ML19256E138

Forwards Matl to Ma Atty General Re Task Force on Emergency Planning,Including SECY-79-499,790619 & 0717 Memos & 790626 Draft Paper, Conceptual Model for Response to Nuclear Emergencies at NRC Licensed Facilities

ML19256E138
Person / Time
Issue date:	09/04/1979
From:	Ted Carter NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS)
To:	Burt L MASSACHUSETTS, COMMONWEALTH OF
Shared Package
ML19256E139	List: ML19256E138
References
NUDOCS 7910290280
Download: ML19256E138 (1)

Text

{{#Wiki_filter:Mb i i A RfC [ f,, UNITED STATES NUCLEAR REGULATORY COMMISSION y,e g sc j wAsmNGTON, D. C. 20555 O \\... * *o*q September 4, 1979 Ms. Laurie Burt Assistant Attomey Genceal Envircreental Protectim Division The r-re.alth of Massachusetts John W. McCcIrack State Office Buildirg One Ashb.zrten Place Bosten, Massachusetts 02108

Dear Ms. Burt:

Per our discussion last Friday, I am resperding to your letters to Mr. South ard to me regarding the FJJ0's Task Force on D::ergency Planning. I hope that the attached docunents satisfy your needs. If there are any questions or additicral infomation that you desire, please do rot hesitate to call me at 301/427-4152. Sincerely, Original signed b'y~ Thomas F. Carter T W m F. Carter, Jr. Deputy Director Division of Fuel Cycle and Material Safety

Enclosures:

1. SECY-79-499, dtd 8/21/79 2. Mem to Ccmissicn, dtd 6/19/79, subj: Fmergency Planning Issues 3. Meno to Comissien, dtd 7/17/79, subj: Discussion of Drergency Planning Issues 4. Draft "Cenceptual Model for Resw nse to Nuclear Emergencies at NRC Licensed Feilities," dtd 6/26/79 cc: Charles South 122S 027 7910290

Aucust 21, 1979 SECY-79-499 COMMISSIONER ACTION For: The Cc missioners From: Lee V. Gc aick ~ Executive Director for Operations

Subject:

REPORT OF TASK FORCE ON EMERGENCY PLANNING Purcose: To obtain Cemission action on the recomendations of the Task Force on Emergency Plarining. Discussion: The Task Force in Emergency Planning was established in Junr 1979 to identify weaknesses in NRC's emergency preparedness process and to outline an approach for improving MRC's overall emergency preparedness activities. The Task Force Report, subnitted on August 9,1979, is provided as Enclosure 5. The report is being placed in the Public Document Room and will be published shortly as a NUREG document. To assist the Comission in its review of the Task Force Report, MPA has sumarized the issues, problems, and tasks described in the report. This sumary is provided as Enclosure 1. As one of its major efforts, the Task Force oeveloped a list of 14 emergency planning issues (Enclosure 2). Public cement on these issues was so!icited in a July 17, 1979 advance notice of proposed rulemaking. Coments will be analyzed and inc.orporated into a draft rule that will follcw the usual rulemaking process. The final rule is expected to be published January 15, 1980. E. Hayden, MPA 49-27721 DUPLICATE DOCUMENT g') } ,t Entire documeiit previously [$ entered into system under: E ANO m No. of pages

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e MpA Suxarv of Recort of Task Force on Emercency plannine In June 1971, the E00 established the Task Force on Emerg cy planning in response to the TMI-2 accident, recommendations frcm a GAO report, and various petitions for rulemaking frem interest grcups. The Task Force was asked to develoc a list of major issues to be considered for procosed rulemaking, examine NRC's current emergency preparedness process, and recomend an apercach to NRC's overall erergency planning activities. The Task Force identified fourteen issues that were published for ccmment on . July 17,1979 in the Federal Recister in an advance notice of proposed rulemaking. After analysis of public coments, 50 will draft a rule that will folicw the usual rulemaking process. The final rule is expected to be published January 15, 1980. The rulemaking issues concern bread aspects of emergency planning, such' as: shculd NRC concurrence in State and local plans be required for a reactor to operate; what shculd be the objectives of emergency planning; hcw can financial assistance be provided to State and local governments; what should be the requirements for evacuaticn plans and drills; what should be the criteria for emergency plans; and how should Federal, State, local, public, and licensee emergency response efforts be integrated? particularly relevant to rulemaking are the issues pertaining to concurrence in State and local plans. The other issues can be associated with ~ current emercancy planning problems identified by the Task Force. The Task Force identified 30 problems in examining NRC's current ::rocess. These pr blems lie in six areas of concern to NRC: (A) responsibility and authority of emergency planning agencies; (3) the planning process; (C) acpropriate pre-paredness regulations and guidance co licensees and Fedaral, State, and local governments; (D) the licensing process; (E) emergency resconse imolementatien; and (F) emergency resconse testing and verification capability. Individual offices used these problen.s as a basis for laying out specific remedial tasks. 7he shcrt term tasks are expected to be ccmpleted by January 1,1980 and long-term ones by 1984. Resources The Task Force identifies the need for 44 additional people. These secole are needed for the following activities: E" Areas Around Nuclear ~acilities Should be Better pre:ared for Radiological Emergencies," Maren 1979. 1225 030

. (cont.). peccie Office Activity 8 NRR Evaluation / Instruction Teams 7 NMSS Environmental radiaticn and emergency support 19 IE 5 watch officers; 10.egional inspectors; 4 for planning and ocerations succort. 8 SP Quasi-regulatory field activities and inter-agency planning and coordinatien. 2 50 Restructuring of regulattens The Task Force Recort recommends: 1. Give promot high-level m.anagement attentien to emergency preparedness activities. 2. Establish a ecmittee to integrate, coordinate, and direct MRC's emergency pre-paredness activities and assure publicaticn of rule by January 15, 1980. The life of the cemittee should be for 2 years. 3. Create a position entitled, " Technical Assistant to the ECO fer Emergency Pre-paredness" to chair the cermiittee or as an alternative elect a chairman frem the c mittee. 4 Cevelop an integrated, ccmcrehensivg long-range plan for all of NRC's emergency precaredness activities 5. Disband the Task Force because it has fulfilled its responsibilities and lacks authority to compel sue'ained interoffice participation. 1225 031

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la ISSUES FCR CONSIDERATICN IN RULEMAKING (published in FRN July 17,1979) 1. Sasic emergency planning cbjectives 2. Effective emergency response plan contents and guidance 3. State and local emergency pian requirement for continued coeration J. State and local emergency plan requirement for new license 5. Financial assistance to state and local governments 6. Emergency response drill requirements 7. Notification of public prior to emergency 8. Actions in response tG reconrendations in NRC/ EPA Task Force report 9. Incident / emergency notification criteria

10. State / local / licensee influence en federal emergency plans

11. federal, state and lccal government interface during an emergency

12. Radiological emerge.1cy respense training responsibilities

13. Reliance placed en licensee for assessing consequences of accident 14 Public partipation in emergency respcnse drills 1225 033

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inclosure 3 30 Problems of Current NRC Process Identifiec cy tne Tas< Force on Emergency Planning Lead Office A. Resconsibilitv/ Authority 1. NRC's statutory responsibilites in FRPPNE unclear SP 2. Interagency coordination ill-defined SP/IE 3. Funding of State and local agencies to support EP* SP not integrated 4 Transportation EP inadequate NMSS 5. NRC role in EP inadequately defined IE 6. Licensee responsibility for offsite EP exceeds NRR/NMSS authority 3. Planning Proce,ss 1. NRC efforts currently fragmented EDO 2. Incident Response Program inccmplete IE 3. Consideration of Class 9 accidents in licersees' NRR/NMSS plans not required 4 NRC responsibility in FRPPNE not imolemented SP 5. EP research not comprehensively evaluated SP 6. No NRC control over resources of other agencies SP assigned to RAC C. Reculations and Guidance 1. NRC EP guidance non-specific NRR/NMSS/SP 2. EP regulations and their applicatico inconsistent SD and incemalete 3. Protective Action Guides not uniformly adapted or SP implemented 5. Licensing 1. Actual offsite capability not fully assessed by NRC NAW/NMSS 2. NRC concurrence in State plans not related to SP licensing process 3. Assistance to States not formally coupled to SP licensing process 4 Generic treatment of E? issues in public 50 hearings lacking E. Imolementation 1. Cocrdination of Pederal response affectf :3 licensed SP/IE i facilities insufficient 2. Inspection and licensing E? efforts net closely NRR/NMSS/!E integrated 3. Upgrace of ccerating facility plans to current criteria NRR/NMSS 4 Incicent response criteria for notifying NRC too loose IE/SD 5. NRC respcnse cacacility not fully establisned IE 1225 035 E? = amergency precaredness

2 !.ead Office E. Imclementation, cent'd. 6. Near-to-site facility for response perscncel ncn-IE/EC0 existent 7. NRC monitoring capability inadequate NRR/NMSS/IE 3. Procedures for informing public of accident ECO/PA status inadequate F. Testino and Verification Cacability 1. NRC-wide audit of EP non-existent EDO 2. Criteria for drills undefined NRR/NMSS/SP 3. Continued evaluaticn of training and qualificaticn SP of State and local personnel ncn-existent ) },),b

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Office Tasks Sorted by Problem A. gsconsibility/ Authority Ccmaletien FRPPNE SHOULD SE CLARIFIEC '4ITH RESPCCT TO NRC, Problem a TATUTCRY R.SPCNSIBILITIES g S 1' asks Query FEMA on status of FRPPNE Imediate b. If FRPP% still operative, review FRPPNE and Atemic Imediate Energy Act fer potential conflicts; propose changes. c. If FRPPNE is not operative, use results of'b." Imediate in NRC contribution to any auccessor to FRPPNE. d. '4crk with FEMA to develop the President's " National Early 1980 Condngency Plan;" take position ' hat the " National Contingency Plan" replace FRPPNE, ai,4 perhaps IRAP. Problem A-2 FCRMAL ARRANGEMENTS ARE ILL-CCFINED FOR INTER-AGENCY (FEDERAL, STATE, AND LOCAL) COORDINATION. THE PROCESS CURRENTLY IS ON A VOLUNTARY SASIS. SP Tasks - FRFPNE a. Outline what agencies should be involved in Federal Imediate coordinated radiological emergency response and how coordination shculd take piace. Seek other agencies' agreement. b. Outline how Federal agencies should relate to and Imediate cocedinate with State and local government agencies in such an emergency response. Seek other agencies' agreement. c. Use cor: rents on Advance Notice of Proposed Rulemaking Imediate for other ideas on respective roles and coordination of Federal, State, and local governments, d. Cceplete NRC agency response plan. Maren 1980 e. Stake out prcminent role for NRC in development of the Early 1980 National Contingency Plan under FEE leacersnip. f. ' Work with FEMA to seek a consensus among State and Early 19E0 local governments in radiological emergency response ano include this consensus in NRC and National Con-tingency Plan. g. Include appr:griate language in NRC regulations March 1980 related to State and local radiological emergency response plans. IE Tasks - IRM a. Meet with Forest Service concerning succort. August 1979 b. Icentify problems re TMI-2; IRAP agencies and others Septercer 1979 meet. c. Revise and rewrite IRAP. Long Tern 1225 038

4 Comoletion Problem A-3 THERE IS NO INTEGRATED FEDERAL MECHANISM FCR THE FUNDING OF STATE AND LCCAL AGENCIES TO SUPPCRT RADIOLOGICAL EMERGENCY PREPARE 0 NESS SP Tasks a. Ccmplete the NRC Funding Study (Salcman Report, NUREG-Immediate 0553). b. Based on Salcman Report, outline options for future Immediate action by NRC and FEMA. c. Request FY SO budget supplemental to assist States Immediate and Iccal governments, d. Develop proposed rulenaking or legislation to resolve December 19E0 the funding problem. ~ Problem A-4 RADIOLOGICAL EMERGENCY RESPONSE PLANNING FOR TRANSPORTATION ACCIDENTS IS INADEQUATE NMSS Tasks a. Urge 00T to do rulemaking to install the necessary Long Term regulations for augmenting transportation safety, b. If "a" is unsuccessful, seek legislative authority Long Term to effect the recommendations of the NRC/00T Task Force in NUREG-0535. Problem A-5 NRC HAS NOT A0EQUATELY DEFINED ITS RCLE IN EMERGENCY RESPONSE IE Tasks a. Ccordinate with NRR, NMSS, and SP on development of Short-T' era work statement to define spectrum of potential NRC roles. b. Prepare report on NRC role. June 1980 c. Prepare Ccamissicn discussion paper on NRC role. Long 7'er 1 Problem A-6 THE LICENSEE'S RESPONSIBILITY EXCEEDS HIS AUTHCRITY WITH RESPECT TO OFFSITE EMERGENCY PLANNING NRR Tasks - Reactors This area is not to be specifically addressed in the NRR action plan. NMSS Tasks - Fuel-cycle Facilities a. Exact through licensees the necessary arrangements March 1950 for supporting activities of State and local agencies having energency response roles. b. Exact througn byproduct material licensees 3he Oct:cer 1g50 necessary arrangements for succorting activities or State and local agencies naving emergency rescanse roles. j,') ') } () } } .a ~.

