ML20084H534

Provides Status of FEMA Action Re Applicant Offsite Emergency Plan Full Field Exercise of Util Plan After Correction of Deficiencies Contemplated.Sequence of Major Activities for Plan Exercise Encl

ML20084H534
Person / Time
Site:	Shoreham File:Long Island Lighting Company icon.png
Issue date:	04/26/1984
From:	Speck S Federal Emergency Management Agency
To:	Dircks W NRC OFFICE OF THE EXECUTIVE DIRECTOR FOR OPERATIONS (EDO)
Shared Package
ML20084H513	List: ML20084H511 ML20084H534
References
NUDOCS 8405080092
Download: ML20084H534 (13)

Text

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@ Pederal Emergency Ma l

Washington, D.C. 20472 e

l APR 26 334 Mr. Willisu=J. Dircks Esseutive tirector for operations U.S. Nuclede Regulatory Ceemission Maryland N'ational Bank Building 7735 Old Coorgetown Road Bethesda, Mary 1 sad 20814 -

Dear Mr. Dircks:

This letter responds to certain questions that you raised eenceratag further developments the poderal gastgency Management Agency (FEMA) is emploririg with regard to off-site emergency preparedness at the sharehea Nuclear Generettag Plant. You asked to be updated on any additiemal steps we are looking at since my letter to you of Marsh 13. 1984. That letter forwarded FINA's evaluation of the of f-site eastgency plan prepared by the.Long Island Lighting Ceepony (utility plan) to the Ceemission staff.

yENA f.s charges by low and Fresidential direetten to take semprehensive steps, working with all levels of severnment sad the private sector, to enharce the state of readiness for emergencies and disasters and to protoct the lives and property of our Nation's sitiseas. Consistent with this responsibility FMA, working with the D03 and other Federal ager.aies is new deternistas the cireuestances mader stich it might prepare a pian to emeraise the stility's off-tita. amergoesy plaa sens, and, assuntas, necessary_ corrections are sospleteb. This verk thus far indicates that such an effort would require fandtag of between $1-2 a111toa and would taka ebest

-sesenttpummehe for completten. This approach envisions a full field emeraise of the utility's pisa after correetten of deficiencies identified by FEMA la if:s report to the WRC staff.

It is presently sentemplated that the esercise of the utility plan would be andertakes la senjunction with the Federal Radiological Eastgency leapesse plan, recastly emerateed la st. Leste, Florida. Also, the eastgeasy respease espebilities of the Deportesat of Energy, and other Federal agonales with operations in the vistaity of the gherehen plant any be involved. One goal of the 'eWIfWe 'wouirwie restew~ the way that avetfable federal plane and researses, as seted, aan he employed la assistasca to state and loest plans and respease capabilities within the aesresser plemains seses of operattag meslear power plaats.

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Essessarily, there remains a great deel of work to be done la devoleptag this planning and eseraise effort, includies elese work with the State of Bee York, the IRC and other poderal agosties. We will be seatset'ag yes and the NRC staff se these efforts progrees.

Si etely, d Gnual,t.d.[O A p

kemselW. Speck 0

Issociate Director State and Leesi Programe and Support i

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Y Fre-decisional Es:cutive Summary of Issu s cc Easreise et shoreham Attached are three dceumsato conseraing seases involved in developing and sonduettes sa esencise of the Leag Island Lighting Ceapany (LILCO) Treasitten Flaa at Shoreham with the use of the Federal Radiological Energency Easponsa j

Plan. h y are:

1) Sequence of Major Activities for the Easteise of the Llu:0 Plan for Sherahael

2) Objectives which enver the observable elements of WUREG-0654 and

3) Items for consideration In Flanning An Euereise at Shorehas.

These documents fore the basis from which the Federal Energency Management Agency (ytMA) can discuss how the exercise should pressed with other Federal agostice, i

the licensee, the state sad other affected parties.

Should the ageasy proceed with the development of the emeteise as antialpated in this Flea, major sommitments of resouttes and program funds will be required. At St. Lacio for esemple, the east to FtWi"alone una ~4500,000-8700,000.

