ML20039D488

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Transcript of Commission 811204 Open Meeting Re Affirmation/ Discussion Session in Washington,Dc.Pp 1-12.Draft Fr Notices Encl
ML20039D488
Person / Time
Issue date: 12/04/1981
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NRC COMMISSION (OCM)
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References
REF-10CFR9.7 NUDOCS 8201050042
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1 1 UNITED STATES OF AMERICA 2 NUCLEAR REGULATORY ConMISSION 3 4 AFFIRNATION/ DISCUSSION SESSION 5 6 PUBLIC HEETING 7 8 Nuclear Regulatory Commission Room 1130 9 1717 H Street, N. W. Washington, D. C. 10 i Friday, December 4, 1981 11 The Commission met, pursuant to notice, 12 at 2: 15 p.m. 13 14 BEFORE: 15 NUNZIO PALLADINO, Chairman of the Consission VICTOR GILINSKY, Commissioner 16 PETER BRADFORD, Commissioner JOHN AHEARNE, Commissioner 17 THOMAS ROBERTS, Commissioner 18 ALSO PRESENT: 19 S. CHILK 20 L. BICKWIT F. REMICK 21 22 23 24 25 ALDER $oN REPORTING COMPANY. INC. 400 VIRGINIA AVE S.W. WASHINGTON. D.C. 20024 (202) 554 2345

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2 1 EA9CEERIH9H 2 CHAIRMAN PALLADINO: The meeting will please come 3 order. 4 The subject this afternoon is 5 Affirmation / Discussion Session on items listed on the agenda. 6 We will ask the Secretary to walk through t*s 7 items listed. 8 HR. CHILKa The first item is SECT 81-554 and 9 554-A, Amendment to 10 CFR Part 50, Clarifications to-10 Energency Preparedness Regulations. l 11 Here the Commission is being asked to act on a 12 rule change which would clarify 10 CFR 50 with regard to the 13 need for full-scale emergency preparedness exercises prior 14 to fuel load and low-power licenses. 15 All of you have approved the rule change which was 16 circulated to you on the third as modified by an OGC 17 recommendation. 18 Would you please affirm your votes. 19 (Chorus of Unanimous Ayes.) 20 HR. CHILK: The second iten is SECY 81-570, a 21 Proposed Amendment to 10 CFR Part 50 and to Appendix E 22 Modification to Emergency Preparedness Requiations, where 23 the Commission is being asked to approve for publication a 24 proposed rule to eliminate the need to have any finding in 25 determination on the adequacy of off-site emergency planning 1 ALDERSoN REPORTING COMPANY. INC. 400 VIRGINIA AVE., S.W., WASHINGTON. D.C. 20024 (202) 554-2345

3 1 and preparedness in order to issue an operating license 2 authorizing f uel loading and/or low-power operation'. 3 The Chairman, Commissioner Ahearne and 4 Commissioner Roberts have voted for the rule. Commissioners 5 Bradford and Gilinsky have voted against it. Commissioner j 1 6 Gilinsky will have separate views which will be attached to j 7 the rule. 8 Would you please affirm your vote. CONNISSIONER GILINSKY I would just like to have 9 i 10 an opportunity to write a brief short paragraph on that 11 subject before it goes out. 12 HR. CHILKs Woulo you please affirm your votes. 13 (Chorus of Unanimous Ayes.) 14 COHNISSIONER AHEARNEs Could I see those 15 comments ? I sa not sure, but I might end up agreeing with ( 16 you even though I voted for the rule. 17 (Laughter.) 18 COMMISSIONER GILINSKY: The purpose of-the 19 comments is to put them before you. 20 CHAIRMAN PALLADINO: fou might have us all look at 21 them. 22 COMMISSIONER GILINSKY: I would be delighted. 23 (Laughter.) 24 MR. CHILK: Ihe next ites is SECY 81-627, Issuance l 25 o f Notice of Hearing in Civil Penalty Action where the ALDERSON REPORTING COMPANY,INC. 400 VIRGINIA AVE., S.W WASHINGTON D.C. 20024 (202) 554-2345

4 1 Commission was asked to approve the issuance of a notice of 2 a hearing in a civil penalty action and the Commission 3 unanimously approved of that notice. -4 Would you please affirm your votes. ._5 CHAIRNAN PALLADINO: Which one are we talking 6 about ? -~ - '-P'- NR. CHILKa 81-627, Issuance of Notice of Hearing -- ;-&in a Civil Penalty Action. 2 42-9 (Chorus of Unanimous Ayes.) l __10 MR. CHILKa The fourth one is SECY-81-622A, the ~ 11 Draf t Commission Order on San Onofre Sua Sponte Issue. 12 The order that the Commission is being asked to 13 approve is a version circulated by Commissioner Ahearne 14 today to include in addition a footnote recommended by 15 Commissioner Roberts. ( 16 The Chairman, Commissioner Roberts and 17 Commissioner Ahearne have approved tha t order. 18 Commissioners Gilinsky and Bradford have disapproved it. In 10 addition to the order, there will be a request to the staff 33 to make further investigations and so some generic reviews. 21 CHAIRMAN PALLADISS: It is my understanding that 22 tha t instruction to the s taff will be circulated for 23 a pproval. I L 24 MR. CHILK: It will be circulated f or approval. l 25 COMMISSIONER GILINSKY: I am not sure I have never i ALDERSCN REPORTING COMPANY,INC, 400 VIRGIN!A AVE., S.W., WASHINGTCN, D.C. 20024 (202) 554 2345

