NUREG-0654

FEMA-REP-1

Rev. 1

Supp. 2

Criteria for Preparation and

Evaluation of Radiological

Emergency Response Plans and

Preparedness in Support of Nuclear

Power Plants

Criteria for Emergency Planning in an Early Site Permit Application

Draft Report for Comment

Manuscript Completed: March 1996

Date Published: April 1996

Prepared by

F. Kantor, E. F. Fox, Jr./NRC

V. L Wingert, W. F. McNut/FEMA

U. S. Nuclear Regulatory Commission

Washington, DC 20555-0001

Federal Emergency Management Agency

Washington, DC 20472
ABSTRACT

The Nuclear Regulatory Commission (NRC) and the Federal Emergency Management

Agency (FEMA) have added Supplement 2 to NUREG-0654/FEMA-REP-1, Revision 1, to

provide guidance for the development, review, and approval of radiological

emergency information and plans submitted with an early site permit

application under Subpart A of 10 CFR Part 52.

- 111 - NUREG-0654, Supp. 2
TABLE OF CONTENTS

1. INTRODUCTION .......... . 1.. 1

A. Purpose and Use of Document . . . . . . . . . . . . . . . . . . 1

B. Authorities . . . . . . . . . . . . . . . . . . . . . . . . . . 1

C. Scope . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

0. Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . 2

1. Early site permit . . . . . . . . . . . . . . . . . . . 2

2. Significant impediment . . . . . . . . ... . . . . . . 2

3. Emergency plans. 2

4. Major features of the emergency plans 2

5. Combined license . . . . . . . . . . . . . . . . . . . 2

E. Emergency Planning Provisions of the Rule . . . . . . . . . . . 3

II. EARLY SITE PERMITS - IDENTIFICATION OF PHYSICAL CHARACTERISTICS . . 4

A. Evacuation Time Estimate Analysis . . . . . . . . . . . . . . . 4

B. Contacts and Arrangements . . . . . . . . . . . . . . . . . . . 5

III. EARLY SITE PERMITS - MAJOR FEATURES OF THE EMERGENCY PLANS . . . . 5

A. Emergency Planning Zones .5... . . . 5

B. Planning Standards and Evaluation Criteria . 5

C. Contacts'and Arrangements ..... . . . . . . . . . . . . . . 6

IV. EARLY SITE PERMITS - COMPLETE AND INTEGRATED PLANS. . 6

A. Planning Standards and Evaluation Criteria . . . 6

B. Certifications from Governmental Agencies . . . . . . . . . . . 7

C. Non-Participation of Government Agencies . . . . . . . . . . . 7

V. PLANNING STANDARDS AND EVALUATION CRITERIA FOR MAJOR FEATURES OF

THE EMERGENCY PLAN ..... . I. . . . . . . . . . . . . . . . . . 7

A. Assignment of Responsibility (Organization Control) . . . . . . . 9

B. Onsite Emergency Organizations ...... . . . . . . . .. . 10

C. Emergency Response Support and Resources . . . . . . . . . . . 11

D. Emergency Classification System ...... . . . . . . . .. . . 12

E. Notification Methods and Procedures . . . . . . . . . . . . . . 13

F. Emergency Communications .......... ... .. ... . 14

G. Public Education and Information . . . . . . . . . . . . . . . 15

H. Emergency Facilities and Equipment . . . . . . . . . . . ... . 16

I. Accident Assessment . . . . . . . . . . . . . . . . . . . . . . 17

J. Protective Response . . . . . . . . . . . . . . . . . . . . . . 18

K. Radiological Exposure Control ...... .. . . . .. . . . . 21

L. Medical and Public Health Support . . . . . . . . . . . . . . . 23

M. Recovery and Reentry Planning and Postaccident Operations . . . 24

N. Exercises and Drills .. . . . 24

0. Radiological Emergency Response Training . . . . . . . . . . . 24

P. Responsibility for the Planning Effort: Development, Periodic

Review and Distribution of Emergency Plans . . . . . . . . . . 25

- V - NUREG-0654, Supp. 2
CRITERIA FOR EMERGENCY PLANNING IN AN EARLY SITE PERMIT APPLICATION

I. INTRODUCTION

A. Puroose and Use of Document

The Nuclear Regulatory Commission (NRC) and the Federal Emergency Management

Agency (FEMA) have added Supplement 2 to NUREG-0654/FEMA-REP-1, Revision 1, to

provide guidance for the development, review, and approval of radiological

emergency preparedness information and plans submitted with an early site

permit (ESP) application under Subpart A of 10 CFR Part 52. Because this

document is a companion to NUREG-0654/FEMA-REP-1, Revision I and Supplement 1,

only those changes relevant to an ESP application have been made. The extent

of the use of this document, as well as the existing NUREG-0654/FEMA-REP-1,

Revision 1, will depend on the extent of emergency planning information in the

ESP application. In the absence of State and local participation, an

applicant may use this document in conjunction with Supplement 1 of NUREG0654/FEMA-REP-1, Revision 1, to prepare a utility offsite emergency plan as

