ML20234D165

From kanterella
Jump to navigation Jump to search
Draft Criteria for Util Offsite Planning & Preparedness, for Comment.Fema/Nrc 871119 Notice Re interin-use Document: Criteria for Preparation & Evaluation of Radiological Emergency Response Plans Encl
ML20234D165
Person / Time
Issue date: 11/19/1987
From:
NRC
To:
Shared Package
ML20234D094 List:
References
FOIA-87-813 PROC-871119, NUDOCS 8801060477
Download: ML20234D165 (32)
v • d • e


Text

_ - - - _ - _

C

//// 9/8 7 ll<' For Comment t

TABLE OF CONTENTS i

Page j I. Introduction A. Purpose 1 i B. Interim Use of Document 1 j C. Authorities 1 I D. Assumptions 2 E. Scope 2 F. Definitions 3 G. Summary of Changes 3 1

II. Planning Standards and Evaluation Criteria l A. Assignment of Responsibility (Organization Control) 5 B. Onsite Emergency Organization 7 C. Emergency Response Support and Resources 7 D. Emergency Classification System 9 E. Notification Methods and Procedures 10 F. Emergency Communications 13 G. Public Education and Information 14 H. Emergency Facility and Equipment 16 I. Accident Assessment 17 J. Protective Response -

18 i

K. Radiological Exposure Control 21 L. Medical and Public Health Support 22 M. Recovery and Reentry Planning and Post-accident Operations 23 N. Exercises and Orills 24

0. Radiological Emergency Response Training 27 P. Responsibility for the Planning Effort: Development, Periodic Review and Distribution of Emergency Plans 29 1

3

.. 1 f

i 8801060477 871231 PDR FOIA WEIBSB7-813 PDR l 1 i i

l

wp-

'. For Comment CRITERIA FOR UTILITY OFFSITE PLANNING AND PREPAREDNESS I. INTRODUCTION A. Purpose The Nuclear Regulatory Commission (NRC) and the Federal Emergency Manage-ment Agency (FEMA) have added a supplement to NUREG-0654/ FEMA-REP-1, Rev.

I that provides guidance for the development, review and evaluatica of

~

utility offsite radiological emergency response planning and preparedness for those situations in which State and/or local governments decline to participate in emergency planning.

B. Interim Use of Document This document has been developed for interim use in reviewing and evaluat-ing utility prepared offsite emergency plans and preparedness. This interim-use document is intended to be used with Section I and Appendices j 1-5 of the existing NUREG-0654/ FEMA-REP-1, Rev. 1. A notice has been pro-( vided in the Federal Register to announce the availability of this docu-ment and to invite public review and comment.1 Subsequent to the receipt

{ of comments, this document will be issued in final,. Except where specifically modified, the existing licensee-only evaluation criteria of the current Section II are not affected by this document. For.those situations in which State and/or local governments are participating in

. ti,e eiergency planning process, the existing NUREG-0654/ FEMA-REP-1, Rev. I evaluation criteria will apply.

C. Authorities ,

This document is intended to facilitate the implementation of the change-to 10 CFR Part 50.47(c)(1) and 10 CFR Part 50, Appendix E, Section IV.F c the NRC regulations, dated October 29, 1987 (52FR42078) dealing with the following: " Evaluation of the Adequacy of Off-Site Emergency Planning fc-Naclear Power Plants at the Operating License Review Stage Where State and/or Local Governments Decline to Participate in Off-Site Emergency Planning." It is consistent with the provisions of the FEMA /NRC Memorar-

  • dum of Understanding dated April 18, 1985, wherein the parties agreed -

evaluate plans prepared by utilities on behalf of State and local gove 1ments.

2The comment period expires on about February 29, 1988. Comments may be sent

,, to David Meyer, Chief, Program Procedures Branch, Mail Stop - 4000 MNBB, Washington, D.C. 20555. Comments may be sent through the mail or hand-carried to this address between the hours of 7:30 a.m. and 4:15 p.m.

1

For Comment D. Assumptions The following NRC/ FEMA assumptions are used for the development, review and evaluation of utility offsite plans and preparedness, i 1. In an actual radiological emergency, State and local officials that l

have declined to participate in emergency planning:will:

1

a. Exercise their best efforts to protect the health and safety of the public; Cooperate with the utility and follow the utility offsite plan;

~

b.

j and

c. Have the resources sufficient to implement those portions of the utility offsite plan where State and local response is necessary.

Although it is assumed that non participating State and local organizations will respond and follow the utility's offsite plan, it is not assumed that these organizations will be as familiar with'the plan as if they had par-ticipated in the planning process and exercised with the utility. There-fore, the utility's offsite response plan and the offsite response organi-zation will provide compensating actions through the use of liaisons to

~

deal with the coordination of information and resources with State and-local governments and to provide advice and. assistance to responding i State and local governments in implementing their assigned roles and func-tions under the utility's offsite response plan.

E. S l ope In developing this document, the planning standards of NUREG-0654/ FEMA- 0 1 REP-1, Rev. l have not been changed and they apply to the offsite response organization defined below. This complies with the NRC rule change cited in C. above. The guidance will be used for the development, review and evaluation of offsite emergency plans and preparedness in which State-and/or local governments decline to participate in emergency planning and-preparedness. The planning standards are the same as those used to eval-l uate licensee, State and local plans and preparedness. The evaluation I

criteria have been moditied with due allowance for the non participation of State and local governments and for the compensatory measures that must be proposed, developed and implemented by the utility. The utility offsite plans and preparedness will be expected to account for the vary-ing' degrees of participation that the utility is able to gain from State and local

  • organizations during the planning process; snd the resources to j implement the offsite plan must be identified and c mitted by the .l utility and by State and local governments particip. W g in the planning q process. The appropriate FEMA guidance memoranda, policy memoranda and 1 REP documents (e.g. , REP-2,10,12) will be applied to define the condi-tions of adecuacy and inadequacy of emergency plans and preparedness.for specific evaluation criteria. The numbering pattern for the evaluation criteria in this document is the same as that used in the existing Sec-tion II of NUREG-0654/ FEMA-FEP-1, Rev. 1. Therefore, numbers that apply to licensee-only evaluation criteria are niissing and additional criteria i have been assigned new' numbers.

