officially serves as the DA for theU.S.
The IO has overall responsibility for the design, construction, and operation of ITER. Because
ITER is classified as a nuclear facility, the IO must comply with all applicable French laws andregulations related to nuclear liability. It is the IO’s responsibility then to issue top-level design
specifications, performance parameters, procurement specifications, and schedules. The IO is
responsible for integrated management, systems engineering, component assembly, installation,and commissioning as well as oversight associated with its role as Nuclear Operator. Interactions
between the IO and the seven DAs are governed by the JIA, which defines their roles andresponsibilities. The members’ in-kind hardware contributions to the IO are specified via
Procurement Arrangements (PAs) between the IO and each DA for a given set of components.
Following IO acceptance of each member’s hardware deliveries consistent with their approved
QA program, title for ownership will be transferred to the IO and the remaining credit will begiven to the respective DAs for the value assigned to the hardware item(s) in the JIA.
As previously mentioned, the JIA requires the seven ITER Members to annually contribute cash
(in Euros) to the IO in addition to hardware and in accordance with the cost sharing formula that
requires the U.S. to provide 9.09 percent of the total cash needed for completing the Construction
Phase. The IO uses these funds to pay its staff and infrastructure expenses; to perform its
assigned R&D activities; to procure certain hardware and perform on-site assembly/installation/
testing of all ITER components; and to maintain an IO Reserve Fund, which serves as a3
contingency fund.
At the beginning of the ITER Construction Phase in 2007, the IO and DAs conducted a design
review of the 2001 ITER Final Design Report, and recommended several important design

2 The amount of credit assigned to a particular set of hardware items is completely independent of their actual costto the responsible DA.
3 In March 2015, the IC created an IO Reserve Fund for the DG to expeditiously implement design changes toprevent further schedule slippages and cost overruns. The DG is required to report semi-annually to the IC on how
these funds are applied. With IC approval, it will be replenished as needed by cash contributions from the member
governments.

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improvements and identified some missing items of scope, such as certain test facilities and anumber of spare parts. This modified design has then served as the IO’s reference design going
forward. DOE used this reference design along with the U.S. allocation of scope from the JIA toachieve Critical Decision-1 (CD), Approve Alternate Selection and Cost Range, on January 25,
2008. The estimated project cost/schedule range at CD-1 consisted of: (1) a preliminary estimateof the Total Project Cost (TPC) range—$1.45 to $2.2 billion, and (2) a preliminary estimate of
the project completion schedule range— fiscal year (FY) 2014 to FY 2017. Approval for
procurement of long-lead items was granted in conjunction with CD-1.
During the post-CD-1 period (2008 – 2016), the US ITER Project worked closely with the IO
and other six DAs to further develop the reference design, establish PAs for its assigned
hardware, and execute the design, R&D, and fabrication work specified in the PAs. Meanwhile,
the IO’s overall project schedule has suffered considerable delays, primarily due to design
immaturity and insufficient systems engineering, IO internal management issues (some related toestablishing a project organization from a green field site), inadequate IO-DA integration, andthe annual funding limitations in some DAs. Consequently, slippage in the IO’s overall projectschedule prompted DOE to defer CD-2 for the US ITER Project until a generally credible andstable IO project schedule emerged in 2016. The IO schedule calls for initial operation of ITER
at a milestone called “First Plasma” (FP) 4 at the end of 2025. Since there is no contingency inthat schedule, DOE considers it to be an “early finish” date. A more reliable estimate which
includes schedule contingency, is deemed to be three years later at the end of 2028. Since only
the hardware needed for FP will have been delivered, installed, and commissioned by then,additional hardware fabrication, delivery, installation, and commissioning activities will continue
up to the milestone for full operation of ITER with deuterium-tritium (DT) fuel. 5 This DT
operation is presently expected in 2035, but the DT schedule has lower confidence than the date
for FP. By 2035, all of the DAs’ hardware contributions will have been delivered, installed, andcommissioned, and the ITER Construction Phase will be complete. The IO plans for a limited
series of operating periods using helium, hydrogen, and deuterium plasmas during the interval
between FP and DT, so as to be fully prepared to exploit the facility’s burning plasma researchcapabilities once all of the hardware has been installed and commissioned.
Despite the uncertainties associated with the overall ITER Project, the U.S. has madeconsiderable progress in completing its assigned hardware design, R&D, and fabrication work
under the PAs that the USIPO has negotiated and signed thus far with the IO. For instance, mostR&D has been finished, overall design of US hardware is about two-thirds complete (by value)
through Final Design, and fabrication (and even delivery in some cases) of components has
begun in certain areas including Toroidal Field Magnet Conductor, Central Solenoid (CS)
Magnet, Tokamak Cooling Water Drain Tanks, Vacuum Auxiliary System components, andSteady State Electrical Network equipment. DOE authorization and management oversight ofthis work has been handled through annual US ITER Project Performance Plans (FY13-FY16),
approved by the Associate Director (AD) for FES, that specified progress milestones and used

4 First Plasma is the initial operation of the tokamak with a confined plasma, which is an important milestone

indicating that all basic machine assembly and commissioning have been successfully accomplished and a large
number of major project risks have been retired.
5 A fuel mixture of deuterium and tritium, both hydrogen isotopes, is needed to produce substantial amounts offusion power and to conduct burning plasma research. Deuterium can be extracted from seawater, and tritium can beproduced by subjecting lithium to neutron radiation (as in a fusion reactor).

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Earned Value Management System (EVMS) techniques to measure schedule and cost
performance.
1.2 Justification of Mission Need
Fusion has the potential to become a major new source of energy and it has many attractive
features: no greenhouse gas emissions; no production of long-lived radioactive waste; and fuel(DT) that is both abundant and widely distributed.
There are two general approaches to fusion energy development: magnetic plasma confinement,
and inertial confinement. Only the former was considered here because of the dual-purpose
nature of inertial fusion for both power production and nuclear weapons stockpile stewardship.
There is a distinct need to investigate the fusion process in the performance region between thecurrent scientific knowledge base and that needed for practical fusion power. There are two parts
to this need. The first part is to investigate the fusion process in the form of a “burning plasma,”in which the heat generated by the fusion process exceeds that supplied from external sources bya significant amount (e.g., with a power “gain factor” of at least ten). Some of the heat is used tohelp sustain the burning plasma while additional fuel is being added, but the majority of the heatis captured in a so-called blanket and used to make power available for producing electricity. The
second part of this need is to sustain the burning plasma for a long duration (e.g., several hundred
to a few thousand seconds), during which time equilibrium conditions can be achieved within theplasma and adjacent structures. In the major fusion programs around the world, no fusion
research facility exists or is being built in which such sustained burning plasmas can be achieved.
The existing facilities have reached their limits. The heat generated in the plasma at thesefacilities is about equal to that supplied to the plasma from external sources, a gain of about
unity. At this level of performance, the plasma behavior is dominated by external heating rather
than self-heating. The duration of such experiments is only on the order of ten seconds.
Today, fusion research is at the threshold of exploring sustained burning plasmas in which selfheating dominates the plasma behavior. Such exploration is a necessary step toward therealization of a fusion energy source, and it must be accomplished to establish confidence inproceeding with development of a demonstration fusion power plant. Through the years, DOE,
the fusion community, the Fusion Energy Sciences Advisory Committee (FESAC), the National
Research Council, and others have thoroughly evaluated the scientific alternatives coupled withthe anticipated funding constraints. There is broad consensus that the next major step in this field
is a sustained burning plasma experiment. Accordingly, the mission need is to establish a fusion
facility for sustained burning plasma research.
There have been no material changes to the US ITER Project Mission Need Statement since it
was approved in February 2005. The US ITER Project was formally initiated on July 7, 2005,
when the Deputy Secretary signed CD-0, Approve Mission Need. The overall ITER project
mission remains the same: To construct an international research facility that will demonstrate
the scientific and technological feasibility of fusion energy, an essential feature of which would
be achieving sustained fusion power generation.

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1.3 Alternative Selection
Alternative approaches to demonstrate the scientific feasibility of fusion energy have been
considered and analyzed over the past three decades. From these analyses, there were only threeviable alternatives for the U.S.:•••

Continue with the FES base fusion program of existing research facilities; orBuild the next-step device independently in the U.S.; or
Build the next-step device through an international collaboration, such as ITER.

The idea of continuing with the base program was discarded based on a series of communitywide studies during this time period by the National Research Council, DOE, FESAC, andothers. The conclusion was clear: The next step is a large device that enables the study ofburning plasmas. The tokamak approach is the most advanced magnetic confinement concept
and the only effective approach to use for burning plasma physics exploration based on current
knowledge.
The second alternative, to build the next-step device independently in the U.S., was pursued
beginning in the late-1980s with the Compact Ignition Tokamak and Burning Plasma Experimentprojects. This effort was terminated due to budget difficulties. In the end, this alternative waseliminated because it was unaffordable within the projected FES program budget.
The third alternative, to build the next step device collaboratively through an international
agreement, was the chosen path forward as was re-confirmed in a recent Secretary of Energy
report to Congress, 6 which stated “ITER remains the best candidate today to demonstratesustained burning plasma, which is a necessary precursor to demonstrating fusion energy
power.” With the ITER approach, the current design, cost, schedule, and project site selection
were determined to be the best for the ITER Project by the ITER Members via an international
process of technical assessments and high-level negotiations. It allows the U.S. to leverage amodest investment into vital knowledge for commercializing a highly desirable energy source.
The recognized project risks created by the complexities of an international collaboration wereconsidered acceptable because of the management provisions that the U.S. was able to negotiate
into the ITER JIA. Although noted in the May 2016 Report, “ITER remains the best candidate
today to demonstrate sustained burning plasma” the report also stated that “the Project appears to
be technically achievable, although significant technical and management risks remain.” As aresult, the Secretary of Energy recommended that “the U.S. remain a partner in the ITER Projectthrough FY2018”, and “the U.S. revisit this recommendation as part of the FY2019 budget
process.”
1.4 Critical Decision-1
As previously mentioned, CD-1 was approved in January 2008 with a TPC range of $1.45 to$2.2 billion. Since then, the US ITER Project has maintained a comprehensive and up-to-datebottoms-up TPC point estimate that includes a risk-based amount of contingency. It has been