Nine hundred people were favolved in the St. Lucie full field esereise. At shoreham it wes14 he essential that conttactors provide a large pereentage of the perseasel reseureas support se that a timely esercise sehedule een be met vbile ensuring a reasessbla level of interruption to eageing FINA progrees.

Under the statutory assignments made to FEMA by the President, we have authority i

to prepara a plan for comprehensive eastgency reopense by the Federal Government et sharehas in eenjunction with the LILCO off-site eastgency pisa. FEN &, partistpattai with other Federal agencies, may also undertake an euereise of such a pies under esisting authority.

There will he a continuing issue before the Nualear Regulatory Comissica's Atomie safety and Lissastag Beard (ASLB) La the Shorehen sese ever whether en arrangement of the kind described above, eyes if suseessfully esereteed, will constitute resseeable assurases of public health and safety off= site as provided for in 10 CFR Part 50.47. This is due is part to the guestions that arise regarding the legal authority for both Federal and Lud:0 to eendast off-site emergency operations la the case of as asteel crisis la the abeense of as invitation by the Goverser of New York State that they de se, or a determination by the president that earcumsteneos dessed he taveke his emergesey poners under 10 U.S.C. 9 331 et see. The esercise esseept developed la the atteshment i

is based on the presumpties that authority seuld he provided to support Federal emergency aid should an actual erteis esaur.

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BEQUINCE OF NMOR ACTIVITIIs p04 THE "Its OF TER L112 PIAN 708 ""****

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The esereise eheutd proceed under'the sagte of thp, Federal e og sa rgesey Resposee Ples (FRERP), together with a ette-epeelfte plea for the shorehas plant. Additionally, it le eesteeplated that sa i

emergesey preparedeces plae for the adjeeest Departeest of Beergy (305) 1 lesality at Brookhaven would be developed and made part of the esereise offert.

la essenee, the Federal response espebilities (e.g. FRB87, Brookhaves) would he seneidered as parallel to e State roepease is en assident ettuation, with the L11401 meat Beergesey Response Organteation (late) respesse being roughly equivaleet te what would aermally be espeeted at the seesty level, i.e., Suffolk Cemety.

Absent state and lesel participation, the esereise would eseuse that the i

first etage of offeite reopease will be by 1230, under the seerdiasties and i

sostotases of the DOE at treekkeven.

la the event of a fast-breshing assident, treekhaven, notified by L1Lc0 as stated in the Trenetties Plan, would intefelly seerdinate the Federal resposee at the seems, poeding F MA errival.

This to due to the physical prestetty of DOR's treekhaven feellity. The Goverest will he notified by the 1250 Direeter of Leesi toepease 42 the Alert stage.

h Severser es11e the FEMA Regios II Director, who will be deployed as the Deputy Sealer FEMA Official (90F0), together with the hergesey Beepease Tesa (EST).

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The DSF0 will serve as the emette/offette esordiaster.

l the FINA Director will appetet a sester FMA Offsetal (NO) the will beOsecurrently, i

deployed to the acese where he will set as the Severeer's Aethertsed Representative l

(GAR). RC's este tese leader errives en the scene at the stes og the SFO l

and is designated Direeter of atte Operettees (980). L1L00, threigh its dedicated telepheme lies, le to sontinseus sentact with the Wwleet Regulatory l

Couniesten (WRC) Operatiese Gester is Bethesda, Maryland, throughout the energeasy.

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Alert Stames As the emergeney seves from the Notificaties of gemenal Event (NOUE) to the Alert stage, the F M A Seergesey leforesties Deerdiestion Oseter l

3 (BICC) to notified through the NBC Operettesal hospeese Procedores ( SP).

FINA then seedvets its ea11does, through the BIOC, of the other Federal Agencies (0FA's), i.e., SPA, MS, 9804. 307. BBC, 301, K 3, WCs, and 909.

m IICC is avere that D0g, FMA, sed MC are already taformed.