5 1seen this order, although I disapprove it. I did disapprove 2 the original version. 3 COMMISSIONER AHEABNE: The changes I made, Vic, 4 are very minor. 5 COMMISSIONER GILINSKYa Are we talking about this 6 version? 7 HR. CHILKs Yes. 8 COHEISSIONER AHEARNE: They are really very minor 9 changes. You can look at the first one, which was Joe's to markup, and there are a couple of spots where there are 11 changes that I made. 12 COMMISSIONER GILINSKY The think I wanted to ask 13 was whether the Commission in taking a generic look at this 14 subject is going to look at the problem of earthquakes or 15 other natural hazards as well? I think the Chairman wanted 16to restrict it to earthquakes. I got the impression that 17 you were going to take a broader look. 18 COMMISSIONEB AHEARNE I f eel m y d ra f t sta f f 19 requirements has the broader look in it. 20 CHAIRMAN PALLADINO: Well, I thought we were 21 voting not on the specifics of the draft instructions to the 22 stsff but rather do we want to treat this problen 23 gen erically, and I would like to see it treated generically. 24 I have not in my own mind decided whether I want 25 to support going broader or stick with earthquakes. That is ALDERSoN REPORTING COMPANY,INC, 400 VIRGIN 4A AVE, S.W. WASHINGTON. 0.C. 20024 (202) 554 2345

6 1 why I was saying in voting for this I am voting to refer it 2 back to the staff as a generic issue and I would like the 3 opportunity to review specifically the proposed instructions 4 ve sent to the staff and treat that separately. 5 COMMISSIONER ROBERTS: I agree with that. 6 COMMISSIONER GILINSKYs-What does this memorandum 7do? I have read it now that I understand which one you are 8 talking about, but I don't remember exactly whether it is 9 restricted to earthquakes or not. 10 COMMISSIONER AREARNE4 The changes that I made to 11 the order really focus upon the issue that was raised by the 12 San Onof re Board, the earthquake issue. So whether or not 131t is the broader view that I think we ought to end up doing l'or the narrower view wouldn 't affect the way the order was 15 vritten. It would only affect the way the eventual staff 16 requirements meno gets written. 17 I have agreed with Joe that the draf t staff 18 requirements meno can be a separate issue. I have proposed i 19 one which I of course would encourage separately everybody 20 to agree to. 21 COMMISSIONER GIIINSKY: It doesn't sound like you i 22 are going to go along with tha t. 23 COMMISSIONER AHEARNE: But there are five of us. 24 (la ugh te r. ) 25 CO MIS.cTONER BRADFORD: ! think we can verk ALOERSCN REPORTING COMPANY. INC. 400 VIRGINIA AVE., S.W WASHINGTON. D.C. 20024 (202) 554-2345

y 1 something out here. 2 (Lauchter.) 3 COMMISSIONER AHEABNE: What I am saying is I am 4 villing to separate the staff requirements meno. We can 5 address that at another meeting as a separate issue. 6 COHNISSIONER GILINSKY: Well, I must say, my 7 interest is not in broadening this thing. It is dealing 8 with circumstances of the case. Well, at least I understand 9 what you are up to. 10 (Laughter.) 11 CONHISSIONER ROBERTS: It sounds nefarious. 12 COMMISSIONER GILINSKY I still disagree with the 13 order. I just want to have a chance to make sure that the 14 views that I had in response to the other order still 15 confors to this one for whatever slight changes I need to 16make to make adjustment for the new memorandum. 17 MR. CHILKs You have views and Commissioner 18 Bradford has views. 19 Would you please affirm your votes then. 20 (Chorus of Unanimous Ayes.) 21 MB. CHILK: The fourth item is SECY-81-631, the 22 Final Rule for Pending CP/ML Applications, which I believe 23 the Commission would like to discuss. 24 COMMISSIONER GILINSKI: Let's see, were you not 25 going to desl with this 81-618? Is tha t dropped? ALDERSoN REPORTING COMPANY. INC. 400 VIRGINIA AVE S.W., WASHINGTON, D.C. 20024 (202) 554-2345

8 1 MB. CHILK No. I will get to that in a moment. 2 COMMISSIONER GILINSKY: Oh, I thought you said the 3 final one. I as sorrr. 4 NR. CHILKs No, no. I am sorry. 5 CHAIBMAN PALLADINO: On 81-631 we seem to have 6 agreement by a majority of the Commissioners that a rule 7 such as thi.= shculd be issued. However, it seems that there 81s still need for further deliberation on whether buckling 9should 'ae included or excluded. So I thought I would raise 10 that voist so that individuals can give it attention. Then III suggest it be brought up for later deliberation. 12 COMMISSIONER AHEARNEa Fine. 13 COHNISSIONEH GILINSKY That would impose a 14 tougher standard on the containment to some extent which is 15 unclear to me a t this point because it would a further 16 requirement. 17 COMMISSIONER AHEARNE: That is correct. 18 CHAIENAN PALLADIN04 Well, the rule does say that l 19 the containment is supposed to be testable up to these 20 conditions and if it were to be tested we would presumably 21 have buckling unless we chanced it. 22 COMMISSIONER AHEARNE: Let me just note that I 23 disagree with you. 24 CHAIRMAN PALLADINO: You disagree. 25 COMMISSIONER GILINSKYs You disagree on what? i ALDERSON REPORTING COMPANY,INC. 400 VIRG!NIA AVE., S.W., WASHINGTON, D.C. 20024 (202) 564 2345

