Regulatory Guide 1.101: Difference between revisions

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{{Adams
{{Adams
| number = ML13350A291
| number = ML21111A090
| issue date = 11/30/1975
| issue date = 06/30/2021
| title = Emergency Planning for Nuclear Power Plants.
| title = Rev. 6, Emergency Response Planning and Preparedness for Nuclear Power Reactors
| author name =  
| author name = Murray C
| author affiliation = NRC/OSD
| author affiliation = NRC/RES/DE/RGDB
| addressee name =  
| addressee name =  
| addressee affiliation =  
| addressee affiliation =  
| docket =  
| docket =  
| license number =  
| license number =  
| contact person =  
| contact person = Bayssie M
| document report number = RG-1.101
| document report number = RG-1.101, Rev. 6
| package number = ML21111A075
| document type = Regulatory Guide
| document type = Regulatory Guide
| page count = 15
| page count = 11
}}
}}
{{#Wiki_filter:U.S. NUCLEAR REGULATORY  
{{#Wiki_filter:U.S. NUCLEAR REGULATORY COMMISSION
COMMISSION
                              REGULATORY GUIDE 1.101, REVISION 6 Issue Date: June 2021 Technical Lead: Charles Murray EMERGENCY RESPONSE PLANNING AND PREPAREDNESS FOR
November 1975 REGULATORY  
                                      NUCLEAR POWER REACTORS
GUIDE OFFICE OF STANDARDS
DEVELOPMENT
REGULATORY
GUIDE 1.101 EMERGENCY  
PLANNING FOR NUCLEAR POWER PLANTS


==A. INTRODUCTION==
==A. INTRODUCTION==
create a high order of preparedness and ensure an orderly and timely decision-making process at times of Section 50.34, "Contents of Applications;
Purpose This regulatory guide (RG) describes an approach that is acceptable to the staff of the U.S. Nuclear Regulatory Commission (NRC) to meet the regulatory requirements for emergency response planning and preparedness. This revision updates the list of NRC-developed and NRC-endorsed guidance documents acceptable to meet the regulatory requirements of Title 10 of the Code of Federal Regulations
Technical stress, as well as the availability of necessary equipment.
(10 CFR) 50.47, Emergency Plans (Ref. 1), and 10 CFR Part 50, Appendix E, Emergency Planning and Preparedness for Production and Utilization Facilities (Ref. 2).
Applicability This RG applies to all holders of, or applicants for, a power reactor operating license or construction permit under 10 CFR Part 50, Domestic Licensing of Production and Utilization Facilities, except those that have certified that they have permanently ceased operations and have permanently removed all fuel from the reactor vessel, as well as all holders of, or applicants for, a power reactor early site permit or a combined license under 10 CFR Part 52, Licenses, Certifications, and Approvals for Nuclear Power Plants (Ref. 3). This RG is for light water reactors, including those of an advanced design (e.g., AP1000 design).
Applicable Regulations
    *  10 CFR Part 50 provides regulations for licensing production and utilization facilities.


* Information." of I0 CFR Part 50, "Licensing of supplies, and services.Production and Utilization Facilities," requires that each application for a license to operate a facility A iptt.. o planning for An imlportant element of emergency`,:'p.lanning fur include in a Final Safety Analysis Report (FSAR), along nuflear uwe ..... is t.. "m -with other information, thc applicant's plans for coping lrepare to cope with a ier" bya ti6onrum of potential pin, ... prpr tocp wtv v with emergencies.
Written suggestions regarding this guide or development of new guides may be submitted through the NRCs public Web site in the NRC Library at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/, under Document Collections, in Regulatory Guides, at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/contactus.html.


including the itemns specified in consequences.
Electronic copies of this RG, previous versions of RGs, and other recently issued guides are also available through the NRCs public Web site in the NRC Library at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/, under Document Collections, in Regulatory Guides. This RG is also available through the NRCs Agencywide Documents Access and Management System (ADAMS) at http://www.nrc.gov/reading-rm/adams.html, under ADAMS Accession Number (No.) ML21111A090. The regulatory analysis may be found in ADAMS under Accession No. ML21004A168. The associated draft guide DG-1357 may be found in ADAMS under Accession No. ML21007A330, and the staff responses to the public comments on DG-1357 may be found under ADAMS Accession No. ML21111A091.


Federal $tHIeý1`"aIdW5'Vagencics, as well Appendix E, "Emergency Plans for Production and as the licensee, have r ..l,'-ýes to play in both. t.e Utilization Facilities," to 10 CFR Part 50. Appendix E planning and the.
o  10 CFR 50.47(a)(i) provides, in part, that no initial operating license for a nuclear power reactor will be issued unless a finding is made by the NRC that there is reasonable assurance that adequate protective measures can and will be taken in the event of a radiological emergency o  10 CFR 50.47(b) provides 16 standards that must be met by licensees or applicants for the NRC to make a finding of reasonable assurance o  10 CFR 50.47(b)(4) requires that onsite and offsite emergency response plans contain a standard emergency classification and action level scheme o  10 CFR 50.54(t)(1) requires licensees to provide for the development, revision, implementation, maintenance, and periodic independent review of its emergency preparedness program o  Appendix E to 10 CFR Part 50 establishes minimum requirements for emergency plans for use in attaining an acceptable state of emergency preparedness o  Section IV.B.1 of Appendix E provides that emergency action levels (EALs) should be established as part of the emergency plan and should be based on in-plant conditions and instrumentation in addition to onsite and offsite monitoring o  Section IV.C.1 of Appendix E requires each emergency plan to define the emergency classification levels and the corresponding extent of response participation by the emergency response organization o  Section IV.F. of Appendix E establishes the requirements for the training-related content of emergency plans Related Guidance This RG provides a list of guidance documents to aid in the development and review of emergency preparedness and response plans. The following documents are acceptable guidance when developing emergency preparedness and response plans:
  *  NUREG-0654/FEMA-REP-1, Revision 1, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, issued November 1980 (Ref. 4), which provides specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47
  *  NUREG-0654/FEMA-REP-1, Revision 2, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, issued December 2019 (Ref. 5), which provides specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47
  *  NUREG-0396/EPA 520/1-78-016, Planning Basis for the Development of State and Local Government Radiological Emergency Response Plans in Support of Light Water Nuclear Power Plants, issued December 1978 (Ref. 6)
                                          RG 1.101, Rev. 6, Page 2


of emergency preo refers to a document entitled "Guide to the Preparation paredness procedif''s
*  NUREG-0696, Functional Criteria for Emergency Response Facilities, issued February 1981 (Ref. 7)
'redcrfl interagenc y responsibili- of Emergency Plans for Production and Utilization ties for nuclear'lniAzc-t
    *  NUREG/CR-7002, Criteria for Development of Evacuation Time Estimate Studies, issued November 2011 (Ref. 8)
'pInning were set fortli by the Facilities,"'
    *  NUREG/CR-7002, Revision 1, Criteria for Development of Evacuation Time Estimate Studies, issued February 2021 (Ref. 9)
which wa', developed to help applicants Of.c o, re. , r edness i a F.D. RA. R.G-*~~~~f ic .....
    *  NSIR/DPR-ISG-01, Interim Staff Guidance: Emergency Planning for Nuclear Power Plants, issued November 2011 (Ref. 10)
teparedness in a FDR=U.AL.
    *  NSIR/DPR-ISG-02, Interim Staff Guidance: Emergency Planning Exemption Request for Decommissioning Nuclear Power Reactors issued May 11, 2015 (Ref. 11)
    *   RG 1.219, Guidance on Making Changes to Emergency Plans for Nuclear Power Reactors, issued July 2018 (Ref. 12)
Purpose of Regulatory Guides The NRC issues RGs to describe to the public methods that are acceptable to the staff for implementing specific parts of the agencys regulations, to explain techniques that the staff uses in evaluating specific issues or postulated events, and to describe information that the staff needs in its reviews of applications for permits and licenses. Regulatory guides are not NRC regulations and compliance with them is not required. Methods and solutions that differ from those set forth in RGs are acceptable if supported by a basis for the issuance or continuance of a permit or license by the Commission.


REGt.-establish adequate plans for coping with emergencies.
Paperwork Reduction Act This RG provides voluntary guidance for implementing the mandatory information collections in
10 CFR Part 50 that are subject to the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). These information collections were approved by the Office of Management and Budget (OMB), approval numbers 3150-0011. Send comments regarding this information collection to the FOIA, Library, and Information Collections Branch (T6-A10M), U.S. Nuclear Regulatory Commission, Washington, DC
20555-0001, or by e-mail to Infocollects.Resource@nrc.gov, and to the OMB reviewer at: OMB Office of Information and Regulatory Affairs (3150-0011), Attn: Desk Officer for the Nuclear Regulatory Commission, 725 17th Street, NW Washington, DC 20503; e-mail: oira_submission@omb.eop.gov.


0STI ." F o I 36 us .January 24 .S" ST Knol; " 3a F,..I 2356) publishled January 24, 1973J.This regulatory guide provides more complete guidance To 9iii '- e these respn are diecedto* indeveloping emergency plans for nuclear power plants..r ,,ard ~et"Od nation of efforts to provide assistance to It describes a miethod acceptable to the NRC staff for r -01oc,' gove n i ip n.. Thi re-.. ... ., " a t coal governm ents in their planning.
Public Protection Notification The NRC may not conduct or sponsor, and a person is not required to respond to, a collection of information unless the document requesting or requiring the collection displays a currently valid OMB
control number.


Th is complying with the Commission's regulations with -ased on the recognition that State and local gard to adequate content of emergency plans for nuel~t..,,-
RG 1.101, Rev. 6, Page 3
.,,...rtctne p f go nments have the necessary authority to implement power plants, primarily in the FSAR stage measures in their jurisdictions.


Although B '. DISCUSSION  
==B. DISCUSSION==
',, 'ederal agencies can and will respond to emergencies
Reason for Revision The staff is issuing Revision 6 of RG 1.101 to endorse and update guidance that is available to licensees and applicants on methods acceptable to the NRC staff for complying with the NRCs regulations for emergency response plans and preparedness at nuclear power reactors. This revision endorses Revision 0 of the Nuclear Energy Institute (NEI) white paper, Implementing a 24-Month Frequency for Emergency Preparedness Program Reviews, issued November 2019 (Ref. 13) and Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-04, Conducting a Hostile Action-Based Emergency Response Drill, Revision 3, issued September 2016 (Ref. 14). This revision of the RG also consolidates previously developed and endorsed guidance documents into a single revision of the RG.
"., arising from nuclear power plant activities if necessary, The Commission's interest in cergen jian g is :;uch response should be regarded primarily as supportive focused primarilyions intuaet ions teamergyn
.'-r may of, and not as a substitute for, responsible action by focused primarily on situations that may c ay licensees and State and local governments.


threaten to cause radiological hazards affecting the health and safety of workers' ie public or resulting in damage to property.
Background In November 1980, the NRC published Revision 1 to NUREG-0654/FEMA-REP-1 to provide specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47. NUREG-
0654/FEMA-REP-1, Revision 1, is a joint NRC NUREG-series publication and Federal Emergency Management Agency (FEMA) guidance document. The NRC uses this document to evaluate the adequacy of the emergency plans and preparedness of nuclear power plant licensees while FEMA, as well as other Federal agencies, use this document to review and approve state, local, and tribal government radiological emergency plans. In October 1981, the NRC endorsed NUREG-0654/FEMA-REP-1 in Revision 2 of this guide.