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Aloe et the Alert stage, the 1280 Leee! BOC to settveted et Breetweed, lang Island.

who report to the Lesal 50C as provided for to the Ltla0 Treasities F t

The emergeasy setten level goes from Alert to Site aree Beergesey (845) to the seen, 2 heers. k rieg that time, the felleeleg escure:

MC 5eadquarters Operettene Gester estivated.

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e the F M A Boergesey Support Team (BST) heaemos operational.

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Seen after the dealerettee of 848, M C i

p e esota additissal og med aseosemmet, thereby settvattag the al Mediolagleal l

IIsotteries and Aeoeseenet Oseter (FMAC) to seppert of IERS/treekhoves estivities. :

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raesar Stames The emergerey reaches the t=ral 'rmeeau elassification i

Ieest. Initial Proteettve Aattee Reseemendettees (FAA) are toplemented.

l 1830 reeammendettoes for sheltering and evaamattee, which have heet made to RC (the CFA) are taptemented as folleus:

m prompt alert and estiftsattee (A4W) systems will he estivated by Lane e

with the sesourresse of the EC's Direeter of Site Operetiene (300),

who has new arrived at the amergesey Operettoes Poet 11ty (EOF), and spea approval of the 870 is his esposity se the Goverser's Aetherteed Representative (CAR). The gr0 sotifies the Severnor that the A4W activation will sacer.

The 870 else eetherises 1880 to de route alerting, setivate strees, tone alert radise and activate the L880 l

• ES8" systes for the esereise.

Other FAR's may be, developed and implemented, dependtes spoe meteetelegiest o

secessmente end deteiled assessment of pleet seedittees.

WRC maintaine elese aesteet with FEMA Needquarters (BST Streeter) as major release begies.

Federal asemales deploy and withis several hours the IRT, OF0.tegether with his Deputy Seeler FEMA Offietal (3070) arrive at the Federal asepense Gester (FRC). OFA representatives arrive sonettes later et the Plc. The FWi&C to i

established in slese prestatty to treekhaves Nettoes! Leberatory. 30E's l

Offette Technical Director (OSTD) to is enarse of FWIAC.

Be util digest all tesheteel data free LBRO and other sourses se a beste for FAR's, is sesjusetten i

with the 50F. These reseameadattees are ande by the OSTD with 300 ( M C).

l The 870 (settes en FEMA's and the State's behalf) and the 300 held esordiastion I

and strategy meettege.

In the event FAR's are verrested, the FAR desteise is mode by the Spe, settes se GAA, and toplemented with 1230's ressureas and personnel.

Bees thereafter, the mejor release eeds.

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J Meet of the above operettees are eenducted under the FEBRF eed the M C/FBLA i

l Operettag Response Procedures (ORF). h significant differesse, of eseree, is that the Severnor himself does not play a direct role to enjer deelsteemakteg.

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la eseesse, from early on the FEMA Regies 11 M eseter fumettees as the GAR.

l The 870 to thus the aritical esemusteation link to the Govereer. Be oestiemally keeps the Goverser apprised of the emergemey situation and the publie tapaets.

There are aumerous activities of the Federal agencies dertog the mejor release.

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e lesebers of Congrees request the statue of sometituents' health.

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Prese lequiries are made to 9894, 2 8 MC, and FBIA se the lopeat l

ef the rolesse se feed, deity produets, and general health.

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The 11essees dowegrades the level of emergemey to SAE eeen efter the pleet i

is stable (within a few hours of the eed of the major release).

Pelleutes the eed to a enjer release, estive Federal ageoep tavalgement sahee place to etene eseperettee with 1830 (estlity LIh00 centreeters, and ges).

l Set and EPA resourses as part of the FBIAC perfees the fumettee of the State's l

Bureau of Bedselasteel Besath to seek the eene say that 13 M performed AAN l

feastiene to p1ase of andfolk Goety.

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l Pressures Wild free numerous eeurses for Federal tapect assessment. During this time, segetes estivittee imeledet i

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lees-tors protective setten rescuecedatiese: and e

Public effstre sad Ceegressional reistions estivities.