part of its ESP application.

B. Authorities

This document facilitates the implementation of Subpart A of 10 CFR Part 52

(Title 10 of the Code of Federal Regulations), effective May 18, 1989 (54 FR

15372), for ESPs. Section 52.18 of that rule describes standards for review

of ESP applications and provides for NRC consultation with FEMA in the review

effort.

This document is consistent with the provisions of the FEMA/NRC Memorandum of

Understanding dated June 17, 1993 (58 FR 47996), wherein the parties agreed

that they would cooperate in radiological emergency planning matters including

ESP applications and that FEMA would review available offsite plans and

provide its findings and determinations.'

C. Scope

This document provides guidance for ESP applicants and NRC and FEMA reviewers

in the preparation and evaluation of emergency planning aspects of ESP

applications under Subpart A of 10 CFR Part 52. Subpart A includes provisions

for addressing emergency planning issues solely as part of an ESP application

before any combined license proceeding. An application for a combined license

under Subpart C of 10 CFR Part 52 may incorporate by reference emergency

plans, or major features of emergency plans, approved in conjunction with the

issuance of an ESP. However, before a combined license is issued, the NRC

must find, in consultation with FEMA, that the emergency plans submitted in

support of a combined license application, including those incorporated by

reference, meet the existing emergency planning standards and requirements of

10 CFR 50.47 and Appendix E to 10 CFR Part 50.

'Assessments of offsite plans may be based on State and local government

plans submitted to FEMA under its rule (44 CFR Part 350) and, as noted in 44

CFR 350.3(f), may also be based on plans currently available to FEMA or

furnished to FEMA through the NRC/FEMA Steering Committee.

- 1 - NUREG-0654, Supp. 2
This document recommends an approach for an ESP applicant to identify physical

characteristics that are unique to a proposed site that could pose significant

impediments to the development of emergency plans. It also assists the

applicant for an ESP determine the exact sizes of the emergency planning zones

(EPZs) for the proposed site. Section II of NUREG-0654/FEMA-REP-1, Revision 1, has been revised to provide selected planning standards and evaluation

criteria applicable to the major features of the emergency plans. The revised

standards and criteria reflect the particular conditions of the ESP phase of

the licensing process. The document references other sources of guidance for

preparing complete and integrated plans. Finally, this document emphasizes

the need for an applicant under 10 CFR 52.17(b)(3) to make contacts and

arrangements with local, State, and Federal agencies with emergency planning

responsibilities and, in some circumstances, to obtain certifications from

these agencies.

D. Definitions

The following definitions apply to the use of this document:

1. Early site Dermit. Commission approval issued pursuant to Subpart A

of 10 CFR Part 52 for a site or sites for one or more nuclear power

facilities.

2. Significant impediment. A physical characteristic or combination of

physical characteristics that would pose major difficulties for an

evacuation or the taking of other protective actions as addressed in

Section II of this document.

3. Emergency plans. The radiological emergency response plans of the

applicant, State, and local governments or, in the absence of

participation by State and local governments, an applicant (utility)

only plan.

4. Major features of the emergency plans. These include the exact

sizes of the EPZs and other features as described in Section V of

this document.

5. Combined license. A combined construction permit and conditional

operating license for a nuclear power facility issued pursuant to

Subpart C of 10 CFR Part 52.

NUREG-0654, Supp. 2 - 2 -
E. Emercencv Plannina Provisions of the Rule

The Commission promulgated 10 CFR Part 52 to provide for the issuance of ESPs,

standard design certifications, and combined licenses for nuclear power

reactors. Subpart A of the rule sets out the requirements and procedures

applicable to Commission issuance of ESPs for approval of a site or sites for

one or more nuclear power facilities separate from the filing of an

application for a construction permit or combined license for such a facility.