6 U.S. Participation in the ITER Project (May 2016)

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periodically re-evaluated to account for, among other things, foreseeable and actual ITER
construction schedule delays as well as annual appropriations of funds and DOE out-year
funding guidance. In order to evaluate the validity of U.S. hardware costs, an independent
external review was conducted in 2013 of the cost estimates for the two largest U.S. hardware
subsystems and of the risk management approach for the entire US ITER Project scope. The two
hardware subsystems that were examined, the CS Magnet system and the Tokamak Cooling
Water System, together comprise almost half of the U.S. total hardware cost. Chief among its
7
findings, the review report concluded, “in general, the cost estimating processes were sound andthe cost estimates themselves were appropriately detailed and credible.”
As a point of reference, a bottom-up pre-CD-2 TPC estimate of $3.915 billion for delivering thefull US ITER Project scope was prepared in August 2013. This estimate was underpinned bycertain annual funding profile assumptions, and by assumptions for the schedule of U.S.
payments to the IO of its cash commitments under the JIA. It was independently assessed by a
DOE/SC Project Review Committee, and the review committee stated that a cost range of $4.0 to
8
6.5 billion would be likely to encompass the final TPC. This range has been cited in subsequent
President’s Budget Requests to Congress, as well as in the previously mentioned Secretarial
report to Congress. Subsequently, the USIPO and DOE formally updated the TPC range
estimate in November 2016 to $4.7B to $6.5B, increasing the low end to reflect a more realistic
contingency allocation and updated SP-1 cost estimate.
2.0 TAILORING OF THE PROJECT EXECUTION STRATEGYThe US ITER Project has a number of features that require tailoring of the standard processes
prescribed by DOE Order 413.3B. It is not a conventional DOE capital asset project for thefollowing reasons:•••

The US ITER Project will not result in a facility owned by DOE. Instead, the ultimate
owner will be the IO located at the facility’s site at St. Paul lez Durance, France.
The U.S. Government is not responsible for overall ITER integration, systemengineering, safety basis and licensing, civil construction, installation of hardware,commissioning, and delivery of the other members’ hardware components.
The IO has the authority, subject to guidance from the ITER Council (of which the U.S.
is a member) to set the ITER construction schedule that includes the Members’ hardware
delivery milestones.

In recognition of these facts, the designation of the US ITER Project as a capital asset project as
defined by DOE Order 413.3B (Program and Project Management for the Acquisition of Capital
Assets) was rescinded by the DOE PME (see Deputy Secretary Memorandum of December 4,2012 in Appendix A). While unrelated to this, the Congress subsequently directed in the FY

7 J. Diekmann et al, “DOE External Independent Review Report for the Cost Estimate for Select US Work
Breakdown Structure Items and Risk Management Approach, Plans and Procedures on the U.S. Contributions to
ITER Project,” May 2013.
8 Reference the August 2013 US ITER Project Review Report issued by SC OPA.

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US ITER Project Execution Plan
Rev. 5.1, January 20172014 Appropriation that the US ITER Project transition from its status as a Major Item ofEquipment to a Line Item (non-capital asset) construction project.
In addition to the above unique characteristics, the US ITER Project schedule is integrated withthe overall ITER Project, which is under the IO’s control. Because the overall project schedule
has substantially slipped, and only the FP milestone is currently defined with reasonableconfidence, DOE has chosen to divide the US ITER Project hardware scope into two distinct
subprojects (Subproject 1 or SP-1 for FP hardware scope 9, and Subproject 2 or SP-2 for the postFP hardware) and to baseline SP-1 as soon as possible. SP-2 will follow once the post-FP portionof the ITER construction schedule has been firmly established by the IO and the Secretary ofEnergy has made a recommendation at the end of FY2017 that the U.S. will continue its
participation in ITER. It is not anticipated that there will be any procurements for SP-2 scope
until at the earliest FY2021.
In addition to SP-1 and SP-2, U.S. cash contributions to support IO construction-phase activities
comprise the third and final element of the US ITER Project scope. Since cash contributions are
not part of the subprojects’ (SP-1 and SP-2) scope, they are exclusively covered in this overall
PEP document. The source of funds for all three project elements is the annual US ITER Line
Item appropriation.
Given the above, the overall tailoring strategy for the US ITER Project is to manage it, to theextent practicable, according to the policies, principles, and processes of DOE Order 413.3B as
follows:• The PME is the Deputy Secretary of Energy (S-2), who is responsible for approving all
future CDs and Level 0 changes to the Performance Baseline after CD-2 (for the
subprojects, as well as for the overall project).
• In accordance with the policy memorandum Appendix D, project implementation will
conform to SC project management requirements, processes and procedures, to include
conducting periodic SC Independent Project Reviews (IPR) and other external technicalpeer reviews.
• The two subprojects, SP-1 and SP-2, will both be managed within the same USIPO
organizational structure, but they will have their own individual Work Breakdown
Structures (WBS), schedules, CDs, project completion criteria, cost estimates, andfunding profiles as described in Section 3.0 and in their individual PEPs, which aresubordinate to this document.
• Each subproject will have its own CD-2, CD-3, and CD-4.
• The US ITER Project will not deliver an entire integrated operating facility, as would atypical DOE construction project. Instead, in-kind U.S. hardware contributions, for themost part, represent portions of technical subsystems for the ITER facility. Consequently,
demonstrating KPPs in the traditional sense as a means for determining projectcompletion (CD-4) is neither appropriate nor possible. Rather, this PEP defines projectcompletion as delivery and IO acceptance of an approved scope ofdeliverables. Acceptance of the hardware by the IO will be in accordance with the
hardware PAs, including elements such as Manufacturing and Inspection Plans. SP-1

9 The scope of SP-1 also includes the remaining design work for all of the post-FP hardware. Thus, the scope of SP2 only encompasses procurement (fabrication and delivery) of the post-FP hardware.

8

US ITER Project Execution Plan
Rev. 5.1, January 2017

also includes the design of all U.S. hardware contributions. Design
completion/acceptance will be based on IO approval of the Final Designs.
3.0 PROJECT BASELINE
As explained above, the tailoring strategy is aimed at dividing the US ITER Project hardware
scope into two distinct and well-defined hardware subprojects (described in Appendix B) topermit establishing a stable Performance Baseline for the FP hardware scope (SP-1) in the nearterm. This is made possible by: (1) the existence of a credible ITER construction schedule to FP,
and (2) the exclusion of future U.S. cash contributions from the scope of SP-1 (and also from SP2). The SP-1 PEP describes the areas of scope, cost, schedule, and funding that together
comprise the Performance Baseline for SP-1. Eventually, a SP-2 PEP will be prepared toprovide the same information for that subproject. Baselining the cost of the U.S. construction
cash contribution will require the IO to eventually provide a reliable cost baseline for the total
cash needed to complete the Construction Phase. This overall ITER baseline, along with any
subsequent changes, must be approved by the IC. Realistically, reaching this step could be many
years away. Only then can there be a complete Performance Baseline with a TPC for the entire
US ITER Project. Any changes to the subproject Performance Baselines, once approved, must
be made in accordance with Section 6.1, Change Management.
3.1 Scope
The IO has established an overall technical baseline for the ITER Project that is documented in a
top-level “Project Specification,” which was initially approved by the ITER Council in June
2008. Beneath this top tier, the IO has developed a hierarchy of technical baseline
documentation in the form of Project Requirements and System Requirements. All of these areunder control of the IO’s configuration management system.
The ITER Project Specification identifies two top-level technical performance goals:
1. Produce substantially more thermal fusion energy than the energy expended in heating theplasma. Specifically, ITER is designed to burn DT fuel to produce 500 megawatts (MW)of fusion power in pulses of 300 to 500 seconds. This would provide a power gain factor
of at least 10.
2. Integrate and test many of the key technologies and processes needed for future fusion
power plants, including superconducting magnets, components able to withstand high heatloads, and remote handling.
The hardware scope of the US ITER Project is well defined by the U.S. commitments specified
in the ITER JIA and in its PAs with the IO. As a result, there is no scope contingency that is
typically available in SC projects. The US ITER Project scope falls into two basic categories:
1. In-kind hardware for twelve specific ITER subsystems or components of systems(see again Appendix B which contains a description and schematic of the U.S.
hardware commitments). This includes the remaining design, fabrication, testing(prior to delivery) and delivery of designated hardware components in accordancewith the design and performance specifications and acceptance criteria defined in the9

US ITER Project Execution Plan
Rev. 5.1, January 201718 PAs between the U.S. DA and the IO. 10 For the purpose of dividing the twelve
hardware elements into SP-1 scope and SP-2 scope, the US ITER Project has
followed formal guidance from the IO (see again, Appendix B, for a description of
how the IO has defined this division of scope and how it has been allocated between
the subprojects). It should be noted that many of the twelve do not entirely fit intoeither SP-1 or SP-2, but rather, are subdivided between the two subprojects. The US
ITER Project Work Breakdown Structure (WBS) dictionary further defines how the
U.S. hardware scope is allocated between the subprojects. The in-kind hardware
category also includes the operation of the USIPO that manages and coordinates all
activities of the US ITER Project. The completion criteria (similar to KPPs) for SP-1
and SP-2 are described in their respective PEPs.
Because of modest adjustments in hardware procurement sharing among the IO andDAs that have been made for various reasons over the past few years, the total credit
value of U.S. hardware contributions has fallen below the specified 9.09 percent
level. In order to make up the difference, the U.S. is obligated to contribute so called“in-kind” cash to the IO. The “in-kind” cash is part of SP-1 scope because it isrequired during the SP-1 time frame of the overall US ITER Project. This is distinct
from the cash contributions necessary to support the IO functions described below.
2. Cash (in Euros) to be paid to the IO for its construction-phase activities including:• ITER R&D,
• IO staff and infrastructure, and• IO-provided hardware and on-site assembly/installation/testing of all ITER
components, and the IO Reserve Fund.
Per the previously mentioned May 2016 Secretarial report to Congress, the Department intends
to cap the amount of future U.S. cash contributions (through negotiations within the ITER
Council) as a way to impose disciplined cost control on the entire US ITER Project TPC.
The criteria for achieving CD-4 (Approve Project Completion) for the entire US ITER Project
are to a certain degree reliant upon the IO. In particular, the US ITER subprojects will each beconsidered ready for their respective CD-4 approvals when all of their hardware scope andassociated documentation are delivered and accepted by the IO per the corresponding PAs. In
the case of SP-1, which includes the design of all U.S. hardware, design completion/acceptancewill be based on IO approval of the Final Designs. The USIPO will present verification of thecompletion criteria and delivery of subproject scope to the FPD for review and approval. Upon
confirmation that the completion criteria have been met and all WBS scope delivered, the FPD
will recommend to the PME that the corresponding subproject is ready for CD-4 approval. The
remaining scope element, the U.S. cash contribution for the Construction Phase, will becompleted once the last payment of the U.S. share of the final total IO construction cash budget
as approved by the ITER Council. This final payment could occur before or after the completionof SP-2.