Em nc I ns should be directed In the preparation or an emergency plan for a specific toward mitigating the con ni of emergencies and nuclear power plant, the applicant should be guided by should provide r ' le rance that appropriate the following criteria to clarify the scope, content, and measures can an, will talk to protect health and purpose of the document that describes the plan.safety and ,mag o property in the event of an emergency thd.oj u not practicable to develop a I. Although considered a part or the Final Safety completely iiled plan encompassing every conceiv- Analysis Report, the plan should be prepared as a able type of ,gency situation, advance planning can separate document.ICopies may be obtained by request to the U.S. Nuclear Rcgulatory Commission, Washington, D.C. 20555, Attention:
Planning standard 10 CFR 50.47(b)(4) requires that the emergency plan include a standard EAL
2. The plan should be an expression of the overall Director, Office of Nuclear Rcaclor Regulation. "concept of operation" that describes the essential USNRC REGULATORY
scheme. An EAL is a predetermined, site-specific, observable threshold for a plant condition that results in an emergency classification. The NRC initially established guidance for the development of EALs in Generic Letter (GL) 79-50, Emergency Plans Submittal Dates, issued 1979 (Ref. 15). Revision 2 of this guide endorsed subsequent guidance in Appendix 1 to NUREG-0654, which became the primary standard for the NRCs review of EAL schemes.
GUIDES Comments should be sent to the Secretary of the Commission.


U S Nuclear Rngulatoty Guides are issued to describe and minke available to the P Regular'e Commisson.
As the industry gained experience with the implementation and use of EAL schemes, it issued revised guidance documents on EAL scheme development to reflect lessons learned. The industry-developed guidance built upon and enhanced the foundation set forth in NUREG-065


Washington.
===4. Revision===
3 of this RG endorsed Nuclear Management and Resources Council (NUMARC)/NESP-007, Revision 2, Methodology for Development of Emergency Action Levels, issued January 1992 (Ref. 16), and RG
1.101, Revision 4, endorsed NEI 99-01, Revision 4, Methodology for Development of Emergency Action Levels, issued January 2003 (Ref. 17) as acceptable methods for licensees to consider in the development of their plant-specific EAL schemes.


DC. 205%. Attention.
Revision 5 of RG 1.101 issued in June 2005 provided guidance for co-located licensees on conducting emergency response planning activities and interactions in the years between participation in offsite full- or partial-participation exercises. Since the publication of Revision 5, the NRC has developed or endorsed several new or revised emergency planning guidance documents described in Section C of this RG.


OockSteng and methods acceptable to the NRC stalf of imptlernrtling specific Stce Section.Comamnssion's tequaltolt.
In December 2019, the NRC published Revision 2 of NUREG-0654/FEMA-REP-1, which integrates nearly 35 years of lessons learned in radiological emergency preparedness and consolidates and clarifies previous guidance related to the development of emergency plans. The planning criteria and RG 1.101, Rev. 6, Page 4


to delineate techntiques used be the stall in evalu "he guides ate issued in the following ten broad divisions atInq specil.c problenms a postulated accidents.
guidance contained in Revision 2 of NUREG-0654/FEMA-REP-1 reflect changes to both NRC and FEMA regulations, guidance, policies, and doctrine, as well as advances in technology and best practices that have occurred since the document was originally issued in 1980. The NRC staff considers these criteria and guidance to be acceptable methods for complying with the onsite and offsite emergency response planning standards in 10 CFR 50.47.


at to provide guidance to appl, cant" Regulatory Guides are not substitute%
Revision 2 of NUREG-0654/FEMA-REP-1 also defines the review period for emergency preparedness program reviews conducted in accordance with 10 CFR 50.54(t)(1) such that 12 months in 10 CFR 50.54(t)(1) and annual in NUREG-0654/FEMA-REP-1 both mean 365 days. Thus, the program review should not exceed 365 days from the end date of the prior review to the completion of the next program review, which includes issuance of the review report. The requirement for all elements of the emergency preparedness program to be reviewed at least once every 24 months should not exceed 730
for regulations.
days from the end of the prior review to the completion of the next program review, which includes issuance of the review report.


and co,,opliance I Powet Reactors 6 Products with them is oit required Methnds and sotutions difterent from those %et out in 2 Research and Test Reactors 7 Transporitaton the guides wilt be a,c.eplthltt if they provide a basis tor the Indinga requisite to .3. Fuels and Matetials Factlities B. Occupational Health the~tsunefat, ton.tintidlit!OfA(Permit Of license by the Commnission..
Consideration of International Standards The International Atomic Energy Agency (IAEA) works with member states and other partners to promote the safe, secure, and peaceful use of nuclear technologies. The IAEA develops Safety Standards and Safety Guides for protecting people and the environment from harmful effects of ionizing radiation.
.4. Environiental and Siting 9 Antitust Review Comn.rnt%
and %uqqentiaon lot improveaie.,lt It1 these guides ate encouraged r, Materials and Plant Protection
10 General at alt times. ad guides wlt rlr ,evised. an aptpropriate.


to accommodate cam.Imenit and to fellect new Inte- or elpaetir.nr.
This system of safety fundamentals, safety requirements, safety guides, and other relevant reports reflects an international perspective on what constitutes a high level of safety. To inform its development of this RG, the NRC considered IAEA Safety Requirements and Safety Guides pursuant to the Commissions International Policy Statement (Ref. 18) and Management Directive and Handbook 6.6 (Ref. 19). In development of this RG, the staff considered IAEA Safety Guide GS-R-2, Preparedness and Response for a Nuclear or Radiological Emergency, issued November 2015 (Ref. 20).
        The NRC staff did not identify any IAEA Safety Requirements or Guides with information related to the topic of this RG.


However. cmrnments an Copies of published guides may be obtained by written request indicating the this guide, it ,ectved w-tlri ..t.. ut two ntnnths After its issuance.
Documents Discussed in Staff Regulatory Guidance This RG endorses the use of one or more guidance documents developed by external organizations, and other third-party guidance documents. These codes, standards and third-party guidance documents may contain references to other codes, standards or third-party guidance documents (secondary references). If a secondary reference has itself been incorporated by reference into NRC
regulations as a requirement, then licensees and applicants must comply with that standard as set forth in the regulation. If the secondary reference has been endorsed in a RG as an acceptable approach for meeting an NRC requirement, then the standard constitutes a method acceptable to the NRC staff for meeting that regulatory requirement as described in the specific RG. If the secondary reference has neither been incorporated by reference into NRC regulations nor endorsed in a RG, then the secondary reference is neither a legally-binding requirement nor a generic NRC approved acceptable approach for meeting an NRC requirement. However, licensees and applicants may consider and use the information in the secondary reference, if appropriately justified, consistent with current regulatory practice, and consistent with applicable NRC requirements.


will be par divisions dr.%tred to the U.S Nuclear Regulatoty Comnmlision, Washinglon.
RG 1.101, Rev. 6, Page 5


D C.ltcularlt usetul it, ewdluahiJ
C. STAFF REGULATORY GUIDANCE
the on..d rot an eatly
        This section includes industry-developed guidance documents that the NRC staff has previously determined to be acceptable to meet regulatory requirements for emergency response planning and preparedness for nuclear power plants and an industry-developed guidance document that the NRC is endorsing as a method that the staff also considers acceptable to meet regulatory requirements for emergency response planning and preparedness for nuclear power plants.
20555, Attention Ditectot.


Otlice of Standards Development.
Previously Endorsed NEI Guidelines
1.      NEI 99-01, Revision 6, Development of Emergency Action Levels for Non-Passive Reactors, November 2012 (Ref. 21), which is acceptable for use by licensees and applicants as a methodology to develop or upgrade EAL schemes in accordance with the requirements of 10
        CFR 50.47(b)(4), related sections of Appendix E to 10 CFR Part 50, and the associated planning standard evaluation elements of NUREG-0654/FEMA-REP-1, Revision 1. The NRC endorsed this guidance in a memorandum to NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 6, March 28, 2013. (Ref. 22)
2.      NEI 99-01, Revision 5, Methodology for Development of Emergency Action Levels, February
        2008 (Ref. 23), which is acceptable for use by licensees and applicants as a methodology to develop or upgrade EAL schemes in accordance with related sections of Appendix E to 10 CFR
        Part 50. In addition to clarifying certain sections of previous revisions, Revision 5 of NEI 99-01 formalizes enhancements to emergency planning associated with hostile action events for emergency preparedness programs. The NRC endorsed this guidance in a memorandum to NEI,
        U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 5, February 22, 2008. (Ref. 24)
3.      NEI 07-01, Revision 0, Methodology for Development of Emergency Action Levels Advanced Passive Light Water Reactors, July 2009 (Ref. 25), which is an acceptable reference for applicants to review in the development of new reactor applications if they are using the AP1000
        or Economic Simplified Boiling Water Reactor design. Additionally, applicants may consider the template provided in NEI 07-01 as a reference for the development of an EAL scheme for any design using digital instrumentation and control, including licensed power reactors considering upgrading to digital instrumentation and control. The NRC endorsed this guidance in a memorandum to NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI
        07-01, August 12, 2009. (Ref. 26)
4.      NEI 10-05, Revision 0, Assessment of On-Shift Emergency Response Organization Staffing and Capabilities, issued June 2011 (Ref. 27), which is acceptable for use by licensees and applicants as a methodology to perform a detailed staffing analysis for on-shift personnel assigned emergency plan implementation duties as required by Section IV.A.9 of Appendix E to 10 CFR
        Part 50. The NRC endorsed the on-shift staffing method of NEI 10-05 in Section IV.C of the interim staff guidance (ISG), NSIR/DPR-ISG-01, Interim Staff Guidance - Emergency Planning for Nuclear Power Plants, November 2011.


elements of advance planning that have been considered and the provisions that have been made to cope with emergency situations.
5.      Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-04, Conducting a Hostile Action-Based Emergency Response Drill, Revision 2, issued July 2011 (Ref. 28), which is acceptable for use by licensees and applicants for the development and conduct of hostile action-based emergency response drills. The NRC endorsed Appendix A to NEI-06-04, Rev. 2, by letter dated September 19, 2011. (Ref. 29)
                                          RG 1.101, Rev. 6, Page 6


The plan should incorporate infor-mation about the emergency response roles of support-ing organizations and agencies.
6.    NEI 13-01, Reportable Action Levels for Loss of Emergency Preparedness Capabilities, Revision 0, issued July 2014 (Ref. 30), which is acceptable for use by licensees and applicants as a methodology that provides specific guidance for reporting the loss of emergency preparedness capabilities under 10 CFR 50.72(b)(3)(xiii). The NRC endorsed NEI 13-01 in NUREG-1022, Rev. 3, Supplement 1, Event Report Guidelines 10 CFR 50.72(b)(3)(xiii), September 2014.


That information should be sufficient tO enable a determination of the interface and coordination required among the supporting groups and between them and the licensee.3. Details that can reasonably be expected t, change froml time to time, e.g., names and telephone numbers.specific items of equipment and supplies, inventory lists, and step-by-step procedures or checklists that may be altered as a result of experience or test exercises, should not be incorporated into the plan.4. The plait should not, by itself, be considered a primary working document to be used during an emergency.
(Ref. 31)
Endorsement of NEI Guidelines
1.    The NRC staff endorses Revision 0 of the NEI white paper, Implementing A 24-Month Frequency for Emergency Preparedness Program Reviews, which is acceptable for use by licensees and applicants as a methodology to adopt the voluntary option for conducting periodic emergency preparedness program reviews at a 24 month frequency as allowed by 10 CFR
      50.54(t)(1)(ii).
2.   The NRC staff endorses Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-
      04, Conducting a Hostile Action-Based Emergency Response Drill, Rev. 3, which is acceptable for use by licensees and applicants for the development and conduct of hostile action-based emergency response drills.


Detailed procedures that will ensure timely and effective implementation of various aspects of the emergency plan should be prepared.
RG 1.101, Rev. 6, Page 7
 
These procedures, however, should not be incorporated into iie document.C. REGULATORY
POSITION I. Each applicant's emergency plan should !iclude provisions for coping with emergencies, both within the boundary of the plant site and in the environs of the site. Responsibility for planning and implementing all emergency measures within the site boundaries rests with the licensee.
 