2

For Comment F. Definitions The following definitions apply to'the use of this document.

1. Offsite Response Organization (ORO): The utility offsite emergency response organization along with other participating voluntary and private organizations, and local,' State and-Federal governments' engaging in the development of offsite emergency plans and prepared-ness for a nuclear power plant.
2. Nonparticipating Organization: Those organizations including State and local governments that decline to. participate in emergency plan-ning and preparedness for a nuclear power plant.

G. Summary of Changes The following is a summary of the changes to the evaluation criteria of NUREG-0654/ FEMA-REP-1, Rev. 1.

1. The concept of "offsite response organization" is adopted and defined.

Throughout the revised evaluation criteria "offsite response organiza-tion" replaces references to State and local governments.

2. In addition, evaluation criteria were modified or added to compensate for lack of participation by State and local governments-in' the planning process, for these functions: .
a. Identification of the functions which require State and local authorization before implementing (A.2.a.).  ;
b. Provision of additional personnel to advise and assist State and local officials in an emergency (C.5.).

, 1

c. Provision for advising State and local officials' on emergency actions to be taken (D.4. , J.10.f.).
d. Provision for coordinating emergency messages with State and local' governments (E.8.).
e. Provision for communications with non participating State and local emergency operations facilities (F.1.).
f. Provision for public information describing the role of the offsite response organization vs. the State and local organiza--

' ' tions during the emergency (G.1.e.).

g. Establishment of an emergency operations center for use in l directing and controlling offsite response functions (H.3.). I
h. Offsite response organization shall have.the administrative and physical means (even though they might not have the responsi- i bility) for activating the' alert and notification system (E.6. .

and J.9.). I 3 1

For Comment

1. Recommendation on the use of potassium iodide (KI) for the. gen-eral public (J.10.f.)
j. Provision for encouraging participation in exercises and drills by State and local governments but not requiring-it (N.2.a. and N.6.).
k. Provision of training to persons in the utility's offsite response organization who will be responders (0.4.k.).
1. Provision for offering training to non participating State and-local governments and other organizations (0.6.).
m. Provision for providing copies of the offsite plan and'its revisions to non participating State and local government entities with which the offsite response organization identifies interfaces in its offsite plan (P.11).

1 l

o

'j

?

4 u

)

For Comment e

II. PLANNING STANDARDS AND EVALUATION CRITERIA 3 A. Assignment of Responsibility (Organization Control) 1 Planning Standard 1

Primary responsibilities for emergency response by the nuclear facility licensee, and by State and local organizations within the Emergency Plan-ning Zones have been assigned, the emergency responsibilities of the j various supporting organizations have been specifically established, and I each principal response organization has staff to respond and to augment I its initial response on a continuous basis.

Evaluation Criteria

1. a. The offsite plan shall identify the elements of the offsite response organization for Emergency Planning Zones (see Appendix 5 of NUREG-0654/ FEMA-REP-1, Rev. 1).*
b. The offsite response organization shall specify its concept of ,

operations, and its relationship to the total effort. The con- I cept of operation will explain how the offsite response organi-zation will function with non participating State and local 1 governments, and will specify the various' modes of operation, l

c. The offsite plan shall illustrate these . interrelationships in a block diagram. This diagram will define the roles for the off-site response organization and non participating State and local governments, and identify the lead interfaces.
d. The offsite response organization shall identify a specific individual by title who shall be in charge of the emergency response.
e. The offsite response organization shall provide for 24-hour per day emergency response, including 24-hour per day staffing of communications links. ,

1

2. a. The offsite response organization shall specify the functions I and responsibilities for major elements and key individuals by i title, of emergency response, including the following: ' Command i and Control, Alerting and Notification, Communications, Public ,

Information, Accident Assessment, Public Health and Sanitation, l Social Services, Fire and Rescue, Traffic Control, Emergency Medical Services, Law Enforcement, Transportation, Protective '

Response (including authority to request Federal assistance and )

j to initiate other protective actions), and Radiological Exposure  :

'Offsite response organization is defined as the utility offsite emergency response organization along with other participating voluntary and private organizations, and local, State and Federal governments engaging in the development of offsite emergency plans for a nuclear power plant.

5

For Comment Control. The description of these functions shall include a clear and concise summary such as a table of primary and support l responsibilities using the agency as one axis, and the function -)

as the other. This description shall specify those functions which require State and local authorization before implementing, ,

such as:

1. Directing traffic- .I
11. Blocking roadways, erecting barriers in roadways and channeling traffic; iii. Posting traffic signs on roadways; iv. Removing obstructions from public roadways, includk? tow-ing vehicles; {'
v. Activating sirens and directing the broadcasting of EBS messages; vi. Making decisions and recommendations to the public concern-ing protective actions for the plume exposure pathway; vii. Making decisions and recommendations to the public concern-ing protective actions for the ingestion exposure pathway; viii. Making decisions and recommendations to the public concern-ing recovery and reentry; ix. Dispensing fuel from tank trucks to automobiles along roadsides; 1
x. Performing access control at an EOC, relocation centers and the EPZ perimeters; and The offsite plan shall also identify similar functions and responsibilities and interfaces for an anticipated State and local response to an emergency.
b. The offsite plan shall contain where applicable (by reference to specific acts, codes or statutes) the legal basis for such aut,horities including those that reserve functions to State and local governments.
3. The offsite plan shall include written agreements referring to the concept of operations developed between Federal agencies, the offsite response organization, and other support organizations having an emergency response role within the Emergency Planning Zones .The.

agreements shall identify the emergency measures to be provided.and the mutually acceptable criteria for their implementation, and spe-cify the arrangements for exchange of information. These agreements may be provided in an appendix to the offsite plan or the offsite plan itself may contain descriptions of these matters and a signature page*in the offsite plan may serve to verify the agreements. The signature page format is appropriate for organizations where response functions are covered by laws, regulations or executive. orders where separate written agreements are not necessary.