U J _3 3. Plannina Process Comoletion Problem 3-1 FCR THE EMERGENCY PLANNING OROCESS, NO EFFECTIVE MECHANISM EXISTS WITHIN NRC FOR ASSURING CONSIS-TENCY AND THE INTEGRATION OF GUIDANCE, i.e., THE EFFORT IS CURRENTLY FRAGMENTED EDO Tasks a. Recognize lead offices for the folicwing areas of res-Short Term pensibility: NRC cccr.end and control, including the Incident Response Center (IE) Radiological iaonitoring including equipment iden-tification and development of IRACT response (IE) Site licensing including retroactive actions and new rule development (NRR or NMSS) Training and staff assistance to licensees and State and local government (SP) Public information policy during emergencies (PA) b. Establish an emergency preparedness organization to Short Term provide a focal point for staff action. Problem B-2 NRC INCIDENT RESPONSE PROGRAM NEEDS EXPANSION AND FURTHER DEVELOPMENT. IE Tasks a. Upgrade Operations Center connunications. August 1979 ' b. Improve Operation, Center heating, ventilating, and air conditioni.3 August 1979 c. Revise Manual Chapter OE02 withcut defining NRC's role. Octocer 1979 Cecemoer 1979 d. Upgrade Cperations Center furniture. e. Upgrade Operations Center audiovisual sucpert. December 1979 Cecamcer 1979 f. Upgrade Operations Center support staff. g. Incorpcrate appropriate national-level planning Shcrt Term in guidance. h. Increase incident response program manocwer by E Long Term

i. Upgrade Goerations Center to handle data input (per Long Term Sandia Study).

J. Expand Operations Center to adequately succert incident Long Ter n response activities on extenced bais. Upgrade recording capabilities; revise telechene system. Long Term 1 Upgrade field ccrrunications. Long Term 1. Develop rulemaking to determine who pays for cceruni-Long Term cations at licensee sites. 1225 040

t 8 . Comoletion Problem 3-3 THE LICENSEE'S PLANNING IS SASED CN ACCIDENTS CF SEVERITY UP TO AND INCLUDING THE MCST SERICUS DESIGN BASIS ACCIDENTS. NRR Tasks - Reactors a. Revise proposed changes to Appendix E to reflect NUREG-Shcrt Term 0396 guidance; backfit Regulatory Guide 1.97 from TMI lessons learned. 2. Cetermine instrumentation needed to folicw the course Long Term of 3.n accident in support of 50 revision of Regulatory Guide 1.97. NMSS Tasks - Fuel-cycle Facilities a. Assess 10 CFR Part 70 emergency plans for adequacy in Shor: Term dealing with accident situations more severe than the design basis accidents; Backfit plans where needed (Schedule same as E-3)~ Long Term b. Request selected Part 30 and.40 licensees to submit - July 1950 emergency plans addressing severe accident situations. Establish through rulemaking requirements for emergency July 1981 c. plans to deal with more severe consequences than the accidents considered in the Safety Evalu'. tion Reports prepared in support of licensing action',. Problem 3-4 THE NRC RESPONSIBILITIES DELINEATED IN FRPPNE HAVE NOT SEEN IMPLEMENTED WITHIN THE NRC. SP Tasks a. Determine if FEMA expects NRC and other Federal agencies Immediate to do planning outlined in FRPPNE. (See A-1) b. Take position that " National Centingency Plan" replace Early 1960 FRPPNE and perhaps IRAP (See A-1). c. Prepare NRC agency plan and work with FEMA to develop Immediate the President's ' National Contingency Plan." d. Start work on NRC agency response plan and the " National Immediate Contingency Plan" called for in the Senate NRC Authori-zation Sill. e. Assure that the NRC agency plan is cor. '51e and is Early 1980 an appropriate part of.the " National Contingency Plan. ?rebiem 3-5 THE NEED FCR RESEARCH CR STUDIES IN THE EMERGENCY RESPONSE AREA HAS NCT SEEN COMPREMENSIVELY EVA' UATED. SP Tasks ~ a. List completed and ongoing emergency preparedness studies Immediate conducted in andfor NRC. b. Determine what emergency preparedness studies are ongoing Immediate Or comoleted at other Federal agencies. c. Seek NRC proposals for additional researen studies. Immediate 1?25 041

. Comoletion, ,SP Tasks, cont'd. d. Prepare research study procosals identified in "c." Sectember 1980 e. If required prepare additional research study pro-Long Term posals on e,mergency preparedness identified by TMI investigative groups. Problem S-6 NRC HAS NO CONTROL O'!ER OTHER AGENCY RESOURCES ASSIGNED TO THE REGIONAL ADVISORY CCMMITTEES (RAC'S) SP Tasks a. Send letters to appropriate Federal agencies to rec:mmit Immediate regional resources in terms of people ad funds for RAC's. b. Have FEMA possibly reestablish the RAC's on a formal basis June 1980 for all-hazards emergency planning. c. If "a" and "b" are unsuccessful in improving the control Longterm situation, consider lagislative remedy. C. Retulations and Guidance Preblem C-1 NRC EMERGENCY PLANNING GUIDANCE NEEDS IMPROVEMENT NRR Tasks - Reactors a. Elaborate in Regulatory Guide 1.101 on uniform action July 1980 level criteria. NMSS Tasks - Fuel-cycle Facilities a. Establish an interim position on requirements for non-Long[erm reactor licensee emergency plans. c. Modify Regulatory Guide 3.42, Revisicn 1. July 1981 c. Extend requ'rements for emergency planning to other December 1981 Part 70 licensees and to Parts 30 and 40 licensees; develop and prcmulgate aporocriate guidance. SF Tasks a. Develcp acceptance criteria for existing State and local Immediate government emergency planning guidance, b. Provide standardized scenarios to test licensee, State, Immediate and local government emergency plans. c. Prepare letters to other Federal agencies encouraging Immediate tnem to ccmplete their guidance documents, d. Carry over the acceptance criteria concept into regu-June 1980 laticns in accordance with expected legislative mandate. e. Deveico improved guidance hancbock for Federal agency June 19E0 assistance activities with the States. f. Precare an improved ;uicance document for the States June i?EO and lccal governments. 1225 042

. Ccmoletien Problem C-2 REGULATIONS HAVE VOIDS CR INCCNSISTENCIES RELATED TO EMERGENCY PLANNING. S3 Tasks a. (Require Part E0 and Part 70 licensees to maintain cur-Short Term rent emergency plans and require research reactors to submit an emergency plan for NRC review and approval.) b. Evaluate the need for an " Appendix E" for Part 30 and Long Term Part 40 licensees. Problem C-3 PROTECTIVE ACTION GUICES (PAG's) HAVE NOT SEEN PRCMULGATED AS OFFICIAL FEDERAL GUIDANCE. SP, Tasks a. Prepdre letters to EPA and ilE'.4 urging prcmpt action en Immediate converting " Agency guidance" PAG's to official Federal ~ guidance PAG's. D-L,icensinc Problem 0-1 CURING THE LICENSING PROCESS, NRC DOES NOT FULLY ASSESS ACTUAL OFFSITE CAPABILITY SUT LIMITS EXAMIN-l ATION TO THE PLEDGES OF RESCURCES. NRR Tasks - Reactors Assess offsite capabilities in licensing process Short Term S. NWSS Tasks - Fuel Cvcle Facilities a. Establish locations of existing State and local capa-March 1980 bilities to cope with emergencies at licensee locations. b. Categorize licensees based on offsite impacts; set priorities for action and assign required offsite response needs to each. October 1980 c. Assess and confirm the offsite cacabilitiat by actual Long Term inspection and discussicns with l'icensees and State and local agencies, d. Assist all parties in developing adequate amergency Long Term plans. Prcolem D-2 T'-!E NRC "CCNCURRENCE" RELATED TO STATE PLANS IS NOT DIRECTLY RELATED TO THE LICENSING PRCCESS. 4 SP Tasks a. Push for plan concurrences in States that have operating Immediate nuclear pcwer plants using existing guicance and pro-

cedures, b.

3egin codifying existing guidance into regulations. Immediate c. Ccmolete above tasks in accordance with time frames June 1980 specified in expected legislation. d. Shift from a :encurrence crecess to an approval June 1930 peccess ; sing tne new regula:icns. I225 043

-7~ Ccmoletion Prculem 0-3 THE ASSISTANCE TO STATES IS NOT FORMALLY COUPLED TO THE LICENSING PRCCESS. SP Tasks The emergency preparedness assistance orogram need not be ccupled to the licensing process. Problem 0-4 BECAUSE OF THE LACK OF A GENERIC TREATMENT OF EMERGENCY PLANNING ISSUES IN PUBLIC HEARINGS, THE SAME CONTENTIONS REPEATEDLY CCCUR IN PUBLIC PROCEEDINGS AND PLACE AN UNDUE SURDEN ON THE STAFF. SD Tasks 3. To ensure generic treatment of emergency preparedness issues: 1. Revise or develop Regulations and Regulatcry Guides Short Term - Apcendix E, Guide 1.101, and Guide 1.97 A proposed Egulation requiring concurrence in State / local plans as a condition for power reactor licenses. A proposed regulation requiring joint test exercises ence each five years and within one year of initial plant aperatier.. Revisicn 2 of Guide 1.89 on qualification of equiment. A proposed rule or policy statement on the emergency planning feasibility in censidering alternative sites in the licensing process. 2. Resolve Critical Mass Petition for Rulemaking, October 1980 revise Reg. Guides 1.101, 3.42, and 2.5. 3. Develop emergency preparedness regulations for Octcber 1981 research reactors and reassess regulations for Part 70 and Part 30 licensees. E. Icelamentation ?rcelem E-1 INSUFFICIENT NRC ATTENTION HAS EEEN GIVEN TO CCCRDINATING THE FEDERAL RESPCNSE AFFECTING LICENSEJ FACILITIES. SP Tasks - FRPPNE Tied to otner actices enes dealing with FRPPNE and Short Tar?, IRAP and witn NRC's incident response progrim in A-1, A-2, and E 4 "E Tasks - IRAP See A-1, A-2, and 3 4 ,s n, i !!.' D I) k k

