ML20246P539
| ML20246P539 | |
| Person / Time | |
|---|---|
| Issue date: | 07/22/1988 |
| From: | Lieberman J NRC OFFICE OF ENFORCEMENT (OE) |
| To: | Goldberg J, Martin T, Miraglia F NRC |
| Shared Package | |
| ML20245B290 | List: |
| References | |
| FOIA-88-490 TAC-68699, TAC-68700, NUDOCS 8905220224 | |
| Download: ML20246P539 (41) | |
Text
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- JUL 221988 i
Note to: Frank Miraglia Tim Martin Jack Goldberg -
Ross Scarano
Subject:
ACOSTA ORDER Attached is our proposed response'to Mr. Acosta which I would idke to issue early next week. Please provide comments by phone tcrme or Dick Rosano by COB Monday. If we need to arrange a conference call, please let us know.
I presume that Region V is in the process. of , - -taining the details of t.he drug testing of Mr. Acosta pursuant to 10 CIR 's 55.27. Let me know if there are problems in promptly getting this information. i
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.' dames Lieberman, Director !
- Office 'f Enforcement l cc: J. Taylor, DEDR0 J. Rutberg, OGC r g'f
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. Document t!ame:
f ACOSTA ORDER Requestor's ID:
. SUMMERS Author's Name:
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Document Comments: ,
typed 7/22/88 .
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00 'NOT use this fon'n es a RECORD of approvels, concurrences, deposals, cieerences, and similar actions FROek (Neme, org. symbol. Agency /Poso Roun No.--4tdg.
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FITNESS FOR DUTY INSPECTION PLAN (GEllERIC)
. Monday Inspector (s) 8:30am Entrance briefing All
-- Discuss purpose of inspection and general schedules.
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Discuss inspection plan.
Review EEI Guide and ten major elements. '
General review of Fitness for Duty Program
- Set up specific schedule for interviews with senior officials (corporate first is desired). ,,
10:30am- Interviews with senior officials 5:00pm
, o Interview of Substance Abuse Comittee Members All
( - Do they maintain oversight of program to include conduct of audits? ,
o Interviews of FFD and EAP Program Directors / Managers All j
- Study program documents.
- policies, plans, and procedures
- responsibilities of managers and supervisors l
- training offered to managers / supervisors and j employees j 1
Discuss consistency with EE1 Guide, l 1
- Discuss implementation of FFD and EAP.
- who is responsible for what Discuss measures that go beyond EEI Guide.
- particularly those that prevent or detect 1 alcohol or drug abuse l
- include effect of these measures that make up for deficiencies in the site program I
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C___._m_m.___________.___._.___...______ _ _ _ _ . . _
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ke hMS~ u Inspector (s)
- Discuss results and accomplishments of FFD and
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EAP programs.
. o InterviewCorporateContractManagers(andLegalStaff)
- Review contractors' programs.
- differences in conduct of programs / environment and people during shutdown for refueling, maintenance, etc.
I W+M e Interview appropriate staff (legal?) on union agreements )
- A. N
- re&iew unica agrerments , ,Q
- recent itsues/ grievances / court challenges o Interview legel staff. b'"
ff8
- on contracts and union agreements j
' - on legal review of FFD and EAP programs, procedures, contracts, and union agreements
(
o Interviewauditors(andreviewauditreports).
t/-M'
- of ifcensee's program
- of contractor's program
- for adequacy?
o Review of records maintained at HQ w
- analyses of records 5:00pm Drive to site (or Tuesday a.m., es appropriate) e 2-
Inspector (s) t
.esday B:30er Interviews of senior site officials
- understanding of the program and their o
responsibilities awareness of program policies, objectives, procedures, and practices
- attitude about the program opinion on the effectiveness of the program actions and deeds in support of program plant manager W
site FFD Program manager l
personnel manager
- protection of infortnatirn and sources .
- issues of confidentiality provided those suspected of drug or alcohol abuse as well as those who provide infonnation about such abuse
- decisions concerning sanctions (retention or
' ,. termination)
- coverage of rehabilitation costs by health
( benefits program other employees working with FFD or EAP
- shift supervisors / hW#
- management officials of contractors
- union shop steward recent issues, grievances, court challenges
- randomly selected foreman, team leaders, etc. t $W'
- physicians / medical staff ,. A1
- How are samples collected and protected /' G '
confidentiality of alleger and users z ., , ,. //
- success of program ',
- review of testing records f - professional counseling services (if onsite) p-
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How are they tied into program?