10 As of late 2016, the USIPO has negotiated and signed 15 of the 18 PAs with the IO.

10US ITER Project Execution Plan
Rev. 5.1, January 2017

3.2 Cost
SP-1and SP-2 each have their own subproject TPCs, which together with the total U.S.
construction cash contribution, comprise the overall US ITER Project TPC. The SP-1 TPC ($2.5
billion) is the only one of these components currently known with the degree of accuracy andconfidence needed to establish a Performance Baseline. It includes 46 percent of cost
contingency on the remaining hardware-related work, and is described in more detail in the SP-1
PEP. The cost estimate for SP-2 is still preliminary, and it is represented by a range of $1.1 to$1.7 billion. The cost estimate range for the total U.S. cash contribution is $1.1 to $2.3 billion.
3.3 Schedule
Figure 1 illustrates the US ITER Hardware Project schedule range, and the table below it lists the
key schedule milestones for the US ITER Project. Each subproject has its own CD-2/3 and CD4, and there is an overall project CD-4. The approval authority for all CDs is the PME. The
entire US ITER Project will be considered complete upon approval of CD-4 for SP-2 and thepayment of the final U.S. construction cash contribution. The dates for SP-2 CD-2/3 and CD-4
will be set once an acceptable level of cost and schedule risk has been reached for establishing a
SP-2 Performance Baseline, as determined by the PME. The Performance Baseline schedule forachieving CD-4 for SP-1 is December 2027, which is consistent with supporting an ITER FP in
2028. It includes 40 months of schedule contingency. See the SP-1 PEP for a more detailed
description of the SP-1 schedule, including a comprehensive list of lower-tier SP-1 baseline
performance milestones. The IO has requested that the completion of the U.S. construction cash
contributions be completed by 2035.

CalendarYear

2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038
39% Contingency

SP-1

SP-2

Dec 2027

SP-2
Range
Sep 2034 – Mar 2038

Oct 2020
Cash
Range
Dec 2035 – Mar 2038

Cash

Late Finish Schedule

Figure 1. Hardware Schedule Range

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US ITER Project Execution Plan
Rev. 5.1, January 2017

Table 1. Schedule of Critical Decisions for the US ITER Project
Level 0 Milestone

Schedule

CD-0 Approve Mission Need

July 2005 (Actual)CD-1 Approve Alternative Selection andCost Range

January 2008 (Actual)

Updated CD-1 Cost Range

December 2016

SubprojectCD-2/3 Approve
Performance Baseline
and Start ofFabrication

CD-4 Approve
Completion

SP-1

December 2016

December 2027

SP-2

2019

2034-2038

Overall Project

Not Applicable

2034-2038

3.4 Work Breakdown Structure (WBS)
The US ITER Project scope has been organized into a WBS that forms the basis for planning,
executing, and controlling project activities, with subordinate WBS’s for SP-1 scope and anotherfor SP-2 scope. The overall WBS at Level 2 is shown below in Table 2.
Table 2. US ITER Project Level 2 WBS
WBS #
1
1.1
1.2
1.3
1.4
1.5
1.6
1.7
1.8
1.9
2
2.2
2.3
2.5
2.6
2.7
2.9

WBS Name
Subproject 1
TokamakTokamak Ancillary Equipment & Cryostat
Tokamak Fluids
Electrical Systems
Port Interfacing Systems
Project Support
In-Kind Cash and Miscellaneous
Supplemental Task Agreements with IO
Instrumentation & Controls
Subproject 2
Tokamak Ancillary Equipment & Cryostat
Tokamak Fluids
Port Interfacing Systems
Project Support
Support to IO
Instrumentation & Controls12

US ITER Project Execution Plan
Rev. 5.1, January 2017

3.5 Funding Profile
Since the US ITER Project involves no civil construction, SC initially budgeted this project as a
Major Item of Equipment (MIE). Beginning with the FY2014 appropriation, Congress mandated
the US ITER Project to be managed as a Line Item project. The US ITER Project (bothhardware and construction cash) will be entirely funded from the Line Item in the FES program
budget; there are no inter-agency funding agreements or external sources of funding.
The overall US ITER Project funding profile consists of the profiles for SP-1, SP-2, andconstruction cash. The baseline SP-1 funding profile is contained in the SP-1 PEP. Baseline
funding profiles for SP-2 and construction cash will be established when post-FP uncertainties in
the IO’s construction schedule have been reduced to a manageable level. No funding for SP-2 isanticipated before FY2021.
A notional near-term funding profile for U.S. construction cash contributions, as reported in the
May 2016 Report, is shown in Table 3, below. It is anticipated that construction cash payments
will extend into the mid-FY2030s, and that the U.S. will start making cash contributions to the
IO for the ITER Operations Phase as early as FY2024. Contributions for ITER Operations are
not part of the US ITER Project TPC and are not included in Table 3.
Table 3. Notional Near-Term US ITER Annual Budget Authority (BA) Funding Profile forConstruction Cash (in $M)
Fiscal
Year

Prior
Years

FY16

FY17

FY18

FY19

FY20

FY21

FY22

FY23

FY24

FY25

BA

126

-

25

108*

77

82

85

88

98

105

54

* Includes funds for payments due in FY2016 - 17
4.0 U.S. CONTRIBUTIONS TO ITER LIFE-CYCLE COST
The ITER JIA established a 35-year international collaboration that, in addition to construction,
nominally envisions a 20-year operations phase, followed by a 5-year period of deactivation.
Decisions on decommissioning the facility, which would occur beyond the 35-year program
period, will be left to the host country (France). As previously noted, the U.S. share of theoperating, deactivation, and decommissioning phases is 13 percent. Annual cash contributions
for these phases are due to commence approximately one year before ITER achieves its FP
milestone. When combined with the U.S. share to construct ITER, the total U.S. life-cycle costconsists of the following elements:
•
•
•
•
•

In-kind hardware contributions (including In-kind cash);Cash contributions to the IO for ITER construction;
Cash contributions for ITER operations, deactivation and decommissioning;
Pre-operations support (U.S. personnel support during installation and commissioning);
andThe U.S. research program for using the ITER facility.

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US ITER Project Execution Plan
Rev. 5.1, January 2017

The initial rough preliminary estimate made in 2007 for post-CD-4 cost (operations,deactivation, decommissioning) was about $1.5 billion (as spent). The IO and the ITER Council
have not updated the JIA cost estimates for operation, deactivation, and decommissioning. DOE
will update its estimate in the PEP for the U.S. portion of those life-cycle phases needed.
5.0 ACQUISITION APPROACH
Based on the approved US ITER Acquisition Strategy, it was determined that the USIPO at
ORNL, along with its two partner laboratories (PPPL and SRNL), will procure and deliver all of
the U.S. in-kind hardware in accordance with the PAs established with the IO. Detailed
arrangements for shipping, receiving, acceptance testing, and transfer of ownership for these
items are specified in each individual PA.
The US ITER Project is committed to the broadest possible use of open competition among all
qualified firms, including non-U.S. firms where appropriate. Non-competitive procurements will
be documented in accordance with DOE-approved purchasing requirements. The US ITER
Project procurements will comply with U.S. laws and regulations designed to assist U.S.
businesses.
The US ITER Project procurement team is using competitive solicitations for fixed-priceprocurement of most (~80%) of the in-kind hardware, which has been enhanced by the early
involvement of industry. In addition, consideration is routinely given to wide dissemination of
the draft solicitations prior to the formal solicitations, as well as the use of pre-proposal and preaward conferences.
The project is making efforts to encourage participation from women-owned, minority-owned,
and small/disadvantaged businesses. Additional information can be found in the Acquisition
Strategy for the U.S. Contributions to ITER Project.
5.1 Acquisition Strategy
As described in the US ITER Acquisition Strategy, DOE is meeting the U.S commitments under
the JIA for providing the IO with design, fabrication, and delivery of in-kind hardware, as wellas payments of cash to the IO, through the USIPO, which is run by the management andoperating (M&O) contractor responsible for ORNL. That contractor is currently the Universityof Tennessee – Battelle, Limited Liability Corporation (UT-Battelle, LLC). Subcontract
procurements for all of the U.S. in-kind hardware are the responsibility of the USIPO and thepartner laboratories.
5.1.1 Prime Contract
The M&O contractor responsible for ORNL (UT–Battelle, LLC) is serving as the prime
contractor to DOE, and ORNL is ultimately responsible for delivering the entire US ITER
Project scope as described above in Section 3.1. The contract is administered by the DOE ORNL
Site Office (OSO). Under this authority, the US ITER FPD has been delegated Contracting
Officer’s Representative authority for all US ITER Project matters.

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US ITER Project Execution Plan
Rev. 5.1, January 2017

5.1.2 Subcontracts
To the extent practical for this project, USIPO is using competitive fixed-price contracting with a“Best-Value” evaluated procurement approach. All of the subcontracts are being evaluated andawarded based on the best value to the U.S. Government.
5.1.3 Small and Disadvantaged Business
Efforts are being made to encourage participation of small and disadvantaged businesses in
execution of the US ITER Project. The scale and technical complexity of the project may
preclude small and disadvantaged businesses from principal roles; however, it may be possible toidentify smaller packages of work that match the capabilities of these companies and to solicit
their involvement. Where feasible, targets/goals for participation by small and disadvantaged
businesses are included in management agreements and subcontracts with the major project
participants.
6.0

BASELINE MANAGEMENTThe US ITER Project manages changes in functional or physical scope requirements andevaluates the impact of changes on cost and schedule through a formal baseline change control
process. The essential elements of configuration control are a well-defined baseline, and an
effective method of communicating, evaluating, and documenting changes to that baseline. This
promotes orderly evolution of the baseline design, and ensures that the effect of changes on cost,schedule, and technical scope are properly evaluated and documented by project management. A
Project Change Request (PCR) must be initiated when a proposed change to the project will havean impact on any of the cost, schedule, or scope baselines.
The baseline change control process is administered by a Change Control Board (CCB)
consisting of members of the US ITER Project. The board includes the chairman (the US ITER
Project Manager), a change control manager, and board members. The board members review
the technical, cost, and schedule implications of proposed changes and advise the chairman. A
record of all PCR actions is maintained in a change control log.
6.1 Change Management
PCRs are processed through a hierarchy of change control levels with progressively structured
authority for approval/disapproval of changes. The DOE and contractor change control levels for
the US ITER Project are described in Table 4, below. These will be utilized to manage changes
to the Performance Baselines for SP-1 and SP-2 (once established), as well as for changes to thebaseline total construction cash contribution and its associated funding profile (once established).