-g-Ccroletion Problem E-2 LICENSING AND INSPECTION RESOURCES NEED EXPANSION TO BETTER IMPLEMENT THEIR EMERGENCY PLANNING EFFCRTS. NRR Tasks - Reactors Evaluate licensee plans - qainst current criteria (E-3) Short Term Eudcet process to succo-Reg. & guide Changes, Gffsite Long Term monitoring, information gathering NMSS Tasks - Fuel-cycle Facilities a. Install an Environmental Radiation and Emergency Support Fall 1979 Section (ERESS) that will guide and ccordinate NMSS activities relative to emergency preparedness. IE Tasks a. Annually observe licensee emergency plan drills for power Short Term reactors. b. Revise manual procedures based on results frcm initial April 1980 inspections. c. Evaluate State agency readiness: Develop procedures for evaluating State agency performance. Annually conduct evaluations as part of routine inspecti'ns. d. Develop emer-gency preparedness activity requirements for material licensees: Icentify categories of licensees that should be included. October 1979 Develcp and improve requirements (N"55) January 19E0 Develop procedures for inspecting licensees July 1980 Commence inspecticns. October 19E0 Preblem E-3 THE PAJCRITY CF CPERATING FACILITIES HAVE NOT EEEN EVALUATED AGAINST THE STAFF'S CURRENT CRITERIA FOR EMERGENCY PLANNING. NRR Tasks - Reactors Evaluate licensee plans acainst current criteria Short Term NMSS Tasks - Fuel-cycle Facilities a. For those NMSS licensees already required to have approved emergency plans: Define current criteria Short Term Review existing requirements, guidance, and licensee Shorc Term clans and define deficiencies 1225 045 +e,

- g-Ccmoletion NMSS Tasks b. For those NMSS licensees not presently required to have approved emergency plans: Seek short-term remedies in existing regulations and Short Term guides. Implement short-term remedies for high-risk licensees Short Term by Branch positions or mutual agreements with licensees. c. Deveicp requirements for approved emergency plans for December 1980 activities licensed under Parts 30, 40, and 70 and install through rulemaking Cevelcp and promulgate necessary guidance. July 1981 Problem E-4 THE INCIDENT RESPONSE CRITERIA FOR TIMELY NOTIFI-CATION OF THE NRC NEED TO BE TIGHTENED. IE Tasks - Criteria a. Adjust criteria based on respenses by licensees until ~ Short Term appropriate type and degree of information is obtained, b. Revise procedures for hand'ing information within NRC Short Term c. Revise HQ Incident Response Plan and inform licensees Long Term of revisiens. SD Tasks - Regulaticns 1. Review and analyze NRC's current rules, records, and Unspecified practices involved in petitioner considerations.' Radioactivity in effluents to unrestricted areas Notifications of incidents Emergency plans for production and utilization facilities Emergency plans for production and utilization facil-ities Emergency plans for Part 50 and Part 70 licensees Regulatory Guides 1.101 and 1.16, Appendix A. Prebiem E-5 AN CRGANIZED " FACILITY CLASS CRIENTED" NRC RESPONSE CAPA8ILITY HAS NOT 3EEN FULLY ESTABLISHED. IE Tasks a. Identify incident respense organization both at HQ and Shcrt Term site. 5. Begin exercise program to retain proficiency gainec during March 1980 D11-2 experience, l22S 046

. Comoletion Problem E-6 THERE IS A NEED OURING AN ACTUAL EMERGENCY FCR NEAR-TO-THE-SITE FACILITY TO HCUSE THE MULTI-AGENCY CCCRDINATICN AND RESPCNSE SUPPORT ACTIVITY IE Tasks a. Integrate site support and functions with Regional Short Term Office response b. Identify operational and support requirements and Shcrt Term have ACM make prearrangements to obtian. support during incidents; incorporate in Incident Response plans. c. Based on definition of NRC role

• revise existing Long Term support capabilities.

ECO Tasks a. Likely designate IE lead office. Long Term b. Define emergency preparedness respcnsibilities to Long Term avoid cverlap; ccordinate IRAP and 00E resources c. Integrate drills or tests of response plans into Lcng Term the progrun. d. Explore modular concepts for facility. Long Term e. Give priority to radiological monitoring. Long Term f. Assign SS and NRR responsibility for providing Long Term technicai personnel and equipment for mobilization of the respense teams. 'Preblem E-7 NEED EXISTS FOR EXPANCED NRC MONITORING CAPABILITY NRR Tasks - Reactors a. Develop lists of parameters needed for expanded moni-Short Term toring capability NMSS Tasks - Fuel-cycle Facilities a. Survey licensee activities having the potential for Short Term significant offsite adverse impacts due to accidents, sabotage, or severe natural phencmena through a survey questionnaire. b. Analyze data for possible NMSS-unique monitoring Short Term requirements. c. Ecuip NRC response teams to assess environmental Long Term contamination resulting frem unplanned releases frcm NMSS-licensed activities. c. Identify likely centaminant isotooes and levels as Lcng Term part of licensee emergency olans to te recuired by regulation, e. Convey any special monitoring needs for evaluation Long Term anc imolementation to IE. I??5 047

. Comoletion IE Tasks a. NRC offices will identify areas @ere expanded NRC monitoring capabilities are necessary: Define operational carameters January 1980 Define environmental monitorin capability October 1979 Define plant discharge monitoring needs January 1980 b. Procure equipment and develop procedures for use: Place TLD's around operating power reactors January 1980 Collect NRC's TLD's. January 1980 Order monitoring equipment April 1980 Develop budget supplement not included in above. April 1980 c. Procure equipment / data links for NRC Incident Response Center: Procure operational parameters April 1980 Procure plant discharge monitors July 1980 Problem E-8 PROCEDURES FOR DISSEMINATION OF PUBLIC INFOR-MATION ARE NOT ADEQUATE ECO Tasky a. Coordinate development plan for information policy during future emergencies: Designate a primary NRC spokesman Shcrt Term Issue a pre-announced schedule of statements, press conferences, and bulletins; discusssource tem monitoring results; buildup of emergency response assets; relationships with cooperating agency spokesmen, State and local designated spokesmen, and licensee spokesmen; specific areas of NRC lead authority. F. Testing and Verfication Caoacility i Problem F-1 THERE HAS NEVER SEEN AN NRC-WIDE AUDIT OF THE EMERGENCY RESPCNSE FUNCTICN ECO Tasks a. Make a self-audit of the agency emergency preoaredness December 1980 program. Problem F-2 EVALUATICN CRITERIA FOR CRILLS/ EXERCISES ARE NOT DEFINED 1RR Tasks - Reactors a. Develco criteria for joint exercises. Shor: Term 1 MSS Tasks - Fuel-cycle Facilities a. Possible second review of post-licensing emergency Short Term plans for fuel-cycle facilities 1225 048

. Comoletion NMSS Tasks (continued) b. Review emergency plans submitted in support of Short Term renewal applications c. Integrate renewal application criteria with devel-Long Term opment of criteria for review of new emergency plans, d. At five-year intervals, reevaluate emergency plans Long Term against up-to-cate criteria. e. Develop and/or adopt from NRR, criteria and procedures Long Term for post-licensing reassessment of emergency support capabilities. Proolem F-3 THERE IS NO EFFECTIVE NRC MECHANISM FCR CONTIN-UED EVALUATICN CF THE TRAINING AND QUALIFICATION OF KEY STATE AND LCCAL EMERGENCY RESPONSE PERSONNEL SP Tasks a. Determine the attrition of NRC-trained emergency Immediate response personnel since Marcn 1975. b. Determine training and replacement training neecs of Immediate States and local governments for the next five years. Establish Federal mechanism to certify emergency June 1980 c. planning and response personnel, d. Establish re-training programs. Septemcer 1980 e. Establish additional required training programs. December 1980 1225 049

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{ '~ g:- =- I August 9, 1979 . EMORAN004 FOR: Chaiman Hendrie Corxtissioner Gilinsky Corxtissioner Kennedy Comissioner Bradford gf{n3; [ g Qpgqdg ,.g"Op Comissioner Ahearne .j ~ THRU: Lee V. Gossick Executive Director for Operations FROM: Thomas F. Carter, Jr., Chair =an ~ Task Force on Emerger.cy Planning

SUBJECT:

FINAL REPORT OF TAT 4 FORCE CN EMERGCICY PLANNING The Task Force on Emergency Planning, which was established by the Ces:rissica in its r::eeting of June 7,1979, was given three general responsibilities: (1) develop for Cc=ission consideration a list of major issues for rule-caking; (2) describe and objectively critique NRC's curra.nt emergency planning = process; and (3) define and recernend an approach for developing a ecc:::re- - hensive plan that would formulate the scope, direction, and pace for NRC's . C.52 'verall emergency planning activities. (Specific res;:ensibilities were

• == celineated in a memoranfun from Lee V. Gossick dated June 11, 1979, and in a SECY memrandum dated June 12.1979.) Enclosure 1 lists members of the Task Forca and a su;: porting Working Group.

The Task Force has ce=;:leted its assigned responsibilities, and herewith is reporting the results of its activities. De list of =aju issues cevelo;:cd by the Task Force was sent to the Cecnission via mcmcran% of June 19, and a discussion of each of the major issues was sent *' July i7. The descrip-tien and criticue of the current emergency planning process, which was discussed during a Cc ::ission briefing held en June 23, is su:=nrized in. The critiyae produced an extensive set of problem tcpics, unich 2re also sat fortn in Enclosure 2. The cce;:rehensive action plan (Enclosure 2) presents staff plans for resolving the problem topics centained in Enclosure 2. y" 9 g 6 MJ 1225 051

The Cc=tissicners j ". T. Jam;cchian (50), in c:nsul.atien ;i:h all pecgra :ffices, has :re:arel drafts of cro;csed amendments to.i?.C regulations in cr:er :: resclve many of the Oroblems that have recently surface: '. the emergency ;reparecness area (Enclcsure 4). The Task Force eercers, re::gnizing tha: the s:ecific language of the cropcsed regulaticns must be carefully assessed, unani cusly sucocr: the basic crinciolas presented in "r. Ja ;;;hian's cre: se: changes. Sin:e State / local :lan concurrence is to be a key facter in the ; reposed regulation char.ges and will 1 cac On the decisicr. :: issue a license, sericus censiders-tion must be given to how this cencurrence ;r: cess is integra 3d into the rescensibility of the licensing offica. Early cements and suggestiens frem the Ccmmissioners en these proposed amend ents wculd be hel:ful to SD in pro-meting rapid develeccent of the needed rule chances. / / / [ .reras F. Carter, Jr., Chairman Task F rce en Emergercy Planning Enclosures

• 1.

List of "emcers-Task Force and Working Group 2. Description a Criticue of TIRC's Current Emergency Preparedness Process ~ 2. Ccrorehensive Action Plan 4 Draft Procosed Ame'1drents to 10 CFR Part 50

u/encicsures:

iM5 052 ' ~ ~ L. Cickwit, CGC

3. Chilk, SECY A. ::anneke, CPE e

559 Task Force on Emergency Plannine Members T. Carter, NMSS H. Collins, SP P. Ccmella, SD J. Ourst, RES

8. Grimes, NRR J. Hegner, IE W. Houston, MRR M. Jamgochian, SD J. Long,TNSS M. Sanders, SP J. Sniezek, IE

0. Thempson, IE R. Voegel1, ELD CM:;

Workinc Group ~ C. South, Group Leader,imSS R. DeFayette, SP J. Dukes, SP J. Curst, RES F. Fisher, NMSS H. Gaut, SP J. Hegner, IE G. K11gfield, NMSS F. Lcmax, NHSS R. Priece, NRR M. Sanders, SP J. Sears, NRR J. Snierek, IE l 2 ['? S 0 5 3 e..u. e ..-... ~. - - ~ - -

Enclosur 2 Y-

• Tl.2.T DESCRIPTION AND CRITICUE OF NRC'S CURRENT BERGENCY PREPARCNESS PRCCESS*

As a basis for future emergency planning activities, NRC's current emergency preparedness process was systematically described and analyzed for deficiencies cr potential weaknesses. The description and critiquing were done by a separate working grcup c:nsisting of representatives from NRR, NMS3, IE, and SP. Task Force mmbers further refined the working group's produe: cf 50 prebiem t: pics and used these problem topics to prepara action plans for individual NRC offices. Descriotion of Current bercency Precaredness Process ~ To achieve an orderly and systen.itic descriptien of NRC's emergency precaredness activities and to provide a means for an objective critique of that process. GR the working grcup developed a three-dimensional (4 x 4 x 7) matrix containing 112 cells. One dimension of the matrix represented the classes of participants in the radiological emergency preparedness pr: cess: (a) NRC; (b) Licensees; (c) State and local agencies; and (d) Other Federal agencies. The sec nd dimension represented the varicus phases of emergency preparednc3s: (a) Planning; (b) Licensing; (c) I=plementation and testing; and (d) Actual emergency response. The third dimensien c:nsisted of the folicwing factors: (a) Responsibilities; (b) Limitatiens; (c) Objectives; (d) Activities (expenditure of resources); (e) Pr ducts, goeds, and services; (f) Organi:stien (the entity ;er'orning the activities and/cr delivering the products for the particular cell under censideratien);and (g) Interfaces. Use of this methodology forced a disciplined censideration of the entire emergency preparedness process. Each cell of the matrix was filled in only after detailed

• The Task Force uses the term ' Emergency Preparedness' in preference to the term

'hergency Planning' because eergency precaredness connotes the wncle of

1anning, imolementation, and execution.