9 1 CONEISSIONER AHEARNE The " presumably." 2 COMMISSIONER GILINSKY: The whht? 3 C055ISSIONER AHEARNEa That presumably you would 4 have buckling I disagree with. 5 COMMISSIONER GILINSKYa Let me understand that 6now. You are disagreeing about the physical facts or you 7are disagreeing wi th what ought to be required? 8 COMMISSIONER AHEABNEs I an disagreeing on what 9 ought to be required because I disagree on the physical 10 facts. 11 CHAIREAN PALLADIN04 That is why I put on 12 " presumably. " 13 COMEISSIONEB AHEARNEs Yes. 14 COHEISSIONER GILINSKYs I must say for myself I 15 haven 't looked into this and can't say that I understand it 16 very well at this point other than that you are adding an 17 additional requirement on the structure. 18 CHAIRMAN PALLADINO: Well, the way it is written l l 19 now it does not include buckling. l 20 COMHISSIONER GILINSKY : That is right. The l 21 calculation doesn 't have to demonstrate tha t you vill 22 p revent buckling. 23 COMMISSIONER AHEARNE That is right. 24 COMMISSIONER GILINSKY: I am not in favor with 25 this entire approach, but if I agree that that is a sensible ALDERSON REPORTING COMPANY,INC, 400 VIRGINIA AVE, S.V/., WASHINGTON, D.C. 20024 (202) 554-2346 1

10 1 requirement I will be happy to vote for that portion of it 2if you decide that that makes sense given that the r 3 Commission has gone this way. 4 CHAIRMAN PALLADIN0s I think we rea 117 need a S little more time to deliberate. 6 COHEISSIONER AHEARIE: The first time I heard 7 about the question of failure, of buckling during testing 8 was just a little while ago. My initial conclusion is that i 9 I don't agree with that, but I have to look into that. 1 to CEAI3HAN PALLADINO: There is also the question of 11 inadvert ent inerting as opposed to inerting approach. 12 C0dIISSIONER AHEARNE: Sure, but there you have to 13 ask how many times does that occur. 14 CHAIREAN PALLADINO: True. But if.it occurs and 15 there were to be buckling there certainly would have to be a 181ot of deliberation on what actions should be taken as a 17 result of that condition. So I do think it is worthy of l 18 f urther deliberations. 19 COMMISSIONER AHEARNE Right. 20 CHAI3HAN PALLADINO: So we won't vote on that 21 today. 22 COMMISSIONER AHEARNE: 37 basic concern is that Z3 wherevnr we come out we cose out having a logical 24 develo pm ent of here are the reasons we logically reach a 25 conclusion. ALDERSoN AEPoRTING COMPANY. INC. 400 VIRGINIA AVE. S.W. WASHINGTON, D.C. 20024 (202) 554-2345 l-

~ 11 1 CHAIRMAN PALLADIN0s The reasons I have looked at 21ed me to the logical conclusion that is different from the 3 one that you followed. 4 MR. CHIlKa The last item is SECY-81-618, 5 Amendments to 10 CFR Chapter I, Parts 19, 30, 40, 50, 60, 870, 72 and 150 With Respect to Employees Who Provide 7 Information and I believe the Commission would like to 8 discuss that one. 9 CHAIRMAN PALLADINO: I believe there is a general 10 sympathy with this approach on the part of the Commission. 11 There were a number of respects in which this document 12 wasn't as well prepared as several of us would like to see 13 1t prepared. Commissioner Ahearne has written up some 14 suggestions on how it migh t be better written. 15 I proposed that we send it back fer rewriting and 18then consider it after it has been rewritten and I gather 17 tha t that is an acceptable procedure by the Commission. 18 00MNISSIONER BRADFORD: What is the rewriting 19 going to do. Is this just a stylistic improvement? 20 COMMISSIONER AHEABNE: It is a combination. There i 21 are some really logic problems in the way it is written. 22 CHAIRMAN PALLADINO: I think we can afford the Z3 time to rewrite it. 24 COMMISSIONER AHEARNE: I would hope that perhaps 25 someone could also con tact the Labor Department in the ALDERSON REPORTING COMPANY. INC. 400 VIRGINIA AVE., S.W., WASHINGTON, D.C. 20024 (202) 554 2345 . - ~...