The goverser requeste the Federet establiskeset to provide and to implement resevery and reentry guldense. Aloe, the Freefdest direets the 3F0 to develop this guidance and embait it as a written report to the White House.

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ossacrzVsti sasact8a pean senso.06M 1.

Besometrate ability to aebilise See. I

' E.1. 3.2 staff and activate fea111 ties Sec. I promptly.

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Demeestrate ability to fully See. 1 A.I.e.

etsif feet 11 ties sad estatsin See. 1 A.4 etaffles ereced the sleek.

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Desesstrate ability to make g See. II A.I.d, desistees sad to seerdinate eastgesey estivities.

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Desenstrate adequeer of facilities Sea. III 9.3.a.

and esoplays se support emereeney see. 11 5.1 j

operettene.

See. II 5.3 l

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Someostrate ability to sammunisste ROC. See. IV F

t oath all sppropriate leastsees.

Sea. III orgeoisations, and field perseenal.

See. III See. III

s. 1. 11 Ges. IV 6.

Bemeestrate ability to anbilise 3 See. I 5.2, 3 8 and deploy field semitoring i,

toene se a tiesty feebies.

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Spacestrate appropriate equipeest 3 Bes. 11. Ett 3.0, 1 11

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end poseedores for estesetates emhteet radiotiee levels.

83 Summentrate appeepeiate agespuest See. II. Ett 30 auf poseederse for messerement see. 3. Il et efeteerse radiatestes esseestratites es les as 19*7 e N /W 1a the pressees of asble l

gnees.

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Sensmessate appropriate eqdpasst See. St. III 3.8 i

l end peeoedeces for es11eettee, Osa. 3. It teamspeet and sealpete of semples er essa. esostesses, ease. aster, maa een.

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WER88MMENS Pant (s) er Nosu u m i

eSJECT1933:

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18. Sommestrate sbility to project See. V 1.10. J.10.m desage to the publie vie plume ges. II t

espesure, based se plant med field data, med to deteentes appropriatepotectiveesaceres, hosed es PAS e available shelther, evaeusties time estiestes and all other appropeiste fastore.

11. Beseestrate ability to project Wee. V I.IO. J.ll desage to the publie via teGeetion Sea. VI pathuey espesure, hamad os field date, and to deteresse appropriate protective oneeures, bened se PAes and other relevant fasters.

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12. Deesestrate ability to implement

& See. VII.C J.9. J.11 protective settees for tageettee pathesy hasards.

13. Dessestrate ability to alert the Sea. VI E.4 publis withis the 1&sile 373 Sec. !!!

and diesesiaste se 1eitial instreetlesal message, eithis 15 miestes.

14. Seconstrate shility to formulate g sea. V1 E.S and dietethese approptiste j

teatreettees to the publia, la a timely fashion.

13. Beseestrate the orgeoisetteest

e. VII.A J.p. J.10 3 ehitity and recestees necessary

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l Se senate en sederly evesession et att er pers of the ploes Ws.

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16. Sossestrate the organisettenet sea. Ytt.A J.10.k eugn e.d es areas - a.,

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esesmettee, es.edt.nete to seelement meether er eseffie ekstenestene.

17. Seessettete the argeoisatieaal

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shelity and seesuroes assessary

e. I to oestret asesos to se ovesessed spee.

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18. Seneestrate the'ergeelsettesel M See. T11 3 Jelt.d ability and resources mesessery 3 See. 31 3 to effect se orderly eveeeestee.

J of sew 11ty-tapeired Sedividuals withis the plume EF8.

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19. Deeenstrate the orgestsettesel g See. T11.5 J.9. J.10 8 aW14ty sed resources eseessary.

to effect es orderly eveemeties of scheele withis the plume l

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80. Domeostrate ability to oestimmenely Sea. VIII E.3.a.b seetter and sentrol energemey See. IV l

i merker esposere.

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21. Domeostrate the ability to make the Sec. 9 J.10.f l

deelstee, based se predeterateed See. VI eriteria, ehether to issue E1 to energessy verbers end /er she generet popotasies.