4. The offsite response organization shall be capable of continuous (24-hour) operations for a protracted period. The individual in the offsite ' response organization who will be responsible for assuring continuity of resources (technical, administrative, and material) shall be specified by title.

6

a For Comment 1 4 -

. l B. Onsite Emergency Organization-(Not Applicable)

- C. Emergency Response Support and Resources Planning Standard l Arrangements for requesting and effectively using assistance resources have been made, arrangements to accommodate State'and local staff'at the licensee's near-site Emergency Operations Facility have been made, and d other organizations capable of augmenting the planned response have been identified. '

i]

L i Evaluation Criteria

1. The Federal government' maintains in-depth capability to assist li-censees, States and local governments.through the Federal Radiolog-ical Emergency Response Plan. Each offsite response organization and licensee shall make provisions for' incorporating the Federal response I capability into its operation plan,1 including the following: 'n
a. specific persons by title authorized to request Federal assist-ance; see A.1.d., A.2.a.;
b. specific Federal resources expected, including expected times.of arrival at specific nuclear facilit'y sites; and.
c. specific licensee and offsite response organization resources available to support the Federal respor se, e.g. ,' air fields,.

command posts, telephone lines, radio. frequencies'and tele-communications c'nters.

2. a. The offsite response organization'may dispatch representatives to,the licensee's near-site Emergency Operations Facility.

(Technical analysis. representatives at,the near-site EOF are preferred.).

b. The licensee shall prepare'for.the dispatch of. representatives to the offsite response' organization's emergency' operations center and to principal emergency operations' centers of partici-pating and non participating governments.
c. The offsite response organization shall prepare.for the dispatch of a representative to principal offsite governmental emergency operations centers.

r .

3. The offsite response organization shall identify radiological labora-tories and their general capabilities and expected availability to provide radiological monitoring and analyses services which can be used in an emergency.
4. The offsite-response organization shall-identify nuclear and other facilities, organizations or individuals which can be relied upon.in an emergency.to provide assistance. Such' assistance shall'be iden-tified and supported by appropriate letters of agreement.

7

{_ ____-- _ -

For Comment

5. The offsite response organization shall provide personnel to advise and assist State and local officials in implementing those portions of the offsite plan where State or local response is identified.

1 1

l i

l l

i l

?

l .

l l

l l

l 8

For Comment-l D. Emergency Classification System Planning Standard j 1

A standard emergency classification and action level scheme, the bases of i I

which include facility' system and effluent parameters, is in use by the nuclear facility licensee, and State and local response plans call for reliance on information provided by facility licensees for determinations i of minimum initial offsite response measures. l Evaluation Criteria

3. The offsite response organization shall establish an emergency classi-

' fication and emergency action level scheme consistent with that established by the facility licensee. 1 l 4. The offsite response organization should have procedures in place that provide for implementing emergency actions and that provide for i advising State and local officials on emergency actions to be taken which are consistent with the emergency actions recommended by the nuclear facility licensee, taking into account local offsite condi-tions that exist at the time of the emergency.

4

( g I

1 l

1 1

For Comment E. Notification Methods and Procedures Planning Standard Procedures have been established for notification by the licensee of State and local response organizations and for notification of emergency per-sonnel by all response organizations; the content of initial and followup messages to response organizations and the public has been established; and means to provide early notification and clear instruction to the populace within the plume expo'ure s pathway Emergency Planning Zone have been established.

Evaluation Criteria

1. The offsite response organization shall establish procedures which describe the bases for notification of all response organizations consistent with the emergency classification and action level scheme set forth in Appendix 1 of NUREG-0654/ FEMA-REP-1, Rev. 1. These procedures shall include means for verification of messages. The  !

specific details of verification need not be included in the offsite j plan,

2. The offsite response organization shall establish procedures for alerting, notifying, and mobilizing emergency response personnel.

i

3. The licensee in conjunction with the offsite response organization j shall establish the content of the initial emergency messages to be sent from the plant. These measures shall contain information about the class of emergency, whether a release is taking place, poten- I tially ffected population and areas, and whether protective measures may be necessary.
4. Each licensee shall make provisions for followup messages from the facility to the offsite response organization (and to offsite author-ities where possible) which shall contain the following information if it is known and appropriate: i
a. location of incident and name and telephone number (or communi-cations channel identification) of caller;
b. date/ time of incident;
c. class of emergency; d.' ' type of actual or projected release (airborne, waterborne, surface spill), and estimated duration / impact times;
e. estimate of quantity of radioactive material released or being released and the points and height of releases;
f. chemical and physical form of released material, including estimates of the relative quantities and concentration of noble gases, iodines and particulate; l

10

For Comment

g. meteorological conditions at appropriate levels (wind speed,-

direction (to and from), indicator of stability, precipitation, ifany);

h. actual or projected dose rates at the boundary; projected inte-grated dose at site boundary;
i. projected dose rates and integrated dose at the projected peak and at 2, 5 and 10 miles, including sector (s) affected;

\

1

' j. estimate of any surface radioactive contamination inplant, I onsite or offsite; ,

k. licensee emergency response actions underway;
1. recommended emergency actions, including protective measures; W
m. request for any needed onsite support by offsite organizations; and
n. prognosis for worser.ing or termination of event based on plant information. .l 1
5. The offsite response organization shall establish a system for dis- ]

seminating to the public appropriate information contained in. initial 4 and followup messages received from the licensee including the appro- f priate notification to appropriate broadcast media, e.g., the J Emergency Broadcast System (EBS).

i

6. The offsite response organization shall establish administrative and 2 physical means, and the time required for notifying and providing prompt instructions to the public within the plume exposure pathway Emergency Planning Zone (see Appendix 3 of NUREG-0654/ FEMA-REP-1, Rev. 1 And FEMA-REP-10). It shall be the licensee's responsibility to demonstrate that such means exist, regardless of who implements this requirement. The offsite response' organization shall have the administrative and physical means to activate the system.
7. The offsite response organization shall provide written messages  !

intended for the public, consistent with the licensee's'classifica- 1 tion scheme. In particular, draft messages to the public giving instructions with regard to specific protective actions to be taken I by occupants of affected areas shall be prepared and included as part of the offsite plans. The prescripted messages should address the vagious conditions such as the delegation of authority by the State ,

and Tocal governments to the offsite response organization to issue i prompt instructions. Such messages should include the appropriate i aspects of sheltering, e.g., handkerchief over mouth, thyroid block-ing or evacuation. The role of the licensee is to provide supporting information for the messages. For ad hoc respiratory protection see

" Respiratory Protective Devices Manual" American Industrial Hygiene <

Associat, ion, 1963 pp. 123-126.