1225 054

• mm:

~2* FEET and smetimes lengthy discussion'among members of the working group. Time constraints necessitated use of capsultzed descriptions within the cells that were intelligible to members of the " working group but would not be very 'meanir #ul to outsiders. (Meaningful description of a cell's centents would require two or three pages of text, and time was not available for preparing such a dccument.) Cbiective Criticue of Current process Upon completion of the matrix describing the current emergency preparedness process, members of the working greup preceeded to examine each of the cells for defi'ciencies and weaknesses. This analysis produced a list of 30 pecbles topics that, for ease of discussion, were grouped in six areas. Preblem areas were: (a) Respcnsibility and Authority; (b) The Planning Process; (c) Regulations and Guidance; (d) !.fcensing; (el Implementation; and (f) Testing fM and Verification of Capability. g The list of problem topics was' valuable to the Task Force not only because of the systematic basis upon which it was prepared but also because the meubers of the working grcup were able to agree on the wording of the problem topics and the supporting descriptions. Subsecuent Use of problem Tooics Given the list of 'prcblem topics developed by the working group, the Task Force members modified the problem wording and descriptions in accordance with their own perceptions, and proceeded to define an appecach to resolving the prcblems. Sme problems wre believed capable of resolution in the short tem (six cenths or less). Others were seen as taking longer than six months. Still others were identified as amenable to both short-and long-tem resolution; ' hat is, some of the identifiable tasks could be done quickly whereas other tasks that were part of the same pecblem would take censiderably longer to achieve. T* 1225 055 -_m_.-

3 On the folicwing list of problem topics a notatien indicates whether ths Task Force believes the problem can be solved entirely in the short term, 7 partly in the shcrt term,' or will require a longer time for resolutten. The list also identifies offices having lesa and succort roles in effecting resolution of each of the prehlem tepics. Office " Action Plans" were prepared to describe hcw the problems would be resolved. For any given problem topic, a leak at the actica plan for the lead office shculd indicate how that office expects to effect the resolution. Office action plans are contained in Secticn VI of the NRC Acticn Plan. In the listing that foT1cws, each arcJem area is identified by a letter (A, thrcugh i). Within each area, each problem topic is identified by a number prefixed by the letter for the area 91 thin which it falls, thus: A-1, A-2, ate. Listino of Preblem Tooics Rescensibility/Authorit 3_ Six proble= t: pics were identified in this important area of emergency planning and response. Scme of the problems in other problem areas derive frem caissie?s or lack of effective mechanisms described here. In fact, seme. of those problems may not be amenable to solution unless ~~ these are corrected first, or at least concurrently. A FRCPNE* shculd be clarified Resolution: Long term with reseect to NRC's Lead: SP statutcry rescensibili:1es. Support: NRR/fotSS/IE Under the FRPPNE* divisien of authority for c:ntrol of Federal response at a licensed nue. lear facility, the NRC leadershi'p role is reduced to support status as scen as offsite casualties or widespread centamination oc::ar. The logic for this choice is that the agencies having rescurces required to centrol and mitigate the consr.puences of a disaster can best manage the totai Federal respense to an emergency. It may be, however, that the explicit and implicit concerns for the public health and safaty c:ntained in the Atomic Energy Act would require NRC to maintain

• The FRPPNE (Federal Response Plan for Peacetime Nuclear Emergencies) was cro-mulgated by the Federal Precaredness Agency (new par of FEMA) in Acril 1977 as interim guidance to Federal agencies in the revisien of existing pl'ns and the crecaratien of any retuired new clans.

It is guidaace for, peacetime nuclear emergency res:ense planning. It is not a Feceral res:7 te plan, er se. .si It has not been issued as :ernanent guidance. With en aception, One planning ~ called for by MRC in the FRPPNE has baen dcne or centin.u to be done. The exce:-icn calls for an NRC plan to rescend to a "Categcry III" incident wnere there is widespread radicactive contaminatien at a licensed nuclear facility in a recc:e area wi-h limited casualties but significant procer:y damage. 1225 056

g. c. cantinuing control of many aspects of emergency operations at a ifcansed nuclear facility, even after offsite cantamination and casualties have occurred. A Fome1 arrangements are ill-Resolution: Short and Tong tern ~ cefineo for interacency ifederal, Lead (FRPPNE): SP State, ano local) coore1 nation. Support (FRPPNE): IE The crocess currentiv is on a Lead (IRAP): IE voluntary casts. Support (IRAP): NRR/NMSS/SP Federal agencies recognize the supremacy of State and local goverments to direct emergency response efforts within their Jurisdictions. Those Federal agencies preparing emergency response plans, rules, and requiations have routineTy ensured that those documents reflect the prerogatives of State and local authorities. Moreover, the intagrated Federal.mergency response program 1: it exists today gives an almost similar sovereignty to the preregatives and authorities of the Federal agencies who cooperate in the emergency planning. Hence, the limits =- 1]- of ecoperation, coord.ipation, and designation of rescuicas in the planning stage is essentially limited by the decision of each agency. The primacy of State and local. authority in planning for energency respense wi11 (and should) cantinue to exist, even though it ecnsumes planning resources and ccmolicates national planning. If the national emergency preparedness effort is to be effective, it must be based en more ccmpulsive legislative mandate that assigns authority and respon-sibility so that the traditional prerogatives and jurisdictions of individual Federal agencies do not limit the u'timate effectiveness of the plan. A There is no inteorated Faderal Resolution: Short and long term mecnanism ror tne runcing or Lead: SP State ano local acenc7es to Suppcrt: N/A succor: raciotoc1 cal emergency crecaracness. 1225 057 L----i::::. g.

. -. sam Ot. er Federal agencies expend resources in assisting, and granting funds for, State and local agencies' general emergency planning. NRC expends resources, not yet including grant funds, to provide assistance to State and Tocal agencies for radiological emergency preparedness. There is no Federal mechanism for integrating NRC's effort with the other rescurce expenditure efforts. ~ A Radioiceical Emereency Reseense Resolution: Long ter.s Plannino for transecrtarten Lead: NMSS accicents is inacecuate. Support: IE/SP/SD Because of the split and overlap of authority of the NRC and other agencies that regulate inter-and intrastate transport of licensed nuclear :caterials, there is no clear designatien of responsibility for energency preparedness functions. This situatien is complicated by the fact that shipnents involve licensed shippers and receivers, government shippers and receivers, and unlicensed carriers. This subject has been discussed in detail in a 1979 GA0 draft report, " Nuclear Materials Transportation: Federal Actions Are Needed to Improve Safety and Security. ar=- A NRC has not adecuately defined its Resolution: Short ter.n role in emereenev rescense. Lead: IE Support: NRR/?NSS/SP/EDO NRC's role has not been, defined in NRC Manual Chapter 0502. The range of response, role frem monitoring to operational centrol was only implicitly addressed in NRC planning and precedures prior to TMI. NRC's resconse during TMI was an ad hoc respcnse based upon a perceived role. A The ifcensee's rescensibility Resolution: Short ter.n e.xce-as nis autnerity witn Lead: NRR/NMSS reseece to offsice enercency Support: IE/SP eiannino. NRC requires the licensee's plans to provide reasonable assurance that apprcpriate protective measures can and will be taken to prctect the pubite health and safety. Eecause neither NRC nce tne licensee has authority over offsite rescurces (even though the licensee may donate equi:: ment and training), the planning process between the 11censee and Federal / State /lcesi acencies is voluntary, unenforceable by NRC or the licensee on Federal, State, and iccal 1225 058 ex semaqyew-

4 m;n._ Ehii agencies and difficult to validate. a_ - Plannine Precess Six problem topics were identified in the area of the planning process for identifying, developing, or providing emergency planning products, goods, or services. These are, for the most part, internal to NRC; however, some affect--or are affected-by other agencies. 3 For the emercency elannino orecess, Resolution: Short ter.n no effective meenanism exisa witnin Lead: EDO ~ hac ror assurino consistency ano tne Support: All offices inteoration of cuicance. i.e., tne errort is currently tracmentec. Sergency planning cuts across several NRC office lines during the process of generating guidance to ifcensees and others. However, there are no effective NRC-wide procedures in picce or organizational arrangements established to ensure that adequate and clear guidance results. This lack is particularly m_. imoortant in view ofJhe many interfaces involved, inclu.!ing the ifcensee, -+ State, local, and oS.her Federal. agencies. Currently, several organizations within the NRC can and do issue guidance to licensees without the recuired kncwledge of or concurrence by all other interestad organizations before the fact. This includes NRR, NMSS, SD, and IE. Also, SP does the same for other than ifcensee organi:ations/ agencies. Although infor.a1 internal coordination among interested parties is practiced, it is by no means certain that all coordination that is needed is per#crmed. Since scme of the coordination is verbal, it is not easy to observe or reconstruct. 3 NRC Incident Resconse Procram Resolution: Short and'1ong tern neecs excansion ano rurtner Lead: IE ceveloc=ent. Support: NRR/NMSS/SP Secticn 0502-01, Coverage, states " Guidance required for national level emergency planning is not currently included in this chapter. Witn modification, 1225 059 e .e-

the scope of the incident respcnse program can be broadened to include such events." Such a modification is in ordar to make Chapter 0502 responsive to the post TMI environment and current NRC needs. In additicn to' the above, the incomplete or delinquent parts of the NRC Incident Response Program should be provided. Not al.1 procedures or data required have been suppif ed 'a date. B The licensee's clannine is Resolution: Short and long term caseo en acc1 cents or Lead: NRR/:f1SS severity ua a anc includino Suppcrt: IE/SP/SD

ne r.csc serious cesign basis acc1 cents.

Prior to TMI there was no explicit recognition given to Class 9 accidents in the emergency planning process. TMI highlighted the question whether NRC should require emergency planning for Class 9 accidents. .==. "M= 8-.i - The NRC resconsibilities. Resolution: Long tern ~ delir.eated in FRPPNE*have Lead-SP not ceen imolementeo witnin Support:. NRR/M4SS/IE/EDO the NRC. The Federal Respense Plan for Peacetime iuclear E::ergencies (FRPPNE)* identifies the NRC as an Operational Response Planning Agency (GRPA) for t/o categories of peacetime nuclear emergencies (PNE's) frat a comprehensive set of fcur categories of such emergencies. The CRPA respcnsibilities are to: (a) Deternine the complete list of Federal and private supporting agencies and enlist their assistance. (b) Provide guidance, peculiar to the operational response planning ,ancy(s) type of PNE, for use by appropriate Federal sucpert agencies. This cuidance should include assumetions and casualty and crecer*v damace estimates that can be used as a standard data base for 31annina. (c) Ensure that all functions essential to an effective response are included in the planning for which the operaticnal planning agency has the lead res;cnsibility. These functiens shculd include -he 32 - See factnote on page 3. 1225 060.