St. Deessetrate the ability to supply see. VIII J.10.e end admisteter E1. eens the desteles

s. IV hoe been sede to de ee.

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23. Dessestrate eW 11ty to effect 3 Sea. V11 5 J.3 en sederly eveemettee of easite perseasel.

24. Samenstrate obliity to brief See. U 8.3.s i

the endte is e staar. escurate See. IT S.4.s i

and timely ameser.

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l IS. Dessestrate eW itty to provide Bes. M See.b I

advenes esordiesties of informaties Sea. IV solassed.

36. Deusestrate eM 18ty to establish M See. 11 J.13 sei aparate sneer sestret ta e i

casettaated feeW ee.

27. Seessettete adequesy of feettities M See. III J.10.h for uses eere of eveesses.

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28. Someastrate adequate agolpeset M all 5 9.e. b sed procedures for deseetseisettee

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et emergeoey workers, equiposet and eehielse.

29. Seeenstrate adegeney of embulance g See. !!!

L.4 fest11tise and procedures for need11eg sosteeinsted individuele.

30. Seeenstrate adequesy of hospital ggg,see.II L.!

feellities and procedures for headling esetestosted individuale.

31. Demonstrate ability to rolesets (to be developed) 5 2, 53 to end operste the etternate SOF/50C.

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31. Deeenstrate ability to setteste See. V M.4 setel populettee aspesure.

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33. Deeenstrate ability to deternise g See. I N.1 and implement appropriate esseures for aestrolled reeevery and reentry.

34. Deeenstrate abi11ty to identify esed (to be developed)

C.1.a. b for, request, and obtste Federal assistanee.

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l Sub Objectivee Onder Federal Assisteeses 3.

Se evaluate the adequesy, stes11eese, sed offestiveense of the tesorageosy eeueuetaations, imeleding procedures and herevere used to estify eed opdate Federet egenotes at Readquetters. Field, and the state.

2.

To evelaste the adetesey of the feettities evettable at the site for l

esen egeoey to perfees its teek.

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3. Se evateets the assersey, esentstenay, and steelisees of the esteese t

of publit infoguettee, partisolarly the seerdiesttee of such 4efoemoties l

m eeg the Federet agencies, effette hetenen unohtestes, 3 8., ptead i

GrBeessettees. Jetet Refoemettes Gester, and ear State infaseettee emeter.,

4.

Se evalaste the offestivenese of the 7tderal tediological h atterieg med dessesseet Ples to providtag radialesteal oestateese.

3.

h evelesse the effsettgeness of the keeptog the m ite geese infogued of the esteettee med poderet assicas.

. A..h seminate the effectivenese of keeptes the Geestese safessed of the

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Items for Consideration In pisanina An Esereise at Shoreham The following' elements could have major impact on the suseessful condust of an esercise of the Long Island Lighting Company (LILCO) Trasetties Fida at Shoreham once deficiencies are serrested.

1. state Suseert It is important, as an early aceponent of the development of an esereise plan, to determine the estent of State support for the p1saned setivities.

FEMA Region 11 representatives emphaatsed that at a minimum, this support must encompass two concepts:

(1) the concept of the esercise itself, with or without State or local participation and (2) the concept of operationa.

2.

Fundins A.

Level of Funding and Contreeter.Sussert - Due to the massive commitment of personnel resources necessary for the tasks associated with the development of this unique esercise within a reasonable time frame, contracting support is essential.

From the esperience of conducting the esercise of the Federal Radiological Energency Response Plan (FRERP) at St. Lucie, we een estiaste that the cost for FEMA responsibilities for development and coordination approached $500,000-8700,000. The potential involvensat of Argonne National Laboratory (ANL), Idaho National Regineering IAberatory, and other contractor support is saticipated at a minimum. Due to the accelerated time frams for the development and conduct of the exercise and due to its unique nature, it is necessary to sole-source the work to these firme under entsting contracts.