11

i l

I.

For Con.rmt i

8. There shall be provisions for coordinating emergency messages with participating and non participating State and local governments.

i

'.' s'I n .

/!

)I gi P

.i I

? e 1

i g

l l

12 l'j

.g' 7

. b c 4

_f e

l Foricomment l

F. EgroehtyCommunications i ayc Planning Standard Provisions exist for prompt communications among principal response organiza-tions to emergency personnel and to the public.

Evaluation Criterin -

1. The communication plans for emergencies shall include organizational

)

titles and altunates for both ends of the communication links. Reliable j primary and backup means of communication for the utility and the off site 8 response organization shall be established. The utility and the offsite j response organization shall establish the capability to communicate with non participating State and local governments via normal emergency telephone number (s) (e.g., 911) and via one other backup modeAuch as the ability to transmit via existing emergency radio frequenc/as. Each offsite plan shall irr?ude:

F p

a. provision for 24-hour per da'y notit'ication to and activation of the offsite response organization's emergency response > etwork; and at a minimum,atelephonelinkandalternate, incl @AlgM4-hourperday ,

y manning of communication links ~ that initiate emergency response ,,

"4 actions s N

b. provision for communications with centiguous States and local govern-ments within the Emergency Planning Zones; U44
c. provision for communications as needed with Federal emergency response organizations;
d. provision for communications between the nuclear facility and the licatisen's near-site Emergency Operations Facility, offsite response organization's emergency operations centers, and radiological monitor- It 1 ing teans; e
e. provision for alerting or activating emergency personnel in each

, response organization;

2. Yhs'offsiteresponseorganizationshallensurethatacoordinated I communication link for fixed and mobile medical support facilities exists.
3. TheoffsiteresponsecryJuizSilonshallconductperiodictestingofthe '

entire emergency communicate 4ns syr, tem (see evaluation criteria H.10, N.2.a and Appendix 3 of NUREG-065d/ FEMA-REP-1, Rev. 1), d i

l q

s 13 )D b i

7 , 4 1% ' $$h(

g '> h -9

& .D L,,.' a .,

. 1 for Coment 4

G. Public Educati_on_and Information Plannyn,qStandaj Information is made avail.161e to the public on a ceriodic basis on how they will be notified and what eneir initial actions siall be in an emergency (e.g., listening to a local broadcast station and +emaining indoor $P, the principal points of contact with the news media for' dissemination of informa-i tion during an emergency (including ee physica? Iocation or locathas) are i established in advance, and proceddres for coordinated disseminatice of infor-mation to *.he public are established.

Evaluation Criteria

1. The offsite response organization shall provide a coordinated periodic (at least annually) dissemination of information to the puc'Uc;regarding now they will be notf f 4d and what their actions should be ic'an emer-gency. This M fermation shall dnciude,'but not necessarily De limited t::
a. educational inferr.?tfon or. rad.>ticN
b. contact for addit.4.ul loformation;>
c. protective measures, e.g., evacuation routes and relocation cen*.ers, sheltering, regiratory protection, radioprotective drugs;
d. special needs of the handicapped; and 1-
e. special steps to oe taken to describe the role of the offsite re-sponse organization vs. the State and local organizations during the emergency.

Meansforachomplishingthisdisseminationmayinclude,out'arttnot necessarily limited to.. information in the telephone book; pnting in public areas; and publications distributed on an annual basis.

2. The public information program shall provide the permanent. and transient aduit popdstion within the plume exposure EPZ an adequate opportunity to become aware of the information annually. The programs should include I provision for written material that is likely to be available in a resi-dence during an emergency. Updated information shall be disseminated at least annully. Signs or ott.er measures (e.g. , deca' ,, posted notices, or othe.r ,'t.?ans, o' aced in hbtels, motels, gasoline st tions and phone booths) thall a? w be used to disseminate to any transient population within the p'ume exposure pathway EPZ appropriate information that will l be helpful if 3n emergacy or accident occurs. Such notices should refer the transient tu *he teinhene directory or other source of local emergency information end guiue the vititor to appropriate r&dio efd television frequencies.
3. The of fsite reeponse organization shall designate the points of contac+.

and physfcal locations for use by news media during an etiergency. This {

should include provisions for accommodating State and local government public information personnel assigned a role under the offsite plan.

14

. 7e t .

For Comment

4. a. The offsite: response organization.shall designate a.spokesperson l who shall have' access to all necessary information,
b. The offsite response orga.nization shall establish arrangements for '

timely exchange of information among designated spokespersons.

15

c. The offsite response organization shall establish coordinated arrangements for dealing with rumors.

- 5. Th'e offsite response organization shall conduct :oordinated programs at least annually to acquaint news media with the offsite' emergency plans',.

information concerning radiation, and points'of contact (see G.1.e) for release of public information-in an emergency.

s s

d

),-

2 I 7 g

)

j 14 i

l l

15 l 1

__l______________. _ _ _ _ _ - _ . __ _ - - _

i For Comment )

]

H. Emergency Facilities and Equipment .

Planning Standard j i

Adequate emergency facilities and equipment to support the emergency response are provided and maintained.

1 Evaluation Criteria

3. The offsite response organization shall-establish an emergency opera-tions center for use in directing and' controlling offsite response functions. ,
4. The offsite response organization shall provide for timely activation and staffing of the facilities and centers described-in the offsite plan, j I
7. The offsite response organization, where appropriate, shall provide for  ;

offsite radiological monitoring equipment'in the vicinity of the nuclear j facility.