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- What feedback can/do they provide management?
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o Inspector (s).
2:00pm Interviews of other site personnel (licensee and con . v tractor employg.es) .
- understanding of the program and its objectives b
- attitude about program
- cooperation in identifying individuals unfit for duty
- opinion ebout the effectiveness of the program security and investigative staff / #
- proactive measures to detect drug abuse coordination with LLEA
- participation by LLEA
- allegation tracking system
- protection of infonnation and sources
- randomly selected employees and contractors c All.
(one-on-one-
- knowledge of program and how to report / seek interviews) assistance
- availability of training, counseling, etc.
- confidentiality of identity
- attitude about program I
- cooperation in identifying individuals unfit for duty
- opinion about effectiveness of the program 4:00pm Team Meeting v All Wednesdav 8:30am Continue onsite interviews t 8:30am Offsite interviews h6 '
- LLEA
- testing labs
- professional counseling services
- county / state health services (if applicable) 3:00pm Review of onsite records he M 5:00pm Team meeting All i
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- -_ _--- - -__-- _ --- - - - - - I
.. Q Inspector (s) orsday -
8:30am -
Continue onsite interviews. All If appropriate, return to corporate HQ to complete As applicable anything not accomplished on Monday.
- Follow' up on identified items. As applicable Sumarize findings for exit meetings. All Friday As determined Follow up on identified items. As applicable As detemined Exit meeting with corporate representives All As detemined Return to office (s) All 9
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Jim Taylor .
.: Brian Grimes paper e-FFD ISSUES / TASK 5 LIST.
it equest, we have drafted the enclosed list of FFD issues / tasks 9*
identified for Duty, by the staff during the Commission's June 21 briefing 5
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' ce should' start work on the asterisked items pending specific e are aom the Commission.
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' issues / tasks 1 -
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E
i NUREGlCR 3196 PNL-4679 BHARC 400lB3/003 RX Drug anc A cohol Abuse: '
T1e Bases for Emp oyee Assistance Programs in t1e Nuc ear Utility t Inc ustry T__Jizz__Z::- -'
Manuscript Completed: June 1983 Date Published July 1983 Prepared by L R. Radford W. L. Rankin. V. Barnes. M. V. McGuire, A. M. Hope
, llo Hu ffairs Research Centers I
Under Contract to:
i Pacific Northwest Laboratory Richland. WA 99352 Prepared for Division of Facility Operations Office of Nuclear Regulatory Research U.S. Nuclear Regulatory Commission Washington, D.C. 20555 NRC FIN 82453 f
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ABSTRACT I
This report describes the nature, prevalence, and trends of drug and alcohol abuse among members of the U.S.' adult population and among personnel in non-nuclear industries. Analogous data specific to the
' nuclear utility industry are not available, so these data were gathered in order to provide a basis for regulatory planning. The nature.
prevalence, and trend information was gathered using a computerized literature search telephone discussions with experts, and interviews i
with employee ass, stance program representatives from the Seattle area.
This report'also evaluates the possible impacts that drugs and alcohol might have on nuclear-related job performance, based on currently available literature nuclear re utility job descriptions and on the scientific performance. garding the impairing effects of drugs and alcohol on human Emoloyee assistance programs, which can be used to minimize or eliminate job performance decremer,ts resulting from drug or alcohol abuse, are also discussed.
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CONTENTS PaQe
{ ABSTRACT . . . . . . . . . . . , , . . . . . . . iii
- - CONTENTS . . .
LIST OF TABLES . . .
. . . . . . . . . . . . ... v FOREWORD . . . . . .. . . . . . . . . . . . . vii ACKNOWLEDGEMENTS.
. . . . . . . . . . . . . . ... 13 EXECUT!YE SUMMRY
. . . . . . . . . . . . ... xi i
. . . . . . . . . . . . . . . xiii l
- 1. INTRODUCTION . l
. . . . . . . . . . . . . . . . 1
- 2. SUMMRY AND CONCLUSIONS . . . . . . . . . . . . . 5 2.1 Drug Abuse . .