Planning and implementation of measures to cope with plant.related emergencies outside the site boundary should be a coordinated effort involving the licensee and local, county, State, and Federal agencies having emergency responsibilities.
 
The emergency plan should describe this coordination, that is. the arrangements and agreements between the licensee and these supporting agencies.2. The scope and content of a nuclear powei plant emergency plan should be substantially equivalent to that recommended in Annex A to this guide. "Organiza- tion and Content of Emmergency Plans for Nuclear Power Plants." Provision should be made for an annual review of the emlergency plan and for updating and improving procedures based on training, drills, and changes onsitc or in the environs.3. Features and candidate subjects that should be considered in the preparation of specific procedures for implementing the emergency plan are described in Annex B to this guide. "Implementing Procedures for E-mergency Plans." Implementing procedures should not be incorporated into the plan and are not required to he submi:ted as part of the Final Salety Analysis Report to the Commission.
 
These procedures should, however, be available for review by the Oflfice of Inspection and Enforcement during its prelicensing and routine inspec-tions.


==D. IMPLEMENTATION==
==D. IMPLEMENTATION==
The purpose of this seclion is to pi'ovide infoimation to applicants and licensees regarding the NRC staff's plans fot utilizing this regulatory guide.With the exception.
The NRC staff may use this RG as a reference in its regulatory processes, such as licensing, inspection, or enforcement. However, the NRC staff does not intend to use the guidance in this RG to support NRC staff actions in a manner that would constitute backfitting as that term is defined in 10 CFR
 
50.109, Backfitting, and as described in NRC Management Directive 8.4, Management of Backfitting, Forward Fitting, Issue Finality, and  
of Annex B, this guide reflects current Nuclear Regulatory Comttmissiot practice iLs outlined in the USNRC Standard Review Plan. Except in those cases in which the applicant proposes an accept-able alternative metlhod for complying with specified portions of the Comnmission's regulations, the method described in Annex A is being and will continue to be used in the evaluation of Final Safety Analysis Reports until this guide is revised as a result of suggestions fromn the public or additional staff" review.Annex B is being published now for comment and review; it may be revised as a result of suggestions from the public or additional staff review.1.101-2 ANNEX A ORGANIZATION
AND CONTENT OF EMERGENCY
PLANS FOR NUCLEAR POWER PLANTS I. DEFINITIONS
This section should provide definitions of any terms (hat are unique to the power plant under consideration or are given conrotations that differ from normally ucceptcd usage. Listed below are some terms used in this guide along with the definitions that should be applied to these terms when they are used in emergency plans.I. Assessment actions -those actions taken during or after an accident which are collectively necessary to make decisions to implement specific emergency mea-Sures.2. Corrective actions -those emergency measures taken to ameliorate or terminate an emergency situation at or near the source of the problem.3. Protective actions -those ."mergency measures taken after an uncontrolled release of radioactive mate-rial has occurred for the purpose of preventing or minimizing radiological exposures to persons that would be likely to occur if the actions were not taken.4. Popula:ion at risk -those persons for whom protective actions are or would be taken.5. Affected persons -individuals who have been.radiologically exposed or physically injured as a result of an accident to a degree requiring special attention, e.g., decontamination, first aid, or medical services.6. Recovery actions -those actions taken after the eniergeney to restore the playi .ts nearly as possible to its preemergency condition.
 
7. Protective action guides -projected radiological dose or dose commitment values to individuals in the general population that warrant protective action follow-ing a release of radioactive material.8. Emergency action levels -radiological dose rates; specific contamination levels of airborne, water-borne, or surface-deposited concentrations of radio-activity;
or specific .instrument readings that may be used as thresholds for initiating specific emergency measures.2. SCOPE AND APPLICABILITY
This section of the plan should define the unit, plant, station, or area to which the plan is applicable and present a summary of the plan's interrelationships with (I) its implementing procedures, (2) plant operating, radiological control, and industrial security procedures, (3) other emergency plans of the company (e.g., an overall corporate plan I, and (4) emergency plans of other participating agencies, particularly the responsible State agency or other governmental authority having emergency planning responsibilitics in the immediate offsite area.3. SUMMARY OF EMERGENCY
PLAN This section should describe the key elements of overall emergency planning logic, incorporating graded emergency classifications of increasing severity and their relationship to the participating status of onsite and offsite personnel and agencies.
 
===4. EMERGENCY ===
CONDITIONS
4.1 Classification System An emergency plan should characterize several classes of emergency situations.
 
The system of classifica- tion employed should consist of mutually exclusive groupings (to avoid ambiguity)
but should cover the entire spectrum of possible situations.
 
Succinct verbal rather than numerical or alphabetical classification desig-nations are recommended to give better immediate information to personnel as to the scope and character of the situation.
 
The plan should describe the limiting scope consid-ered for each identified class of emergency, that is, the area and/or persons affected by the consequences.
 
The plan should also describe, for each class, the preliminary actions to be taken to cope with the situation, the authority or title of the individual responsible for initiating these actions, and the organizations and agencies that would be alerted and mobilized.
 
Specific implementing procedures slhuld be pre-pared for each identified class of emergency (see Annex B).An acceptable classification scheme is described in qualitative terms in Sections 4.1.1 through 4.1.5. This part of the emergency plan should describe the criteria for recognizing and declaring each class, including specific emergency action levels for the last three classes.4.1.1 Personnel Emergency This class involves accidents or occurrences onsite in which emergency treatment of one or more individuals is required.
 
It includes those situations that 1.101-3 ANNEX A ORGANIZATION
AND CONTENT OF EMERGENCY
PLANS FOR NUCLEAR POWER PLANTS I. DEFINITIONS
This section should provide definitions of any ternis that arc unique to the power plant under consideration or are given conr.otations that differ from normally accepted usage. Listed below are some terms used in this guide along with the definitions that should be applied to these lerms when they are used in emergency plans.I. Assessment actions -those actions taken during or after an accident which are collectively necessary to Make decisions to implement specific emergency mea-sures.2. Corrective actions -those emergency measures taken to ameliorate or terminate an emergency situation at or near the source of the problem.3. Protective actions -those ,'mergency measures taken after an uncontrolled release of radioactive mate-rial has occurred for the purpose of preventing or minimizing radiological exposures to persons that would be likely to occur if the actions were not taken.4. Popula:ion at risk -those persons for whom protective actions are or would be taken.5. Affected persons -individuals who have been radiologically exposed or physically injured as a result of an accident to a degree requiring special attention.
 
e.g., decontainination, first aid, or medical services.6. Recovery actions -tthose actions taken after the emergency to restore the pla!I i ,s nearly as possible to its preemergency condition.
 
7. Protective action guides -projected radiological dose or dose commitment values to individuals in the general population that warrant protective action follow-ing a release of radioactive material.8. Emergency action levels -radiological dose rates; specific contamination levels of. airborne, water-borne, or surface.deposited concentrations of radio-activity;
or specific instrument readings that may be used as thresholds for initiating specific emergency measures.2. SCOPE AND APPLICABILITY
This section of the plan should define the unit, plant, station, or area to which the plan is applicable and present a summary of the plan's interrelationships with (1) its implementing procedures, (2) plant operating, radiological control, and industrial security procedures, (3) other emergency plans of the company (e.g., an overall corporate plan), and (4) emergency plans of other participating agencies, particularly, the responsible State agency or other governmental authority having emergency planning responsibilities in the immediate offsite area.3. SUMMARY OF EMERGENCY
PLAN This section should describe the key elements of overall emergency planning logic, incorporating graded emergency classifications of increasing severity and their relationship to the participating status of onsite and offsite personnel and agencies.
 
===4. EMERGENCY ===
CONDITIONS
4.1 Classification System An emergency plan should characterize several classes of emergency situations.
 
The system of classifica- tion employed should consist of mutually exclusive groupings (to avoid ambiguity)
but should cover the entire spectrum of possible situations.
 
Succinct verbal rather than numerical or alphabetical classification desig-nations are recommended to give better immediate information to personnel as to the scope and character of the situation.
 
The plan should describe the limiting scope consid-ered for each identified class of emergency, that is, the area and/or persons affected by the consequences.
 
The plan should also describe, for each class, the preliminary actions to be taken to cope with the situation, the authority or title of the individual responsible for initiating these actions, and the organizations and agencies that would be alerted and mobilized.
 
Specific implementing procedures should be pre-pared for each identified class of emergency (see Annex B).An acceptable classification scheme is described in qualitative terms in Sections 4.1.1 through 4.1.5. This part of the emergency plan should describe the criteria for recognizing and declaring each class, including specific emergency action levels for the last three classes.4.1.1 Personnel Emergency This class involves accidents or occurrences onsite in which emergency treatment of one or more individuals is required.
 
It includes those situations that 1.101-3 have no potential for escalation to morc severe emer-gency conditions.
 
There may be no effect on thie plant, and immediate operator action to alter plant status is not necessarily required.
 
A Personnel Emergency does not activate the entire emergency organization but may activate such teams as thc first aid team. It may also require special local services such as ambulance and medical.hmplemcnting procedures for the handling of this class of' emergency may also be incorporated in the plant's radiation protection procedures and general industrial safety procedures.
 
Included in this class are injuries that may be complicated by contamination problems or excessive radiation exposures t) onsite personnel.
 
The recognition of this class of emergency is primarily a judgment matter for plant supervisory or management personnel.
 
Its importance as part of the classification scheme rests to some extent on its "nega-tive'" information content, viz, that the incident giving rise to the emergency is restricted in its scope of involvement.
 
This section of the plan should designate the classification criteria and should enumerate discrete accident situations that could give rise to this class.4.1.2 Emergency Alert This class involves specific situations that.can be recognized as creating a hazard potential that was previously nonexistent or latent. The situation has not yet caused damage to the plant or harm to personnel and does not, necessarily require an immediate change in plant operating status. Inherently, however, this is a situation in which time is available to take precautionary and constructive steps to prevent an accident and to mitigate the consequences should it occur. An Emer-gency Alert situation may be brought on by either man-made or natural phenomena.
 
Emergency Alert conditions imply a rapid transition to a state of readiness by the plant personnel, the possible cessation of certain routine functions or activities within the plant that are not immediately essential, and possible precautionary actions that a specific situation may require. Examples of situations that might be placed in this class are threats to or breaches of plant security measures such as bomb threats or civil disturbance, severe natural phenomena in the plant environment such as floods, earthquakes, tsunami, hurricanes, or tornadoes;
emergency situations such as fires at adjacent locations;
or release of a toxic or noxious gas in or near the plant. This section of the emergency plan should identify specific candidate situa-tions for Emergency Alerts and the quantitative criteria that would guide the decision to implement each.Qualitative criteria should he added for other candidate situations to guide the decisions of onsite supervisory personnel.
 
4.1.3 Plant (Unit) Emergency This class includes physical occurrences within the plant requiring full plant staff emergency organization response.
 
The initial information and assess-ment indicates that it is very unlikely that an offsitc hazard will be created. Hlowever, substantial modifica-tion of plant operating status is a highly probable corrective action if this has not already taken place by the actions of automatic protective systems. Although it is judged that the emergency situation can be corrected and controlled by the plant staff. nolification of corporate headquarters staff' to put them on an alert status is prudent. Notification of appropriate offsite agencies as to the nature and extent of the incident is also advisable.
 
Evacuation of the plant is not anticipated in this class of emergency, although protective evacua-tions or isolations of certain plant areas may be necessary.
 
Examples of situations that might fall into this class are those accidents analyzed in the FSAR as events that are predicted to have no radiological conse-quences offsite. Fires, explosions or explosive gas re-leases, or in-plant flooding conditions may fall into this class.Activation levels for declaring Plant Emergen-cies should be based on the recognition of an immediate need to implement in-plant emergency measures to protect or provide aid to affected persons in the plant or to mitigate the consequences of damage to plant equipment, coupled with a positive observation that (I)effluent and other radiological monitors do not indicate the possibility of a Site Emergency and (2) there is no apparent breach of any fuel cladding, primary system boundary, or containment.
 