10. The offsite response organization shall make provisions to inspect,  !

inventory and operational'ly check emergency equipment / instruments at l least once each calendar quarter and after each use. There shall be I sufficient reserves of instruments / equipment to replace those which are i removed from emergency kits for calibration or repair. Calibration of '

equipment shall be at intervals recommended'by the supplier of the equipment. .

11. The offsite plan shall, in an appendix, include identification of emer-gency kits by general category (protective equipment, communications j equipment, radiological monitoring equipment and emergency supplies). j
12. The offsite response organization shall establish a central point (pref- .

erably assocjated with the licensee's near-site Emergency Operations )

Facility), for the receipt and analysis of all field monitoring data and j coordination of sample media. l i

I r .

i 16

For Comment I. Accident Assessment l

Planning Standard I

Adequate methods, systems and equipment for assessing and monitoring actual or potential offsite consequences of a radiological emergency condition are in use.

Evaluation Criteria

7. The offsite response organization shall describe the capability and re-sources for field monitoring within the plume exposure Emergency Planning 1 Zone which are an intrinsic part of the concept of operations for the i facility. l
8. The offsite response organization, where appropriate, shall provide methods, equipment and expertise to make rapid assessments of the actual or potential magnitude and locations of any radiological hazards through liquid or gaseous release pathways. This shall include activation, noti-fication means, field team composition, transportation, communication, monitoring equipment and estimated deployment times.
9. The offsite response organization shall have a capability to detect and measure radiciodine concentrations in air in the plume exposure EPZ as l low as 10 ' pCi/cc (microcuries per cubic centimeter) under field condi-tions. Interference from the presence of noble gas and background radia- ,

tion shall not decrease the stated minimum detectable activity. j

10. The offsite response organization shall establish means for relating the various measured parameters (e.g. , contamination levels, water and air activity levels) to dose rates for key isotopes (i.e., those given in Table 3, page 18 of NUREG-0654/ FEMA-REP-1, Rev. 1) and gross radioactivity measurements., Provisions shall be made for estimating integrated dose from the projected and actual dose rates and for comparing these estimates with the protective action guides. The detailed provisions shall be described in separate procedures.
11. Arrangements to locate and track the airborne radioactive plume shall be made, using either or both Federal and offsite response organization resources.

17

4 For Comment 1 .

J. Protective Response Planning Standard A range of protective actions have been developed for the plume exposure path-

way EPZ for emergency workers and the public. Guidelines for the choice of l protective actions during an emergency, consistent with Federal guidance, are developed and in place, and protective actions for the ingestion exposure path-way EPZ appropriate to the locale have been developed.

Evaluation Criteria

2. Each licensee and offsite response organization shall make provisions for evacuation routes and transportation for onsite individuals to some suit-able offsite location, including alternatives for inclement weather, high traffic density and specific radiological conditions.
9. The offsite response organization shall establish a capability for imple-menting protective measures based upon protective action guides and other criteria. The offsite response organization shall describe the means for recommending protective actions to the public, for activating the alert and notification system, and for notifying the public of protective ac-tion recommendations. This shall be consistent with the recommendations of EPA regarding exposure resulting from passage of radioactive airborne plumes (EPA-520/1-75-001), and with those of DHHS/FDA regarding radioac-tive contamination of human food and animal feeds as published in the Federal Register on October 22, 1982 (47 FR 47073).
10. The offsite response organization's plans to implement protective measures for the plume exposure pathway shall include:
a. Maps showing evacuation routes, evacuation areas, preselected radio-logical, sampling and monitoring points, relocation centers in host areas, and shelter areas (identification of radiological sampling and monitoring points shall include the designations in Table J-1 of NUREG-0654/ FEMA-REP-1, Rev. 1 or an equivalent uniform system described in the offsite plan);
b. Maps showing population distribution arnund the nuclear facility.

This shall be by evacuation areas (licensees shall also present the information in a sector format);

c. Means for notifying all segments of the transient and resident population;
d. Means for protecting those persons whose mobility may be impaired due to such factors as institutional or other confinement. These means shall include notification, support and assistance in implement-ing protective measures where appropriate;
e. Provisions for the use of radioprotective drugs, particularly for emergency workers and institutionalized persons within the plume exposure EPZ whose immediate evacuation may be infeasible or very difficult, including quantities, storage, and means of distribution; 18

l l

For Comment )

l

f. The offsite response organization's plans should include the method 1 by which decisions by the State Health Department for administering radioprotective drugs to the4 general population can be made during an 3 l

emergency. The plan shall adopt the method used by the State where such a method is available. The plans shall provide for advising  !

State Health Departments regarding such decisions; and the predeter- (

mined condition under which such drugs may be used by offsite emergency l workers;2 j l

g. Means of relocation; l l
h. Relocation centers in host areas which are at least 5 miles, and l preferably 10 miles, beyond the boundaries of the plume exposure emergency planning zone (see J.12.);
i. Projected traffic capacities of evacuation routes under emergency conditions;
j. Control of access to evacuated areas and organization responsibili-ties for such control;
k. Identification of and means for dealing with potential impediments (e.g., seasonal impassability of roads) to use of evacuation routes, and contingency measures-1 l 1. Time estimates for evacuation.of various sectors and distances based on a dynamic analysis (time-motion study under various conditions) for the plume exposure pathway emergency planning zone (see Appen-dix 4, NUREG-0654/ FEMA-REP-1, Rev. 1); and s
m. The bases for the choice of recommended protective actions from the plume exposure pathway during emergency conditions. This shall in-l clude expected local protection afforded in residential units or other shelter for direct and inhalation exposure, as well as evacua-l tion time estimates.8 l

'See DHHS Federal Register notice of July 24, 1985 (50 FR 30258) entitled Federal Policy on Distribution of Potassium Iodide Around Nuclear Power Sites l for Use as a Thyroid Blocking Agent.

2The following reports may be considered in determining protection afforded.

(1) "Pdlic, Protection Strategies for Potential Nuclear Reactor Accidents" Sheltering Concepts with Existing Public and Private Structures" (SAND 77-1725), Sandia Laboratory.