Subpart A includes provisions for addressing emergency planning issues before

any construction permit or combined license proceeding. These provisions

follow.

An ESP application must identify physical-characteristics unique to the

proposed site, such as egress limitations from the area surrounding the site,

that could pose a significant impediment to the development of emergency

plans. The Commission shall determine, after consultation with FEMA, whether

the information required of the applicant shows that there is no significant

impediment to the development of emergency plans.

After meeting this mandatory requirement, the applicant may also exercise one

of the two following options: (1) Propose major features of the emergency

plans such as the exact sizes of the EPZs, for review and approval by NRC in

consultation with FEMA in the absence of complete and integrated emergency

plans or (2) propose complete and integrated plans for review and approval by

the NRC in consultation with FEMA in accordance with the applicable provisions

of 10 CFR 50.47. The Commission shall determine after consultation with FEMA

if any major features of emergency plans submitted by the applicant under

Option 1 are acceptable, and whether any emergency plans submitted by the

applicant under Option 2 provide reasonable assurance that adequate protective

measures can and will be taken in the event of a radiological emergency.

For the mandatory requirement and Option 1, the application must include a

description of contacts and arrangements made with local, State, and Federal

agencies with emergency planning responsibilities. Under Option 2, the

applicant shall make good faith efforts to obtain from the same government

agencies certifications that (1) the proposed emergency plans are practicable;

(2) these agencies are committed to participating in any further development

of the plans, including any required field demonstrations; and (3) that these

agencies are committed to executing their responsibilities under the plans in

the event of an emergency. The application must contain any certifications

that have been obtained. If these certifications cannot be obtained, the

application must contain information, including a utility plan, sufficient to

show that the proposed plans provide reasonable assurance that adequate

protective measures can and will be taken in the event of a radiological

emergency at the site.

Subpart B of 10 CFR Part 52 addresses the requirements and procedures applicable to standard design certifications. Emergency planning requirements under

Subpart B are limited primarily to the specification of an onsite Technical

Support Center and an onsite Operational Support Center within the design

bases of the standard plant design. Subpart C of the rule addresses the

requirements and procedures applicable to the issuance of a combined license

for a nuclear power facility. Under Subpart C, the application must contain

emergency plans which meet the emergency planning standards of 10 CFR 50.47

and the requirements of Appendix E to Part 50 and thus provide reasonable

- 3 - NUREG-0654, Supp. 2
assurance that adequate protective measures can and will be taken in the event

of a radiological emergency at the site. If the application for a combined

license references an ESP, the application may incorporate by reference

emergency plans, or major features of emergency plans, approved in conjunction

with the issuance of the permit.

Guidance for the preparation and evaluation of emergency plans submitted in

support of an ESP under Subpart A of 10 CFR 52 is provided in this document.

II. EARLY SITE PERMITS - IDENTIFICATION OF PHYSICAL CHARACTERISTICS

The ESP application must identify physical characteristics unique to the

proposed site, such as egress limitations from the area surrounding the site,

that could pose a significant impediment to the development of emergency

plans. An ESP applicant may identify such unique physical characteristics by

performing a preliminary analysis of the time required to evacuate various

sectors and distances within the plume exposure pathway EPZ for transient and

permanent populations, noting major impediments to the evacuation or the

taking of other protective actions.

A. Evacuation Time Estimate Analysis

The evacuation time estimate (ETE) analysis is an emergency planning tool that

can be used to assess, in an organized and systematic fashion, the feasibility

of developing emergency plans for a site. Guidance on performing an ETE

analysis is given in Appendix 4 to NUREG-0654/FEMA-REP-1, Revision 1. The ETE

analysis should include a map showing the proposed site and plume exposure

pathway EPZ. The map should identify transportation networks, topographical

features, and political boundaries. The boundaries of the EPZ, as well as the

evacuation sub-areas within the EPZ, should be based on factors such as

current and projected demography, topography, land characteristics, access

routes, and Jurisdictional boundaries.

The ETE analysis should include an estimate of the number of people to be

evacuated. Permanent residents, transients, and persons in special facilities

should be considered in the population estimate. Special facility residents

include those confined to institutions such as hospitals, nursing homes, and

prisons. The school population also should be evaluated in the special

facility segment. The ETE analysis should include a complete review and

description of the road network in the proposed site area. The assumptions

for determining the number of vehicles should be provided as well as the

methodology for determining the transport-dependent population. Travel times

and potential locations for serious congestion along the evacuation routes

should be analyzed. Normal and adverse weather conditions, such as flooding,

snow, ice, fog, or rain, should be considered in the ETE analysis. Additional

guidance on performing an ETE analysis is given in NUREG/CR-4831, "State of

the Art in Evacuation Time Estimate Studies for Nuclear Power Plants," March

1992.