15

US ITER Project Execution Plan
Rev. 5.1, January 2017

Table 4. US ITER Project Change Control Thresholds

Scope

Level 0
Project Management
Executive(S-2)
Any deletions oradditions to the total
U.S. share of the inkind hardware as
defined in the JIA.

Any increase in the SP1 TPC, SP-2 TPC, or
the total construction
cash contribution.

Cost

Level 1
Associate Director for
FES (SC-24)
Any transfer of U.S. inkind hardware scope to the
IO or to another DA. Any
U.S. voluntary (i.e., noncreditable) contributions to
the IO. Any changes to SP1 and SP-2 scope at WBS
Level 3.
The cumulative use of over
25% of total projectcontingency. *Level 2Federal Project Director
Any scope change to a PA
that would require using
contingency.

Level 3
US ITER
Project Manager
Any scope change to U.S.
PAs whose cost impact canbe accommodated by using
Management Reserve.
Any change to the WBS.

Any change that requires
use of contingency.**

Any change to Budget atCompletion (BAC) that
does not require use ofcontingency. Any use ofManagement Reserve.
Any change to a Level 3
milestone.

Any change in a Level Any change to a Level 1
Any change to a Level 2
0 milestone.
milestone.
milestone.
Any changes to theFunding
funding profiles for SP1 and SP-2, as well as
the construction cash
profile that negatively
impacts their respective
Performance Baselines.
* After the cumulative threshold has been reached and the next higher change authority has been notified andhas approved the changes, the cumulative cost thresholds will reset.
** US ITER FPD will notify the US ITER Program Manager of any cost contingency usage.
*** For a listing of SP-1 and SP-2 performance baseline milestones, see the respective subproject PEPs.
Schedule***6.2 Performance Measurement
The actual cost of work performed, using accrued costs and progress on the project (earned value
or budgeted cost of work performed), is being collected using a project-wide reporting andcontrols system. Monthly earned value reporting to DOE will be implemented for each
subproject once their respective performance baselines are established. Project performance data
will then be tracked against the baselines, variance analyses will be performed, needed corrective
actions will be implemented, and future risks will be identified. UT-Battelle, LLC has a certified
EVMS as described in Section 8.3.
6.3 Contingency Management
In general, the TPC is the sum of the Budget at Completion (BAC) plus cost contingency. At
CD-2, the subproject BACs will be developed by the USIPO to represent the most realistic
estimate of probable costs for all WBS elements. Contingency funds are necessary to cover costs
that result from incomplete design, uncertainties associated with market conditions, technicaldifficulties, schedule delays, event risks, and other circumstances commonly encountered during
project execution. Contingency estimates will also be developed at CD-2 for each major costelement, usually at WBS Level 4 or lower, using a risk-based contingency approach that reflects
the status of hardware design, procurement, and fabrication. Once contingency is developed and16US ITER Project Execution Plan
Rev. 5.1, January 2017baselined for SP-2 and for construction cash, those amounts will be combined with the SP-1
contingency and held at the Project level. The process for contingency development is further
described in the USIPO Risk Management Plan.
The FPD will control distribution of the contingency in accordance with the baseline change
control process and in close coordination with USIPO management and the FES US ITER
Program Manager. Formal baseline changes will normally be made following a subproject-wide
Estimate-at-Completion (EAC) process done annually or on individual elements when theexisting baseline no longer provides a reasonable basis for performance measurement.
The USIPO Project Manager is responsible for managing and approving the use of Management
Reserve (MR) funds. MR funds are derived from cost savings across the subprojects andassignment of DOE contingency. MR will be used by the contractor as a management tool tofacilitate project changes within the contractor’s change thresholds. MR does not apply toconstruction cash.
6.4 Estimate at Completion (EAC)
One of the most important indicators of the financial health of a project is management’s realistic
estimate of the cost to complete the job. When added to the cost already incurred, the result is theEAC. Because of the dynamic nature of projects such as the US ITER Project, the formal
performance measurement baseline will always lag behind this estimate of “management’s best
judgment.”
As the information base grows throughout the project execution phase (actual cost history,
design maturity, procurement experience, etc.), project personnel will develop periodic,
comprehensive, detailed “bottom-up” estimates of the cost to complete the subprojects. In
general, these will be prepared on one-year intervals, or when conditions indicate that asubstantive impact on the project is developing. In addition, adjustments to the EAC will bemade on a continuing basis by USIPO management to reflect new information and keep the
management assessment current. The US ITER Project projections for the EAC will be evaluatedperiodically as part of the SC IPRs process. The USIPO establishes and justifies the EAC.
Management of cost, schedule, and technical risks is integral to contingency management. US
ITER Project management will evaluate the project risk issues on a continuing basis during
project execution.
7.0 MANAGEMENT STRUCTURE AND INTEGRATED PROJECT TEAM (IPT)
7.1 Organizational Roles and Responsibilities
The US ITER Project organization, shown in Figure 2, that has been established to accomplish
the project. The IPT Charter (contained in Appendix C) defines and integrates the roles andresponsibilities of the IPT.

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US ITER Project Execution Plan
Rev. 5.1, January 2017

Figure 2. US ITER Project Organization
7.2 Project Management Executive
The PME for the US ITER Project is the Deputy Secretary (S-2). The PME’s specificresponsibilities for this project include:
•
•
•
•
•
•

Serves as the Energy Systems Acquisition Advisory Board (ESAAB) Chair;
Approves all CDs;
Renders decisions on Level 0 baseline changes per Table 4;
Appoints the FPD and ensures that this individual is sufficiently qualified and has
appropriate communication and leadership skills;
Approves this PEP, as well as subproject PEPs, including substantive updates; andApproves the IPT Charter (as part of this PEP).

7.3 Director of the Office of Science (SC-1)
The Director of the Office of Science is the PSO for the US ITER Project. As such, SC-1 is
responsible for incorporating the US ITER Project baseline funding requirements in annual SC
budget requests. In addition, SC-1’s specific responsibilities for this project include:18

US ITER Project Execution Plan
Rev. 5.1, January 2017•

Advocates US ITER and the international ITER projects with senior DOE and other
Executive Branch organizations (e.g., Department of State, Office of Management andBudget [OMB]) and brief congressional members and committees as necessary.

7.4 SC Office of Project Assessment (OPA)The SC OPA, which reports directly to SC-2, provides key project management support andadvice to the PME, FES, and the FPD. OPA’s specific responsibilities for this project include:•••

Provides independent oversight, and advise the PME, SC-1, SC-2, and FES on resolving
project issues;
Performs IPRs as requested by the PME, SC-1, or FES, and informs them of the results;
Coordinates with other DOE organizations and offices, including Office of ProjectManagement Oversite & Assessment (PM), to ensure the effective implementation of key
policies.

7.5 FES Associate Director
The FES AD has programmatic responsibility for DOE’s fusion science mission, including
construction of state-of-the-art research facilities. Hence, the FES AD is the DOE Headquarters“Project Owner.” The AD’s responsibilities include:••••

Prepares and defends the annual FES program budget requests including the necessary
SP-1 and SP-2 baseline funding profile levels and required cash contributions;
Approves Construction Cash payments to the IO;
Provides executive leadership to the IPT and USIPO on the management of the US ITER
Project;
Champions US ITER and ITER projects with senior DOE and other Executive Branchorganizations (e.g., Department of State, OMB) and briefs congressional members andcommittees as necessary.

7.6 FES Program Manager
FES provides the overall program policy and guidance, technical oversight, budget formulationand planning, and funding needed to execute the US ITER Project. Specific responsibility within
FES for carrying out these functions is assigned to the US ITER Program Manager in the FES
Facilities, Operations and Projects Division (SC-24.1). The Program Manager’s responsibilities
include:•••••Serves on the US ITER IPT;
Develops, and if necessary, updates the US ITER Mission Need Statement;
Oversees development of project definition and objectives, technical scope, and budget tosupport the mission need;
Formulates annual budget request for funds required to execute the project, prepares andcoordinates project budget-related documents, and provides guidance to the FPD and
USIPO regarding future project funding scenarios;
In consultation with the FPD, prepares Financial Plan requests;
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US ITER Project Execution Plan
Rev. 5.1, January 2017

•
•
•
•
•
•
•

Leads efforts to prepare for and support ESAAB Board actions, such as baseline
development as needed for CD-2;
Coordinates initial approval and approval of updates to this PEP and the subproject PEPs;
Functions as the central DOE Headquarters point of contact for project matters, such as
the United States Domestic Agency (USDA) interface with the IO and external audits;
Monitors and evaluates the project’s technical, cost, and schedule performance throughcompletion, and informs and advises the FES AD on major issues and facilitate theirresolution;
Facilitates the baseline change control process at the Headquarters level;
Coordinates with the FPD, IPT, other FES program elements, other SC staff offices, as
needed, to promote and expedite progress on the project; andCoordinates with OPA to plan, organize, conduct, document, and report results of IPRs
and other project reviews.

7.7 Federal Project Director
The US ITER Program Manager in FES implements the US ITER Project through the fieldorganization, which is led by the FPD, who has been delegated responsibility and authority for
project execution. Additional support to the US ITER FPD is provided by the DOE Oak Ridge
National Laboratory Site Office and the Oak Ridge Integrated Support Center (OR-ISC) support
organizations at the level required for project success.
The FPD leads a project office to oversee and direct the US ITER Project with matrixed staff
support from the OSO and part-time OR-ISC support staff. The FPD’s staff nominally consistsof two directly assigned individuals.
The support personnel resources are provided primarily through staff assignments from the ORISC and OSO. A summary organizational diagram for the project is provided in Figure 3. The
FPD is responsible for overseeing the prime contractor’s (UT-Battelle, LLC) effort to provide
in-kind hardware, and make authorized in-kind and construction cash payments to the IO.