(2) " Examination of Offsite Radiological Emergency Measures for Nuclear Reactor Accidents Involving Core Melt" (SAND 78-0454), Sandia Laboratory.

(3) " Protective Action Evaluation Part II, Evacuation and Sheltering as Pro-tective Actions Against Nuclear Accidents Involving Gaseous Releases" (EPA 520/1-78-0018). U.S. Environmental Protection Agency.

l 19 i

e .

For Comment

11. The offsite response organization shall specify the protective. measures to be used for the . ingestion pathway, including the methods for protect-ing the public from consumption of contaminated foodstuffs. This shall include criteria for deciding whether dairy animals shall be put on stored feed. The offsite plan shall . identify procedures for detecting contamination, for estimating the dose commitment consequences of'uncon .

trolled ingestion, and for imposing protection procedures such as impound-ment, decontamination, processing, decay, product diversion, and preserva-tion. Maps for recording survey and monitoring data, key land use~ data (e.g., f arming), dairies, food processing plants, water sheds, water supply intake and treatment plants and reservoirs shall be maintained. Provisions for maps showing detailed crop.information may be by' including reference to their availability and location and a plan.for their use. The maps shall start at the facility and include all of the'50-mile' ingestion pathway EPZ.

Up-to-date lists of the name and location of all facilities.which regularly-process milk products.and other large amounts of food or agricultural products originating in the ingestion pathway Emergency Planning Zone, but'

' located elsewhere, shall be maintained.

12. The offsite response organization shall describe the means for register-ing and monitoring of evacuees at relocation. centers in host areas. The personnel and equipment available shall be capable of monitoring within about a 12-hour period all residents and transients in the plume exposure EPZ arriving at relocation centers.

i I

l

.r . i 20

1

\

i For Comment K. Radiological Exposure Control Planning Standard Means for controlling radiological exposures, in an emergency, are established for emergency workers. The means for controlling radiological exposures shall )

include exposure guidelines consistent with EPA Emergency Worker and Lifesaving l Activity Protective Action Guides.

Evaluation Criteria -

3. a. The offsite response organization shall make provision for 24-hour- l per-day capability to determine the doses received by emergency personnel involved in any nuclear accident, including volunteers.

l They shall also make provisions for distribution of dosimeters, both self-reading and permanent record devices.

b. The offsite response organization shall ensure that dosimeters are read at appropriate frequencies and provide for maintaining dose records for emergency workers involved in any nuclear accident.
4. The offsite response organization shall establish the decision chain for l

authorizing emergency workers to incur exposures in.. excess of the EPA

! General Public Protective Action Guides (i.e., EPA PAGs for emergency workers and lifesaving activities).

Theoffsiteresponseorganization,asappropriate,shallspecify

5. a.

action levels for determining the need for decontamination. 1

b. The of f-ite response organization, as appropriate, shall establish the means for radiological decontamination of emergency personnel wounds, supplies, instruments and equipment, and for waste disposal.

4 i

i 21

4 a

For Comment L. Medical and Public Health Support Planning Standard i

Arrangements are made for medical services for contaminated injured individuals.1 i

Evaluation Criteria

1. -The offsite response organization shal1 arrange for local and backup

. hospital and medical services having the capability for evaluation of radiation exposure and uptake, including assurance that persons providing these services are adequately prepared to handle contaminated individuals.

3. The.offsite response organization shall develop lists indicating the location of public, private and military hospitals and other emergency I

medical services facilities within the State or contiguous States con-sidered capable.of providing medical support for any contaminated injured individual. The listing shall include the'name, location, type of facility and capacities and any special radiological capabilities. These emergency medical services should.be able to radiologically monitor con-tamination personnel,.and have facilities and trained personnel able'to care for contaminated injured persons.

4. The offsite response organization shall arrange for transporting victims of radiological accidents to medical support facilities.

'The availability of an integrated emergency medical. services system and a public health emergency plan serving the area in which the facility is located.

and, as a minimum, equivalent to the Public Health Service Guide for Developing.

Health Disaster Plans, 1974, and to the requirements of an emergency medical services system as outlined in the Emergency Medical Services System Act of 1973 (PL 93-154 a,nd amendments in 1979 PL 96-142), should be a part of and con-sistent with overall State or local disaster control plans and .should be com- ,

patible with the specific overtil emergency response plans for the facility. ]

l I

I I

tj l

r .

22

i For Comment.

M. Recovery and Reentry Planning and Postaccident Operations Planning Standard 3

General plans for recovery and reentry are developed. 1 Evaluation Criteria

1. The offsite response organization, as appropriate, shall develop general plans and procedures for reentry and recovery and describe the means-by.

which decisions to relax protective measures (e.g., allow reentry into an l

evacuated area) are reached. This process should consider both existing l and potential conditions.

.l

3. The offsite plan shall specify means for informing members of the offsite l response organization that a recovery operation is to be initiated, and of any changes in the organizational structure that may occur.
4. The offsite plan shall establish a method for periodically estimating total population exposure.  ;

)

A 1

r .

I i

I 23

. For Comment N. Exercises and Drills planning Standard Periodic exercises are (will be) conducted to evaluate major portions of emer-gency response capabilities, periodic drills are (will be) conducted to develop and maintain key skills, and deficiencies identified as a result of exercises or drills are (will be) corrected.

1 Evaluation Criteria

1. a. An exercise is an event that tests the integrated capability and a major portion of the basic elements existing within emergency pre-paredness plans and organizations. The emergency preparedness exercise shall simulate an emergency that results in offsite radio-logical releases which will require response by offsite response organizations. Exercises shall be conducted as set forth in NRC and FEMA rules.
b. An exercise shall include mobilization -of offsite response organi-zation resources adequate to verify the capability to respond to an accident scenario requiring response. This includes the demonstration of offsite response organization capabilities to interface with non-participating State and local government, but does not include the use j of standins for the anticipated State and local response. The offsite response organization shall provide for a crttique of the biennial exercise by Federal and offsite response organization observers /

evaluators. The scenario shall be varied from exercise to exercise such that all major elements of the plans and preparedness organiza-tions are tested within a six year period. Each organization shall make provisions to start an exercise between 6:00 p.m. and 4:00 a.m.  !