12 1seantime. 2 CHAIRMAN PALLADIN0s I would like to see that 3 memorandum of understanding. 4 COMMISSIONER AHEARNE: Yes. 5 CHAIRMAN PALLADINCs An y thing more ta come before i j 8 us on the affirmations? 7 HR. CHILKs No, that completes the affirmation i l 8 session, Mr. Chairman. 9 CHAIR 5AN PALLADINos Then we will stand adjourned. 10 (Whereupon, at 2:25 p.m., the affirmation session 11 adjourned. ) 12 13 14 15 16 17 18 19 20 21 22 23 24 25 ALDERSCN REPORTING COMPANY,INC. 400 VIRGINIA AVE., S.W. WASHINGTON, D.C. 20024 (202) 554-2345 t

l m l M REETLATE CDtSCIDESM This 11 Oc ca.MLf7 that the attached ;rcceedings befcra the s COMMISSION MEETING 13 the 24ttr Cf. PUBLIC MEET. LNG - AFFIRMATION / DISCUSSION SESSION

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1.,. % Secf-f/- fgp 9393 og ~ c. NUCLEAR REGULATORY COMMISSION 10 CFR PART 50 Emergency Planning and Preparedness for Production and Utilizati.on Facilities AGENCY: Nuclear Regulatory Commission. Notice of Proposed Rulemaking. ACTION: The Nuclear Regulatory Commission is proposing to amend 'its ~

SUMMARY

regulations to provide that,:for issuance of operating licensees authorizing only fuel loading and low power operation (u"p to 5% power), no NRC or Federal Emergency Management Agenc and determinations concerning the state of or adequacy of offsite The NRC review of the ensite emergency preparedness shall be necessary. plan vill include an assessment pf those offsite elements which necessary to evaluate the applicant's response mechanism. Comments received DATES: Corment period expires after this date will be considered if it is practical to do so, but assurance of consideration cannot be given except as to connents received on or before this date. Interested persons are invited to submit' written comments ADDRESSES: and suggestions on the proposal to the Secretary of the Co Nuclear Regulatory Commission, 'n'ashington, DC, 20555, Attent Copies of comments received by the Docketing and Service Branch. _! Insert date 45 days after publication in Federal Reoiste e 6

6'- S 2 [7590-01) Comission may be examined in the Comission's Pubiic' Document Room at 1717 H Street, NW., Washi,ngton, DC. FOR FURTHER INFORMATION CONTACT: Michael Jamgochian, Human Factors Branch, Office of Nuclear Regulatory Research, U.S. Nuclear Regulatory - Comission, Washington, 'DC, 20555 (telephone: 301-443-5942). SUPPLEMENTARY INFORMATION: i The Proposed Rule On August 19, 1980, the Nuclear Regulatory Connis'sion published a revised emergency planning regulation which became effective on November 3,1980 (45 FR 55'402). In i 50.47, tha rule requires that: "(a)(1) No operating license for a nuclear power reactor will be issued unless a finding is made by NRC that the state of onsite and offsite emergency preparedness provides reasonable assurance that adequate protective measures can and will be taken in the event of a radiological emergency. "(2) - The NRC will base its finding on a review of the Federal Emergency Hanagement Agency (FEMA) findings and determinations as to whether State and local emergency plans are adequate and capable ' of being implemented, and on the NRC assessment as to whether the i ^ applicant's onsite emergency plans are adequate and capable of [- being implemented." When the regulation was originally drafted and finally promulgated, the question of emergency planning and preparednes's licensirg requirements for an operating license authorizing only fuel loading and low power operation (up to 5% of rated power), hereafter referred to as " low power license," was not fully evaluated. It is apparent to the ~ Comaission that the emergency preparedness requirements for a low power ' license need not be"as extensive as those requirements for a full power - operating license. This has been the Comission's position, as O

3 [7590-01) s reflected in the informal staff practice used in low power licensing reviews. On the basis of the experience gained in emergency ~ preparedness reviews over the last ye'ar, the Commission now concludes that evaluations of the adequacy of offsite emergency preparedness and the capability of offsite response mechanisns, as neasured by the full requirements of 10 CFR 50.47(a) and (b) and Part 50, Appendix E, are not necessary prior to issuing a low power license. The Commission's position-is that several' factors contribute to a substantial reduction . in risk and potential accident consequences for low power testing as compared to the higher risks in continuous full power operation.

First, the fission product inventory generated during low power testing is,much less than during full power operation due to the lower level. of reactor activity and short period of operation.

Second, at low power, there is ' ' a reduction in the required capacity of systems designated to mitigate 'the consequences of an abnormal occurrence under full power operati6n. Third, the time scale for taking actions to identify accident causes and This mitigate accident consequences is much longer than at full power. means 'the operators should have sufficient time to prevent a release i In the worst case, the additional time available-(at from occurring. i least 10 hours) even for a postulated low likelihood sequence, which eventual.ly results in release of the fission products accumulated at low power into the containment, would allow adequate precautionary actions to be taken to protect the public near the site. Consequently, the I Commission has determined that the degree of emergency preparedness that. 4 9 O e e C v ,y,