Such an ETE analysis would serve to demonstrate if any physical characteristics or combination of physical characteristics of the site, in particular

egress limitations, could pose impediments to the development of emergency

plans. It is important to note that the value of the ETE analysis is in the

methodology required to perform the analysis rather than in the calculated ETE

times. While lower ETEs may reflect favorable site characteristics from an

NUREG-0654, Supp. 2 - 4 -
emergency planning standpoint, there is no minimum required evacuation time in

the regulations which a licensee or an applicant has to meet. The Commission

confirmed this in CLI-86-13, 24 NRC 22 (1986), when it stated that "our

emergency planning requirements do not require that an adequate plan achieve a

preset....minimum evacuation time for the plume exposure pathway emergency

planning zone in the event of a serious accident." Accordingly, the ETE

analysis should not focus on the numerical time estimates but on the site

factors that are considered to be impediments to emergency planning and

preparedness. The reasons should be given for ETEs that appear unduly high.

Any major difficulties for an evacuation or the taking of other protective

actions such as sheltering in the plume EPZ should be discussed.

B. Contacts and Arrangements

The ESP application must include a description of contacts and arrangements

made with local, State, and Federal agencies with emergency planning

responsibilities. The descriptions should include the name and location of

the organization contacted, the title and/or position of the person(s)

contacted, and the role of the organization in emergency planning.

III. EARLY SITE PERMITS - MAJOR FEATURES OF THE EMERGENCY PLANS

In addition to the mandatory requirement of identifying the physical

characteristics unique to the proposed site that could pose impediments to the

development of emergency plans, the ESP applicant may include proposed major

features of the emergency plans, such as the exact sizes of the emergency

planning zones (EPZs), for review and approval by the NRC in consultation with

FEMA in the absence of complete and integrated plans.

A. Emergency Planning Zones

An ESP applicant that chooses the option of proposing major features of the

emergency plans (i.e., applicant, local and state plans), should give special

emphasis to the exact sizes of the EPZs. Generally, the plume exposure

pathway EPZ for nuclear power plants with an authorized power level greater

than 250 MW thermal consists of an area about 10 miles in radius, and the

ingestion pathway EPZ consists of.an area about 50 miles in radius. The exact

size and configuration of the EPZs surrounding a particular nuclear power

reactor should be determined in relation to local emergency response needs and

capabilities as they are affected by such conditions as demography,

topography, land characteristics, access routes, and jurisdictional boundaries

[10 CFR 50.47 (c)(2)]. Plume exposure pathway EPZ boundaries that run through

the middle of schools or hospitals, or that arbitrarily carve out small

portions of governmental jurisdictions should be avoided [CLI 89-12, 26 NRC

383 (1987)]. Additional information concerning EPZs is contained in Section

I.D.2 of NUREG-0654/FEMA-REP-1, Revision 1, and 44 CFR 350.7(b).

B. Planning Standards and Evaluation Criteria

An ESP application that includes the major features of emergency plans will be

evaluated against the selected and modified emergency planning standards and

evaluation criteria from Section II of NUREG-0654/FEMA-REP-1, Revision 1.

These standards and criteria are specified in Section V of this document and

have been selected to

- 5 - NUREG-0654, Supp. 2
* highlight the need for cooperation among the applicant, local,

State, and Federal agencies required by 10 CFR 52.17(b)(3)

* address potential emergency planning issues early in the licensing

process before large commitments of resources are made

* reflect sensitivity to the fact that an ESP applicant will not have

information and resources, or should not be expected to expend large

resources, on aspects of emergency planning and preparedness that

will be required, and best addressed, at the combined license stage

* reflect sensitivity to the relatively long time (10 to 20 years)

that could elapse between the granting of an ESP and the application

for a combined license

In addition, the standards and criteria referring to facilities, systems, and

equipment have been modified to require only descriptions rather than in-place

capability.

The modifications to the emergency planning standards and evaluation criteria

in Section V of this document apply only to an early site permit application.