-- L= technical ones, required to assess, counteract, and control the radiological effects; the humanitarian ones, designed to minfui:e the impact on individuals; and the recovery ones, directed at restoring essential services to the affected area. NOTE: The functions included in the above responsibilities include but are not limited to these: notification, c:mnunication, evaluation, decision =aking, pubife infomation, law enforcement, health and safety services, survival operations, international relations, and short tam recovery operations. 3 The need for research or studies in Resolution: Short tem

ne emercency resoonse area nas not Lead:

SP been comorenensively evaluated. Support: All staff offices NRC has sponsored a modest research/ study program in areas related to emergency planning and respor.se. However, it should be detemined if additional efforts are needea to validate our current planning and response concepts. 3-6-NRChasnocon51overother Resolution: Long tem acency resources assioneo a the Lead: SP Realenas Acylsory Ccamit:aes Support: IE (RAC's The resources that other agencies supply to the 10 RAC's are detemined by them and are offered on a limited time basis. Therefore, the scheduling and cocrdination that ensues is captive to a voluntary and uncertain set of circu::: stances that can produce variable results affecting quality of output. It is not clear that NRC's requirements will be met under this voluntary arrangec:ent. Similarly, NRC's cwn representation to the RAC's is extremely ifmited and on an additional duty basis. C Reculations and Guidance Problems exist in the areas of both regulations and regulatory guidance. Regulations are incomolete in some parts, and guidance is inadequt.te in tems of the lack of acceptance criteria and the frequent use of e.her =Ek 1225 061 = -~. ._n-~ ~ _ - - - -

. = = - . = = - than Regulatory Guides as a source of ifcensee guidance. C NRC emercency olannino Resolution: Short and long tern culcance neecs imcrevement. Lead (Licensee): NRR/f@tSS Support (Licensee): All staff offices Lead (State / local): SP Support (State / local): All staff offic_es (a) It does not necessarily contain specific NRC acceptance criteria; (b) it is not restricted to that which is needed for imolementing the

• NRC position as defined in Regulatory Guides (e.g., branch technical positions, bulletins, etreulars, generic letters, etc.).

While accestance criteria can be developed for strictly ifcensee functions, there is a question whether the tem " acceptance criteria" is applicable to the offsita elements of the emergency plan. Because of the uncertainties rooted in the lack of criteria for an emergency ]- plan, most of the offsjte elements of a licensee's plan are generated in a quasi-regulatory annosphere. The draft of revised Regulatory Guide 1.89 on qualification of equipnent to radiation source tems should be issued. C Reculations have voids or Resolution: Lono tem inconsiscencies relatec to Lead: SD emercency osannino. Support: NRR/NMSS/IE/SP Part 50, Appendix E, requirements have not been applied to research reactors licensed prior to its adoption. Part 30 does not require energency plans or procedures. ?ar-so ices nct recuire energency' plans. part 70 does not require all ifcensees to have approved emergency response plans. There is no requirenent that emergency plans be kept up to date. MWjk - =:; i??S 062 .m.em om-m**

...Ew. ggy-=. C Protective Action G'uides have Resolution: Short tem not been cremulcated as Lead: SP officiai f ecerai cuicance. Support: N/A

/ Protactive Action Guides (PAG's) were pn

mulgated as official guidance fran the Federal government, it is likely that PAG's would be more unifornly adoptec L.d implemented by all parties involved.

0 Licensina Four problem areas exist in licensing *a meet radi,ological emergencies. Three of these relate principally to the capabilities and degree of connit:nent of resources extarnal to the site for use during energencies. The fourth addresses the problem of NRC interaction with the public, during the licensing process, withcut a well-defined generic b' asis for . response. D Durina the 11censino crocess, NRC Resolution: Short tens coes not fuliv assess actual Lead: NRR/NMSS offsite caoability but limits Support: IE/SP/EDO examTnation to cne oleoces or resources. The licensing of facilities to assure an adequate response to nuclear emergencies may include field trips by NRR/NMSS to discuss the capabilities available offsite in addition to IE's perspective of such capabilities. These may take the form of assess =ents or evaluations of these resources, at least in the nu:rters, types, training curricula, etc., but normally do not include a ccmprehensive assess =ent of rescurces Tikely to be brought to bear. As such, the ac: Jai capability available is not knCwn in Very great detail either before or after a license is granted. 0 T*1e NRC " concurrence" related to Resolutien: Short term State clans is not directly Lead: SP re ateo 4 ne i1censtne =cocass. Support: NRR/NMSS Present cencur ence in State plans by NRC is neither necessary nor sufficient for the licensing decision-making pr cess. 7 1925 063 u.. e +-

a ~"- - -. - - - = - .. =. D The assistance to States is not Resciution: Long term ior.a11y couo a ec to tne Lead: SP licensino crecess. Support: NRR/NMSS The planning assistance that NRC provides to States, though small currently, is not necessarily targeted to support NRC requirements as articulated via the licensee's emergency response plan approved by the NRC. Thcugh the resources 1:ay be applied to desired areas, there is presently no way to assure that this cccurs. 0 4 - Because of the Tack of a ceneric Resolution: Long termi treatment of emeroency olannine Lead: SD issues in cuolic nearinos. tne Support: NRR/NMSS same contentions receatediv occur _ in euclic creceecinos anc oiace an uncue burcen on the staff. Possibly because of a lack of earlier iesearch in the emergency planning and response area or for other resscns, a generic focus of the issues for use in rulemaking proceedings dces not exist. Because of this lack of focus, the staff finds itself going over the same itens time after time, which is wasteful of scarce resources as we11 as distracting to the Tong-term effort. j,- Imolementation This area held the most problems of all, a total of eight. They c ver the range from interagency coordination to the pre-positioning and training of MRC rescurces. Other problem topics include facility and equipment support and timely notification of NRC t5at an emergency situatien exists er is developing. Ed - Insuf'feient NRC attentien has Rasolution: Short and iong tern been c1ven o cocccinatino tne Lead (FRPCNE): SP Federal resconse aff actino Sup;crt: IE 11censeo rac1 :1:1es. Lead (IRAP): IE Support: NRR/NMSS/SP Price to TMI, the rescurcas assigned to the task of integrating the NRC into a naticnal emergency preparedness program were limited, and icw in agency pricrity. That aliccation of icw agency priority (which is not unique to NRC) ..}.-'.'.~.' 1^25 064

f A E.a3 is reflected in the fact' that the entire program has remained voluntary, and, after years of planning, the FRPPNE is jocularly referred to as a " plan to plan." E Licensino and insoection resources Resolution: Short and long tem neec exoansion to cetter imoiement Lead: NRR/NNSS/IE their emercency clannino efforts. Support: N/A Inspection and licensing efforts related to emergency planning are not in all cases closely integrated.,. The necessary improvements in implementation will require increased resources. E The majority of coeratine facilities Resolution: Short and long tem nave not oeen evaluatec acainst tne Lead: NRR/NMSS staff's current criteria for Support:- IE/SP' emercency osannino. Sufficient resources are not available to review emergency plans of existing reactor licensees to bring them into conformance with present energency planning criteria. E The incident reYoonse criteHa for Resolution: Short ters timely notifica:ico of the NRC Lead: IE/SD neec to ce tienteneo. Support: NRR/NMSS/SP Scme basic develop =ent of methods for triggering licensaa notification procedures and of ensuring NRC recognition of the significance of infornation passed is required. Setting of criteHa for notification and predeter sined action is.a delicate process of balancing the expense of notification / shutdown / respense to some nonemergency against the need to ensure early detection of developing emergencies. E An creanized " facility class Resolution: Short ter n oriented" NRC resconse cacaoilitv Lead: IE nas not :een ruaiy estaoiisneo. Support: NRR/NMSS/EDO 3ased on the NRC role defined by the resolution of probles topic A-5, an efficient and timely response capability must then be instituted in order to come with the evolution of any futui e emergency situation. Rescanse shculd 1225 065 s

orient en types, or clas~ses, of facilities so that expertise can be brought to bear quickly and effectively. Such support will be needed both in the field and at NRC headquarters. Therefore, the variables that constitute this capability must be defined, including the data base and com,unications to make the rapid assessment and response required. E There is a need durine an actual Resolution: Short ter n emarcency for near-to-the-sits Lead: IE facl i l ty to nouse :ne mu i:1-Supcort: NRR/NMSS/SP acency coorcination and rascense Resolution: Long ter.s succort ac:1v1tv. Lead: 80 Support: NMSS/NRR/IE/SP For sustained operations of a remote NRC respense team, efficiency of the participants, including the ifcensee, will be hampered unduly unless prov.isiens are made to obtain, en a timely basis, offsite but nearby work space for NRC personnel and others. This includes both coordination and support activities. Flcer space and support equipcent need to be defined -...la and arrangements made, including ccmmunicaticns teminals and st: rage for data brcught with th7 team er accumulated during the emergency. 9 E-7 Need exists for ex=anded NRC Resolution: Short and long

• arm

^ monitcrine caeacili:v. Lead: NRR/NMSS/IE Support: SP Although the level of scnitoring capability necessary to ensure adequate perfomance of an NRC response team is not currently defined, the analysis of TMI experience, coupled with a better definition of NRC's role, shculd provide a sufficient base for estimating technical requirenents. E.8 crec=duras "er dissemination of Resolution: Short tem

uolic infomation are not Lead:

GO acecuate. Support: IE An adequate emergency response plan must include an effective system for informing the public, #cr updating the infermation as new deveicpments cc::ur, l75 066 .~ ~eo .._n .,..e~-

. < = -. E=.=

== and for retracting,infor.:a. tion when it is fcund to be in error. Mistaken or false opinions that emanate from an emergency control center can cause damage to the public in excess of the severity of the emergency in progress. For this reason, early identification of infonnation sources, concurrence in fac+'.:a1 information released, and frequent updating of pubife infomation should be fennalized in the planning process. F_ - Testino and Verification of Cacabilf tv Three problem topics were identified. that affect NRC's ability to assess how good the mergency response capabilities are or are likely 'a be when called ~on. These cover the range of response capabilities from NRC thmugh the licensee to and including State and local resources. F There has never been an NRC-wide audit Resolution: Short tens or tne emer:ency resconse runction. Lead: EDO Support: N/A T_T?i Although NRC'has an internal audit program, it has not applied a simi'ar mechanism to itself Sr the emergency planning and resconse functier. ~ - ~ F Evaluation criteria for drills / Resolution: Short and long tem exer:1ses are not oerinea. Lead: NRR/NMSS Support: IE/S?/SD Although a varying degree of evaluation or assessment is associated ~with the licensing process, NRC does not systeatically evaluate the ongoing cacability for emergency respense, particularly for offsite non-licensee resources. Evaluation criteria for this purpose exist only for the RAC's, althouoh IE does annually verify that arrangements are still in place at pcwer reactors and some other facilities. This does not, however, ensure their adequacy in tems of likely perfomance but is limited to confidence that they will respond. F There is no effective NRC Resolution: Short and long tena ~ecnanism for centinueo Lead: SP evaivation of :ne trainino Support: IE ano cualification of <ev State are a ccai emarcency res:ense :ersonnel.

===* 1225 067

15 -

7. =._.