o asu u,a is necessary to provide adequate protection of tha public haalth and safety is significantly less than that required for full operation. The proposed rule change provides that, in order to grant a low power license, only a finding as to the adequacy of onsite emergency planning and preparedness is required. While the proposed rule would eliminate the need to have any NRC or FE'4A review, findings, or deter- 'minations on the adequacy of offsite agencies' emergency planning and preparedness, the NRC review of the licensees' onsite response mechanism will necessarily include aspects of some offsite elements: communications; notification; assistance agreements with local law enforcement, fire. protection, and medical organizations; and the like. Some examples, but not an exclusive list, where review of an applicant's emergency plan would involve aspects of some offsite elements may be found in pertinent portions of 10 CFR 50.47(b)(3), (5), (6), (9), and (12). The proposed rule only provides that neither FEMA nor NRC must evaluate the adequacy and capability of offsite preparedness organizations and plans prior to issuance of a low power license. Since this eliminates the need to obtain findings from FEMA for low pcwer licenses, the Commission has consulted with FEMA. FEMA concurs in.this approach and in the proposed rule as a result of reviewing the level of general planning and prepared-ness activities that are taking place in the State and local jurisdictions where nuclear power plants are expected to be licensed. It should be noted that the staff proposes to evaluate any deficiencies which may exist in the onsite emergency plans against the standards in 5 50.47(b) and Appendix E to determine their significance to. low power operation. See 10 CFR 50.47(c). This is consistent with past staff practice where the onsite appraisal is completed and any

  • Note the specific aspects of these elements are elaborated on in NUREG-0554)

FEMA rep-1, Revision 1. The NRC will review only those elements under each of the planning criteria that are essential for determining the licensees' innt State and lecal acencies'Lpteparedmst

5 [7590-01) significant deficiencies are remedied prior to issuance of a full power license. Reculatory Flexibility Certification In accordance with.the Regulatory Flexibility Act of 1980, 5 U.S.C. i 605(b), the Commission hereby certifies that this rule will not, if promulgated, have a significant economic impact on a substantial number i of small entities. The proposed rule changes concern a clarification of the preguisite elements and findings necessary for the issuance of an operating license authorizing only fuel loading and low power operations '(up to 5% of rated power) for nuclear power plants licensed pursuant to Section 103 and 104b of the Atomic Energy Act of 1954, as amended, 42 U.S.C. il 2133, 2134b. The electric utility companies owning and w m operating these nuclear power plants are dominant in th'eir service areas, and do not fall within the definition of a small business found I in Section 3 of the Small Business Act, 15 U.S.C. I 632, or within the Small Business Size Standards set' forth in 13 CFR Part 121. i Accordingly, there is no significant economic impact on a substantial l number of small entities under the Regulatory Flexibility Act of 1980. E l Paperwork Reduction Act Statement Pursuant to the provisions of the Paperwork Reduction Act of 1980 l (Pub. L. 96-511), the NRC has made a preliminary determination that.this proposed rule does not impose new recordkeeping, information collection,. or reporting requirements. l ' ~ ^ '

6 [7590-01) Pursuant to the Atomic Energy Act of 1954, as 5. mended, the Energy Reorganization Act of 1974, as amended, ar.d section 553 of title 5 of the United States Code, notice is he'reby given that adoption of the following amendments to 10 CFR Part 50 is contemplated. ~ PART 50 - DOMESTIC LICENSING OF PRODUCTION AND UTILIZATION FACILITIES The authority citation for Part 50 reads as follows: AUTh0RITY: ' Secs,103,104,161,182,183,189, 68 Stat. 936, 937, 948, ~ 953, 954, 955, 956, as amended (42 U.S.C. 2133, 2134, 2201, 2232, 2233, 2239); secs. 201, 202, 206', 88 Stat.1243,1244,1246 (42 U.S.C. 5841, 5842,5846), unless otherwise noted. Section 50.78 also issued under sec. 122, 68 Stat. 939 (42 U.S.C. 2152). Section 50.78-50.81 also issued under sec.184, 68 Stat. 954, as amended (42 U.S.C. 2234). Sections 50.100-50.102 issued under sec.186, 68 Stat. 955 (42 U.S.C. 2236). For the purposes of sec. 223, 68 Stat. 958, as amended (42 U.S.C. 2273), 5 50.41(i) issued under sec. 1611,68 Stat.949(42U.S.C. , 2201(i)); is 50.70, 50.71, and 50.78' issued under sec. 1610, 68 Stat. 950, as amended (42 U.S.C. 2201(o)), and the laws-referred to in Appendices.

1., In 5 50.47, introductory text is added to paragraph (a), the introductory text to' paragraph (b) is revised, paragraph (c) is revised, and a new paragraph (d) is added to. read as follows:

's 50.47 Emeroency olans. (a) Except as provided in paracraoh (d) below: d e e.-is-.= w w--- +=w

7 [7590-01) ~ (1) * * * (2) * * * (b) The ensite and, exceot as Erovided in caracraoh (d) below, offsite emergency response plans for nuclear reactors must meet the ~ ' following standards: (c)(1) Failure to meet the acolicable standards set forth in paragr'aph (b) of this subsection may result in the Co::rnis,sion d ~ to issue an Operating License; however, the applicant will have an opportunity to demonstrate to the satisfaction of the Cor:nission that deficiencies in the plans are not significant for the plant in question, that adequate interim compensating actions have been or will. be taken promptly, or that there are other compelling reasons to permit plant ' operation. (d) Notwithstanding the reouirements of oaragraphs (a) and (bl above. no NRC or FEMA review. findings, or determinations concerning the creca' redness or the adecuacy of and state of offsite emeroency capability to imolement State and local offsite emeroency plans are reouired prior to issuance of an operating license authorizing only fuel loading and/or low power operations (uo to 5% of the rated oower). Insofar as emergency planning and orecaredness recuirements are concerned, a license authorizing fuel loading and/or low power operati may be issued after a finding is made by the HRC that the state of -on' site emergency creoaredness provides reasonable assurance that_ o e y.--, ,._c.__._