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US ITER Project Execution Plan
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SC Deputy
Director Field
Operations
ORNL Site Office Manager

OR-ISC Manager
Key OR-ISC
Support Functions
Procurement and Contracts
Planning & Budget

US ITER Federal Project Director

Financial Services
Chief Counsel

Line
US ITER Project

Public Affairs

SupportHuman Resources

Figure 3. DOE Field Organization for the US ITER Project
The FPD’s responsibilities include:
•
•
•
•
•
•
•
•
•
•
•
•
•

Leads the IPT, provides overall guidance, and delegates appropriate decision-making
authority to the IPT members;
Prepares and maintains the IPT Charter and operating guidance with IPT support;
Keeps the IPT and senior DOE management informed;
Schedules and holds regular IPT meetings;
Initiates development and implementation of key project documentation (e.g., the PEP
and subproject PEPs);
Serves as the DOE Contracting Officer’s Representative for matters pertaining to the US
ITER Project;
Serves as the single point of contact between Federal and contractor staff for all mattersrelating to the project and its performance. Maintains effective communications among
SC, OR-ISC, the USIPO, and other cognizant DOE Site Offices;
Oversees implementation of project cost, schedule, performance, and scope baselines;
Provides day-to-day oversight of the project, anticipates potential problems, and takecorrective actions to minimize potential delays and cost growth;
Supports FES in the formulation of budget requests and funding documentation to the US
ITER Program Manager for funds required to execute the project;
Ensures that the US ITER Project complies with applicable environment, safety andhealth (ES&H) requirements, export controls, security requirements, public laws,
regulations, and Executive Orders;Monitors and reports on the performance of the project against established technical, cost,and schedule performance baselines, and monitors risk management planning andmitigation activities;
Evaluates and verifies reported progress. Makes progress projections and identifies
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US ITER Project Execution Plan
Rev. 5.1, January 2017

•
•
•
•
•
•
•
•

Proactively identifies and ensures timely resolution of critical issues within Federal
control that impact the project’s performance;
Participates in project reviews by DOE Headquarters and others;
Facilitates external audits of the US ITER Project;
Authorizes the use of project contingency funds;
Controls changes to the project baselines within the FPD’s authority per the PEP andseeks Headquarters approval for changes beyond the FPD’s authority;
Ensures that the contractor’s R&D, design, and procurement efforts produce in-kind
hardware per the specifications in the various US/IO PAs;
In concert with the US ITER Project Manager, communicates and coordinates with the
IO and other DAs on the details of overall ITER construction project execution; andApproves administrative changes to the PEP and subproject PEPs, as needed.

7.8 US ITER Project Manager
The FPD implements the US ITER Project through the M&O contractor for ORNL (currently
UT-Battelle, LLC), which is responsible for overall project coordination and execution. ORNL’s
US ITER Project Manager is assigned line management responsibility and authority for carryingout the US ITER Project in a manner consistent with this PEP and the M&O contract. This
responsibility includes leadership of the partner laboratories (ORNL, PPPL and SRNL), alongwith authority and accountability for all project activities. Within the ORNL organization, theUS ITER Project Manager reports directly to the ORNL Director. The Project Manager is
responsible for the overall successful execution of the US ITER Project, including the following:
•
•
•
•
•
•

•
•
•

•
•

Serves on the US ITER IPT;
Completes the baseline project scope for SP-1 and SP-2 as described in Section 3.1
above, within their baseline completion schedules and TPCs;
Defines and leads the contractor project organization, and manages day-to-day project
execution activities;
On a day-to-day working level, represents the USDA in dealing with the IO and the othersix DAs;
Supports the FPD in implementing DOE’s project management processes, andcommunicates accurate and reliable project status and performance issues to DOE;
Provides executive-level management of R&D, design, and fabrication/ procurement of
hardware, payment of in-kind cash contributions to the IO, and ensures that all mission
requirements are fulfilled in a safe, cost-efficient, and environmentally responsible
manner;
Implements an approved EVMS and provides monthly progress reports to the FPD;
Proactively identifies and ensures timely resolution of critical issues within thecontactor’s control that impact project performance;
Exercises full financial authority and accountability, as assigned by DOE, to develop
budgets and control US ITER Project work within the approved subproject baselines andto control changes to the approved baselines in accordance with the establishedconfiguration management procedures;
Identifies and proactively manages the project risks;Manages and directs procurements within the authority assigned by DOE, including theauthority to execute and deliver subcontracts, agreements, teaming agreements, purchase22

US ITER Project Execution Plan
Rev. 5.1, January 2017

•
•
•
•

orders, assignments and instruments, and documents of any kind relating to theacquisition, sale, or disposition of products, services, materials, supplies, and equipment
relating to and necessary and desirable for completion of the US ITER Project;
Provides input on project documentation (e.g., the PEP and subproject PEPs) and on
developing and maintaining the contractor project documentation;
Ensures that the US ITER Project’s ES&H and quality assurance goals are achieved;
Maintains overall responsibility for hiring and managing the human resources necessary
to complete the US ITER Project; andMaintains relationships with fusion research programs worldwide that are designing andoperating similar tokamak facilities, and keeps abreast of potentially significant
developments that could impact the US ITER Project.

7.9 Integrated Project TeamThe US ITER Project will be managed through an IPT that is organized and led by the FPD.
Besides the FPD, the core members of the IPT are the US ITER Project Manager and Deputy,
and the US ITER Program Manager. The IPT is led and organized by the FPD. The IPT also
includes other support members from the USIPO, OSO and DOE OR-ISC, as described in the
IPT Charter provided in Appendix C.
7.10 Critical Interfaces and Roles and Responsibilities
Effective management of the US ITER Project requires smoothly functioning interfaces withmany different domestic and international entities. This project is unique in many ways: The
U.S. is only one of seven participating governments contributing both cash and in-kind hardware
to construction of a major research facility in a foreign country that will be owned and operated
by an international legal entity (the IO). Thus, there are many more interfaces to manage than ina typical SC construction project. These include interfaces between the USDA and the IO as wellas among the seven DAs, interfaces among the DOE Program and Field offices and USIPO, andinterfaces between the USIPO and its partner laboratories. The USIPO has responsibility forestablishing agreements among the partner laboratories.
7.11 Domestic Agency Function and Delegation
Another aspect of interface management that is crucial for the overall success of this project isclear delineation of the roles and responsibilities among SC, OSO, OR-ISC and the USIPO,
consistent with expectations and commitments made in the ITER JIA. DOE officially functions
as the DA for the US ITER Project. Under DOE’s direction, the USIPO is assigned responsibility
and authority for managing the day-to-day activities related to planning, managing, anddelivering the full scope of the US ITER Project. The USIPO’s daily management of this projectis consistent with provisions of the prime contract between DOE and UT-Battelle, LLC, andfocuses on those matters considered to be within the project’s scope, schedule, and cost baseline.
DOE considers this assignment of responsibilities and authority to be comprehensive in nature;
hence, most of the USDA' responsibilities are delegated to the USIPO. However, DOE will
decide on a case-by-case basis those situations where it deems exceptions to this approach arenecessary.
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US ITER Project Execution Plan
Rev. 5.1, January 20177.12 Project Summary Schedule
The baseline schedule for SP-1, along with a comprehensive list of milestones and due dates, hasbeen developed as part of the effort to prepare for approving an SP-1 Performance Baseline. This
list is included in the SP-1 PEP for PME approval. A similar list, once developed, will be
included in the SP-2 PEP when it is developed. Changes to these milestones are under theauthority of the PME, the AD for FES, the US ITER FPD, and the US ITER Project Manager inaccordance with the change control thresholds contained in Section 6.1.
7.13 Financial Management
Following approval of CD-2 for each subproject, annual budget requests will be submitted by
FES in accordance with their respective baseline funding profiles. These requests will identify
the funds needed for hardware design and procurement (including appropriate contingency),
supporting R&D, and in-kind cash contributions to the IO. They will also include theconstruction cash contribution that was approved by the ITER Council for that year. All US
ITER Project funds will be provided by FES to the USIPO at ORNL, which will in turn, makeallocations to the partner laboratories, place subcontracts as necessary, and make DOEauthorized cash payments to the IO.
FES issues work authorization documents to the Field to initiate, continue, or redirect the project
effort and to identify funds being allocated via an approved Financial Plan. These documents
will be issued on an as-needed basis, but no less than annually. The FPD issues project work
authorizations to the Project Manager to authorize work. These work authorizations identify the
specific work to be performed by the contractor and specify the project funds available forproject activities. Revised work authorizations are issued when new work phases or activities areto begin and when incremental funds are authorized.
8.0 PROJECT MANAGEMENT/OVERSIGHT
8.1

Risk Management

Risk management will be performed throughout the life of the US ITER Project. A complete
methodology that describes the approach and processes to be used is documented in the US
ITER Project Risk Management Plan (RMP). In addition to providing both a qualitative andquantitative evaluation of the risk items related to scope, schedule, and cost. The key risks
related to the international interfaces are identified and evaluated to ensure successful projectcompletion.
The US ITER Project Manager has overall responsibility for SP-1 and SP-2 project risk
management. The activities required to implement the RMP are performed by the Deputy ProjectManager, Project Risk Coordinator, Division Directors, and the WBS Team Leaders for
performing detailed risk analyses, mitigation planning, performing periodic reviews, andmaintaining the Risk Management Information System that contains the Risk Registry. The Risk
Registry includes potential impacts and related mitigation plans for each identified risk.
Continually monitoring and mitigating risks, when appropriate, throughout the life of the project
and appropriately updating the risk register will result in the downgrading or retiring of risks.

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Performance monitoring against the established mitigation plans is being done for risk elements
as part of the monthly metrics and performance monitoring meetings. In addition, risk
management issues and updates are also covered as part of regular weekly project team meetingsand management meetings between the FPD and senior managers of the US ITER Project.
At this stage of the project, identified high-level risks to US ITER include:•••

Timely deliveries of information and equipment from other DAs or the IO;
Manufacture of first-of-a-kind, high-technology equipment; andPotential for further overall ITER project schedule slippage and cost growth (i.e.,
increases in construction cash contributions (Programmatic Risk)).