Even if the needed evaluation criteria (F-2) were developed, NRC would still require a program of continuing evaluation to ensure the response agencies centinued to be qualified and capable of performing their assigned mission. During 1975-1979, four independent reviews of NRC's emergency response program each stressed the need for utilities and State and local emergency planning officials to realize the importance of trained radiological specialists being involved in the plans and their operations. In each of these critical discuss 1ons the moral responsibility of the NRC to assure this provision was stressed. Any mechanism developed by NRC to address this problem topic should clearly give priority to the training, centinuing evaluation of capability, and necessary retraining of this requisite cadre of radiclogical gecialists. e 1 75 068

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.+ugu s T. o, I :I 't = Ib .i =g NRC ACTION PLAN FOR ENEP.GENCY PREPARE 0 NESS The NRC Action Plan for Emergency Preparedness ccacrises six. individual plans that were coordinated by means of the Task Force. One plan, preoared by RES, and designated "0RG," cor.siders overall (agency-wide) problems and addresses the attributes of a coordinated NRC-wide emergency preparedness organization. The other five plans address problems scecific to individual Fregram offices and were crepared by those offices. The si.v. plans were'each prepared to correspond to the following format: I. Introduction' II. Sumary and Conclusions-III. Responsibilities Relative to Emergency Preparedness IV. Current Program and Capat.;;ities V. Requiremer s and.Needs VI. -Action Plan for Named Office The plans are presented below under the following abs: ORG, MRR, 255, IE, SP, and 10. A sumary of proposed actions fo11cws. 1225 069 T.*.* 6 h = 6m* N4 .ee -=m =

August 8,1979 ~ 2 ~ Su=ar/ of Precosed' Actions in Chrcnolacical Secuence Comole*fon Prob. Date Office No. Scecific Task August 1979 (IE) B-2 Upgrade NRC Operatiens Center c municaticns facilities. August 1979 (IE) B-2 Improve heating, ventilating, and air ccnditioning for NRC Operatiens Center. August 1979 . (IE) & E-1 Meet with Forest Service concerning support to IRAP. A-2 A-2 Septancer 1979 (IE) & E-1 Meet with IRAF signatory agencies to identify prcblems regarding TMI-2. Octcber 1979 (IE) B-2 Revise NRC Manual Chapter 0502 (without explicit definition of adC role,in emergency response). Define enb ronmental radiatica monitoring caoability. Octcber 1979 (IE) E-7 Octcber 1979 (IE) E-2 Identify categories of material licensees for which emergency response plans should be rquire'd. October 1979 (Ord) Rule Pu6lish for ccament proposed rule for which "early notice" was published on July 17, 1979. .=~Z Decen=er 1979 (IE) 3-2 Uograde furniture and audiovisual support equipcent in 957 NRC Operations Center. December 1979 (IE) B-2 Upgrade NRC Operations Center support staff. December 1979 (NMSS) B-3 Prepare criteria for determinatic'n of need for and scope of fuel-cycle and byproduct material licensee emergency plans. January 1980 (NRR) 3-3 Cocplete the design review and prepare revised pro-cedures for post-accident sampling. Januarj 19SO (NRR) 3-3 Require i proved in-plant fodine instrumentatien. January 1980 (IE) E-7 Order radiation monit: ring equipment to establish an NRC envirencental menitoring capability. January ' 1980 (ORG) Rule Publish final rule for which "early notica* was published on July 17, 1979. January 1980 (IE) E-7 Place T1.0b around cperating pcwer reactors. A-2 Januarf 1980 (SP) & E-I Stake out oreminent role for NRC in develo: cent of the National Contincency Plan. A-2 March 1950 (SP) & -I Comolete NRC agency plan for responding to nuclear acciden.- March 1950 (SP) A-2 Include apercoriate language in NRC regulations related & E-1 to State and local radioicgical emergency respense alans en c:crdinaticn amcng de,arious levels of government bot in ne planning and response pericds. 1225 070

k i 3 --5.s. Comoletion Proc. .e#ii-, Da te-Office-No. Scecific Task March 1980 (SP) 8 4-Comolete NRC agenef response plan for peacetime nuclear emergencies taking inw account responsi-bilitie,s outlined in FRPPNE. March 1980 (NMSS) E' 2 Establish Environmental Radiation and Emergenef liupport Section.and coordinate its activity with IE and SP activities. March 1980 (NMSS) Prepare value-imcact analysis for extending emergene/ planning requirementsi to additional fuel-cycle and byproduct materiai licensees. April 1980 (IE) E-7' Make initial collectior, of NRCs TII$. April 1980 (IE) E-7 Develop supplemental budget for environmental mnitoring equipment not already on order. April 1980 (IE) E-7 Procum equipment / data links for NRC mnitoring of operational parameters at nuclear plants. April 1980 (SP) A-2 Work with FEMA to seek a censensus among States & E-1 concaming the proper roles for State and local 2.h governments in radiological emerg'ency response. m April 1980 -(SP) % 3-4 A-T Work with FEMA in the cevelopment of the President's - - ~ . " National Contingency Plan." April 1980 (IE) E-2 Revise IE Manual Procedures. June 1980 (IE) A-S Define NRC's role in emergency response. June 1980 (SP) C-1 Carry over into regulations the acceptance critaria concept for State and local government plans. June 1980 (SP) C-1 Work with FEMA to develop improved handbcok of guidance for Federal agenef assistance activities witn the States. June 1980 (SP) C-1 Work with FEMA to precare an 1:: proved e.mergene/ clanning guidance document for the States and lo al governments. June 1950 (SP) 0-2 Push for concurrences in plans in States that have operating nuclear power plants using existing guidance and procedures. June 1950 (SP) .0-2 Begin codifying existing guidance to S:sta and local agencies into regulaticns. June 1950 (SP) 0-3 Work with FEMA to es:abiish so=a Federal mecnanism to certify emergenef planning and rescense personnel of Sta a and local agencies. 175 071

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4 Ccmpletion Prob. m Date Office No. Soecific Task June 1980 (SP) .B-6 Have FEMA re-establish the Regional Advisory Committees on a formal basis for all-hazarcs emergency planning, with NRC to be a menter Federal Agenef. July 1980 (NRR) E-6 Designate location and alternate location for Emergenef Operations Center for use of Federal, State, and local officials; provide communications between Emergency Operations Center.and plant. July 1980 (NRR) E-7 Igrove off-site monitoring capability. July 1980. (SP) Assure adequacy of State / local plans against current criteria. July 1980 (NRR) 0-1. Conduct test exercise of pcwer reactor licensee emergenet pTans. July 1980 (SP). Conduct test exercise of State emergenet plans. July 1950 (IE) E-2 Procure equipment / data links for plant discharge moni to rs. .uw =@5 July 1980 (IE) 5-2 Davelop procedures for inspecting byproduct material 1icensee emergency 91ans. July 1980 (NMSS) E-3 Draft Reg Guide, Acceptance Criteria, and Standard Format and Content documents for fuel-cycle and by-product material Itcensee emergency plans. July 1980 (NRR) C-1 (Jpgrade emergenef plans for power reactors to meet & E-2 Reg Guide 1.101 with special attentien to action level cr!: aria based en plant parameters. Septed er 1980 (SD) 0-4 Resolve Critical Mass petition for Rulemaking. Septeder 1980 (50) 0-4 Re. vise Reg Gui des. l. lCl, 3. *2, and 2.6. September 1980 (SP) 3-5 Prepare resea rch study pr::pesals based on analysis of studies now being done. Septem::er 1980 (SP) F-3 Work with FEMA to establish retraining progrars for State and Iccal agency personnel. Oc::bar 1950 (IE) E-2 Corarance inspection of byproduct material licensee emergency plans.

ecem::er 1950 (NMSS) C-1 Pursue ruiemaking proceedings to require emergency plans for fuel-cycle anc byproduct :aterial licensees not new required to have these plans.

Cecam:er 1980 (SP) A-3 Wi t1 FEMA, develoc prepcsed niemaking or lecislation to resolve the orebiem of funding for State and local agencies r.c su: port radiciogical emergency respcnse clanning and precaredness. 1,d, 5 0./ 2

S llll!h Complet.ica Prob.

e. re Date Office No.

Scecific Task g Cece::cer 1980 (SP) F-3' Work with F94A and other Federal agencies to estaclish additunal required training progra::s for State and local ager.cy personnel. January 1981 (SP) Assure adequacy of State / local plans against uograded ~ critaria. January 1981 (NRR/SP) Conduct joint test exercise of Federal / State / local and power reactor licensee emergency plans for new Cll1. Januarf 1981 (NRR) E-7 Require high-range radioactivity mnitors at nuclear & B-3 power plants. January 1981 (NRR) B-2 Upgrade Emergency Operations Center in conjunction with in-plant technical support center. July 1981 (NMSS) C Update or supplement Reg Gui.de 3.42, Rt.*. 1, to cover Part 30 and Part 40 licensees. July 1981 (NMSS) E-3 Issue final (effective) Reg Guides, Acceptance Criteria, and Stancard Format and Content documents for fuel-cycle and byproduct material licensee emergency plans. E# "=" September 1981 (50) " D-4 Develop emergency planning regulations for research reactors. December 1981 (NMSS) C-1 Establish criteria for review and inspection of by-pmduct and source man-ial licensee's emergency plans. Septe:::er 1984 (NRF/SP) F-2 Conduct joint test exercise of Federal / State / local and power reactor licensee emergency plans for all operating plants. 1?25 073 w

l jf. I 52 i;,- ORG Action Plan August 3, 1979 by Jay Curst 1-; e l DUPLICATE DOCUMENT i )'[ hh Entire document previously entered into system under: 1 9..l,M, M TS 9 No. of pages:

NRR Action Plan I NA <m August 2, 1979 by Brian Gefces DUPLICATE DOCUtiENT Entire document previously 1 '") ? '5 0 7,3 entered into system un r: anO J. 9.1e.s24, U/ No. of pages: v -i-mm-isem

Julv 23, 1979 SECY-79 450 For: The Ccmmissioners g C Thru: Executive Director for Operations Fran: Harold R. Denton, Director, Office of Nuclear Reactor Regulation

Subject:

ACTION Pt.AN FOR PROMPTLY IMPROVING EMERGENCY PREPAREDNESS ~

Purpose:

To infom the Ccmmission of the staff's plans to take immediate steps to improve licensee preparedness at all operating power plants and for near-tem OL's. . Di scussion: Whfie the emergency plan: of all power reactor ifcensees have been reviewed by the staff in the past for confomance to the general provisions of Appendix E to _10 CFR Part 50, the most recent gutdance on emergency planning, primarily that given in Regulatory Guide 1.101 " Emergency Planning for Nuclear Power Plants", has not yet been fully implemented by most reactor ifcensees. Further, there are scme additional areas where improvements in emergency planning have been highlighted as particularly significant by the Three Mile Island accident. The NRR staff plans to undertake an intensive effort over ~ about the next year to improve ifcensee preparedness at all operating power reactors and those reactors scheduled for an operating ifcense decision within the next year. This effort wi11 be closely coordinated with a similar effort by the Office of State Programs to improve State and local response plans through the concurrence prccess and Office of. Inspection and Enforcement efforts to verify proper implementation of 1icensee emergency preparedness activities. The main elements of the staff effort, as 11sted in, are as fo11cws: (1) Upgrade ifcensee emergency plans to satisfy Regulatory Guide 1.101, with special attention to the deveicpment of unifom action level critaria based on plant parameters. DUPLICATE DOCUMENT Entire document previously g7 7 entered into syst n under: nuo 79/03 0447 bee.= is se. =

The Ca missioners (2) Assure the implementation of the related recanmenda-tions of the NRR Lessons Learned Task Force involving inscrumencation to fo11cw the course of an accident and relate the infornation provided by this instrumentation to the emergency plan action levels. This will include instrumentation for post-accident sampling, high range radioactivity monitors, and improved in-plant radioicdine instrumentation. The implementation of the Lessons Learned recanmendation on instrumentation - for detection of inadequate core cooling will also be factored into the energency plan action level criteria. (3) Deternine that an Energency Operations Center for Federal, State and local personnel has been established with suitable ccm=unications to the plant, and that upgrading of the facility in accordance with the Lessons Learned recan=endation for an in-plant technical support center is underway. (4) Assure that improved ifcensee offsite monitoring capabf1-ities (including additional TLD's or equivalent) have been provided for all sites. (5) Assess the relationship of State / local plans to the licensee's and Federal plans so as to assure the capabfi f ty to take approprf ate energency actions. Assure that this capability will be extended to a distance of 10 miles as soon as practical, but not later than January 1,1981. This item will be performed in conjunction with the Office of State Programs and the Office of Inspection and: Enforcement. (6) Require test axercises of approved Emergency plans (Federal, State, local, ifcensees), review plans for such exercises, and participate in a 11mited number of joint exercises. Tests of i fcensee plans will be required to be conducted as soon as practical for all facilities and before reactor starcup for new ifcensees. Exercises of State plans will be performed 1225 077 k e --w..