2.2 Alcohol Abuse . . . . . . . . . . . . . . . . 6 2.3 Multiple substance Abuse . . . . . . . . . . . . . 7
. . . . . 7 2.4 Nuclear Utility industry . . . . . . . . . . .
2.5 Evaluation of impairing Effects . . . . . . . . .
7
)
8 '
3.
DEFINITION OF ORUG ABUSE AND ALC0HOL ABUSE . . . . . . . 10
- 4. NATURE, PREVALENCE, AND TRENDS OF ORUG ABUSE
-IN EMPLOYE0 POPULATIONS . . . . . . . . . . ., . . 13 4.1 Factors influencing Drug Abuse Patterns . . .
4.2 General Population Survey findings on Drug Abuse . . . 13 i 4.3 Nuclear Licensee Survey findings for Drug Abuse . . . . 15 i 4.4 Drug Abuse in Non-nuclear Industries . . . 18
( 4.5 Summary and Conclusions . . . . . . .. .. .. . . . . 19
. . . 22 5.
IMPA! RING EFFECTS OF DRUG ABUSE ON JOB PERFORMNU . . . . 23 5.1 Model of Human Performance . . . . . . . . . . . 23 5.2 Nuclear Utility Job Categories as Related to the Model of Human Performance . . . . . . . . 24 5.2.1 Managers
. . . . . . . . . . . 25 5.2.2 Scientists and Engineers . . . . . . .. . . .
5.2.3 Licensed Operators . . . . . . . . 25 5.2.4 Non-licensed Operators . . . . . . . 25
. . . . . . 28 5.2.5 Skilled Craft Workers . . . . . . . . . . 28 5.3 Marijuana 5.4 Stimulants . . . . . . 29
. . . . . . . 30 5.5 Sedatives . . . . . . . . . . . .
. . . 31 5.5.1 Anxiolytics . . . . . . . . . . 32 5.5.2 Barbiturates . . . . . . .
5.5.3 Interactive Effects of Sedatives
. . . . . 32
. . . . . . 33 5.5.4 Sumary .
. . . . . . . . . . . . . . 34 i
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I 5.6 Hallucinogens . . . . .
Page f
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- . . . . . . . . .. . 34 5.7 Effect on the Nuclear Industry . . . . . . . . . 35 ;
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- 6. NATURE, "REVALENCE, AND TRENDS OF ALC0HOL ABUSE I
, IN EMPLOYED POPULATIONS . . . . . . . . . . . . . 39 6.1 factors Influencing Alcohol Abuse Patterns . . . . . 39 6.2 Alcohol Abuse Prevalence Rates in the Nuclear l Industry Predicted Using the Harden Formula . . . . 40 6.3 Nuclear Licensee Survey Findings on Alcohol Abuse . . . 44 6.4 Alcohol Abuse in Non-nuclear Industries . . . . . . 44 6.5 Sumary and Conclusions . . . . . . . . . . . . 48
- 7. IMPA! RING EFFECTS OF ALCOHOL ABUSE ON JOB PERFORMANCE . . . 50 7.1 Impairing Effects of Alcohol . . . . . . . . . . 50 7.2 Effect on the Nuclear Industry . . . . . . . . . 53
- 8. CONCLUSIONS AND RECO MENDATIONS . . . . . . . . . . . 55
- 9. REFERENCES . . . . . . . . . . . . . . . . . . 57 APPENDlX A: Interview Format for Utility Survey . . . . . . . 62
.PPENDIX B: Local Industries Surveyed . . . . . . . . . . 71
(
APPENDIX C: Impairing Ef fects of Drugs on Human Performance . . . 72 APPENDIX D. Impairing Effects of Alcohol on Human Perfortnance . . 89 APPENDlX E. Bibliography . . . . . . . . . . . . . . 97 h
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l l FOREWORD 1*
Drug and alcohol abuse among the general workforce of the United States has been recognized as a significant concern since the 1950's. Its major
'., impact on industry has been in the areas of industrial safety and productivity. Two rules to the Code of Federal Regulation have been proposed--the " Access Authorization Rule" (10 CFR 73.56) and the " Fitness {
q for Duty Rule" (10 CFR 50.54). In order to provide a technical basis for l possible regulatory action on thete rules, the possible impact of drug l and alcohol abuse on the job performance of nuclear utility personnel 1 needs to be estimated. This report is a synthesis of present knowledge -
about the nature, prevalence, and trends of drug and alcohol abuse among the U.S. population and workforce and about the impairing effects of ,
drugs and alcohol on human performance. Thus, information presented in '
this report provides part of the technical basis for regulatory planning. In addition, this report provides information about employee assistance programs that can be used in the nuclear utility industry to overcome job performance decrements caused by drug and alcohol abuse.