All of the planning standards of 10 CFR 50.47(b), as supported in NUREG-0654/

FEMA-REP-1, Revision 1, will have to be met before the issuance of an operating license under 10 CFR 50.57 or a combined license under Subpart C of 10

CFR Part 52. In addition, for the first reactor at a site, Appendix E of 10

CFR Part 50 requires that a full-participation exercise be conducted within 2

years before the NRC issues an operating license for full power (authorizing

operation above 5 percent of rated power). Since this exercise would be

included in the inspections, tests, and analyses required for a combined

license; it would have to be satisfied before fuel loading for a combined

license.

C. Contacts and Arrangements

The ESP application under this option of the rule must include a description

of contacts and arrangements made with local, State, and Federal agencies with

emergency planning responsibilities. The descriptions should include the name

and location of the organization contacted, the title and/or position of the

person(s) contacted, and the role of the organization in emergency planning.

Additional guidance concerning contacts and arrangements for this option of

the rule are specified in the evaluation criteria in Section V of this

document.

IV. EARLY SITE PERMITS - COMPLETE AND INTEGRATED PLANS

A. Planning Standards and Evaluation Criteria

An applicant for an ESP may propose complete and integrated emergency plans

for review and approval by the NRC, in consultation with FEMA, in accordance

with the applicable provisions of 10 CFR 50.47. The planning standards and

evaluation criteria for the preparation and evaluation of these plans are as

shown in NUREG-0654/FEMA-REP-1, Revision 1.

NUREG-0654, Supp. 2 - 6 -
B. Certifications from Governmental Agencies

The ESP applicant proposing complete and integrated emergency plans should

make good faith efforts to obtain certifications from the local, State, and

Federal agencies with emergency planning responsibilities. The certifications

should state

* the agencies' acceptance of the proposed emergency plans as

practicable

the agencies' commitment to participate in any further development

of the plan, including any required field demonstrations

* the agencies' commitment to execute their responsibilities under the

plans in the event of an emergency

C. Non-Participation of Government Agencies

If the ESP applicant is unable to obtain certifications from local, State and

Federal agencies with emergency planning responsibilities, it should prepare

an offsite plan which will be evaluated using NUREG-0654/FEMA-REP-1,

Revision 1, Supplement 1.

V. PLANNING STANDARDS AND EVALUATION CRITERIA FOR MAJOR FEATURES OF THE

EMERGENCY PLAN

An ESP applicant may use the planning standards and evaluation criteria given

in this section if it chooses the option of proposing major features of the

emergency plans. The standards and criteria have been developed to reflect

the particular conditions of an ESP based on the planning standards and

evaluation criteria of NUREG-0654/FEMA-REP-1, Revision 1.

Comparisons to the planning standards and evaluation criteria of NUREG0654/FEMA-REP-1, Revision 1, are given below.

1. The following planning standards and related evaluation criteria of

NUREG-0654 were deemed inappropriate for the ESP application phase:

M. Recovery and Reentry Planning and Postaccident Operations

N. Exercises and Drills

2. The following planning standards are comparable to those in NUREG0654 but are more relevant to the ESP application phase, with

certain evaluation criteria (EC) not included as shown in the second

column.

- 7 - NUREG-0654, Supp. 2
STANDARD f EC NOT INCLUDED

A. Assignment of Responsibility lb, c, d, e, and 4

(Organization Control) l

B. Onsite Emergency Organization 1, 2, 3, 4, 5, 7, and 8

C. Emergency Response Support la, b, c, 2a, and b

and Resources

D. Emergency Classification'System 2 and 4

E. Notification Methods and 3, 4, 5, and 7

Procedures ____I

F. Emergenc Communications la, Id, If, and 3

G. Public Education and Information 2, 3, and 4

H. Emergency Facilities and 4, 5, 6, 7, 8, 9, 10, 11,

Equipment and 12

I. Accident Assessment 1, 2, 3, 4, 6, 8, 9, and 10

J. Protective Response 1, 3, 4, 5, 6, 11f,9, _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _a n d 1 1

K. Radiological Exposure Control 3b, 6, and 7

L. Medical and Public Health 2 and 4

Support

0. Radiological Emergency Response 1, 2, 3, 4e, 4i, and 5

Training

P. Responsibility for the Planning 6, 7, 9, and 10

Effort __

3. The retained evaluation criteria have been modified to make them

consistent with changes in related planning standards and more

appropriate to the ESP application phase.

4. A new evaluation criterion has been added: EC 4, under Planning

Standard C, Emergency Response Support and Resources.