8 [7590-01) a_deouate orotective measures can and will be taken in the event The NRC will base this finding on it's radiological emergency. assessment of the applicant's emergen'cy plans against the pertinent standards in paragraph (b) above and Accendix E of this Part. 2. i 50.54 (q) is revised to read as follows: 5 50.54 Conditions of licenses. (q) A licensee authorized to possess and/or operate a nuclear power reactor shall follow and maintain in effect emergency plans which ~ meet the aoolicable standards in 5 50.47(b) and the aoolicable A licensee authorized to requirements in Appendix E ta this part. possess and/or operate a research reactor or a fuel facility shall follow and maintain in effect emergency plans which meet the The nuclear power reactor requirements in Appendix E to this part. licensee may make changes to these plans without Conaission approval only if such changes do not decrease the effectiveness of the plans and the plans, as changed, continue to meet the applicable standards of f ( 50.47(b) and the apolicable requirements of Appendix E to this part. The research reactor licensee and/or the fuel facility licensee' may make l l changes to these plans without Co=nission approval only if such changes l do not decrease the effectiveness of the plans and the plans, as I changed, continue to meet the-requiiements of Appendix E to this part. l Proposed changes that decrease the effectiveness of the approved l emergency plans shal1 not be implemented without application to and The licensee shall furnish 3 copies of each app;rovalbytheCommission. .e l

9 [7590-01) proposed change for approval; and/or if a change is made without prior approval, 3 copies s' hall be submitted within 30 days after the change is ~ made or proposed to the Director of the appropriate NRC regional office specified in Appendix D,10 CFR Part 20, with 10 copies to the Director of Nuclear Reactor ReguTation, or, if appropriate, the Director of Nuclear Material Safety and Safeguards, U.S.. Nuclear Regulatory Commission, Washington, D.C. 20555. ~3. Section I of Appendix E to 10 CFR Part 50 is revised to read .as follows [ footnotes unchanged]: I. INTRODUCTION. Each applicant for a construction permit is required by i 50.34(a) i t'o include in the preliminary. safety analysis report a discussion of preliminary plans for coping with emergencies. Each applicant for an operating license is required by 5 50.34(b) to include in the final safety analysis report plans for coping with emergencies. This appendix establishes minimum requirements for emergency plans for use in attaining an acceptable state of emergency preparedness. These plans shall be described generally in the preliminary safety analysis report and submitted as a part of the final safety analysis report. The potential radiological hazards to the public associated with the operation of research and test reactors and fuel ' facilities licensed under 10 CFR Parts 50 and 70 involve considerations different than those associated with nuclear power reactors. Consequently, the size of d a 9 w =

10 [7590-01) Emergency Planning Zones 2 (EPIs) for facilities other than power reactors and the degree to which compliance with the requirements of this section and sections II, III, IV,.and Y as necessary will be determined on a case-by-case basis.3 Notwithstandino th'e above caragraphs, in the case of an operating license authorizine oniv fuel loadino and/or low Dower operations up to 5% ~of rated oower, no NRC or FEMA review, findines, or determinations 'concerning the state of offsite emergency preparedness or the adecuacy of and capability to implement State and local offsite emergency plans, as defined in this Appendix, are required prior to the issuance of such_ a license. [ footnotes unchanged) Dated at this day of 1981. For the Nuclear Regulatory Commission. Sanuel J. Cnilk Secretary of the Commission e 9 8 O 989 e . em O e

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F [7590-01]. ce Vl5 m 70 &cy. W-35y c.$..::..I.1..J..,'I NUCLEA,R REGULATORY C0KMISSION ~.' . i.. s. / .--.....s. 10 CrR Part 50 ..:.= z. .r-- .e W-o .,..g _ ,w.y ac .w .....n. -x.-- .,- d.-. @ w M W.=r'l_... Emergen... .s s. ..cy3 Planning and Preparedness:.1 Exercise ' * ^!' 2f =. =- ~ :. a .. :. :..... w.. ..: y-- ;. - ..,, :.:. d.

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.- ~-m;_ - =:. AGENCY: -NuclearcRegulatory: Commission. ..sM..i w, ._ :. - m =. :..:--. +.... a .c.. -a os. .c.. m_ - y_:. w. -- s.w. ?,*.. m . e t.- .. t% :---:.a*.'. r =- U Ay, wy a. J:;?? -

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.c s . f.7.e..t..., 1. s"a .*r e. sg:-:.w a.;.: -+ =>y:The Nuclear Regulatory Commission is proposing to amend its:I'E..