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' EXECUTIVE SUMMRY i
The original purposes of this report were twofold: . (1) to charactertre
, and describe the nature, prevalence, and trends of drug and alcohol abuse l' in the nuclear utility industry, and (2) to evaluate possible impacts of plant and drug alcoholHowever abuse on decrements in job performance of nuclear power i personnel. only minimal data specific to the nuclear 1
utilit Also, y industry are curre,ntly available regarding the first purpose.
because of resource and time limitations and the sensitivity of drug and alcohol abuse issues, 4 direct survey of drug and alcohol abuse ,
l among nuclear utility industry personnel was not feasible. Thus, this report describes nature, prevalence, and trend issues as determined from non-nuclear industries and from the general, U.S. adult population. !
Without substantially more investigation, there is no way to determine '
)
whether employment practices within the nuclear utility industry would increase or decrease the prevalence of drug and alcohol abuse compared to the general population or non-nuclear industries. In order to provide a basis for regulatory planning, however, it is reasonable to assume that generally similar results would be found. Possible impacts of drug and alcohol abuse on nuclear-related job performance are identified based on currently available nuclear utility job descriptions and on the scientific literature regarding the impairing effects of drugs and alcohol on human performance. , ;
( This information is needed by the Nuclear Regulatory Commission in order i to provide guidance in establishing employee assistance programs that are practical, acceptable to government and industry, and demonstrate potential for minimiting/ eliminating the use of drugs and alcohol on the job or off the job, if such use significantly degrades job performance.
It has been estimated that 10% to 12% of the general workforce experiences job performance decrements as a result of alcohol abuse, mental health and emotional problems, marital / family problems, drug abuse, and other behavioral problems. Employee assistance programs, which have been used to mitigate performance problems due to all causes, including drug and alcohol abuse, have been shown to be 701 to 90%
effective in treating troubled employees in numerous workplace settings.
Drug Abuse For purposes of this study, drug abuse is defined as the use of illegal drugs or the illegal use of prescription drugs. Abuse of over-the-counter drugs is not assessed because of lack of data. The I drugs of abuse included marijuana, cocaine and other stimulants, sedatives (sleeping pills), analgesics (pain killers), minor tranquilizers, and hallucinogens.
National survey data on a representative sample of the U.S. adult
' (over 18) population in 1979 show that the drugs most frequeitly abused t
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l are marijuana, cocaine and other stimulants, hallucinogens, inhalants, sedatives, minor tranquilizers, and analgesics (in that order). Over half of the non-alcohol drug use involves marijuana. Estimates of the
( total adult population who are current abusers of at least one drug are
' between 12% and 20%. Of those adults reporting drug abuse, it can be estimated that 3% to 5% have abused drugs on the job at least once.
(This does not mean that they routinely abuse drugs on the job.)
Employee assistance program consultants estimate that approximately 1% of ,
a given workforce has significant on-the-job drug abuse problems that require the services of an assistance program. Seattle-area employee assistance program representatives estimated that from 4% to 10% of those employees who have sought help from their program have significant on-the-job drug abuse problems. These figures translate to 0.3% or less of their total workforce.
A small sample of representatives from nuclear utility employee assistance programs said they were aware of little to no drug abuse at their plants. However, several dozen drug-related arrests at nuclear power plants over the past five years indicate that some drug abuse exists at the plants. The general workforce estimate of drug abuse used by employee assistance program consultants probably provides the best estimates for regulatory planning purposes.