This section should describe the alarm conditions or combinations of alarm condi-tions and the emergency action levels for initiating a Plant Emergency.
 
4.1.4 Site (Station)
Emergency This class involves an uncontrolled relcase of radioactive materials into the air, water, or ground to an extent that initial information and assessment indicate protective actions offsite may be desirable.
 
Mobilization and readiness of offsite emeigency organizations is prudent. Protective actions are likely to include evacua-tion of plant areas other than control rooms and emergency stations and should include the evacuation of construction personnel when additional units are under construction on the same site. Assessment actions will include monitoring of the environment.
 
101-4 IJ
MEM Situations likely to fall into this class include those accidents analyzed in the FSAR that are predicted to have small to moderate releases at the exclusion radius. It should be anticipated that Site Emergencies would not normally be preceded by a Plant Emergency, although the possibility of this evolution should not be excluded.Emergency action levels for declaring a Site Emergency should be defined in terms of instrument readings or alarms in the control room, including indications from effluent monitors.
 
To avoid false alarms or to minimize their frequency of occurrence, the levels may be defined so as to require corroborating evidence from two independent sources that provide input to the control room. Site Emergencies should also be declared on the basis of evidence of apparent breaches in fuel cladding, primary system bound4Wl,':, or containment.
 
The bases and criteria used to divf= the instrument alarm levels should be described.
 
Suitable criteria would be protective action guide values at a security fence, exclusion area, or site boundary, and the bases would show how the effluent monitor readings relate to such values. Federal agency guidance'
2 is available to assist in the selection of acceptable protective action guides.4.1.5 General Emergency This is an occurrence characterized by conse-quences lequiring that protective actions be taken in offsite areas as a matter of prudence or necessity.
 
Evacuation of the site may also be necessary under extreme circumstances.
 
Action levels for declaring the General Emer-gency case should be defined. The action levels should recognize bo.li short-term and long-term hazards. The selection of action levels for the former should be guided by direct radiation hazards and inhalation hazards that may be presented by the passage of a cloud of radioactive material released from the plant. The selec-tion of action levels for the long-term hazards should be guided by contamination hazards that could result from fallout or deposition of radioactive materials released from the plant.Protective actions should be planned and implemented at the prescribed action levels. Action levels for severe short-term situations requiring rapid implementation of protective actions should be defined in terms of readily available information such as readings of effluent monitors or other onsite monitor indications.
 
Implementation of protective actions may also be based on confirmatory measurements taken in the field to the extent it can be shown that field measurements can be"Background Material for the Development of Radiation Pro-tection Standards," Federal Radiation Council, Report No. 5, July 1964, and Report No. 7, May 1965.2"Emergency Response Protective Action Guides-Airborne Releases from Fixed Nuclear Facilities," Office of Radiation Programs, U.S. Environmental Protection Agency, January 1975.taken and evaluated rapidly enough to permit adequate time for the protective actions to be accomplished.
 
In either event, the bases and criteria used to define the action levels should be described in the plan.4.2 Spectrum of Postulated Accidents Accident analysis scclions of Safety Analysis Re-ports are primarily concerned with the dcsign responses of a plant to postulated malfunctions or equipment failure and include estimates of the radiological conse-quences of discrete accidents.
 
By contrast, emergency planning is concerned with individual and organizational responses to the continuum of potential accident situa-tions, including those discrete accidents that have been hypothesi7ied.
 
This section of the emergency plan should show that each postulated accident is encompassed within the emergency characterization classes and should provide a summary analysis of their implications for emergency planning.
 
Implications to be considered should :-'Jiude: I. Instrumentation capability for prompt detection and continued assessment, including functional applica-bility, range, response time, locations of sensing and readout elements (including alarms), and backup or redundant capability;
2. Manpower requirements for assessment, includ-ing recordkeeping;
for corrective actions- for protective actions, including communications requirements;
and for aid to affected persons; and 3. The timing of and the time required for the implementation of each emergency measure that may be brought into play.S. ORGANIZATIONAL
CONTROL OF EMERGEN-CIES Starting with the normal operating organization as a base, this section of the plan should describe the emergency organization that would be activated on the site and its augmentation and extension offsitc. Authori-ties and responsibilities of key individuals and groups should be delineated.
 
The communication links estab-lished for notifying, alerting, and mobilizing emergency personnel should be identified.
 
5.1 Normal Plant Organization Both day and night shift staffs (crews) should be described, indicating clearly who is in the immediate onsite position of responsibility for the plant or station (normally a shift supervisor)
and his authority and responsibility for declaring an emergency.
 
5.2 Onsite Emergency Organization This section should describe the mobilization billets of plant staff personnel for controlling each class of emergency for both day and night shift situations.
 
1.101-5
5.2.1 Direction and Coordination The' position title of utat person who is designated to take charge of onsite emergency control measures should be clearly identified.
 
A specific line of succession for this authority should also be given. A policy statement describing the scope of authority and responsibility vested in that role by the company (applicant)
should be included.
 
Functional responsibili- ties assigned to this individual should be described and should include a summary of those preliminary assess-ment procedures that would be followed to prescribe or guide his decision to classify and declare an emergency.
 
5.2.2 Plant Staff Emergency Assignments The plan should specify the iunctional areas of emergency activity to which members of the plant staff are assigned, including an indication of how the assignments are made for both day and night shifts and for plant staff members both onsite and away from the site. Functional areas should include: 1.. Plant systems operations, 2. Radiological survey and monitoring, 3. Firefighting, 4. Rescue operations, 5. First aid, 6. Decontamination, 7. Security of plant and access control, 8. Repair and damage control, 9. Personnel accountability, 10. Recordkeeping, 11. Communications.
 
5.3 Augmentation of Onsite Emergency Organization This section should describe two categories of offsite support assistance to the plant staff emergency organization.
 
These can be either directed, authorized, or requested by the company management to perform special emergency assistance functions.
 
5.3.1 Licensee Headquarters Support Headquarters management, administrative, and technical personnel should be prepared to augment the plant staff, both in emergency planning and in the performance of certain functions required to cope with an; emergency.
 
The following special functions are considered appropriate for headquarters support and should be incorporated in the overall plan, although company policy and organizational features may dictate variations in modes of assigning responsibilities for these functions among headquarters personnel, plant staff personnel, and outside support organizations:
I. Environs monitoring, 2. Logistics support for emergency person-nel, e.g., transportation, temporary quarters, food and water, sanitary facilities in the field, and special equip.ment and supplies procurement, 3. Technical support for planning and reentry/recovery operations, 4. Notification of governmental authorities, and 5. Public relations and information release, coordinated with governmental authorities, including steps taken to inform visitors to the plant, site, or information center and occupants in the environs of the site how the emergency plans provide for notification to them and how they can expect to be advised what to do.The emergency organization status of sup.porting headquarters personnel should be specified, relative particularly to the person directing the plant emergency organization.
 
In some instances, companies may provide for certain emergency supporting services to their plants by contracts with private organizations.
 
Where this is the case, the nature and scope of the support services should be characterized here. (The Commission may find it necessary to request evidence of the qualifications of such contractors.)
Specific services by contractors should be identified at the appropriate places in the emergency plan.5.3.2 Local Services Support This section should identify the extension of the organizational capability for handling emergencies to be provided by ambulance, medical, hospital, fire, and police organizations.
 
Evidence of the arrangements and agreements reached with such organizations should be included in an appendix.
 
This section should contain references to that appendix and to thio parts of the plan in which the functions of these *,rganizations are described.
 
5.4 Coordination with Participating Agencies This section should identify the principal State agency (designated state authority)
and other govern-mental agencies (local, county, State, and Federal)1.101-6 having planning or action responsibilities for emergen-cies, particularly for radiological emergencies, in the area in which the plant is located. If the boundary linec between two political chtilies, e.g., counties or states, passes within the low-population zone or within appioxi-mately fciir miles of the site, agencies from both governmental entities should bc included.
 
Subsections for each such agency should include: I. The identity of the agency.2. A summary of tlhe written agreement wiltl the agency that clearly defines the authority and icsponsi-bility of the agency for emergency preparedness plan-ning and for emergency response, particularly in relation to those of" the licensee and to those of other agencies.Copies of such agreements should be included in an appendix, along with a copy or summary of relevant parts of that agency's "minergency plan.3. Activation uf the agency function.
 
including titles and alternates for both ends of the communication links, and primary and alternative means of communica- lion.4. The designation and location of the Emergency Operations Center of each agency.5. Support of the agency function that may be provided by the company emergency organization, which may include (a) information on plant status, monitoring results, dose predictions, (b) recommenda- tions or requests for specific actions, and (c) logistics support.Typical agencies to be included here are law enforcement agencies not included above (e.g., State Police/Highway Patrol), departments of health or envi-ronmental protection, civil defense or emergency/
disaster control agencies, and the Regional Coordinating Offices of USERDA's Radiological Assistance Program.
 
===6. EMERGENCY ===
MEASURES Specific emergency measures should be identified in this section and related to action levels or criteria that specify when the measures are to be implemented.
 
They should be organized with respect to each emergency classification.
 
Preplanned action levels and criteria should be designed to assist and guide, or in some cases specify, the decision-making functions.
 
The planning represented by this section should lead to more detailed emergency procedures and assignments for executing tasks by appropriate members of the total emergency organization.
 
Emergency measures begin with the activation of an emergency class and its associated emergency organization.
 
The additional measures may be organized into assessment actions, corrective actions, protective actions, and aid to affected persons.6.1 Activation of Emergency Organization The emergency conditions classified in Section 4.1 involve the alerting or activation of progressively larger segments of the total emergency organization.
 
This section should describe how the necessary communica- lion steps are taken to alert or activate emergency personnel under each class of emergency.
 
including, in.particular, action levels for oolification of offsite agen-cies.6.2 Assessment Actions FEffective and direction of all elements of the emergency organization require continuing assess-ment throughout the duration of art emergency situa-lion. Assessinent functions should be incorporated in explicit p,,)cedures for each emergency classification.
 
They should be identified in this section and may include the following:
1. Surveillance of control room instruments and emergency control center, radiological and nmctcorolomri- cal monitors.2. Surveillance of containment integrity.
 
3. in.plant radiological surveys.4. Site and site boundary surveys.5. Environs surveys and monitoring.
 
a. Plume and other effluent surveillance for short-term assessment.
 
Planning should consider type of'data sought- instrument and equipment requirements:
Iransportation facilities for monitoring team (e.g.. air-craft, boats, other vehicles):
methods and accuracy of plume location:
and potential use of fixed offsite monitoring facilities.
 
b. Contamination surveillance.
 
Planning should consider the tinting, frequency, and types of samples to he collected, such as soil, vegetation, food, milk, and water supplies, and potential locations for reconcenira- lion, e.g., in air intake filters.6. Data reporting, reduction, and analysis.7. Interviewing of evacuees or other witnesses of the accident.8. Notification of assessment results for modifica-tion of emergency measures in progress, if necessary.
 
6.3 Corrective Actions Many emergency situations involve actions that can be taken to correct or mitigate the situation at or near the source of the problem. This section should identify 1.101-7 those actions, e.g., fire control,.
repair, and damage control, that would be implemented when necessary..
Emergency exposure criteria for personnel undertaking corrective actions should be included.d. The means and the time required to notify the persons involved and their expected response.These should include: (1) Adjacent businesses, property owners, and tenants, 6.4 Protective Actions This section should describe the nat:-j'e of protective actions that the plan contemplates, the emergency action. levels, the area involved, and the means of notification to the population at risk. Protective actions to be taken offsite by other agencies should be dc-scribed.6.4.1 Protective Cover, Evacuation, Personnel Ac-countability The emergency plan should provide for timely relocation of persons to prevent or minimize exposure to radioactivity.
 