8.2 Project Reporting and Communication Management Plan
DOE management oversight will be exercised in accordance with SC project management
procedures. Real-time project monitoring will take place using established mechanisms among
the US ITER Project participants, such as frequent project team meetings and discussions,weekly management teleconferences and monthly topical IPT meetings (design status,
fabrication status, etc.). When charged, OPA will conduct periodic IPRs of the project (seeSection 8.4 below). The US ITER Program Manager will provide progress/status reports andbriefings to the PME as required, as well as monthly project status briefings to SC-1 and SC-2.
Formal project reporting on a monthly basis is in effect for the duration of the project inaccordance with provisions of the SC exemption. In addition, the FPD and the US ITER ProjectManager will conduct monthly metrics meetings as a regular, comprehensive assessment of the
project’s status.
The US ITER Project will issue the following project reports:
1. Monthly Project Status Report: The Project Status Report issued each month will contain theoverview and assessment of the project by the US ITER Project Manager. The Project
manager will supply details on the status of the technical work, significant accomplishments
and problems, milestone schedule status, cost and schedule performance (e.g., earned value
reporting), variances, and corrective actions, as needed.
The Monthly Project Status Report will integrate all participants’ input, with the exception of
the FPD’s overview and assessment. The report will be issued by the end of the monthfollowing the reporting month. For example, the March activity report will be available by
the end of April.
2. Project Technical Report: Project technical reports will be issued to document special topicalitems.
3. Project Procurement Status Report: The Project Procurement Status Report will be updated
and maintained in the US ITER Project’s web-based information system and included in themonthly metrics report. The information will provide the status of major subcontracts andmaterial procurements.

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Rev. 5.1, January 2017

4. Annual Budget Submission: The USIPO will be required to provide information to support
annual DOE budget preparations, to include that for the Project Data Sheet.
8.3 Earned Value Management System (EVMS)
ORNL (UT-Battelle) has a certified EVMS that complies with the American National Standards
Institute/EIA-748 Standard, which is a UT-Battelle, LLC contract requirement. The project
EVMS that has been implemented for US ITER is consistent with the site EVMS description
document (with approved tailoring) that provides an objective measure of actual costs andschedule performance against the targets. This EVMS will continue to be used throughout the
duration of SP-1 and SP-2 to evaluate progress against their respective Performance
Measurement Baselines. Actual cost (invoices, cost transfers, and accrued costs) for work
performed on the US ITER Project is accumulated by UT-Battelle, LLC, using standard, existingaccounting procedures and systems.
8.4 Project Reviews
IPRs of the project status and management will be conducted prior to each subproject CD. Thesemay be conducted jointly with other oversight organizations (e.g., PM) as appropriate. Also, in
preparation for CD-2/3 for each subproject, an IPR will be conducted. Non-CD IPRs will be
conducted semiannually. Results of these reviews are provided to the PME and FES AD. As
discussed in Section 8.2, formal project reporting is required in accordance with the provisions of
the SC exemption and this PEP. In addition, the FPD and the US ITER Project Manager conductroutine status meetings as a regular, comprehensive assessment of the US ITER Project status.
Design Reviews are an integral part of the project and are performed by individuals external tothe project. For the US ITER Project, the IO organizes design reviews because it is the ITER
Design Authority. The USIPO also performs its own design reviews on U.S. hardware
subsystems as well as peer reviews in special topical areas on an as-needed basis.
8.4.1 Project Monitoring and Assessment
Monitoring and assessment of the US ITER Project occurs through routine IPT interfaces among
the project participants (e.g., weekly conference calls among contractor management, the USIPO
staff, and FES and OPA staff), IPT meetings, and OPA IPRs. The PME or FES AD may also
charge ad hoc reviews on special topics as deemed necessary. Per Section 8.2, Monthly ProjectStatus Reports are submitted to the US ITER Program Manager by the FPD.
8.5 Engineering and Technology Readiness
The project assesses engineering and technology readiness through design reviews, IPRs, andother independent technical reviews. In general, the US ITER Project tends to apply and/or
extend existing technologies.

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8.6 Alternative Analysis and Selection
As was previously described in Section l.3, an alternative analysis was performed as part of theAcquisition Strategy development process. The alternative selected at CD-1 and underscored in
the May 2016 DOE Secretary’s Report, was to participate in an international collaboration tobuild the next-step experiment for exploring the science of sustained burning plasmas and fordemonstrating the scientific and technological feasibility of magnetic confinement fusion as apotential future energy source. Further details are contained in the Acquisition Strategy for the
U.S. Contributions to ITER Project.
8.7 Environment, Safety and Health
Consultations on application of the National Environmental Policy Act (NEPA) requirements to
the US ITER Project were held with SC; the Office of Health, Safety and Security; OR-ISC; the
DOE Chicago Office; and the DOE Princeton Site Office. They jointly determined that NEPA
applies to the activities of the US ITER Project (i.e., NEPA applies to the design, procurement,
and manufacture of equipment for use at the ITER site, but does not apply to international ITER
construction phase activities that will be conducted outside the U.S.). The US ITER Project wasdetermined to meet the eligibility criteria for a Categorical Exclusion (CX) as stated in Title 10,
Code of Federal Regulations, Part 1021, Subpart D, Appendix A. DOE OR-ISC managed
development of a CX to assess the US ITER Project as a whole. The proposed action for OR-ISC
and other participating DOE sites would be conducted under DOE’s authority pursuant to the
Atomic Energy Act, as amended. The CX determination for this proposed action was approvedon December 7, 2006.
All USIPO personnel and contractors will plan, manage, and execute their respective duties
consistent with the requirements of the UT-Battelle, LLC, Integrated Safety Management System(ISMS) and ensure that all U.S. in-kind hardware is fabricated and shipped in a safe,
environmentally sound manner. Expectations for ES&H performance have been established in
the ES&H Plan for this project.
The US ITER Project follows the existing, approved ISMS in place at ORNL and the otherpartner laboratories with respect to overall project safety management and performance of thework assigned to each of these laboratories.
8.8 Safeguards and Security
A security and vulnerability risk review was performed and the conclusion was that safeguards
and security issues for this project are considered small and manageable with standard practices.
No additional security requirements have been identified beyond the existing ORNL, PPPL or
SRNL policies and procedures.
8.9 Systems Engineering
The IO is responsible for performing the systems engineering functions for the international
effort to design and construct the ITER facility. The USIPO supports the IO in this regard, anduses a systems engineering approach to execute and manage the US ITER Project scope,
including performing value management analysis and value engineering studies; specification
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US ITER Project Execution Plan
Rev. 5.1, January 2017and design development, reviews and verification; risk analysis and management; and interface
management activities.
8.10 Value Management
Value management is performed on the US ITER Project and integrated into the design review
process to ensure that all essential functions required by the project scope are achieved at thelowest life-cycle cost consistent with safety, performance, reliability, and quality requirements.
The US ITER Project Manager will make every effort to identify additional opportunities forvalue engineering that could improve value at reduced cost. These opportunities are continuously
analyzed.
8.11 Value Engineering
Value Engineering (VE) studies will continue to be conducted throughout the design phase of the
project, and are being extended into the procurement/fabrication phase. See the US ITER ValueEngineering Plan for the VE approach. VE studies can lead to significant project cost savingsand free resources to accelerate the project.
8.12 Configuration Management/Document Control
An essential element of project management systems is controlling changes to the projectbaselines and the implementation approach. This objective will be carried out through ahierarchy of change control levels, with progressively structured authority for approval anddisapproval of changes. The DOE and contractor control levels for the US ITER Project aredescribed in Section 6.1. As indicated there, Level 0 changes that would constitute a deviation to
the performance baseline are under the control of the PME.
All requirements, design documents, and ITER project level change requests are maintained by
the IO through the ITER Document Management System. Documentation related to US ITER
and DOE are controlled in the US ITER Document Management System.
8.13 Vendor Management
Vendor management is being accomplished in a structured manner by implementing a set ofadministrative tools by experienced personnel over the entire scope and life cycle of the project.
The objectives are to: 1) evaluate vendor performance, 2) identify issues in the early stages, 3)
ensure appropriate mitigation steps are identified, implemented and completed, and 4) recognize
and learn from positive and negative attributes of vendor performance.
The goal of the US ITER vendor management approach is to implement a set of processes thatare disciplined, forward looking, and continuous. Those processes are described in more detailin US ITER Vendor Management Plans that are developed for major fabrication procurements.

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US ITER Project Execution Plan
Rev. 5.1, January 20178.14 Quality Assurance and Testing and Evaluation
The primary objective of the US ITER Quality Assurance (QA) Program is to ensure that the US
ITER Project produces items and services that meet all requirements, while providing protection
for workers, the public, and the environment. US ITER personnel are required to attend
appropriate training to become familiar with the US ITER QA Program and related procedures,and implement them in their work processes.
It is the goal of US ITER Project management that this program meets or exceeds the
expectations of DOE and the IO in order to meet the needs of the research staff that will use the
ITER facility during its operation phase. This goal will be accomplished by incorporating
proactive measures that ensure quality.
The QA program for the US ITER Project defines the QA requirements and implements theapplicable requirements of DOE Order 414.1C (Quality Assurance). The US ITER QA Plan,
which has been approved by the IO, is complete and consistent with provisions and requirementsof the IO’s QA Plan including French nuclear requirements. Each partner laboratory working on
the US ITER Project works within its own QA Plan, which must be consistent with provisions
and requirements of the US ITER QA Plan. The US ITER QA program is periodically assessedby the IO and OSO.
8.15 Transition to Operations
In accordance with the ITER JIA, the U.S. will participate in ITER’s operations phase, which isenvisioned to span a nominal 20-year period. The U.S. commitment during ITER operations
consists of providing resources to the IO for personnel and facility operations. There will also be
a US ITER Research Program that supports scientists and engineers who will participate (inperson and remotely) in experiments on ITER. DOE will budget for the U.S. share of ITER
operations as well as the scientific research program separately from the US ITER Project TPC.
These remaining life-cycle costs have already been discussed in Section 4.0.
8.16 Project Closeout
Prior to CD-4 for SP-2, a Project Closeout Plan will be developed and implemented that will
cover the following activities:
•
•
•
•
•

•

Project lessons learned;
How all PA obligations, products, services, and deliverables have been completed andaccepted by the IO;
How excess equipment and associated components will be properly dispositioned;
How project team members will be informed that the work is complete and that they are nolonger authorized to charge to the project accounts;
How subcontractors/vendors are notified of the closeout, and how a formal request is
submitted to ORNL Business Support Services to de-obligate balances and/or accrue
outstanding costs and resolve/de-obligate balances (de-obligation and contract close out
requires formal concurrence of vendors); andHow costs associated with closed accounts must be cleared.
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Some US ITER hardware manufacturing activities have already progressed to the point ofgenerating tooling and equipment that is no longer needed. If individual vendor contracts do notalready specify delivery of these items to USIPO or the IO, then the USIPO and DOE will
determine the final disposition of the items on a case-by-case basis at the time of contract closeout.
The USIPO and the FPD will jointly develop a draft Project Closeout Report prior to CD-4 for
SP-1, and 90 days after CD-4 has been approved, the FPD will submit an initial Project Closeout
Report to the US ITER Program Manager in FES. The Closeout Report will contain the final costof SP-1, subproject lessons learned, and performance achieved at SP-1 completion. Once all
financial closeout activities have been completed the Final Closeout Report for SP-1 will be
issued. A similar process will be followed for SP-2 at completion.