Exercises shall be conducted during different seasons of the year. At least one exercise shall be unannounced.

2. A drill is a supervised instruction period aimed at testing, developing and maintaining skills in a particular operation. A drill is often a component of an exercise. A drill shall be supervised and evaluated by a qualified drill instructor. The offsite response organization shall conduct drills, in addition to the biennial exercise at the frequencies j indicated below:
a. Communication Drills Communications between the licensee and the offsite response organiza-

~

tion' within the plume exposure pathway Emergency Planning Zone shall be tested monthly. Communications with Federal emergency response organizations and offsite response organizations within the ingestion pathway shall be tested quarterly. Communications between the nuclear facility, offsite response organization's operations centers, and field assessment teams shall be tested annually. Communication drills shall also include the aspect of understanding the content of messages. If practicable, attempts should be made to include non- j participating organizations in the monthly communications drills. l 24

i I

For Comment j a

c. Medical Emergency Drills A medical emergency drill involving a simulated contaminated individ-  !

ual which contains provisions for participation by the local support 'l '

services agencies (i .e. , ambulance and of f site medical treatment facility) shall be conducted annually. The offsite' portions of the medical drill may be performed as part-of the required oiennial exercise.

d. Radiological Monitoring Drills Plant environs and radiological monitoring drills (onsite and:off-site) shall be conducted annually.. These drills shall include collection and analysis of all sample media (e.g., water, vegetation,.

soil and air), and provisions for communications and record keeping.

Where appropriate, local organizations shall participate. 1 l

e. Health Physics Orill Health Physics drills shall be conducted semi-annually which involve response to, and analysis of, simulated elevated airborne and liquid 1 samples and direct radiation measurements in the environment. 1 The cffsite response organization shall describe how' exercises and 3.

drills are to be carried out to allow free play-for decisionmaking and to meet the following objectives. Pending the development of exercise. J' scenarios and exercise evaluation guidance by NRC and FEMA the scenarios for use in exercises and drills shall include but not be limite'd to the following:

a. The basic objective (s) of each drill and exercise and appropriate evaluation criteria;

^

b. The date(s), time period, place (s) and participating organizations; i
c. The simulated events; 1
d. A time schedule of real and simulated initiating events;  !
e. A narrative summary describing the conduct of the exercises or drills to include such things as simulated casualties, offsite firc department assistance, rescue of personnel, use'of protective cloth-~

ing, deployment of radiological monitoring teams, and public infer- '

l matign activities; and

)

L f. A description of the arrangements for and advance materials to be provided to official observers. .

4. Official observers from Federal government and the offsite response-organization shall observe, evaluate, and critique the required exer-cises. A critique shall be scheduled at the conclusion of the exercise to evaluate the ability of organizations to respond as called'for in the  !

offsite plan. The critique shall be. conducted as soon as practicable after' '

the exercise, and a formal evaluation shall result from the critique.

25 l l

_-___.__.___1- _ _ _ _ . _ _ _ _ . _. $

d For Comment

5. The offsite response organization shall establish means for evaluating observer and participant comments on areas needing improvement, including emergency plan procedural changes, and for assigning responsibility for implementing corrective actions., The offsite response organization shall establish management con' trol used to ensure that corrective ,

actions are implemented. j

6. The offsite response organization shall attempt to involve tne non-participating. State and local government in the exercises and drills, but their participation is not required.

i

'I O

9 26

r For Comment j

0. Radiological Emergency Response Training Planning Standard Radiological emergency response training is provided to those who may be called on to assist in an emergency.

Evaluation Criteria

1. The offsite response orgar.ization shall assure the training of appropri-ate individuals. The offsite response organization shall participate in and receive training. Where mutual aid agreements exist between local agencies such as fire, police and ambulance / rescue, the training shall also be offered to the other departments who are members of the mutual aid district.1 4 The offsite response organization shall establish a training program for instructing and qualifying personnel who will implement radiological emer- )

gency response plans.8 The specialized initial training and periodic l retraining programs (including the scope, nature and frequency) shall be nrovided in the following categories:

a. Directors or coordinators of the response organizations;
b. Personnel responsible for accident asses'sment; .
c. Radiological monitoring teams and radiological analysis personnel;  ;

1

' Training for hospital personnel, ambulance / rescue, police and fire department shall inciide the procedures for notification, basic radiation protection, and their expected roles. For those local services support organizations who will enter the site, training shall also include site access procedures and the identity (by posjtion and title) of the individual in the onsite emergency organization who will control the organizations support activities. Offsite emergency response support personnel should be provided with appropriate identi-fication cards where required.

81f the offsite response organization lacks the capability and resources to accomplish this training, they may look to the licensee and the Federal govern-ment (FEMA) for assistance in this training.

l r.

27

1 4

For Comment

d. Police, security and fire fighting personnel;
f. First aid and rescue personnel;. l 1
g. Local support services perso'nnel including Civil Defense / Emergency Service personnel;
h. Medical support personnel; i
j. Personnel responsible for . transmission of emergency information and instructions; and
k. Personnel responsible for interfacing with State and local responders.
5. The offsite response organization shall provide for the_ initial and annual retraining of personnel with emergency response responsibilities.
6. The offsite response organization shall offer training to non participating State and local governments and other organizations.

0 1

6 I

1 28

(

For Comment P. Responsibility for the Planning Effort: Development, Periodic raview and Distribution of Emergency Plans Planning Standard Responsibilities for plan development and . review and for distribution of emer-gency plans are established, and planners are properly trained.

Evaluation Criteria

1. The offsite response organization shall provide for the training of indi-viduals responsible for the of f site planning effort.
2. The offsite response organization shall identify by title the individual'  !

with the overall authority and responsibility for radiological emergency l response planning.

)

l 3. The offsite response organization shall designate an Emergency Planning I Coordinator with responsibility for the development and updating of emer- l gency plans and coordination of these offsite plans with other response i organizations. .