The following items should be included: 1. Plant Site a. Action criteria.b. The means and the time required to notify persons involved.
 
These should include: (2) Nearby schools or recreational facilities, (3) General public in the environs.6.4.2 Use of Protective Equipment and Supplies Additional protective actions that should be considered in emergency planning include measures for minimizing the effects of radiological exposures or contamination problems by the distribution of special equipment or supplies.
 
Measures that should be consid-ered include: I. Individual respiratory protection.
 
2. Use of protective clothing.3. Use of radioprotective drugs, e.g., indi-vidual thyroid protection.
 
For each measure that might be used, a description should be given of: 1. Criteria for issuance, 2. Locations of items, and 3. Means of distribution to onsite and offsite assignments, (1) Employees not having emergency (2) Working and nonworking visitors, (3) Contractor and construction per-sonnel.persons.c. Control of public access areas on or passing through the site or within the exclusion area.d. Evacuation routes, transportation of personnel, and reassembly areas, including alternatives for inclement weather and high traffic density.e. Missing persons check.f. Radiological monitoring of evacuees.6.4.3 Contamination Control Measures Provisions should be made for preventing or minimizing exposure to radioactive materials.
 
Control of in-plant contamination should be described in specific radiological protection procedures and need not be repeated here. Measures for the protection of offsite persons and onsite persons outside of fenced security areas should include: 9. Offsite Areas 1. Isolation or quarantine and area access control.a. Action criteria, including inclement weather alternatives.
 
organization.
 
b. Responsibilities of company emergency c. Agency responsibilities.
 
2. Control of the distribution of affected commercial agricultural products.3. Control of public water supplies.4. Means for providing advisory information regarding the use of potentially affected home food and water supplies.1.101-8
5. Criteria fur permitting return to normal use.Action levels and responsibility for execution of each mcasure contemplated should be described.
 
6.S Aid to Affected Personnel This section of the emergency plan should describe measures thai will be used to provide necessary assist-ancc to persons injured or exposed to radioactivity.
 
The following mat lers should bc included: 6.5.1 Emergency Personnel Exposure Criteria This should specify exposure limits for entry or reentry to areas to remove injured persons and limits for emergency personnel who may provide first aid, decontamination, ambulance, or medical treatment serv.ices to injured persons. An individual or authority should be designated it) autlhorize or approve the acceptancc of emergency radiation exposure for life-saving purpo,:es.
 
6.5.2 Decontamination and First Aid Capabilities for dccontaminating personnel for their own protection and to prevent or minimize fuirther spread of contamination should be included.along with a brief description of first aid training and capabilities of appropriate members of the emergency organization.
 
6.5.3 Medical Transportation Arrangements for transporting injured person-nel, who may also be radiologically contaminated, to medical treatment facilities should be specified.
 
6.5.4 Medical Treatment Arrangements made for local and backup hospital atid medical services and the capability for the evaluation of radiation exposure and uptake should be described.
 
For both hospital and medical services, the plan should incorporate assurance not only that the required services are available, but also that persons providing them are prepared and qualified to handle radiological emergencies.
 
Written agreements with re-spect to arrangements made by the applicant, which should be included in the appendix.
 
would facilitate this determination.
 
===7. EMERGENCY ===
FACILITIES
AND EQUIPMENT This section of the emergency plan should identify, describe briefly, and give the locations of the items identified below. Where appropriate, references may be made to applicable.
 
sections of the Safety Analysis Report for additional oetail.7.1 Emergency Control Centers This should include the principal and, if provided for, alternative onsite locations from which effective emergency control direction is given, One alternative offsite location under the jurisdiction of the applicant should also be de:cribed.
 
Their locations should be related to the reactors, prevailing wind direction, and evacuation routes.7.2 Communications Systems This should give brief descriptions of both oisite and offsitc communications systems, including redun-dant power sources that would be required to perform vital functions in transmitting and receiving information throughout the course of an emergency.
 
7.3 Assessment Facilities Many of the emergency measures described in Section 6 wiil depend on the availability of monitori;ig instruments and laboratory facilities.
 
This section should list monitoring systems that are to be used to initiate emergency measures, as well as those to be used for continuing assessment.
 
The listing should be organized as follows: 7.3.1 Onsite Systems and Equipment 1. Natural phenomena monitors, e.g.. mete-orological, hydrologic, seismic.2. Radiological monitors, e.g.. process. area.emergency, effluent, and portable monitors and sam-pling equipment.
 
3. Nonradiological monitors, e.g., reactor coolant system pressure and temperature.
 
containment pressure and temperature, liquid levels, flow rates, status or lineup of equipment components.
 
4. Fire detection devices.7.3.2 Facilities and Equipment for Offsite Monitor-ing I. Natural phenomena monitors.2. Radiological monitors.3. Laboratory facilities, fixed and mobile.I0 1.101-9
7.4 Protective Facilities
.8.1.2 Drills* Specific facilities that are intended to serve a protective function should bedcscribed with emphasis on those features of each facility that ensure its"j adequacy with respect to capacity for accommodating the number of. persons expected and with respect to shielding, ventilation, and inventory of supplies.
 
Such facilities might include fallout shelters or similar areas and reassembly points. If design details have been provided elsewhere in the Safety Analysis Report, only a brief summary need be given here, along with a reference to the detailed information.
 
7.5 First Aid and Medical Facilities A summary description of onsite facilities should be provided. (Offsite medical facilities should be described in the appendix, along with the agreements providing for their use.)*
 
===8. MAINTAINING ===
EMERGENCY
PREPAREDNESS
This section of the plan should describe the means to be employed to ensure that the plan will continuc to be effective throughout the lifetime of the nuclear facility.8.1 Organizational Preparedness
8.1.1 Training This should include a description of periodic training programs to be given to all categories of emergency personnel.
 
Specialized training for the follow-ing categories should be included: I. Directors or coordinators of the plant emergency.
 
organization.
 
2. Personnel responsible for accident assess-ment, including control room shift personnel.
 
3. Radiological monitoring teams.Periodic (at least annual) announced drills should be incorporated in the emergency plan. These should be preplanncd simulations of accidents to test the adequacy of tinting and content of specific implement- ing procedures and to test cmergency equipment.
 
Ar--angem...1ts should be made for critiques of the drills.Coordinating drills should be held with participating agencies at least annually;
as a mininimum, the communi-cations links and notificafion procedures with those agencies should be tested. An initial coordinated drill with participating agencies should be planned and carried out prior to fuel loading of the first unit at'any site.8.2 Review and Updating of the Plan and Procedures Provision should be made for aai annual review of tile emergency plan and for updating and improving procedures to incorporate results of training and drills and to account for changes onsite or in the environs.Means for maintaining all coordinate elements of the total emergency organization informed of revisions to the plan or relevant procedures should be described.
 
8.3 Emergency Equipment and Supplies The operational readiness of all items of emergency equipment and supplies should be ensured. The plans and schedules for performing maintenance, surveillance testing, and inventory on emergency equipment and supplies should be described.
 
9. RECOVERY This section should describe general plans, including applicable criteria, for restoring the plant as nearly as may be possible to its preemergcncy status.10. APPENDIX The appendix should include the following items: 1. Copies of agency agreement letters and copies or summaries of interfacing emergency plans.2. Plots of calculated time.distance.dose for the most serious design basis accident.
 
as called for in the latest revision of Regulatory Guide 1.70, "Standard Format and Content of Safety Analysis Reports for Nuclear Power Plants." 3. Listings, by title, of written procedures that implement the plan.4. Listings, by general category, of emergency kits, protective equipment, and supplies that are stored and 4. Fire control and repair and damage con.trol teams.5. First aid and rescue team members.6. Local services personnel.
 
7. Medical support personnel.
 
8. Licensee's headquarters support personnel.
 
1.101-10
maintained for emergency purposes.
 
A detailed catalog of individual items should not be included in the plan.The written procedures themselves and a detailed catalog of protective equipment and supplies should be available at the plant site for inspection at any time by a representative of the Commission's Office of Inspection and Enforcement.
 
1.101-11 ANNEX B IMPLEMENTING
PROCEDURES
FOR EMERGENCY
PLANS.This annex provides guidance regarding the prepa tion and content of procedures that implement t emergency plan.1. CONTENT AND FORMAT OF PROCEDURES
This section describes desirable features that shot be incorporated, where appropriate, into individt implementing procedures.
 
1.1 Organization and Responsibilities Wherever appropriate, each procedure shot specify the individual or organizational element havi the authority and responsibility for performing speci critical tasks covered by the procedure.
 
1.2 Action Levels Emergency action levels and protective actii guides should be specified in procedures, along with t emcrgency actions or protective actions required and t individuals or organizational units responsible for thi implementation.
 
1.3 Actions by Support Agencies The specific actions to be performed by suppt groups should .be identified in the procedures deali with their activities.


If the emergency actions perform by these groups require coordination with other e ments of the emergency organization, the particulars a requirements of this coordination should be specified the controlling procedure.
===


1.4 Procedure Format A rigid format for implementing procedures is n suggested in this guide. An acceptable format shot display the action steps so the user of the procedure c clearly understand his duties. The format of procedu!that specify immediate actions to be taken has spec significance because the user needs brief and expli instructions that can be followed easily and quickly.1.4.1 Title and Purpose Eacth procedure should have a title that descriptive of its purpose. The purpose of the procedt should be stated separately, however, if the title is r sufficiently descriptive.
===Information Requests===
===
(Ref. 32), nor does the NRC staff intend to use the guidance to affect the issue finality of an approval under 10 CFR Part 52, Licenses, Certifications, and Approvals for Nuclear Power Plants. The staff also does not intend to use the guidance to support NRC staff actions in a manner that constitutes forward fitting as that term is defined and described in Management Directive 8.4. If a licensee believes that the NRC is using this RG in a manner inconsistent with the discussion in this Implementation section, then the licensee may file a backfitting, or forward fitting, appeal with the NRC in accordance with the process in Management Directive 8.4.


1.4.2 Conditions and Prerequisites Each procedure should specify the prereq sites and conditions that should exist before the spe ra- fled actions or operations are performed.
RG 1.101, Rev. 6, Page 8


These should he be in the form of action levels or protective action guides.1.4.3 Actions and Limitations ild Procedures should present the required jal actions in a succinct and concise manner and in step-by-step order and logical sequence.
REFERENCES 1
1.       U.S. Code of Federal Regulations (CFR), Domestic Licensing of Production and Utilization Facilities, Part 50, Chapter I, Title 10, Energy.


The instructions should be sufficiently detailed for a qualified individual to perform the required actions without supervision but need not provide a completely detailed description of ild the actions, methods, or processes.
2.      CFR, Emergency Planning and Preparedness for Production and Utilization Facilities, Appendix E, Part 50, Chapter I, Title 10, Energy.


ng fic If the user is given the latitude to exercise judgment in implementing specific actions or parts of the procedure, guidelines should be provided in the procedure to aid the user in making decisions.
3.      CFR, Licenses, Certifications, and Approvals for Nuclear Power Plants, Part 52, Chapter I,
        Title 10, Energy.


on 1.4.4 Cautions and Precautions he he Important steps or precautions should be eir noted or highlighted within the procedure.
4.      U.S. Nuclear Regulatory Commission (NRC) and Federal Emergency Management Agency (FEMA), Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, NUREG-0654/FEMA-REP-1, Revision 1, November 1980.


1.4.5 References When procedural steps require other func-)rt tions or jobs to be performed, the controlling procedure ng should contain the reference to other applicable proce-ed dures.le-nd 1.4.6 Signoff Sheets and Checklists in Complex or lengthy controlling procedures should have provisions for signoff sheets or checklists to document the fact that required actions havy been taken or have been completed.
5.       NRC and FEMA, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, NUREG-0654/FEMA-REP-1, Revision 2, December 2019.