Alcohol Abuse
- for purposes of this study, alcohol abuse is equated with problem drinking, where a problem drinker is defined as someone who experiences social
( alcohol psychological, and/or physiological problems as a result of their intake. Therefore, alcohol abusers include the alcoholic (i.e.,
l
- one who has the disease of alcoholism) and those who are not alcoholic but who, because of their drinking, experience serious problems to the extent that some sort of intervention is advisable. Alcohol abusers exhibit characteristic behavior patterns and can be reliably identified by them.
National survey data on adult drinking habits collected in the late 19ED's provide the best alcohol abuse prevalence estimates available on the U.S. adult population. These data indicated that approximately 11%
of the U.S. adult population between 20 and 70 years of age are alcohol abusers. Sex, age, and occupation were found to be highly related to !
alcohol abuse prevalence. Approximately 17% of the adult male population were found to be alcohol abusers while only 4% of the adult women were l found to be alcohol abusers. In terms of age differences, 13% of adults from 20 to 29 years,12% of adults from 10 to 39,12% of adults from 40 to 49, 7% of adults from 50 to 59, and L% of adults from 60 to 69 were alcohol abusers, j i
Three job categories that are important in the nuclear utinity industry
- are professional and technical workers, managers ano administrators, and craftsmen. General population alcohol abuse prevalence estimates for these job categories for men (no estimates are available for women in the i
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given occupations) aged 20 to 69 are 10% for professional and technical workers,181 for managers and administrators, and 215 for craftsmas.
Employee assistance program consultants estimate that approximately 5% to
- 6% of the total workforce has serious enough alcohol abuse problems to i degrade job performance and, therefore, to warrant treatment, for an l
{
all-male workforce, this estimate would be revised upward to 8% to 10%.
Seattle-area employee assistance program representatives, surveyed for the purposes of this study, estimated that a minimtm of 10% of their I employees are in need of treatment for their alcohol abuse problems.
From 45% to 100% of those seeking help from Seattle-area employee assistance programs did so specifically for alcohol abuse problems. This translates to less than 1% of the workforce actually seeking help through the employee assistance program for their alcohol abuse problem.
However, assistancehelp can also be sought through W6ys other than the employee program.
We attempted to collect preliminary data on alcohol abuse prevalence specific to the nuclear industry using a telephone interview technique.
However, data were only collected from six employee assistance program representatives. Five estimated that 3% or less of their plant staff were alcohol abusers; the sixth representative estimated that as many as 9% of the plant staff may suffer from alcohol abuse. Because few records are kept on these utility programs, these estimates were based only upon personal observation or personal opinion.
- In our professional opinion, the best estimates of alcohol abuse at nuclear utilities are provided by the occupatical category estimates and
( the general workforce estimates. These data provide a range of estimates of alcohol abuse prevalence that are suitable for making regulatory decisions. Analysis of a range of estimates hcips to make up for the fact that the estimates were developed from the general population and that the effects of nuclear industry employment practices on these estimates are unknown.
Multiple Substance Abuse A present and future problem in the U.S. Industria) workforce is likely to be multiple substance abuse; that is, alcohol abused in conjunction with other drugs. This projection is based on national survey data of the U.S. population, the experience of employee assistance program i representatives in Seattle-based industries, and the scientific literature, all of which suggest that multiple substance abuse among the employed are rapidly increasing, ihus, multiple substance abuse may also become a problem in the nuclear utility industry.
Evaluation of Impatring Effects !
in order to evaluate the impairing effects of drug and alcohol abuse on
- nuclear power plant workers' job performance, a model of human performance is presented. The model includes four types of human performance:
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I e Sensory / perceptual (inputting of information outside a person through the use of the senses) 20 Cognitive (memory, fr. formation synthesis and decisionmakipg) 4 Motor (behavior--including movement, manipulating a dial, using -
, a wrench, etc.)
e Communicative (verbal communications)
Next, the human ~ performance model is related to five major job categories in nuclear power plants. The job categories (managers; scientists, engineers and other professional workers; licensed operators; non-licensed operators; and skilled craf t workers) are taken from the 1987 Institute on Nuclear Power Operations (INPO) survey of nuclear-related employment. A judgment was made regarding the importance
=
of the types of human performance to the five major job categories identified. The results of the analysis are presented in the following table.