NMSS Action PT.n August 3, 1979 4F;y

re;;

by F. Fisher G. K11gfield F. Lemax DUPLICATE DOCUMENT Entire docu: rent previously entered into system under: ANO No. of pages: -mme-4 e

IE OGGE CY PLAtci!!:G ACTICN PUt! August 3,1979-bY O. Them::scn Ab J. Safe sk

1. Y s ec J. Hegner DUPLICATE DOCUMENT y

Entire document previously entered into system under: ANO ,,.c -~ No. of pages: A I" t

e-SP EiERGEiCY FLWIING ACUCN ?!.NI August 6,1979 by H. Collins M. Sanders 4 k-C* k DUPLICATE DOCUMENT Entire document previously entored into SYStom under: } ? ') la 080 ANO No. of pages: / r

SD S'ERGE?!CT PLA!!?lIflG ACTI0t* PLAtt August 3, 1979 bY P. Cc. elia M. Jac:gcchian . 2?o DUPLICATE DOCUMENT Entire document previously 9 9 tj 08i

• "t r d i"t "Y"t*" ""d*r:

wo 7.,9./4. 6. M, fot % No. of pages: ,_,,,n a +-,.mo ~%M*'

ORAFT pc.0 POSED NtENOMENTS TO 10 CFR PART 50 (see tabs) Proposed Amend =ent to 10 CFR 50.33 Precased Amend =ent to 10 CFR 50.54 ~ Preposed Amencment to 10 CFR Part 50, Accendix E l')'d 082 G

August 3,1973 10 CFR Par: 50, 550.33 Section 50.33, 550.33(g), is amended by deleting the word "[2eservedl" and by reciacing it with three sentences that read as follows: 550.33 Contents of applications; general infernation. (g) The State and local government emergency rescense plans of all governmental entities wholly or partially within the Emergency Planning Ionec(EP!) that have been reviewed and concurred in by NRC shall be submitted prior to the issuance of an operating license. Generally, the EPZ for plume execsure pa~thway for light water nuclear power plants shall consist of an area approximately 10 miles in radius, and an area approximately 50 miles in radius for the EPZ ingestion pathway. In deternining the size and configuration of the EPZs surrcunding a particular nuclear pcwer plant, consideration shall be given to such local conditions as demography, topography, land characteristics, access ?- routes, and local jurisdictional boundaries. 1225 083 e

August 3,1973 uraei 'O C.=R ?ar: 51, 15C.5; Section 50.54 is amended by adding two new ::aragrapns, (s) anc (-), that read as follows: ! ISO.E4 Conditions of ifcenses (s) Each ifcensee who is authori:ed to possess and/or operate a nuclear power r facility shall submit the State and local govern =ent emergency rescanse plans of all governmental entities wholly or partially within the Emergency Planning 2:nes (EPZ) that have been reviewed and concurre.d in by NRC within 180 days from the effective date of this amendment.I Generally, the EPZ for plume exposure pathway for light water duelear power plants shall consis't of an area aporoximately 10 miles in radius, and an area accroximately 50 miles in radius for the EPZ for ingestion pathway. In determining the size and con #1guration of the EPZs for a particular nuclear power-plant, et istderation shall be given to such local conditions as deecgraphy, topography, and land characteristics, access routes, and local jurisdictional boundaries. 1 If during the 11fe of the nuclear pcwer facility the Ccmmission determines that the State and local government emergency response plan does not warrant continued NRC concurrence and the State fails to correct such deficienc.ies within 3 monchs of the date of notification of NRC concur-ence withdrawal, the Commission shall cause such determinatfor to be published in the r ewspa::er of grescest circulation in such State, and shall order each such faci ~ ity to terminate operatiens until a clan is submitted and receives NRC review and Concurrence. 1925 084 e . - ~ ~ ~ ' ' ~ ~ ~~~~~~4&mo~-m ~

2-10 CFR Part 50, 150.54 (centinued) (t) If during the life of a ifcensed facility the Ccmmissien determines that the ifcenses has failed to maintain an adequate state of energency 7 preparedness tnrcugh periodic evaluation of licenste drills, exercises, and precedures, the ifcensee shall review his progr,1m and provide, within ___ days, a report to the appropriate NRC Regional Office en all corrective action ecmpleted. A Ifcense may be revoked, suspended, or = edified for failure of the licansee to maintain an adequate emergency preparedness cacability. i72S 085 e e

10 CFR Part 50, Appendix E 10 CFR Part 50, Appendix E, is amended by replacing it with a new Accendix E, which reads as fc11c.vs: APPENDIX E-EMERGENCY PLANNING AND PCEpAREDNESS [pt-ANS] FOR PRODUCTION AND UTILIZATION FACILITIE31 I. Introduction Each applicant for a construction pemit is required by 150.24[a) to include in its preliminary safety analysis report a discussion of preifminarf plans for coping with emergencies. Each appitcant for an operating license is required by 550.24(b) to include in its final safety anslysis report plans for coping with emergencies. This appendix establishes minimum requirements for emergency plans. These plans shall be described in the preifminary safety anslysis report and submitted as a part of the final safety analysis report. Plannin'g infomation 'The Ccmission nas developed three reculatorf guides: 1.101, "Emercency Planning for Nuclear Pcwer Plants,' 2.5, " Emergency Planning for Researen Reactors." and 2 42, "E.~ercency Plannina in Fuel Cvele Facilities and Plants Licensec Uncer 10 CFR Parcs 50 and 70." [a-seewment-ent46ed-sGw;4e-se-iae arepara4+en-ep-ieergensy-evans-#er-dredwet$en-and-Wt444 sat 4en-pas 444 4es2] to hela applicants establisn adecuate clans recuired pursuant 1 to 150.3a and this Appendix, for ccping with emergencies. Tne guices_ ?s are available at the Comission's Pubitc Document Rocm,1717 H Street, N.'d., anc copies may be cotained by addressing a request to the Director of Nuclear Reactor Regulation or Director of Nuclear Material Safety and Safeguards, as ap rocriate, U.S. Nuclear Regulatory Ccmmission, '4ashington, D.C. 2C555. i25 08.6 '--*-~..'; .J ,-M.- -usem

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P00RORGNAL z used in tha detailed implementation of emergency plans [need-Re%] shall be [deser4 bed] subattted in the (preliminary-er] final safety analysis report, but should x.... a a :.. =-.. .s.:. :.au .-...,....a time, e.g., names, telechone numbers, scecific items of eouiement and sucolies. II. The Preliminary Safety Analysis Report The Preliminary Safety Analysis Report shall contain sufficient information to assure the compatibility of proposed emergency plans with facility design features, site layouts, and site location with respect to such considerations as access routes, surrounding population distributions, and land use for the Emergency Plannino Zones:. As a minimum, the folicwing items shall be described: A. The onsite and offsite organi:ations for coping with emergencies, and the means for notification, in the event of an emergency, of persons assigned to the emergency organi:ations; 3. Contacts and arrangements made and documented, [se-te-he-sade33 with local, State, and Federal governmental agencies with responsibility for coping with emergencies, including identification of the principal agencies. '-Generally, ne E?I for plume exposure pathway fcr light water nuclear power plants shall consist of an area approximately 10 miles in radius, and an area aaproximately 50 miles in radius for the EPZ for ingestion pathway. In determining the si:e and configuration of the EPIs for a particular nuclear pcwer plant, consideration shall be given to such local conditions as demo-graony, topograpny, land characteristics, access routes, and local jurisdicticnal boundaries. 0?5 08/- 1

3 C. Protective measures to be taken in the event of an accident within and outside the site boundary to protect oublic health and safety; corr =ctive measures to prsvent damage to pre::erty; and the ex::ected rescense in.he event of an emergency of offsite agencies; Q. Features of the facility to be provided for onsite emergency first aid and decontamination, and for emergency transportation of individuals to offsite treatment facilities; E. Provisiens to be made for emergency treat =ent at offsite facilities of individuais infured in succort of licensed activities; F. (The-tra ini n g-pregrain-fo r-e!ne leyee s-an d-fo r-e th e r-pe rs e n s,- n e t employee s-e f-th e-lis en se e,-who se-s e rvise s-may-4 e-requ i red-4 n-es p4 n g-w4 t h .an-emergensy]; Provisions for a training crogram of emoloyees of the licensee who are assicned soecific authority and resconsibility in the event of an emercency and of other eersons whose assistance may bLneeded in the event of a " radiation emercenc,v; G. Features of the facility to be provided to assure the capability for actuatinc ensite erotective measures [piant-evaewatien] and the capability for facility reentry in order to mitigate the consequences of an accident or, if appropriate, to continue cperation; H. A creliminary analvsis shall be submitted which omfects the t 4e and means to be emoloved in the notification of State and local covernments and the oublic in the event of an emercency. A creliminarv evacuaticn feasibility analysis shall also be submitted within the Exercency Plannine Zone;. l'OS 088 G -n . - -. - - - = - - - = - -

4 III. The Final Safety Analysis Report The Final Safety Analysis. aport snali contain plans and crocedures for coping with emergencies. The clans and orecedures shall be an excression of the overall concent of ocerstion. which describes the essential elements of advance clannine that have been considered and the orovisions that have been made to coce with emergency situations. It should incorcorate information about the emergency resconse roles of succorting organizations and offsite agencies. That information should be sufficient to ensure coordination amonc the succortino croues and between them and the licensee. The details of these plans and [the-detalis-ef] their implementation procedures need [ net] j:o be submitted. However, the submitted imolementation crocedures shculd not include details that can reasonably be exoected to chance from time to time, e.a., names, telechone numbers, soecific items of eouicment and sucolies. The plans submitted must include a description of the elements set out in Section I'l to an extent sufficient to demonstrate that the plans provide reasonable assurance that appropriate measures can and will be taken in the er ' of an emergency to protect public health and safety and prevent damage to property for the E:aercency Plannino Zone (EPZ)2, i925 089 9 e

5 IV. Content of Emergency Plans 1,.e acolicant's emergency plans 3 shall cents:n, but not necessartiy ce limitad to, the following elements: A. ORGANIZATION The organi.zation for cooing with radiation emergencies, in which specific authorities, responsibilities, and duties are defined and assigned, and the means of notification, in the event of an emergency, of: (1) persons assigned to the Itcensee's emergency organization, which will include detailed identification of ~ Nornal clant ooeratine orcanization a. b. Onsite emercency orcanization - with a detailed discussion of (1) the resconsibilities and authorities of the individual (s) that will take charge during an emercency, and (2) 31 ant staff emereency assicnments Licensee headouartars aucmentation of onsite emercency c. organization d. Local services succort of licensee emercency orcanization, (2) appropriata State, local and Federal agencies with responsibilities for coping with emergency, and ' Succor:1ng offsite emergency response plans shall be submitted with the apclicant's emergency plans. i'"?5 090 N s.9. ". ~ - ~ ~