5. Under Applicability and Cross Reference to Plans, the term "ESP

Applicant" has been substituted for the term "Licensee."

The planning standards and evaluation criteria as modified are as follows.

NUREG-0654; Supp. 2 - 8 -
A. Assignment of ResDonsibilitv (Organization Control)

Planning Standard

Primary responsibilities are identified for emergency response by the

Early Site Permit (ESP) applicant and by State and local organizations

within the Emergency Planning Zones (EPZs).

Evaluation Criterion

Applicability and Cross

Reference to Plans

ESP

Applicant State Local

1. Each application shall identify the State,

local, Federal and private sector organizations (including utilities) that are

intended to be part of the overall

response organization for EPZs.

2. a. Each organization shall identify

the functions and responsibilities

for major elements of emergency

response, such as Command and Control,

Alerting and Notification, Communications, Public Information, Accident

Assessment, Public Health and Sanita-

'tion, Social Services, Fire and Rescue,

Traffic Control, Emergency Medical

Services, Law Enforcement, Transportation, Protective Response, and

Radiological Exposure Control. The

description of these functions may be

shown in a table of primary and support

responsibilities.

x x x

I

b. Each application shall contain (by

reference to specific acts, codes or

statutes) the legal basis for such

authorities.

3. Each application shall include a description of contacts and arrangements

pertaining to the concept of operations developed between Federal, State,

and local agencies and other support

organizations having an emergency

response role within the EPZs. Any

written letters of agreement should

be included. A signature page in the

application may be appropriate for

some organizations to signify their

agreement. x _ _ X

_ 9 _ NUREG-0654, Supp. 2
B. Onsite Emergency Organizations

Planning Standard

Interfaces among various onsite response activities and offsite support

and response activities are identified.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

Applicant State Local

1. Each applicant shall identify

the interfaces between and among

the onsite functional areas of

emergency activity, local services

support, and State and local government response organization. This

may be illustrated in a block diagram.

2. Each applicant shall identify the

services to be provided by local

agencies for handling emergencies

(e.g., police, ambulance, medical,

hospital, and fire-fighting

organizations). A description of

the arrangements involving these

services shall be included in the

plan. Any written letters of agreement should also be included. X

NUREG-0654, Supp. 2 - 10 -
C. Emergencv Response SupDort and Resources

Planning Standard

Arrangements for requesting assistance resources are described, and

organizations capable of augmenting the planned response are identified.

Applicability and Cross

ri.nl liaifinn Criterinn Reference to Plans

ESP

Applicant State Local

1. The Federal Government maintains in-depth

capability to assist licensees, States and

local governments through the Federal

Radiological Emergency Response Plan. Each

State and ESP applicant shall make provisions

for requesting Federal assistance. x x

2. Each organization shall identify radiological laboratories and their general

capabilities and expected availability

to provide radiological monitoring and

analyses services during an emergency.

3. Each organization shall identify nuclear

and other facilities and organizations

that can be relied on to provide assistance in an emergency.

x

x

x x

x x

4. Each application shall include a

description of the contacts and arrangements made with the response organizations identified above.

- 11 - NUREG-0654, Supp. 2
D. Emergencv Classification System

Planning Standard

A standard emergency classification scheme is specified.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

ApDlicant State Local

1. An emergency classification scheme

as set forth in Appendix 1 of NUREG0654/FEMA-REP-1, Revision 1, or Regulatory Guide 1.101, Revision 3, must

be established by the ESP applicant

but need not include plant-specific

initiating conditions.

2. Each State and local organization

shall establish an emergency classification level scheme consistent with that

established by the ESP applicant.

x

x x

i

i

NUREG-0654, Supp. 2 - 12 -
E. Notification Methods and Procedures

Planning Standard

The means are described for notification by the ESP applicant of State

and local response organizations, and for notification of emergency

personnel and the populace within the plume exposure pathway EPZ.

Applicability and Cross

Evalua , . tion , . Criterion z . Reference to Plans

> ESP

APDplicant State Local

1. Each organization shall describe

mutually agreeable bases for notification of response organizations consistent with the emergency classification

scheme set forth in Appendix 1 of

NUREG-0654/FEMA-REP-1, Revision 1. x x x

2. Each organization shall describe a

method for alerting, notifying, and

mobilizing emergency response personnel. X x x

3. Each organization shall describe the

administrative and physical means

for notifying and promptly instructing the public within the plume

exposure pathway EPZ.