4. The offsite response organization shall update its plan and agreements j as needed, review and certify it to be current on an annual basis. The update shall take into account changes identified by drills and exercises. .
5. The offsite emergency response plans and. approved changes to the plans shall be forwarded to all participating organizations and appropriate individuals with responsibility for implementation of the plans. Revised -

j pages shall be dated and marked to show where changes have been made. j i

6. The offsite p,lan shall contain a detailed listing of suppor. ting plans ,

and their source.  !

7. The offsite plan shall contain as an appendix listing, by title, pro-cedures required to implement the offsite plan. The listing shall include the section(s) of the offsite plan to be implemented by each procedure.
8. The offsite plan shall contain a specific table of contents. Plans sub-mitted for review should be cross-referenced to these criteria. l l
10. .The offsite response organization shall provide for updating telephone numbers in emergency procedures at least quarterly.
11. The offsite response organization shall provide copies of the offsite plan and its revisions to non participating State and local government entities where interfaces are identified in Planning Standard A.  :

29  !

L-________________

a FUTICE -

FEDERAL EMERGENCY MANAGEMENT AGENCY NUCLEAR REGULATORY CaiMISSION Interim-Use Docunent: Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants (Criteria for Utility Offsite Planning and Preparedness)

The Nuclear Regulatory Comission (NRC) and the Federal Emergency Management Agency (FEMA) have jointly developed an interiro-use document entitled:

1 Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants (Criteria for Utility Offsite Planning and Preparedness). L e document has been published as Supplement 1 to NUREG-0654/ FEMA-REP-1, Rev. 1. Le guidance contained in this document is to be used for the development, review and evaluation of offsite utility radiological emergency planning and preparedness for accidents at commercial nuclear power plants. It applies to situations in which State and/or local goverrrnents decline to participate in the planning and preparedness process for such accidents. B is document is available for

, interim use, public review and coment.

l While this dodument contains changes and additions to the evaluation criteria of NUREG-0654/ FEMA-REP-1, Rev.1, no changes have been made to its 16 planning standards. We existing evaluation criteria have been modified to address utility-developed compensatory measures resulting from the non-participation of State and/or local governments in emergency planning and preparedness.

k

1 l

o one free copy, to the extent of available supplv, is obtainable by writing to:

Document Control Branch, Distribution Section, Office of Administration and Resources Management, U.S. Nuclear Regulatory Comission, Washington, D. C.

20555.

I I

Coments should be sent by (90 days from the date of publication) to: David I

)

Meyer, Chief, Rules and Procedures Branch, Mail Stop 4000 MNBB, Washington, D.C. 20555. Coments may be sent through the mail or hand-carried to this 4 address between the hours of 7:30 a.m. to 4:15 p.m.

For further information, contact: Marshall E. Sanders, Chief, Program Development Branch, Technological Hazards Division, Federal Emergency l Management Agency, 500 C Street, S.W. , Washington, D. C. 20472 (telephone: 202-l l 646-2861); or David B. Matthews, Chief, Emergency Preparedness Branch, Nuclear '

l Regulatory Comission, Washington, D. C. 20555 (telephone: 301-492-9647).

Datedthis! day of st/

/3.Wl c g) <tp \

(

Frank J. Congel, Director j Division of %diation Protection and Emergency Preparedness  ;

Office of Nuclear Reactor Regulations U.S. Nuclear Regulatory Comission 1

Adadf/X L Richard W. Krim "

Assistant Associate Director Office of Natural and Technological Hazards State and Local Programs and Support Federal Emergency Managment Agency o _- - - -

1 October 21, 1987 4

i Richard W. Krimm MEMORANDUM FOR:

Assistant Associate Director Office of Natural and Technological ,

1 Hazards Programs Federal Emergency Management Agency FROM: Frank J. Congel, Director I Division of Radiation Protection 1 and Emergency Preparedness -

l Office of Nuclear Reactor Regulation

SUBJECT:

DEVELOPMENT OF UTILI'TY OFFSITE PLAN EVALUATION CRITERIA This responds to the understanding reached at the October 15, 1987 meeting i l between FEMA and NRC, and reflected in Dave McLoughlin's October 16, 1987 )

memorandum to Victor Stello. We agreed that the NRC would provide written )

instructions which state specifically the assumptions upon which utility off-site plan reviews would be conducted by FEMA. i

)

In developing evaluation criteria and. in reviewing utility sponsored offsite j emergency response plans, FEMA should assume that in an actual emergency, state '

and local officials will (1) exercise their best efforts to protect the health and safety offsite plan,ofand the3) p(ublic, (2) cooperate apply resources thatwith the utility are within the and follow general the utility capabilities of state and local governments to implement those portions of the utility offsite plan where state or local response is necessary.

As we further agreed, any FEMA findings on the adequacy of utility offsite plans will necessarily include the caveat that FEMA was requested by the NRC ,

to use the above assumptions in evaluating a utility offsite plan. i

,Qriginal signed by Frank J.Congel

)

Frank J. Congel, Director Division of Radiation Protection and Emergency Preparedness Office of Nuclear Reactor Regulation C0hTACT: Edward M. Podolak, Jr., NRR 492-7290 DISTRIBUTION:

V5tello, EDO ' - JLBlaha, NRR CM8ridgers, ED0-3234 JMTaylor, E00 FJCon el,'NRR MECoons, NRR-3234 Nit T Central Files

~

TRehm, ED0 JPMurray, OGC RJBarrett, NRR PEPB R/F TEMurley, NRR -

LJCunningham, NRR WJ01mstead. 0GC JHSniezek, NRR CRVan Niel, NRR. ESBeckford, RES FJMiraglia, NRR FKantor, NRR RWStarostecki, NRR EMPodolak, NRR CThomas, NRR DFMossburg NRR-3234 P PE hR C QG NRR OGC h%m4 D/DREP/NRR I

10/% /87 ak:sc CR SNiel 10/ /87 D

10/3\/87 ews WJ01mstead 10/9/87 FJCongel 10/61/87 h /l N- ] f D Q_DQ)hk - - _ _--

Retrieved from "https://kanterella.com/w/index.php?title=ML20234D165&oldid=3274418"