Human Performance Requirements of Major Utility Jobs
} Performance Managers Scientists stflied L icensed Non-L icensed Craft Category & (ngineers operators operators Workers Sensory /
Perceptual Low Medium High High Medium (ognitive Nigh fligh High Medium Medium Motor los Los Medium Nigh Nigh C orrnun ic a t h . Wigh Los High Medium low l o- e Job category requires low frequency of doing tasks in spec led perf ormance area.
Medium = Job category requires medium frecuency of doing tasks in spec tf led perf ormaace area.
High e Jot' Category regwires high frequency of coing tash g in spec 1f led perf Ormance erea.
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a The impairing effects of drugs and alcohol ch job performance were determined through an analysis of the scientific literature. Marijuana has.
(- its greatest effects on motor performance and cognitive performance and also
. affects sensory / perceptual performance, especially vigilance. Stimulants in small doses typically have a positive effect on performance.
higher performance. doses or chronic use can negatively affect all categories ofHowever, Sedatives, including minor trangut11rers and barbiturates, have a fairly wide-ranging and significant negative effect on all four human performance categories. Hallucinogens orug to human be abused during work, also neg,atively affect all four areas ofalth performance.
Finally, alcohol also negatively affects all four areas of human performance; however, the effects depend on the dose of alcohol.
Low performance. dMes of alcohol affect sensory / perceptual performance and motor.
communicative performance. Moderate doses of alcohol also affect cognitive and The job performance requirements for the five occupation Jcbs alcohol. would be most adversely affected by a given category of drugs or job performance of licensed and non-licensed operators, to ha negative impact on the performance of managers and skilled craf t workers, and engineers.
and to have theStimulants smallest negative impact on the performance of scientists impact job performance nega,tively.if taken in small doses, are not likely to Since alcohol and sedatives produce generally the same effects, both were estimated to have the largest negative impact on the performance of skilled craft workers, non-licensed operators,
( and Ifcensed operators, in that order, and to have less negative impact on the performance of managers and scientists and engineers.
would have a large negative impact on the performance of all five jobs. Hallucino Employee Assistance Programs Two different types of programs have been used in the past to minimize or eliminate drug and alcohol abuse in the workplace. The first type of or alcoholic based on symptomatology. program, which proved to be un These programs were not successful for at least four reasons.
diagnosed as having a problem. Second Firs +., nobody above first-line supervisors was witch hunt and was bad for employee mor, ale.the program of ten looked like a Third, drug and alcohol abusers or alcoholism) to the reasons why they used drugs Fourth, and alcohol.we because of the stigma that was attached to drug addiction and alcoholism, very few employees were correctly diagnosed.
In the 1960's, the programs moved from symptomatology identification to being based only on job performance.
The new programs were called employee
. regardless of the reason for decrements in their The job performanc programs, therefore, were broader in coverage and were used to help employees with alcohol abuse problems, mental health and emotional problems, !
I drug abuse problems, Nrital/ family problems, and any other problems that k
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l negatively affected job performance. 8ecause the programs are broadbrush in their approach, because they are only based on l
of the confidentiality assured by the program,employee job performance, and because ,l
- assistance programs ;
have been fully accepted by both management and labor. They have proven i successful in returning 70% to 90% of troubled employees back to successful -
job performance. Thus, we suggest that the employee assistance programs approach be used in the nuclear utility program to overcome employee job ,
performance decrements that are a result of any personal problem, including drug and alcohol abuse.
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- 8. CONCLUSIONS AND RECOMMENDATIONS '
The conclusion to be drawn from the prior analyses is that some level of I drug and alcohol abuse prevalence can be anticipated in the nuclear industry. With the lack of corroborating data, we must assume that the i drug and alcohol abuse prevalence in the nuclear industry is likely to !
occur at approximately the same level as in the general population and in nun-nuclear industries. Also, given the known effects of drugs and
' alcohol on sensory performance, we co/ perceptual, cognitive, motor, and coarnunicative nclude that on-the-job drug and alcohol abuse will negatively impact job performance, as has shown to be the case in non-nuclear industries. Because of the above conclusions, we need to ;
address the question of what kind of program can be implemented to minimize or decrements.