Examples include notification iot call lists and personnel accountability checks.mid an res 2. SCOPE OF IMPLEMENTING
6.      NRC and the U.S. Environmental Protection Agency (EPA), Planning Basis for the Development of State and Local Government Radiological Emergency Response Plans in Support of Light Water Nuclear Power Plants, NUREG-0396/EPA 520/1-78-016, December 1978.
PROCEDURES
ial cit 2.1 Immediate Action Procedures There should be a separate procedure for each identified class of emergency to specify and implement is the preplanned response actions required for that emer-ire gency condition.


Each procedure should (I) clearly lot identify the action level, the protective action guide, or the conditions for declaring the emergency condition, (2) list the individuals and elements of the emergency organization that are to be notified and mobilized, and (3) specify the emergency actions that are to be taken ui- by designated individuals and elements of the emergency'ci- organization.
7.      NRC, Functional Criteria for Emergency Response Facilities, NUREG-0696, February 1981.


1.101-12
8.       NRC, Criteria for Development of Evacuation Time Estimate Studies, NUREG/CR-7002, November 2011.
2.2 Emergency Action Procedures The following sections list subjects that should be covered by written procedures.


The titles (f specific procedures, as well as their contents, may vary among licensees, but the actions or subjects described below should be covered within the group of procedures that implement the emergency plan.2.2.1 Notifications Call lists to alert and mobilize the emergency organization and. supporting agencies should be specified for each identified class of emergency.
9.      NRC, Criteria for Development of Evacuation Time Estimate Studies, NUREG/CR-7002, Revision 1, February 2021.


If call lists are not too lengthy or complex, they should be incorporated into the immediate action procedure.
10.      NRC, Interim Staff Guidance: Emergency Planning for Nuclear Power Plants, NSIR/DPR-ISG-01, November 2011.


2.2.2 Radiological Surveys Procedures should specify the methods, and preplanned locations if feasible, for emergency radio-logical surveys in the plant and in the environs of the plant. The rocedures should include or refer to require-ments for 'oviding collected data and information to the individual or organizational element responsible for emergency assessment functions.
11.     NRC, Interim Staff Guidance: Emergency Planning Exemption Requests for Decommissioning Nuclear Power Plants, NSIR/DPR-ISG-02, May 11, 2015
12.     NRC, Guidance on Making Changes to Emergency Plans for Nuclear Power Reactors, Regulatory Guide 1.219, July 2018.


2.2.3 Personnel Monitoring and Decontamination The procedures should require monitoring of individuals leaving restricted areas or other areas known or suspected to be contaminated.
1  Publicly available NRC published documents are available electronically through the NRC Library on the NRCs public Web site at http://www.nrc.gov/reading-rm/doc-collections/ and through the NRCs Agencywide Documents Access and Management System (ADAMS) at http://www.nrc.gov/reading-rm/adams.html. The documents can also be viewed online or printed for a fee in the NRCs Public Document Room (PDR) at 11555 Rockville Pike, Rockville, MD. For problems with ADAMS, contact the PDR staff at 301-415-4737 or (800) 397-4209; fax (301) 415-3548; or e-mail pdr.resource@nrc.gov.


The procedures should specify contamination levels that require decontamina- tion actions. They should also include or refer to decontamination procedures for various types and levels of radioactive contamination.
RG 1.101, Rev. 6, Page 9


2.2.4 Evacuation of Oasite Areas Procedures for evacuation should include the action levels that require evacuation of specified areas, buildings, and the site. Primary and secondary evacua-tion routes and assembly areas should be designated.
13.      Nuclear Energy Institute (NEI), white paper, Implementing a 24-Month Frequency for Emergency Preparedness Program Reviews, Rev. 0, November 2019.2
14.     NEI, Conducting a Hostile Action-Based Emergency Response Drill, NEI 06-04, Revision 3, Appendix A, Recommended Drill and Exercise Objectives, September 2016.


These procedures should be related to or refer to those procedures for personnel accountability and personnel monitoring.
15.      NRC, Emergency Plans Submittal Dates, Generic Letter 79-50, 1979.


2.2.5 Personnel Accountability A method of personnel accountability should be specified in procedures to ensure that, at all times, all individuals within the site confines and areas and buildings within the site are warned of imminent threats or hazardous conditions and evacuated from affected areas if required.The procedures should designate individuals having the responsibility of accounting for persons within areas and buildings within the site. The proce-dures should contain appropriate checksheets and sign-offs and should provide for reporting of information to the central authority in charge of the emergency response actions.2.2.6 Asse.,sment Actions Procedures should describe the system for gathering information and data on which to base decisions to escalate or deescalate emergency response actions. They should identify the types and sources of information available such as control room radiological and meteorological instruments and radiation and con-tamination levels as defined by in-plant, site boundary, and onsite and offsitr. surveys The procedures should specify action levels, protective action guides, and other guidelines as a basis for decisions to initiate emergency measures and actions or to terminate or otherwise modify emergency actions in progress.
16.     Nuclear Management and Resources Council (NUMARC), Methodology for Development of Emergency Action Levels, NUMARC/NESP-007, Revision 2, January 1992.


The procedures should assign responsibilities for gathering and using assessment data and information.
17.      NEI, Methodology for Development of Emergency Action Levels, NEI 99-01, Revision 4, January 2003.


2.2.7 First Aid and Medical Care The procedures that specify the methods and instructions for receiving, transporting, handling, and: providing medical treatment of injured persons should specifically include the prezautions and special handling required for contaminated paticnts.
18.     NRC, Nuclear Regulatory Commission International Policy Statement, Federal Register, Vol.


The proce-dures should cover separately the provisions for, and use of, medical treatment facilities in both onsite and offsite areas.2.2.8 Firefighting The procedures should cover precautions for fighting fires involving radioactive materials and for situations where firefighters may otherwise be exposed to radiation.
79, No. 132, July 10, 2014, pp. 39415-39418.


They should cover the responsibilities and capabilities of both' in-house and offsite firefigh!ing teams and equipment.
19.      NRC, Management Directive 6.6, Regulatory Guides.


They should include specific instructions for monitoring the exposure to radiation of offsite personnel involved in firefighting.
20.      International Atomic Energy Agency (IAEA), Preparedness and Response for a Nuclear or Radiological Emergency, IAEA Safety Guide GS-R-2, Vienna, Austria, November 2015.3
21.      NEI, Development of Emergency Action Levels for Non-Passive Reactors, NEI 99-01, Revision 6, November 2012.


2.2.9 Reentry Procedures and guidelines should be devel-oped for reentry to previously evacuated areas for the purposes of saving lives, search and rescue of missing and injured persons, or manipulation, repair, or recovery of critical equipment or systems. Specific guidelines should be included in these procedures for maximum emer-gency radiation exposures for reentry and rescue person-nel. The procedures should designate the individual or authority having the responsibility for approving the voluntary acceptance of emergency exposures.
22.     NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 6, March 28, 2013 (ADAMS Accession No. ML12346A463).
23.     NEI, Methodology for Development of Emergency Action Levels, NEI 99-01, Revision 5, February 2008.


1.101-13
24.     NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 5, February 22, 2008. (ADAMS Accession No. ML080430535).
2.2.10 Plant Security 2.3.3 Equipment and Instrumentation The normal plant security proceduwes should powidC f'o security and access control during emergency co il d ior ls.2.2.1 Recovery Actioln lovels .autd guidClines should be devel-op.d I'M restoring operations and propierty as nearly as possible to their preenmergency status. The less complex tpcr:ations such as personnel enlergencics and emergency al-ius should require only brief recovery action proce-dures. The more complex emergency operations, how-ever I(site .and geoeral emergencies I'or eample). will gene.rally require !urrvspondingly conmphlex recovery:ictions.
25.     NEI, Methodology for Development of Emergency Action Levels Advanced Passive Light Water Reactors, NEI 07-01, Revision 0, July 2009.


It is not practicable to plan detailed recovery actL ionS for all conceivable situations, but procedures that include at least the initial planning considerations fOr recovering.
26.      NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 07-01, August 12, 2009. (ADAMS Accession No. ML092190035).
2  Publications from the NEI are available at its Web site http://www.nei.org or by contacting the headquarters at Nuclear Energy Institute, 1201 F Street, NW, Suite 1100, Washington DC 20004-1218; by phone at 202-739-8000, or by fax at 202-
    785-4019.


repairing, de,:ontaininating.
3  IAEA Safety Requirements and Guides may be found at www.IAEA.org/ or by writing the International Atomic Energy Agency, P.O. Box 100 Wagramer Strasse 5, A-1400 Vienna, Austria; telephone (+431) 2600-0; fax (+431) 2600-7; or e-mail Official.Mail@IAEA.Org. It should be noted that some of the international recommendations do not correspond to the requirements specified in the NRCs regulations, and the NRCs requirements take precedence over the international guidance.


etc. poten-tiaily affIected portions of the facility should be devel-During recovery operations, personnel cx-posures to radiation should be maintained within 10 C(FR Part 20 limits.2.3 Supplemental Procedures This section lists subjects for procedures that supplement those covering emergency resl'onse actions.rhc specific titles and contents may vary, but the described subjects should be covered in the licensee's proccedural system.2.3.1 Communications Procedures should be available for activating, operating.
RG 1.101, Rev. 6, Page 10


testing, and maintaining the emergency com-umnlications svsye ins.2.3.2 Documentation and Records Procedures should include requirements for iecording the implementation and completion or termi-nation of emergency response actions, logging assess-nenl data, reports of personnel accountability, and maintenance of required ;ecords and log.Operating instructions for equipment and ins!rumentation should be prepared and stored with the equipment.
27. NEI, Assessment of On-Shift Emergency Response Organization Staffing and Capabilities, NEI 10-05, Revision 0, June 2011.


Procedures should include inventory lists of kits, equmipment, and ittstrumnents and provisions ftor periodic inventory, inspection, calibration, and nainlten-arict.2.3.4 Training The training program for thec cnergency organization should be documented in the form of schedules and lesson plans or lesson outlines.
28. NEI, Conducting a Hostile Action-Based Emergency Response Drill, NEI 06-04, Revision 2, Appendix A, Recommended Drill and Exercise Objectives, July 2011.


The program should include training for licensee employees and for offsite organizations and personnel who are to provide support in the emergency response.2.3.5 Tests and Drills Procedures should provide for practice drills to test the state of preparedness of the emergency organization.
29. NRC, Letter to NEI, NRC Endorsement of Revised NEI 06-04 Rev. 2, Conducting a Hostile Action-Based Emergency Response Drill Appendix A, Exercise Objectives, September 19,
    2011 (ADAMS Accession No. ML112570092).
30. NEI, Reportable Action Levels for Loss of Emergency Preparedness Capabilities, NEI 13-01, Revision 0, July 2014.


The procedures should include guidance for the development oft detailed scenarios to test both specific procedures and implementation of the major aspects of the emergency plan. The scenarios should be preplanned simulations of emergency situations, arid they should be approved by plant management after they have been reviewed for scope and adequacy.The procedures should consider t(le utility of testing on both an announced and unannounced basis.They should require the use of an observer staff during tie conduct of test drills and should contain provisions for appropriate checklists or critique sheets to be used by the observer staff.The procedur6s for practice drills should include coordinatiun with offsite support organizations.
31. NRC, Event Report Guidelines 10 CFR 50.72(b)(3)(xiii) NUREG-1022, Revision 4, Supplement
    1-Final Report, September 2014.


Communications drills with support organizations are sufficient to test the licensee's notification procedures.
32. NRC, Management Directive 8.4, Management of Backfitting, Forward Fitting, Issue Finality, and


3. REVIEW AND APPROVAL OF PROCEDURES
===
The procedural system used by licensees should contain written rules and instructions- governing the writing, revising, and updating of implementing proce-dures. The instructions should specify the methods to be used to ensure that procedures, revisions, and changes are reviewed for adequacy, approved for use, and distributed to user organizations and individuals having the responsibility for implementing the procedures.