Effisiency is gained through the use of esisting sentract aschanisms and through the proven experience and resourse base of these companies. Each has either worked on the eenduct of the FRERP exercise at St.

Luete or been intimately involved with FEMA radiological emergency preparedness (REP) eseraisse for somattee.

B.

Sources of Fundina. Finally, the total funding must be shared among the Department of Energy (DOE), Nuclear Reguistory Comission (NBC) and FEMA.

It is proposed that the $500,000-8700,000 seationed in Section A above be shared paong these agencies.

WRC and DOE would centribute their share through interagesey transfer of inade.

Reaching agreensat on this 3-part funding may be a probles. Further, even FEMA's share say be so large that it asy become asseessry to approach Congress either for (1) authority to reprogram funde free other FEMA progrees or (2) to solicit supplemental funde. This obviously would be difficult without full Congressional seppert for FL:*A's intentiene.

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,,. - We h.ve Consressional support for FI M's slaa tn exercise et Shoreham.

3.

already received Congreestonal reactions, both pro and een, to FIM 's j

J March 15, itse, report en sharehen.

l Correet1on of LILCO "ransition Plan defietencies.

In FEMA's March 15,

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1984, transmittel, 33 deficiencies were identified.

With the asseption of the deficioney relating to NUREG-0454 element A.2.b. (ceaserr.ing solely the legal authority issue), deficiencies must be corrected. Ag_

adjusta,ents necessary to secommodate the unieue role of Federal Aaencies would also have to be ande.

For enaaple, the standard operating procedures relating to Brookhaven's role in the Plan must be strengthened. While i

l this may not appear to be a major obstacle given the amount of time available, a great number of tasks are involved.

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Iasset on FEMA Headeuarters and teaton II (estimated from the essettence with the exercise of the FtgRF at St. Lucie). At the St. Lucio Full Field tuercise (FFE), nine hundred people were involved.

The sees number of Federal participants were involved in the FFE as in the dry run, i.e.,

about 450.

Four staff years of effort were required at FEMA Headquarters and Regional Offices. There was also a major coenitsent of full-time State resources (3 FTE).

Sonsone in FEMA would also have to assume these duties. These are just examples of the intensive personnel resources required.

Based on the above information, we estimate that even with extensive contractor support, the successful conduct of the Shorehan esercise will take 12 staff years of effort counting both FEMA Readquarters and Regional levels, primarily in the Office of Natural and Technological Rasards (DNTM) and the Office of Disaster Assistance Programs (DAP). Particularly in Headquarters OWTM, this would mean that work en other reseters would be delayed. The same effect would occur in FEMA Region II where auch REF work was already postponed due to the heavy staff involvement at j

!adian Point.

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Esautrements for Partie1mation of Senter FEMA Staff - The FRERP ea11e for Frasidential appointees (e.g., an Assaietate Director or Administrator) to staf f the position of Senior FEMA Offietal (gro).

This will require entensive tima in preparatten and play in the enereise.

7.

Atonie $sfety and Licensina leerd (ASLS) Conseeuences. The AgtB may l

_ require extensive testimony by FEMA senserning the development of the esereise concept.

Since the AgLB has already convened and is hearing j

testimony on offsite energency planning issaea related to the Regional l

Assistanee Committee (RAC) f~ndtag, testimony on the sharehen eseraise could be required in the meer future.

This would entail time-eeneuming l

preparation of pre-file documents and briefings, etc.

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Activities by suffolk County and/or intervener arooms. We have received a Freedom of Information (F01A) request frea Suffehk Comaty's atternere for information relating to the Marsh 15, 1934, transmittal, the RAC finding and FEMA's positten on the L1140 Treasitten Flaa.

It to entirely possible that other intervener groupe eeuld jota the Geesty la eeeking saformation, etc. There la en obvieue drain en FEMA ressurees in reapending to these actione.

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cn;; ration of other Federal u r-faa.

It is critical to achieva the cooperatice 9.

of all other agesetes which would partistpate la the application of the FRERP at Shoreham. Integrated plamains of the interagemay relos la this unique emeraise is necesesty from the beginning of the project.

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