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m. w-a.,, n. ~.-r=. ....n.......-...- v..; :.:..,..: ~.. r-. ...u...n.--. ..v s ~; 3.. +.O.' L. emergency plan,ft:. ..:.:>. arm. -w.ning. regulations.. The propbsed change clarif.i.es.. =c.2.9 m o 2d b r.,s m.. r 3 .w -w'~.3civ ....c u, ry-g- - ::.. .. ;-gg.s,....;.::. scale emergen-cy..~e~,.c.~e.- -preparedness ~ exercises are part of the operational c-h. . g.. g

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.c _. g. m_<.m. f.~ ;, ~ but not for a Licensing'. Board, Appeal Board or Commission licensing ..__. w E ecision.- ~^# - *-~ W.' .M.~f. d ..~.. DATES: Comment period expires Comments received l after this date will be considered if it is practical to do so, but assur-1 I ance of consideration cannot be given except as to comments received on i l or before this date. ADDRESSES: Interested persons,are invited to submit written comments and suggestions on the proposal rule change and/or the supporting Value/ Impact analysis to the Secretary of the Commission, U.S. Nuclear Regula- .e tory Commission, Washington, D.C. 2D555, Attention: Dscketing and ^

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..., = a.-: : ce = - - " Service Branch; " Copies ~ of:the' Value/ Impact analysis'. and of.the commen.v. 'a.;-4.-- = .. -. -~. M ~;.x. =. ' a. -u.<= a.. 3 _.e-~-- n ~~ -.w.---. -:. :. m' 2.~.~2;s?. w-. s... -v:",.e-,. + - - - ~ - w . E ' rec ~e'i~ved' b F. "A@Esi"F # N.Fc-SCM@Kthe Commiss ion';raay' be - examined in -the%Commissionls M MIM9.S$MD. 9 "I-P -

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o -c m.s. s "FOR FURTHER INFORMATION CONTACT: Michael T. Jamgochian, Human Factors ~ - 1.- -Branch Office of. Nuclear Regulatory Research, U.S. Nuclear.. Regulatory. y .4.....~. _, _-+.: ,~~.%..--... .a -:.. -. ...-. q: .- ? 7'~ -Commission, Washingten..D.C. 20555 (telephone: 301-443-5942E.".' .,..... n. -.. m -~

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~ _---+.. :. . u. _ :2 ~. ~..u I* M'.! geg[~M:.-s=e ! ..:.$ SUPPLEMENTARY"lNFORMATION:. ' ~ =- ~. -: -.e,,5 ~ - ww .m.r.,=:w r -~.m-- - = 3 5 5 ~-'- W-ovemberg,,,_9_.8,0hthe3RRC's;.'new regulations en -emergency. -e-@ Mrd g.wl-%g ibecame9 effective 5( 45"'FR '554 02, August.19 ~,T'AS 80)t.tN: ::M he5~eR.Eule5M.El'uded~-recuirements" for.the conducti:cf bothl'" ~~-JG P' @"WR$1756E1[ey.85Yh1Fs'calE. emerg ency.cp1**g..exerdises$"=N.5.D ~~ -_il'Opje50Yf'l.;@f13)$1:0TCERL~3. artE.50 7.hyp..E, sectio 35F T. - M-WM 2 W '" LM{2.p: 1"I6we7er%Ehe'E' ru21s ai[p'Ycon%Ete'd',Werestnclear:=2 fa5dingEEMT-:-J-6:idi1 ~ _ %.5z E.lieT. ole'3_.t. ice _ti. fen,c e ?- ~ lumers ency.r creparednes,det c..of 'e.xercis es To9the ract. u. E,1."T .. t.n a..l.. -.d J t tate... f. /m sswould. play m...,n1t.... L cens - 5_, m' hg g y @m _a n la w.T.:e.x,Y.i~ofi.c_s.- N.. efc5e.453d? th'e detual condue.t'Tc.f 'oh'.eT-c 51 =,.@ d i r .a , view . ~7ynoth.rC1ses3Co.u.c.' reason. ly.,,.