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U.S. CONTRIBUTIONS TO ITER
PROJECT EXECUTION PLAN
Appendix A
Reference Document on Tailoring of the Project Execution Strategy

A-1

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A-2

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U.S. CONTRIBUTIONS TO ITER
PROJECT EXECUTION PLAN
Appendix B
Description of US ITER Hardware Contributions and Allocation of
Scope Between Subprojects 1 and 2

B-1

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ITER Tokamak Showing U.S. Hardware Contributions

CentralSolenoid

ECH
Transmission
Lines

Tokamak Cooling
Water System

ICH
Transmission
Lines

Vacuum System &Roughing Pumps

75% of Steady StateElectrical Network(not shown)

Tokamak Exhaust
Processing
System(not shown)

8% of TF coil
Conductor

14% of Port
Diagnostics
Pellet Injection System
Disruption Mitigation(not shown)

B-2

US ITER Project Execution Plan
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System/Subsystem

Subproject*

Central Solenoid
Magnet System

SP-1

Toroidal Field Magnet
Conductor

SP-1

Steady-StateElectrical Network

SP-1

Tokamak Cooling
Water System

SP-1/SP-2

Diagnostics

SP-1/SP-2

Description
Provide 7 (including spare) independent coil packs made ofsuperconducting niobium-tin providing 13 Tesla at 45 kA,
the vertical pre-compression structure, and assembly
tooling.
Provide 9 active lengths (~765m), 1 dummy length(~765m) for winding trials and 2 active lengths (~100meach) for superconducting qualification.
Provide components for a large AC power distribution
system (transformers, switches, circuit breakers, etc.) at
high-voltage (400kV) and medium-voltage (22kV) levels.
Provide major industrial components (heat exchangers,
pumps, valves, pressurizers, etc.) capable of removing
1 GW of heat.
Provide 4 diagnostic port plugs and 7 instrumentation
systems (Core Imaging X-ray Spectrometer, Electron
Cyclotron Emission Radiometer, Low Field Side
Reflectometer, Motional Stark Effect Polarimeter, Residual
Gas Analyzer, Toroidal Interferometer / Polarimeter, andUpper IR/Visible Cameras).

Electron Cyclotron
Heating Transmission
Lines

SP-1/SP-2

Provide approximately 4 km of aluminum waveguide lines(24 lines) capable of transmitting up to 1.5 MW per line.

Ion Cyclotron Heating
Transmission Lines

SP-1/SP-2

Provide approximately 1.5 km of coaxial transmission lines(8 lines) capable of transmitting up to 6 MW per line.

Pellet Injection
SystemSP-1/SP-2

Provide injector system capable of delivering
deuterium/tritium fuel pellets up to 16 times per second.

Vacuum Roughing
Pumps

SP-1/SP-2

Provide a matrix of pump trains consisting ofapproximately 400 vacuum pumps.

Vacuum Auxiliary
Systems

SP-1/SP-2

Provide vacuum system components (valves, pipe
manifolds, auxiliary pumps, etc.) and approximately 6 km
of vacuum piping.

Tokamak Exhaust
Processing System

SP-2**

Provide exhaust separation system for hydrogen isotopes
and non-hydrogen gases.

SP-2**

Provide design, R&D, and some fabrication (up to a limit of$25M) for a system to mitigate plasma disruptions that
could cause damage to the tokamak inner walls andcomponents.

Disruption Mitigation
System* SP-1 PEP describes SP-1 scope in detail.
** Design of the Tokamak Exhaust Processing and Disruption Mitigation Systems is in the scope of SP-1.
Any costs >$25M for the Disruption Mitigation System will be the responsibility of the IO.

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U.S. Hardware Contributions Assigned to SP-1 and SP-2

B-4

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Confirmation of SP-1 Hardware

B-5

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B-6

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Rev. 5.1, January 2017

B-7

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Rev. 5.1, January 2017

B-8

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U.S. CONTRIBUTIONS TO ITER
PROJECT EXECUTION PLAN
Appendix C
Integrated Project Team CharterC-1

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Rev. 5.1, January 2017

Integrated Project Team Charter
1.0 PURPOSE
This charter defines and integrates the roles and responsibilities of the US ITER IPT, which is
responsible for the completion of the US ITER Project for the Fusion Energy Sciences (FES)
Program in the DOE Office of Science (SC). The charter constitutes the agreement among the
IPT members as to how the subproject baselines will be managed, the coordination andcooperation that will be afforded to all team members, and the dedication of each team member
to the success of the project. This charter embodies the three basic tenets of an IPT: (1) the
Federal Project Director (FPD) is responsible and accountable for the overall success of the
project, (2) the IPT is an advisory and implementing body to the FPD, and (3) directcommunication is expected as a means of exchanging information and building trust.
This charter was prepared in accordance with the requirements of DOE Order 413.3B, Programand Project Management for the Acquisition of Capital Assets, and its implementation manual,
DOE Manual 413.3-1, Project Management for the Acquisition of Capital Assets. The charter
will be in effect until officially rescinded and will be updated by the FPD, as needed, to reflect
any changes.
2.0

PROJECT DESCRIPTION

The ITER is an international research project with a programmatic goal of demonstrating thescientific and technological feasibility of fusion energy for peaceful purposes, an essential
feature of which would be achieving sustained fusion power generation. ITER is a tokamak,
which is a type of magnetic confinement device in which strong magnetic fields confine a torusshaped plasma that consists of hot ionized gas of hydrogen isotopes (deuterium and tritium). The
construction site is located at Cadarache in southern France.
The major elements of the tokamak are the superconducting electromagnetic field coils thatmagnetically confine, shape, and control the plasma inside a toroidal vacuum vessel. The Magnet
System is comprised of Toroidal Field magnets, Central Solenoid magnets, external Poloidal
Field magnets, and field correction magnets. The vacuum vessel is a double-walled structure.
Inside the vacuum vessel, the internal, replaceable components (including the first wall modules,
diverter cassettes, and port plugs that contain the plasma edge limiters, radiofrequency plasma
heating antennae, and diagnostics) absorb the radiated heat and most of the neutrons from theplasma, thereby protecting the vessel and magnets from excessive nuclear radiation. The heatthat is deposited in the internal components and in the vessel is removed by the Tokamak
Cooling Water System. The entire tokamak is enclosed in a cryostat with thermal shields
between the hot components and the cryogenically cooled magnets.
Briefly, the scope of the US ITER Project (subprojects 1 and 2) consists of the following:
1. “In-kind” hardware for 12 specific ITER subsystems or groups of components. This effort
involves the design, fabrication, and delivery of designated hardware components that meet
the ITER Organization’s (IO) design and performance specifications as defined in each of the
18 Procurement Arrangements between the U.S. Domestic Agency and the IO; andC-2

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2. Operation of the US ITER Project Office (USIPO) that manages and coordinates all activitiesof the US ITER Project.
3.0 INTEGRATED PROJECT TEAM
Authority and responsibility for managing all DOE programs and facilities resides with theSecretary of Energy. SC has been delegated responsibility for comprehensive, long-range, basic
energy-related research, including state-of-the-art research facilities, crucial to achieving DOE’s
strategic goals. SC provides overall program policy and guidance, technical oversight, andbudgets for implementing its assigned role. As already mentioned in Section 1.0, specificresponsibility for the ITER Program has been assigned to FES, which provides funding for the
US ITER Project directly to ORNL via approved Financial Plans. The US ITER Program
Manager in FES relies on and uses SC and other Department organizations for support in
execution of the project. DOE has assigned overall responsibility for planning and execution of
the US ITER Project to the M&O contractor of ORNL, which is currently UT-Battelle, LLC.
Accordingly, the M&O contractor is accountable to DOE for its performance in executing the
project.
OSO provides day-to-day oversight of the project under the leadership of the US ITER FPD. An
IPT comprised of the DOE, ORNL, and other laboratory participants, when appropriate, has been
established to accomplish this project. ORNL has also established the USIPO that is responsible
for coordinating and managing the execution of all US ITER Project scope and for building astrong interface with the IO. Specifically, the USIPO has overall responsibility for planning,
design, R&D, and procurement of U.S. in-kind hardware, as well as providing the U.S. in-kindcash contributions to the IO. This section outlines the US ITER Project’s organization andmanagement approach.
DOE uses an integrated project teaming approach to manage projects. The IPT, organized andled by the FPD, is an essential element in DOE’s acquisition process and is used during allphases of the project’s life cycle. This team consists of professionals representing diverse
disciplines with the specific knowledge, skills, and abilities to support the FPD in successfully
executing the project. The IPT for the US ITER Project consists of members from both DOE andOak Ridge National Laboratory (ORNL). The team membership may change as the projectprogresses from initiation to closeout to ensure the necessary skills are always represented tomeet project needs.
The IPT:
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Supports the FPD;
Develops and/or participates in project planning, baseline development, and contracting;
Ensures that all project interfaces are identified, completely defined, and managed tocompletion;
Identifies and defines appropriate and adequate scope, schedule, and cost parameters;
Supports the preparation, review, and approval of project documentation, including thoserequired for Critical Decisions;
Reviews and assesses the project’s performance and status against the establishedperformance parameters, baselines, milestones, and deliverables;
Identifies and resolves issues;
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Plans and participates in project reviews, assessments, and appraisals, as necessary;
Reviews and evaluates baseline and funding change requests and supports the Change
Control Boards, as requested; andSupports the preparation, review, and approval of project completion and closeout
documentation.