6 (3) written identification, by position or function, of other employees of the ifcensee with special qualificatfor;s for coping with emergency conditions which may arise. Other persens with special qualifications such as censultants who are not employees of the licensee and who may be called upon for assistance for short-and/or lona-term emercencies shall clso be ideatified. The special ~ qualifications of these persons shall be described; B. ASSESSMENT ACTICNS Means for determining the magnitude and continued assessment of the release of radioactive materials, including emergency acticn levels that are to be used as criteria for determinino the need for notification and partici-pation of local and State agencies and the [Atem4e-Energy] Ccomission and other Federal agencies, and the emercency acticn levels that are to be used as criteria for determinine when protective measures should be considered within and outside the site boundary to protect public health and safety and prevent damage to property. '~ These emercency acticns levels that are to be used as criteria for notification and action shall be based on in-clant conditions and instrumentation in addition to onsite and offsite monitorino; C. ACTI'!ATICN OF EMERGENCY ORGANIZATION Describe the entire s:ectrum of emergency conditiens which involve thi alertino or activation of crecressivelv larcer secments of the total emercency orcani:aticn. Describe the communication steos taken to alert or activate emercency ersonnel under each class of emergency. Emergency action levels

7 (based on readings from a number of sensors. such as the cressure in containment. the rescanse of the ECCS, etc.) for notificaticn of offsite acencies shall be described. The existence, but net the details. of a . assace authentication scheme shall be,noted for such acancies. D. PROTECTIVE MEASURES [Pfeeedures] Administrative and ohysical means for notifying, and agreements reached with local, State, and Federal officials and agencies for the early warning of the public and for public evacuation or other protective measures should such warning, evacuation, or other protective measures become necessary or desirable, including identification of the principal officials, by title and agencies; for the Emergency Planning Zones 2 (EPZ). Provisions shall be made for the aeriodic dissemination, to the occucants of the Emergency Planning Zones, of basic simolified emergencv clanning information. Administrative and ohysical means, and the time recuired, for cromat alerting and croviding instructions to the oublic within the inhalation Emergency Planning Zone. It is the licensee's resconsibility to ensure that such means exist, regardless of who imolersats such means. [Ev--Previsiems-fer-mainta4.54mg-en-te-dater--iv-Tae-ergam4aatien-fer sep4mg-with-emergemetesr-27-the-preeedwees-iee-use-4m-emergeme4es3-ead 3--tme-44sts-ef-persens-with-speef ai-iwai'iteattems fer-ses4mg-with-c=ergensy-sem44tiens3 1 ? ? 5 D '- 2 ~~w=

8 E. EMERGENCY FACILITIES AND ECUIPMENT Provisions shall be t.tade for emercency facilities, includina: (1) Equipment at the site for personnel monitoring; (2) Facilities and supplies at the site for decantamination of personnel ; (3) Facilities and medical supplies at the sita for apprppriate amergency first aid treat =ent; (4) Arrangements for the services of a physician and other medical personnel qualified to handle radiation emergencies; (5) Arrangements for transportatien of injured or contaminated individuals to treatment facilities outside the site boundary; (6) Arrancements for treatment of individuals iniured in succort of licensed activities at treatment facilities outside the site _ boundary (7) One onsite and one offsite Emercency Control Center: (8) At least one onsite and one offsite communications systems includino redundant cower sources. F. TRAINING A procram shall be provided (Prev 4s4 ens] for (1) the training and testing, by periodic drills, of radiation emergency plans to assure that employees of the ifcensee are familiar with their specific emergency respense duties, and [previsiens] (2) the participation in tne training and drills by other persons wnose assistance T.ay be needed in the event of a radiation emergency. Tisi s, shall include a descriotien of soecialized initial trainino and cericdic retraininc crograms to be orovided to each of the folicwinc categories of emercerev sersonnel: -~b 0Q! ) I /J e ~- . ~ - -

9 1. Directrs or coercicator: of the clant a.emency organizatten. 2. Personnel resconsible for accident assessment, including control rcen .:.:...4. 3. Radiolacical monitoHnc teams. Dhbb pd k[ k 1 4 Fire control teams (fira bHeades). u5 g QUI \\ d 5. Renair and damage control teams. 6. First aid and rescue teams. 7. Local services eersonnel, i.e.,1ccal Civil Defense director, local law enforcement eersonnel, etc. 8. Medical succort eersonnel. 9. Licensee's headcuarters succort eersonnel. The olan shall descHbe orovisions for the conduct of ceHodic dHiis and exercises to test the adecuacy of timing and centent of imolementing proc 3dures and methods, to test emergency ecuicment, and to ensure that emercency organization eersonnel are familiar with their duties. All t aini-rqvisions shall include defineation of methods to evaluate its effective-ess and to correct weak areas through feedback with e5chasis on schedules, lessen clans, cractical trainine, and ceriodic examinations. G. MAI:4TAIfiING CERGE' ICY PPSPARET.,ilESS Provisions to be emoloyed to ensure that the clan, its imolementing procedures and emercency ecui: ment and sucolies ara maintained uo to date, as well as (1) the orcanization for c oinc with emercencies, (2) the crocedures for use in emercencies, and (3) the lists of cersens wi.h scecial cuclifications for ccoino with short-and lanc-tern emercancy conditiens. 175 094 " m Wm w~m~ 3'"

10 H. RECOVERY Cr1:erla :o :e usec :o cetamine wnen, following an accicene, reencry of the facility is appropriata or when aceration should be continued. V. Imolementino Procedures Within ISO days criar to scheduled issuance of an Ocerating License and ar necessary to maintain them uc to da'te thereafter centrolled cocies of emercency olan imolemant!mg cacedures shall be submitted to the acercariate NRC Recional Office. l?5 095 9 e

== Enc 'k UNITED STATES .I" /, NUC EAR REGULATORY COMidlSSION . ~,j WASHINGTON, D. C. 20505 l *. b i EJN I S 579 i'ElGRANDUM FOR: Chairman Hendrie Comissioner Gilinsky MQOQ 95 i

1. Q

{ "* Comissioner Kenn%'y fu l Cec:nissioner Cradford Co=;'asioner Ahearne FROM: Thomas F. Carter, Jr., Chairman, Task Force on Emergency Planning TliRU: Lee V. Gossick, Executive Director for Operations

SUBJECT:

EMERGENCY PLANNING ISSUES The ECO's memorandum of June 11, 1979, establishing the Task Force on Emergency Planning, directed the Task Force, as part of its Phase 1 activities, to develop for Comissicn consideration a list of major issues, providad in the enclosure, that it believes should be addressed through rulemaking proceedings. The Task Force recommends that these issues be considered for inclusion in the Advance Notice of Proposed Rulemaking ( ANPR), which OPE and OGC are new preparing. The Task Force will also be addressing the issue cf how to best organize the NRC emerger.cy preparedness functions in order to assure prccer inter al coordination of tnese functions and proper external coordination with li:ar.sses, State and local governments, and other Federal apncies. I F. 3 reldted to the planning basis which should be used by Stata and local c,0vem-ments for development of emergency respense plans have been noticed for public coment in connection with the Comnission's consideration of aeIG-2235 Tne extensive public coc: rants received on these issues are being analyzed by the NRC/ EPA task force and will be b.ougnt fcmard for Comission consideration within the next month. During the remainder of the Phase 1 effort and the period of public cc=ent on the /RPR, the Task Force will further elaborate the issues and develc: possible options for resolving them. As part of the issues identification anc deveicpment pmcess, the Task Force is drawing upon the transcript of the June 7,1979, Comission meeting on Emergency Planning; Com.nissioner Bradford's memorandum of May 30, 19 79, on crisis management during emergencies: Coctrissioner - Ahearne's memorandunt of ' June-6 ~ - 1979, 'concerning the NRC response to the GAO l'?5 096 ~;. O fa'% hi 'k~ O I o $ & c/ 2.

l 1 a The Ccisaissien 2 eJ.1 1i ?979 report on radiological emergencies; the March 1979 GA0 report on radiological emergencies; Congressional hearings and letter inquiries, internal staff memoranda, and pertinenc regulaticns, guides, reports and petitions on the subject of emergency preparedness; and the kncwledge of individual memcers of the Emergency Planning Task Force. In subsequent effort, the Task Force will draw upcn the work of the Siting Policy Task Force and will maintain close contact with the staffs of the various NRC TMI Stoups. lh Thomas F. Carter, Jr., Chai rman Task Force on Emergency Planning

Enclosure:

List of Major Issues cc: L. Bickwit S. Chilk ni'7r3 097 A. Kenneke .~ \\ ~--

~ JUN 131979 . MAJOR ISSUES Issue 1 What should be the basic objectives of emergency planning? e.g. a. To reduce public radiation exposure? b. To prevent public radiation exposure? c. To be able to evacuate the public? To what extent should these objectives be quantified? Issue 2 What constitutes an effective emergency response plan for State and local agencies? For licensees ? What are the essential elements that must be included in an effective plan? Do existing NRC requirements and guidance lack any of these essential elements? If so; hcw should tiRC requirements and guidance be modified? Issue 3 Should !!RC concurrence in the associated State and local emergency response plans be a requirement for continued operation of any nuclear pcwer plant with an existing operating license? If so, when should this general requirement become effective? Issue 4 Should prior NRC concurrence in the associated State and local emergency response plans be a requirement for the issuance of any nov operating license for a nuclear power plant? If so, when sho ld this general requirement become effective? Issue 5 To what extent and by what means should the Federal government have a voice in determining the adequacy of State and local emergenc'/ response plans? Of licensee emergency respcnse plans? To what extent and by what means should the State and lccal governments have a voice in those ceteminations? Issue 6 To what extent and by what means should Federal emergency espenze planning ce influenced by Stata and local governments? By licensees? Issue 7 Should the Federal government provide financial assistance to State and local governments for radiological emergency response planning and preparedness? If so, to what extent and by what means? What should be the source of the funds? Issue 8 Should the licensees be required to provide radiological e ergency response training for State and local government perscnnel? If so, to what extent? Should the Federal govemment provide such tr' tining? If so, to what extent? Issue 9 Should radiological cEergency response drills be a requimment? ~ If so, under whose authority; Tederal. State or local government? To what extent should Federal, State, and local governments, and licensees be required to participate? Issue 10 Would public participaticn in radiological emergency response drills, including cvacuation, serve a useful purpose? If so, uhat should be the extent of the public participation?- If not, how should the public be infonced concerning emergency actions i t might be called upon to take? l'25 098 Fo cl e.ie ro

2 Issue 11 Under what circumstances and using what criteria should a licensee notify State, local and Federal agencies of incidents, including emergenci es? When, hcw, and by whom should the public be notified of these incidents? Issue 12 What should be the NRC's role during emergencies at licensee facilities? Ouring an emergency response, should NRC override the licensees's authority for technical operation of the plant anu assume respcnsibility for plant operation? During an emergency response, should NRC parti-cipate directly in the protective action decision-making process? Should NRC independently conduct radiological monitoring during an emergency? Issue 13 What should be the roles of State and local governments during emergencies at licensee facilities? Issue 14 What should be the roles and interrelationships of Federal agencies, other than NRC, during emergencies at licensee facilities? How should these other agencies interface with the NRC, State and local governments, and the licensee? Who should be in charge? Issue 15 How should the Commission's (that is, the collegial body of five Comissioners) authority be excrcised during the course of an emergency involving a licensee facility? What should be the relationship and interaction between the Commission and the staff during such periods? Issue 16 To what extent should reliance be placed on licensees for the assessment of the actual or potential consequences of an accident with regard to initiation of protective action? To wnat extent should this responsibility be borne by Federal, State or local governments? Issue 17 Who should be responsible for carrying out field monitoring in the environs of a facility during the course of an eme gency? If more than one organization, how should these efforts be coordinated? Should di rect readout envi ronmental monitoring instraentation be considered a necessary part of an adequate field monitoring system? P00R OHM ~ ~ ~ ~ i?25 099 s =em.-m- -,--e.. %}}