@1 S 1.101-14}}
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Latest revision as of 15:48, 19 January 2022

Rev. 6, Emergency Response Planning and Preparedness for Nuclear Power Reactors
ML21111A090
Person / Time
Issue date: 06/30/2021
From: Charles Murray
NRC/RES/DE/RGDB
To:
Bayssie M
Shared Package
ML21111A075 List:
References
RG-1.101, Rev. 6
Download: ML21111A090 (11)
v • d • e


U.S. NUCLEAR REGULATORY COMMISSION

REGULATORY GUIDE 1.101, REVISION 6 Issue Date: June 2021 Technical Lead: Charles Murray EMERGENCY RESPONSE PLANNING AND PREPAREDNESS FOR

NUCLEAR POWER REACTORS

A. INTRODUCTION

Purpose This regulatory guide (RG) describes an approach that is acceptable to the staff of the U.S. Nuclear Regulatory Commission (NRC) to meet the regulatory requirements for emergency response planning and preparedness. This revision updates the list of NRC-developed and NRC-endorsed guidance documents acceptable to meet the regulatory requirements of Title 10 of the Code of Federal Regulations

(10 CFR) 50.47, Emergency Plans (Ref. 1), and 10 CFR Part 50, Appendix E, Emergency Planning and Preparedness for Production and Utilization Facilities (Ref. 2).

Applicability This RG applies to all holders of, or applicants for, a power reactor operating license or construction permit under 10 CFR Part 50, Domestic Licensing of Production and Utilization Facilities, except those that have certified that they have permanently ceased operations and have permanently removed all fuel from the reactor vessel, as well as all holders of, or applicants for, a power reactor early site permit or a combined license under 10 CFR Part 52, Licenses, Certifications, and Approvals for Nuclear Power Plants (Ref. 3). This RG is for light water reactors, including those of an advanced design (e.g., AP1000 design).

Applicable Regulations

  • 10 CFR Part 50 provides regulations for licensing production and utilization facilities.

Written suggestions regarding this guide or development of new guides may be submitted through the NRCs public Web site in the NRC Library at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/, under Document Collections, in Regulatory Guides, at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/contactus.html.

Electronic copies of this RG, previous versions of RGs, and other recently issued guides are also available through the NRCs public Web site in the NRC Library at https://nrcweb.nrc.gov/reading-rm/doc-collections/reg-guides/, under Document Collections, in Regulatory Guides. This RG is also available through the NRCs Agencywide Documents Access and Management System (ADAMS) at http://www.nrc.gov/reading-rm/adams.html, under ADAMS Accession Number (No.) ML21111A090. The regulatory analysis may be found in ADAMS under Accession No. ML21004A168. The associated draft guide DG-1357 may be found in ADAMS under Accession No. ML21007A330, and the staff responses to the public comments on DG-1357 may be found under ADAMS Accession No. ML21111A091.

o 10 CFR 50.47(a)(i) provides, in part, that no initial operating license for a nuclear power reactor will be issued unless a finding is made by the NRC that there is reasonable assurance that adequate protective measures can and will be taken in the event of a radiological emergency o 10 CFR 50.47(b) provides 16 standards that must be met by licensees or applicants for the NRC to make a finding of reasonable assurance o 10 CFR 50.47(b)(4) requires that onsite and offsite emergency response plans contain a standard emergency classification and action level scheme o 10 CFR 50.54(t)(1) requires licensees to provide for the development, revision, implementation, maintenance, and periodic independent review of its emergency preparedness program o Appendix E to 10 CFR Part 50 establishes minimum requirements for emergency plans for use in attaining an acceptable state of emergency preparedness o Section IV.B.1 of Appendix E provides that emergency action levels (EALs) should be established as part of the emergency plan and should be based on in-plant conditions and instrumentation in addition to onsite and offsite monitoring o Section IV.C.1 of Appendix E requires each emergency plan to define the emergency classification levels and the corresponding extent of response participation by the emergency response organization o Section IV.F. of Appendix E establishes the requirements for the training-related content of emergency plans Related Guidance This RG provides a list of guidance documents to aid in the development and review of emergency preparedness and response plans. The following documents are acceptable guidance when developing emergency preparedness and response plans:

  • NUREG-0654/FEMA-REP-1, Revision 1, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, issued November 1980 (Ref. 4), which provides specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47
  • NUREG-0654/FEMA-REP-1, Revision 2, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, issued December 2019 (Ref. 5), which provides specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47
  • NUREG-0396/EPA 520/1-78-016, Planning Basis for the Development of State and Local Government Radiological Emergency Response Plans in Support of Light Water Nuclear Power Plants, issued December 1978 (Ref. 6)

RG 1.101, Rev. 6, Page 2

  • NUREG-0696, Functional Criteria for Emergency Response Facilities, issued February 1981 (Ref. 7)
  • NUREG/CR-7002, Criteria for Development of Evacuation Time Estimate Studies, issued November 2011 (Ref. 8)
  • NUREG/CR-7002, Revision 1, Criteria for Development of Evacuation Time Estimate Studies, issued February 2021 (Ref. 9)
  • NSIR/DPR-ISG-01, Interim Staff Guidance: Emergency Planning for Nuclear Power Plants, issued November 2011 (Ref. 10)

Purpose of Regulatory Guides The NRC issues RGs to describe to the public methods that are acceptable to the staff for implementing specific parts of the agencys regulations, to explain techniques that the staff uses in evaluating specific issues or postulated events, and to describe information that the staff needs in its reviews of applications for permits and licenses. Regulatory guides are not NRC regulations and compliance with them is not required. Methods and solutions that differ from those set forth in RGs are acceptable if supported by a basis for the issuance or continuance of a permit or license by the Commission.

Paperwork Reduction Act This RG provides voluntary guidance for implementing the mandatory information collections in

10 CFR Part 50 that are subject to the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). These information collections were approved by the Office of Management and Budget (OMB), approval numbers 3150-0011. Send comments regarding this information collection to the FOIA, Library, and Information Collections Branch (T6-A10M), U.S. Nuclear Regulatory Commission, Washington, DC

20555-0001, or by e-mail to Infocollects.Resource@nrc.gov, and to the OMB reviewer at: OMB Office of Information and Regulatory Affairs (3150-0011), Attn: Desk Officer for the Nuclear Regulatory Commission, 725 17th Street, NW Washington, DC 20503; e-mail: oira_submission@omb.eop.gov.

Public Protection Notification The NRC may not conduct or sponsor, and a person is not required to respond to, a collection of information unless the document requesting or requiring the collection displays a currently valid OMB

control number.

RG 1.101, Rev. 6, Page 3

B. DISCUSSION

Reason for Revision The staff is issuing Revision 6 of RG 1.101 to endorse and update guidance that is available to licensees and applicants on methods acceptable to the NRC staff for complying with the NRCs regulations for emergency response plans and preparedness at nuclear power reactors. This revision endorses Revision 0 of the Nuclear Energy Institute (NEI) white paper, Implementing a 24-Month Frequency for Emergency Preparedness Program Reviews, issued November 2019 (Ref. 13) and Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-04, Conducting a Hostile Action-Based Emergency Response Drill, Revision 3, issued September 2016 (Ref. 14). This revision of the RG also consolidates previously developed and endorsed guidance documents into a single revision of the RG.

Background In November 1980, the NRC published Revision 1 to NUREG-0654/FEMA-REP-1 to provide specific acceptance criteria for complying with the standards set forth in 10 CFR 50.47. NUREG-

0654/FEMA-REP-1, Revision 1, is a joint NRC NUREG-series publication and Federal Emergency Management Agency (FEMA) guidance document. The NRC uses this document to evaluate the adequacy of the emergency plans and preparedness of nuclear power plant licensees while FEMA, as well as other Federal agencies, use this document to review and approve state, local, and tribal government radiological emergency plans. In October 1981, the NRC endorsed NUREG-0654/FEMA-REP-1 in Revision 2 of this guide.

Planning standard 10 CFR 50.47(b)(4) requires that the emergency plan include a standard EAL

scheme. An EAL is a predetermined, site-specific, observable threshold for a plant condition that results in an emergency classification. The NRC initially established guidance for the development of EALs in Generic Letter (GL) 79-50, Emergency Plans Submittal Dates, issued 1979 (Ref. 15). Revision 2 of this guide endorsed subsequent guidance in Appendix 1 to NUREG-0654, which became the primary standard for the NRCs review of EAL schemes.

As the industry gained experience with the implementation and use of EAL schemes, it issued revised guidance documents on EAL scheme development to reflect lessons learned. The industry-developed guidance built upon and enhanced the foundation set forth in NUREG-065

4. Revision

3 of this RG endorsed Nuclear Management and Resources Council (NUMARC)/NESP-007, Revision 2, Methodology for Development of Emergency Action Levels, issued January 1992 (Ref. 16), and RG

1.101, Revision 4, endorsed NEI 99-01, Revision 4, Methodology for Development of Emergency Action Levels, issued January 2003 (Ref. 17) as acceptable methods for licensees to consider in the development of their plant-specific EAL schemes.

Revision 5 of RG 1.101 issued in June 2005 provided guidance for co-located licensees on conducting emergency response planning activities and interactions in the years between participation in offsite full- or partial-participation exercises. Since the publication of Revision 5, the NRC has developed or endorsed several new or revised emergency planning guidance documents described in Section C of this RG.

In December 2019, the NRC published Revision 2 of NUREG-0654/FEMA-REP-1, which integrates nearly 35 years of lessons learned in radiological emergency preparedness and consolidates and clarifies previous guidance related to the development of emergency plans. The planning criteria and RG 1.101, Rev. 6, Page 4

guidance contained in Revision 2 of NUREG-0654/FEMA-REP-1 reflect changes to both NRC and FEMA regulations, guidance, policies, and doctrine, as well as advances in technology and best practices that have occurred since the document was originally issued in 1980. The NRC staff considers these criteria and guidance to be acceptable methods for complying with the onsite and offsite emergency response planning standards in 10 CFR 50.47.

Revision 2 of NUREG-0654/FEMA-REP-1 also defines the review period for emergency preparedness program reviews conducted in accordance with 10 CFR 50.54(t)(1) such that 12 months in 10 CFR 50.54(t)(1) and annual in NUREG-0654/FEMA-REP-1 both mean 365 days. Thus, the program review should not exceed 365 days from the end date of the prior review to the completion of the next program review, which includes issuance of the review report. The requirement for all elements of the emergency preparedness program to be reviewed at least once every 24 months should not exceed 730

days from the end of the prior review to the completion of the next program review, which includes issuance of the review report.

Consideration of International Standards The International Atomic Energy Agency (IAEA) works with member states and other partners to promote the safe, secure, and peaceful use of nuclear technologies. The IAEA develops Safety Standards and Safety Guides for protecting people and the environment from harmful effects of ionizing radiation.

This system of safety fundamentals, safety requirements, safety guides, and other relevant reports reflects an international perspective on what constitutes a high level of safety. To inform its development of this RG, the NRC considered IAEA Safety Requirements and Safety Guides pursuant to the Commissions International Policy Statement (Ref. 18) and Management Directive and Handbook 6.6 (Ref. 19). In development of this RG, the staff considered IAEA Safety Guide GS-R-2, Preparedness and Response for a Nuclear or Radiological Emergency, issued November 2015 (Ref. 20).

The NRC staff did not identify any IAEA Safety Requirements or Guides with information related to the topic of this RG.

Documents Discussed in Staff Regulatory Guidance This RG endorses the use of one or more guidance documents developed by external organizations, and other third-party guidance documents. These codes, standards and third-party guidance documents may contain references to other codes, standards or third-party guidance documents (secondary references). If a secondary reference has itself been incorporated by reference into NRC

regulations as a requirement, then licensees and applicants must comply with that standard as set forth in the regulation. If the secondary reference has been endorsed in a RG as an acceptable approach for meeting an NRC requirement, then the standard constitutes a method acceptable to the NRC staff for meeting that regulatory requirement as described in the specific RG. If the secondary reference has neither been incorporated by reference into NRC regulations nor endorsed in a RG, then the secondary reference is neither a legally-binding requirement nor a generic NRC approved acceptable approach for meeting an NRC requirement. However, licensees and applicants may consider and use the information in the secondary reference, if appropriately justified, consistent with current regulatory practice, and consistent with applicable NRC requirements.