eliminate on-the. job drug and alcohol abuse and the resulting performance In the past, there have been two major types of programs that have been tried, especially with regard to alcoholism. The first approach tried (Wrich, 1980) was the alcoholic identification or supervisory identification approach. In this approach, supervisors are trained to identify the alcoholic on the basis of alcoholism symptomatology. These programs were not successful for at least four main reasons. First, since first-line supervisors were reticent to diagnose anyone above them as being alcoholic, the identification of alcoholic workers was restricted to those below the first-line supervisory level. Second, the program often looked like a witch hunt. No matter how well the supervisors were trained basis of their own person,al drinking habits.they tended are Third, alcoholics to revert very to decisionm skillful at diverting attention from their real prcblem (alcoholism) to
( reasons why they drink. Supervisors were often fooled by the alcoholic and many troubled employees were not diagnosed correctly. Finally, because of the stigma that was attached to alcoholism in the 1950's and early 1960's, supervisors wanted to be sure of their diagnosis before confronting the employee. Confidentiality was often compromised in the search for confirming data, and, again, troubled employees often went unhelped.
Unfortunately, there are those who still advocate a symptom surveillance approach, especially for drug abuse (for example, see Bensinger,1982).
In the 1960's, the programs began to shift their approach from alcoholism symptomatology to impaired job performance caused by alcoholism. At the same time, the program people realized that numerous personal problems--
alcoholism, drug abuse, mental health problems, and family problems-- j could cause job performance decrements. Thus, the program became much ;
broader in scope with the added benefit of finding that employees were :
much more likely to use a program that was in place to help them with !
their personal problems that caused job performance decrements than they l were likely to use a program that was in place to treat only alecholism. '
Such programs, which we have referred to as employee assistance programs
- in this report, have been very successful in the past decade. Program evaluations have shown that 70% to 90% of those who receive treatment t 55 j f,c.- y e.. E - ,' -
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lg through an employee assistance program return to successfully carry out their job.
o Much is already known about employee assistance programs. A comprehensive program should have the following elecents (Segalla, 1982: p.4):
e Written policy and procedures e Labor-management cooperation e Supervisory training e Employee education-e Professional staff services e Record keeping e Ongoing evaluation Although such general program features are known, specific programs will have to be tailored to spec lfic needs. Variables that might affect program implementation include the number of employees, the availability of treatment services, and the kind of insurance coverage available.
' Such programs have been successful because of the concern for employee problems shown by the employer, by employee trust in the confidentiality
( assured by the program, and by the fact that job performance is the only criteria that is used in making referrals to the employee assistance program. Thus, it is our recommendation that employee assistance programs that include the program elements discussed above and that are based on decrements in performance, rather than on identifying the drug or alcohol abuser through symptomatology, be used in the nuclear utility industry. Such programs are acceptable to management, acceptable to labor, and successful. The programs that are based on identification through symptomatology have not been acceptable to labor and have not been successful.
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[, /"'%., UNITED STATES I
! . >c0 i NUCLEAR REGULATORY COMMISSION
'/ Office of Public Affairs Washington, D.C. 20665 ,
No.86-106 FOR IMMEDIATE RELEASE Tel. 301/492-7715 (Monday, August 4,1986)
NOTE TO EDITORS: ,
Attached is a Nuclear Regulatory Comission Policy Statement on Fitness for Duty of Nuclear Power Plant Personnel. It describes the additional measures the Comission will take to provide reasonable assurance that a person who is under the influence of alcohol or any substance, legal or illegal, which affects the person's ability to perform duties safely is not allowed access to a vital area at a nuclear power plant. Under the Policy Statement, licensees and applicants will continue to develop and implement fitness for duty programs using guidance of the Edison Electric Institute's "EEI Guide to Effective Drug and Alcohol / Fitness for Duty Policy Development." The NRC will continue to independently evaluate the development
[
and implementation of these programs and to take appropriate enforcement actions when regulatory requirements are not met. The policy is effective on August 4,1986, and interesced persons are invited to provide coments addressed to the Secretary of the Comission, Nuclear Regulatory Comission, Washington, D. C. 20555, Attention: Docketing and Service Branch. The separate views of Commissioner James Asselstine and the adeitional views of the Comission are appended to the Policy Statement.
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