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-d'~ ersvreoperat1onalw.startuchorioperat1onaTite,,.s.. _._.th. _ m. 2 ~ _orei.e..xe r _ Mgns: .w- .r st.sg:qc : - ::s e=uEed 31QMCICEg"El'ation soi@lce5Ee~(conditich's'NWieiisd5.uk9ni ~ Ms ~ g-d 7 s 13.'g1Ec,MhMh'51'di:lci:i' of2an -exercise would ino'~thE-g~ e~~EEP.~-ui i 4. .e e [=R5Efgi5.' sit 61t%1's$dhicefof.any'.;opgrating license. 7.Rath~erf;.th.eV M ..eom 1st. ion..T?tha. icouldtform.a:hasis for.ERC enforcement action 'or t; F e. M- _ge '3"J3~.in .m :-d' formation t IM_@2%..cr.e.asedcinteraetionWetweenethe 'Fe.deral amergencyiMana ement., -~n."., ....., ( ?.EM ~ -.. ~ - W..=.==s:a :.m 2. 3e,n..findi_n_ A."k,,.n.c.eS.ta..te or..lo$. al.emergen... lanning'.acencies?M.'.50 a a ..w. 2 h3~Mb'eS - gsyon:!e..mergency planning required prior?.to'issua:iceW"-L. --T*g :'.J.'..-l=.o. f t.a. licence would,M:inso..f ar as. satisfactory -implementation '~of ~ " c.1.c ... ~ emergency response ~ plans o...r actual state of preparedness are' conce:hed, be essentially predictive in nature. On the other hand, one could also conceivably view th'e comple-tion of an exercise as a prerequisite to license issuance. Viewed in this light, the findings required prior to license issuance would not be predictive but would rather reflect the F-". a ctual" state of' implementation' or preparedness at the moment 'just trior to' license issuance. }he.NRC is proposing to clarify its rule to indicate that the ormer view of the role of emergency planning exercises and state of emergency preparedness is the preferred cae. ':'here aje two reasons.:or_this approach. First, making the conduct p; 9::, . <w.:several, Fec eral.;, :., a _ull-scale exercise, which includes participat4.onbv A -:.- o ~ 4 State;..and local? agencies as welleas the S%W: d 14=; W-5. e.. ;;. appl 1cantW.a2 prerequisite -to license. issuance vodTd ecui ~ bbN =: *Sgg;; w-m.ont'gs}af_o,prage,agpter, '.thQexe'fcises le - conduNed . p y g jnhat hs,.:Gbe r..eT1tcen.seci,s.suance so M.hafMhe.,:-exe cC'e '; es J- +A:- Fsg&- s. m f:m um- - r;.. _. nyggad,u icatoryEh,m.,a'15prelic'en'sifig,5'ievrey c'i oc'e,,ssvr-4G ..y2nfor. 545M5.W. g"U@an*yg,^pg.E.02e[gint,d@. hC ,e Ef5o3siEeri~u~ Ei-Mi d g' (- M 3, earings 3which'ea: Mi?.51Mcg g NbM'~-~5- $D~/#'39' 'G' N [ - h* $ ' M *m. Je % g;g h h h k.O . 2.2llWW@ IGE'5~&W,.:$A~*'35EGE2'4ihkkh5$ $WcWhYh@."$Qi?'.;.h ~'25'@d' fff W'T W.:.'$ b6 N'L:-$.Y.h&a%.2.&fw/ ~7 = B*hNi 8 i ' E l'~ 2 5 M ? n w"f*2.% ~5 $ 5 f $ 5 M %w.> M u y;. Y 1.. w W.:a. :., 'm. v. % wt;w.i ,.... u :_:;. g:,;. ,.W': rte, p~. _.==.%.x=%,.W, wp. byn;.g w.. a a

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M L MO..si_tEnh5,.i.ti.mQ. ... thatse.xer..ci.se..s' shoul.d.i.take. laee hearly.dn...50rtant "~ s _..e.e % . =. rth. eI. M .p =* S.g - g p o,1 n t g r curing ola. E.x, u #, A w. ..,n.w w _ pl.~p..s.n m e n.. an.. s~11,etim.e. a:_ Id cont.1nue -'~ :To'oe....rationMOf course ~,p.hereh,s.' periodically..houldMe 9easonable assu nt..7 . --t.. v ~- mM..W$., ~pi.i..'.:~-t. o_41i'ce:...Ge"issuanee.3_. hat rthere' ere no barriers". to " 0. M_.. ; P _ 6.A ~ c .e W tL;.pgemergency_p1 m ".-g 1mplement.ation or to a satisfactory state _._.. N.fi's-Mfjemer9 enc 7-Trepar_edness.ptat..cannot. feasibly 1be removed.Y@p ..4 ~ .h:.s. tr. ~ 'censideratientcan. -~be' adecuatelv accounted for ty..predic..Jrega =plementation - er g,..- %....: Mu ve;; findings. ~. ;.a m : cn' preparenness. prior..to t.11 cense issuance. Thus the rule, as W 'Tl.- ^ proposed to be amended, would clarify that the actual conduct ~ of exercises is not a prerecuisite to license issuance, but that prior to license issuance a finding must' still be made that "there is reasonable assurance that the plans can be implemen ted. " Accordingly, it is proposed that 10 CeR 50.47 (a)(1) be modified to clarify that the findings on emergency planning recuired. prior tc license issuance are predictive in nature and do not I need to reflect the actual state of preparedness at the ' time / the finding is made.. 10'CER 50.47(a)(2) will be amended also to c.=phasize the. predictivd nature of the review and to provide that-licensing' decision _s need not include the results of an f.:. excicise. " Preparedness", yhich connotes the a'ctual= state of implementation, is 'important during"the life. of the plant and y" will' be treated ~as ; an Loperational inspection matter.-4. The rules _ l. t =T=.i _- vill.t.ree.nire -thatsa' fd -t @u -P-".~..o-3eration'.above-l5Ulofc.ll ~ scale exercise be c ~ s rated power and perlodically.. hereaf ter.~ : J.': s.,

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-.a.-,.= :-:... =. :. : x_.;.g;-c.ur- = -R% :c~,: .c. Reculatory Flexibility Certification ~ ~ In accordance with the Regulatory Flexibility Act of 1980, 5 U.S.C. & 605(b), the NRC certifies that this rule will not, if promulgated, have a significant economic impact on a substintial number of small e.ntities. .. ~. The proposed rule concerns the frequency and extent of conducting full ~ ~ = ~. =a - m - =~ ...m - :scAie exer ~cises of.'.eindg'e$chp'lans for nuclear power plants licensed pur{ ..;:a. x. .c w v.. -:.w.~.s.m+~ - : ~m.c -.w y'of the Atomic ' Energy Act of.1954;. as amend =- 3:suant' to.'. Sections.103' an'd 104b =- ~ ~..

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