RG 1.101, Rev. 6, Page 5

C. STAFF REGULATORY GUIDANCE

This section includes industry-developed guidance documents that the NRC staff has previously determined to be acceptable to meet regulatory requirements for emergency response planning and preparedness for nuclear power plants and an industry-developed guidance document that the NRC is endorsing as a method that the staff also considers acceptable to meet regulatory requirements for emergency response planning and preparedness for nuclear power plants.

Previously Endorsed NEI Guidelines

1. NEI 99-01, Revision 6, Development of Emergency Action Levels for Non-Passive Reactors, November 2012 (Ref. 21), which is acceptable for use by licensees and applicants as a methodology to develop or upgrade EAL schemes in accordance with the requirements of 10

CFR 50.47(b)(4), related sections of Appendix E to 10 CFR Part 50, and the associated planning standard evaluation elements of NUREG-0654/FEMA-REP-1, Revision 1. The NRC endorsed this guidance in a memorandum to NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 6, March 28, 2013. (Ref. 22)

2. NEI 99-01, Revision 5, Methodology for Development of Emergency Action Levels, February

2008 (Ref. 23), which is acceptable for use by licensees and applicants as a methodology to develop or upgrade EAL schemes in accordance with related sections of Appendix E to 10 CFR

Part 50. In addition to clarifying certain sections of previous revisions, Revision 5 of NEI 99-01 formalizes enhancements to emergency planning associated with hostile action events for emergency preparedness programs. The NRC endorsed this guidance in a memorandum to NEI,

U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 5, February 22, 2008. (Ref. 24)

3. NEI 07-01, Revision 0, Methodology for Development of Emergency Action Levels Advanced Passive Light Water Reactors, July 2009 (Ref. 25), which is an acceptable reference for applicants to review in the development of new reactor applications if they are using the AP1000

or Economic Simplified Boiling Water Reactor design. Additionally, applicants may consider the template provided in NEI 07-01 as a reference for the development of an EAL scheme for any design using digital instrumentation and control, including licensed power reactors considering upgrading to digital instrumentation and control. The NRC endorsed this guidance in a memorandum to NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI

07-01, August 12, 2009. (Ref. 26)

4. NEI 10-05, Revision 0, Assessment of On-Shift Emergency Response Organization Staffing and Capabilities, issued June 2011 (Ref. 27), which is acceptable for use by licensees and applicants as a methodology to perform a detailed staffing analysis for on-shift personnel assigned emergency plan implementation duties as required by Section IV.A.9 of Appendix E to 10 CFR

Part 50. The NRC endorsed the on-shift staffing method of NEI 10-05 in Section IV.C of the interim staff guidance (ISG), NSIR/DPR-ISG-01, Interim Staff Guidance - Emergency Planning for Nuclear Power Plants, November 2011.

5. Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-04, Conducting a Hostile Action-Based Emergency Response Drill, Revision 2, issued July 2011 (Ref. 28), which is acceptable for use by licensees and applicants for the development and conduct of hostile action-based emergency response drills. The NRC endorsed Appendix A to NEI-06-04, Rev. 2, by letter dated September 19, 2011. (Ref. 29)

RG 1.101, Rev. 6, Page 6

6. NEI 13-01, Reportable Action Levels for Loss of Emergency Preparedness Capabilities, Revision 0, issued July 2014 (Ref. 30), which is acceptable for use by licensees and applicants as a methodology that provides specific guidance for reporting the loss of emergency preparedness capabilities under 10 CFR 50.72(b)(3)(xiii). The NRC endorsed NEI 13-01 in NUREG-1022, Rev. 3, Supplement 1, Event Report Guidelines 10 CFR 50.72(b)(3)(xiii), September 2014.

(Ref. 31)

Endorsement of NEI Guidelines

1. The NRC staff endorses Revision 0 of the NEI white paper, Implementing A 24-Month Frequency for Emergency Preparedness Program Reviews, which is acceptable for use by licensees and applicants as a methodology to adopt the voluntary option for conducting periodic emergency preparedness program reviews at a 24 month frequency as allowed by 10 CFR

50.54(t)(1)(ii).

2. The NRC staff endorses Appendix A, Recommended Drill and Exercise Objectives, to NEI 06-

04, Conducting a Hostile Action-Based Emergency Response Drill, Rev. 3, which is acceptable for use by licensees and applicants for the development and conduct of hostile action-based emergency response drills.

RG 1.101, Rev. 6, Page 7

D. IMPLEMENTATION

The NRC staff may use this RG as a reference in its regulatory processes, such as licensing, inspection, or enforcement. However, the NRC staff does not intend to use the guidance in this RG to support NRC staff actions in a manner that would constitute backfitting as that term is defined in 10 CFR 50.109, Backfitting, and as described in NRC Management Directive 8.4, Management of Backfitting, Forward Fitting, Issue Finality, and

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Information Requests

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(Ref. 32), nor does the NRC staff intend to use the guidance to affect the issue finality of an approval under 10 CFR Part 52, Licenses, Certifications, and Approvals for Nuclear Power Plants. The staff also does not intend to use the guidance to support NRC staff actions in a manner that constitutes forward fitting as that term is defined and described in Management Directive 8.4. If a licensee believes that the NRC is using this RG in a manner inconsistent with the discussion in this Implementation section, then the licensee may file a backfitting, or forward fitting, appeal with the NRC in accordance with the process in Management Directive 8.4.

RG 1.101, Rev. 6, Page 8

REFERENCES 1

1. U.S. Code of Federal Regulations (CFR), Domestic Licensing of Production and Utilization Facilities, Part 50, Chapter I, Title 10, Energy.

2. CFR, Emergency Planning and Preparedness for Production and Utilization Facilities, Appendix E, Part 50, Chapter I, Title 10, Energy.

3. CFR, Licenses, Certifications, and Approvals for Nuclear Power Plants, Part 52, Chapter I,

Title 10, Energy.

4. U.S. Nuclear Regulatory Commission (NRC) and Federal Emergency Management Agency (FEMA), Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, NUREG-0654/FEMA-REP-1, Revision 1, November 1980.

5. NRC and FEMA, Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants, NUREG-0654/FEMA-REP-1, Revision 2, December 2019.

6. NRC and the U.S. Environmental Protection Agency (EPA), Planning Basis for the Development of State and Local Government Radiological Emergency Response Plans in Support of Light Water Nuclear Power Plants, NUREG-0396/EPA 520/1-78-016, December 1978.

7. NRC, Functional Criteria for Emergency Response Facilities, NUREG-0696, February 1981.

8. NRC, Criteria for Development of Evacuation Time Estimate Studies, NUREG/CR-7002, November 2011.

9. NRC, Criteria for Development of Evacuation Time Estimate Studies, NUREG/CR-7002, Revision 1, February 2021.

10. NRC, Interim Staff Guidance: Emergency Planning for Nuclear Power Plants, NSIR/DPR-ISG-01, November 2011.

11. NRC, Interim Staff Guidance: Emergency Planning Exemption Requests for Decommissioning Nuclear Power Plants, NSIR/DPR-ISG-02, May 11, 2015

12. NRC, Guidance on Making Changes to Emergency Plans for Nuclear Power Reactors, Regulatory Guide 1.219, July 2018.

1 Publicly available NRC published documents are available electronically through the NRC Library on the NRCs public Web site at http://www.nrc.gov/reading-rm/doc-collections/ and through the NRCs Agencywide Documents Access and Management System (ADAMS) at http://www.nrc.gov/reading-rm/adams.html. The documents can also be viewed online or printed for a fee in the NRCs Public Document Room (PDR) at 11555 Rockville Pike, Rockville, MD. For problems with ADAMS, contact the PDR staff at 301-415-4737 or (800) 397-4209; fax (301) 415-3548; or e-mail pdr.resource@nrc.gov.

RG 1.101, Rev. 6, Page 9

13. Nuclear Energy Institute (NEI), white paper, Implementing a 24-Month Frequency for Emergency Preparedness Program Reviews, Rev. 0, November 2019.2

14. NEI, Conducting a Hostile Action-Based Emergency Response Drill, NEI 06-04, Revision 3, Appendix A, Recommended Drill and Exercise Objectives, September 2016.

15. NRC, Emergency Plans Submittal Dates, Generic Letter 79-50, 1979.

16. Nuclear Management and Resources Council (NUMARC), Methodology for Development of Emergency Action Levels, NUMARC/NESP-007, Revision 2, January 1992.

17. NEI, Methodology for Development of Emergency Action Levels, NEI 99-01, Revision 4, January 2003.

18. NRC, Nuclear Regulatory Commission International Policy Statement, Federal Register, Vol.

79, No. 132, July 10, 2014, pp. 39415-39418.

19. NRC, Management Directive 6.6, Regulatory Guides.

20. International Atomic Energy Agency (IAEA), Preparedness and Response for a Nuclear or Radiological Emergency, IAEA Safety Guide GS-R-2, Vienna, Austria, November 2015.3

21. NEI, Development of Emergency Action Levels for Non-Passive Reactors, NEI 99-01, Revision 6, November 2012.

22. NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 6, March 28, 2013 (ADAMS Accession No. ML12346A463).

23. NEI, Methodology for Development of Emergency Action Levels, NEI 99-01, Revision 5, February 2008.

24. NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 99-01, Revision 5, February 22, 2008. (ADAMS Accession No. ML080430535).

25. NEI, Methodology for Development of Emergency Action Levels Advanced Passive Light Water Reactors, NEI 07-01, Revision 0, July 2009.

26. NRC, memorandum to the NEI, U.S. Nuclear Regulatory Commission Review and Endorsement of NEI 07-01, August 12, 2009. (ADAMS Accession No. ML092190035).

2 Publications from the NEI are available at its Web site http://www.nei.org or by contacting the headquarters at Nuclear Energy Institute, 1201 F Street, NW, Suite 1100, Washington DC 20004-1218; by phone at 202-739-8000, or by fax at 202-

785-4019.

3 IAEA Safety Requirements and Guides may be found at www.IAEA.org/ or by writing the International Atomic Energy Agency, P.O. Box 100 Wagramer Strasse 5, A-1400 Vienna, Austria; telephone (+431) 2600-0; fax (+431) 2600-7; or e-mail Official.Mail@IAEA.Org. It should be noted that some of the international recommendations do not correspond to the requirements specified in the NRCs regulations, and the NRCs requirements take precedence over the international guidance.

RG 1.101, Rev. 6, Page 10

27. NEI, Assessment of On-Shift Emergency Response Organization Staffing and Capabilities, NEI 10-05, Revision 0, June 2011.

28. NEI, Conducting a Hostile Action-Based Emergency Response Drill, NEI 06-04, Revision 2, Appendix A, Recommended Drill and Exercise Objectives, July 2011.

29. NRC, Letter to NEI, NRC Endorsement of Revised NEI 06-04 Rev. 2, Conducting a Hostile Action-Based Emergency Response Drill Appendix A, Exercise Objectives, September 19,

2011 (ADAMS Accession No. ML112570092).

30. NEI, Reportable Action Levels for Loss of Emergency Preparedness Capabilities, NEI 13-01, Revision 0, July 2014.

31. NRC, Event Report Guidelines 10 CFR 50.72(b)(3)(xiii) NUREG-1022, Revision 4, Supplement

1-Final Report, September 2014.

32. NRC, Management Directive 8.4, Management of Backfitting, Forward Fitting, Issue Finality, and

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Information Requests

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RG 1.101, Rev. 6, Page 11


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