Each member is responsible for supporting the project’s performance, scope, schedule, cost,safety, and quality objectives; for identifying and meeting the project and contract commitments;and for maintaining communication with other IPT members. The IPT is comprised of threemember groups (Executive, Core, and Support) with specific expectations for their
responsibilities.
3.1

Executive Members

The Executive Members provide executive leadership to the US ITER Project and champion its
success in their respective organizations. The Executive Members consist of the SC Associate
Director for FES, the ORNL Site Office Manager, and the ORNL Laboratory Director. These
members are responsible for ensuring that the necessary resources and support are provided andthat needed approvals are provided in a timely manner.
3.2

Core Members

The Core Members provide the day-to-day leadership for the US ITER Project and consist of the
FES Program Manager, the FPD, the US ITER Project Manager, and the Deputy US ITER
Project Manager. The FPD serves as the IPT Leader.
Federal Project Director – The FPD’s responsibilities are to:
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Lead the IPT, provide overall guidance, and delegate appropriate decision-making authority
to the IPT members;
Prepare and maintain this IPT Charter and operating guidance with IPT support;
Keep the IPT and senior DOE management informed;
Schedule and hold regular IPT meetings;
Initiate development and implementation of key project documentation (e.g., the Project
Execution Plan);Serve as the DOE Contracting Officer’s Representative for matters pertaining to the US
ITER Project;
Serve as the single point of contact between Federal and contractor staff for all mattersrelating to the project and its performance. Maintain effective communications among SC,
OR-ISC, the USIPO, and other cognizant DOE Site Offices;
Oversee implementation of project cost, schedule, performance, and scope baselines;
Provide day-to-day oversight of the project, anticipate potential problems, and take corrective
actions to minimize potential delays and cost growth;
Prepare and submit budget requests and funding documentation to the US ITER Program
Manager for funds required to execute the project;
Ensure that the US ITER Project complies with applicable environment, safety and health(ES&H) requirements, export controls, security requirements, public laws, regulations, andExecutive Orders;
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•
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Monitor and report on the performance of the project against established technical, cost, andschedule performance baselines, and monitor risk management planning and mitigation
activities;
Evaluate and verify reported progress. Make progress projections and identify trends;
Proactively identify and ensure timely resolution of critical issues within Federal control that
impact the project’s performance;
Approve changes in compliance with the approved change control process documented in the
PEP;
Participate in project reviews by DOE Headquarters and others;
Facilitate external audits of the US ITER Project;
Authorize the use of project contingency funds;
Control changes to the project baselines within the FPD’s authority per the PEP and seek
Headquarters approval for changes beyond the FPD’s authority;
Ensure that the contractor’s R&D, design, and procurement efforts produce in-kind hardware
per the specifications in the various U.S.-IO Procurement Arrangements;
In concert with the US ITER Project Manager, communicate and coordinate with the IO andother Domestic Agencies on the details of overall ITER construction project execution; andServe on the ITER Management Advisory Committee, as requested by FES.

Program Manager – The US ITER Program Manager in FES plays a key role in providing
programmatic guidance to the FPD and the IPT. The Program Manager’s responsibilities are to:
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Serve on the US ITER IPT;
Develop the US ITER mission need;Oversee development of project definition and objectives, technical scope, and budget tosupport mission need;
Initiate development of the Acquisition Strategy before CD-1 (during the period preceding
designation of the FPD);
Budget for funds required to execute the project, prepare and coordinate project budgetrelated documents, and provide guidance to the FPD and USIPO regarding future projectfunding scenarios;
In consultation with the FPD, issue monthly Financial Plan changes;
Lead efforts to prepare for and support ESAAB actions, such as baseline development asneeded for CD-2;
Coordinate initial approval and approval of updates to the PPEP/PEP;
Function as the central DOE Headquarters point of contact for project matters, such as the
U.S. Domestic Agency interface with the IO, external audits, and export controls;
Monitor and evaluate the project’s technical, cost, and schedule performance throughcompletion, and inform and advise the FES AD on major issues and facilitate theirresolution;
Facilitate the baseline change control process at the Headquarters level;
Coordinate with the FPD, IPT, other FES program elements, other SC staff offices, as
needed, to promote and expedite progress on the project;
Coordinate with OPA to plan, organize, conduct, document, and report results of IPRs andother project reviews;
Serve as the U.S. Government representative on the various ITER committees (e.g., MAC,
Council Preparatory Working Group, Executive Project Board) as necessary;
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Serve as the US ITER Contact Person (or assign this role to another FES staff member);Carry out U.S. responsibilities within the ITER Test Blanket Module Program; andFoster relationships with members of the U.S. and international fusion science community.

US ITER Project Manager – The US ITER Project Manager at ORNL is the contractor official
responsible and accountable for overall successful execution of the US ITER Project scope ofwork, including overall project management and ensuring that the project’s objectives in terms oftechnical parameters, cost, and schedule are achieved in a safe and environmentally compliant
manner.
The US ITER Project Manager’s responsibilities are to:
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Serve on the US ITER IPT;
Complete the baseline project scope (for subprojects 1 and 2), as described in Section 2.0
above, within their respective baseline completion schedules and TPCs;
Define and lead the contractor project organization, and manage day-to-day project execution
activities;
On a day-to-day working level, represent the U.S. Domestic Agency in dealing with the IO
and the other six Domestic Agencies;
Support the FPD in implementing DOE’s project management processes, and communicate
accurate and reliable project status and performance issues to DOE;
Provide executive-level management of R&D, design, and fabrication/ procurement of
hardware, payment of in-kind cash contributions to the IO, and ensure that all mission
requirements are fulfilled in a safe, cost-efficient, and environmentally responsible manner;
Implement an approved Earned Value Management System and provide monthly progress
reports to the FPD;
Proactively identify and ensure timely resolution of critical issues within the contactor’s
control that impact project performance;
Exercise full financial authority and accountability, as assigned by DOE, to develop budgets
and control US ITER Project work within the approved baselines and to control changes tothe approved baselines in accordance with the established configuration management
procedures;
Identify and proactively manage the project risks;Manage and direct procurements within the authority assigned by DOE, including theauthority to execute and deliver contracts, agreements, teaming agreements, purchase orders,assignments and instruments, and documents of any kind relating to the acquisition, sale, or
disposition of products, services, materials, supplies, and equipment relating to and necessary
and desirable for completion of the US ITER Project;
Provide input on project documentation (e.g., the PEP) and on developing and maintaining
the contractor project documentation;
Ensure that the US ITER Project’s ES&H and quality assurance goals are achieved;
Maintain overall responsibility for hiring and managing the human resources necessary tocomplete the US ITER Project; andMaintain relationships with fusion research programs worldwide that are designing andoperating similar tokamak facilities, and keep abreast of potentially significant developmentsthat could impact the US ITER Project.
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Rev. 5.1, January 2017The ORNL US ITER Deputy Project Manager reports to the ORNL Project Manager andoversees day-to-day management of the project.
3.3

Support Members

The Support Members are involved in the daily activities of the US ITER Project and havefunctions in project management, project controls, procurement, engineering, safety oversight,
and/or business operations that are integral to the project. Because of the progressive anddynamic nature of a project, the personnel skill and knowledge mix will change throughout the
project’s lifecycle. Unexpected events and requirements may arise that require resources beyond
that of the IPT. As such, the type and amount of personnel support will vary, and the IPT
membership may change to incorporate the necessary skills and expertise. This flexibility allows
the FPD to adapt the team to meet specific needs. The FPD and Core Members will identify
those resource gaps and determine the timing and level of support needed. The Executive
Members are responsible for ensuring that needed support is provided from their respective
organizations.
For DOE, support will be provided by a number of organizations within OR-ISC and OSO. Key
support members of the US ITER Project IPT include but are not limited to the following
organizations: Procurement and Contracts, Legal, Budget, and Finance, and Human Resources.
3.4 IPT Scope of Effect and Limits of Authority
The IPT is governed by this formal charter, which defines the scope of effort and the items ofauthority. The roles and responsibilities of the IPT members are specified in this section (Section
3).
4.0

REQUIREMENTS

The IPT members assisted the FPD in preparing this charter. The FPD, in coordination with the
US ITER Program Manager, will maintain authority for final decision-making and willcommunicate to the team the decision-making strategy used for specific issues.
The communications guidelines described below address how the IPT will operate.
4.1

Communications

Communications Internal to the IPT• The FPD will communicate to the team the goals and purpose of the team and all issues
related to successful team performance.
• The FPD will ensure that summaries are kept of all meetings and that appropriate
documentation is created, maintained, and distributed. This responsibility may be delegated.
Any IPT member is authorized to communicate with any other IPT member or support staff,
as necessary, to accomplish and fulfill his or her roles and responsibilities. Communications
between members of the USIPO and FES will include the FPD to the maximum extent
practical.
Communications External to the IPT
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Communications external to the IPT are the responsibility of the Core Members.
The FPD will ensure that adequate, frequent communication regarding DOE Policy and its
impact on the project is delivered to the contractor in a timely manner.

4.1.1

Meetings

The IPT will participate in the following routine meetings to support the FPD:USIPO Weekly conference calls / Meetings and Monthly topical IPT Meetings
The weekly Management call will be chaired by the FPD and the Project Manager and used tofocus on project issues and resolution among the Core Members. Other members may be brought
in as needed. Action items will be developed and tracked until resolution. Monthly topical IPT
Meetings will be chaired by the FPD and will focus on performance / status / functional issues
related to various functional areas of the project such as: design, fabrication, quality control, etc.
Draft Agenda(s)• Key project updates since last week.
• Status of last week’s action items.
• Identification of new issues requiring resolution and possible strategies.
• Coordination of upcoming information needs by the Core Members.
Monthly Performance Metrics Review
This meeting will be chaired by the US ITER Deputy Project Manager and will focus on scope,cost, and schedule performance to aid the FPD in project monitoring and reporting duties. The
basis for the meeting will be the Contractor Monthly Project Report and supporting metrics
tracking. The Deputy Project Manager and staff are responsible for organizing the meeting,keeping appropriate meeting records, and presenting performance information.
Draft Typical Agenda• Presentation of contractor scope, cost, and schedule performance;• Issues and corrective actions; and• Risk management.
The FPD and the IPT may schedule other meetings, as needed.
5.

RECORDSThe following records are generated by this charter and are retained:
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6.
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IPT Charter and subsequent revisions.
REFERENCESDOE Order 413.3B, Program and Project Management for the Acquisition of Capital Assets,
U.S. Department of Energy, Change 2, May 2016.
DOE Manual 413.3-1, Project Management for the Acquisition of Capital Assets, U.S.
Department of Energy, March 28, 2003.
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Acquisition Strategy for the U.S. Contributions to the ITER Project, U.S. Department ofEnergy,2016.
Project Execution Plan for the U.S. Contribution to ITER, U.S. Department of Energy, 2016.

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U.S. CONTRIBUTIONS TO ITER
PROJECT EXECUTION PLAN
Appendix D

Key Assumptions Memorandum

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D-3