- 13 - NUREG-0654, Supp. 2
F. EmergencY Communications

Planning Standard

Provisions are described for prompt communications among principal

response organizations to emergency personnel and to the public.

Applicability and Cross

., 

vA A, 

l MM 

iaition A, I,, 

Criterion _,, __ . . _

Reference .._ ._ ._ .._ _ to _ Plans ., _ .._

ESP

Applicant State Local

1. The communication plans for emergencies

shall describe:

a. provision for communications with

contiguous State/local governments

within the EPZ

b. provision for communications as

needed with Federal emergency

response organizations

c. provision for alerting and

activating emergency personnel

in each response organization

2. The communication arrangement for

fixed and mobile medical support

facilities shall be described.

x

x

x

x

x x

NUREG-0654, Supp. 2 - 14 -
G. Public Education and Information

Planning Standard

An emergency information program for the public and news media is

described to address: (1) the provision of information to the public,

on a periodic basis, on how they will be notified and what initial

actions should be taken in an emergency and (2) the means for

acquainting the news media with emergency information.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

Applicant State Local

1. Each organization shall describe a

program to provide a coordinated

dissemination of information to the

public on a periodic basis (at least

annually) regarding how they will be

notified and what their actions should

be in an emergency. This program

should include information on:

* educational information on radiation

* contact for additional information

* protective measures, e.g., evacuation

routes and relocation centers,

sheltering, respiratory protection,

radioprotective drugs

* special needs of the handicapped and

the transient population

Means for accomplishing this dissemination

may include, but are not necessarily

limited to: information in the telephone

book, periodic information in utility

bills, posting in public areas, and

publications distributed on an annual

basis.

2. Each organization shall describe a

program for acquainting news media

on a periodic basis (at least annually)

with the emergency plans, information

concerning radiation, and points of

contact for release of public information in an emergency.

xLX _x

j

x x x

- 15 - NUREG-0654, Supp. 2
H. Emergencv Facilities and Equipment

Planning Standard

Adequate emergency facilities and equipment to

response are described.

support the emergency

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

Applicant State Local

1. Each applicant shall describe a

technical support center and an

onsite operations support center in

accordance with NUREG-0696.2

2. Each applicant shall describe an

emergency operations facility from

which evaluation and coordination of

all licensee activities related to

an emergency is to be carried out

and from which the licensee shall provide information to Federal, State and

local authorities responding to radiological emergencies in accordance with

NUREG-0696.

x

x

3. Each offsite

an emergency

in directing

functions.

organization shall describe

operations center for use

and controlling response

X x

2 NUREG-0696, "Functional Criteria for Emergency Response Facilities,"

February 1981.

NUREG-0654, Supp. 2 - 16 -
I. Accident Assessment

Planning Standard

Adequate methods, systems and equipment are described for assessing and

monitoring actual or potential offsite consequences of a radiological

emergency condition.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

ADp icant State Local

1. Each applicant shall provide a

description of the contacts and

arrangements made with offsite organizations

for acquiring and evaluating meteorological

information. The applicant shall describe how suitable meteorological data

will be made available to the State.

2. Each organization shall describe the

contacts and arrangements made for field

monitoring within the plume exposure

EPZ.

3. Contacts and arrangements to locate

and track the airborne radioactive

plume, using either or both Federal

and State resources, shall be

described.

x

x x x

x x

- 17 - NUREG-0654, Supp. 2
J. Protective Response

Planning Standard

A range of protective actions is described for the plume exposure

pathway EPZ for the public and emergency workers. Guidelines for the

choice of protective actions during an emergency, consistent with

Federal guidance, and protective actions for the ingestion exposure

pathway EPZ appropriate to the locale are described.

Applicability and Cross

Eval uation Criterion Reference to Plans

ESP

ADplicant State Local

1. Each applicant shall describe the

evacuation routes and transportation for

onsite individuals to some suitable offsite location, including alternatives for

inclement weather, high traffic density,

and specific radiological conditions.

2. Each applicant shall describe a

mechanism for recommending protective

actions to the appropriate State and local

authorities in accordance with the Manual

of Protective Action Guides and Protective

Actions for Nuclear Incidents (EPA 400-R92-001).

3. Each applicant must prepare time estimates

for evacuation within the plume exposure

EPZ (see Section II of this document).

These shall be in accordance with

Appendix 4 of NUREG-0654/FEMA-REP-1,

Revision 1.

X LL

x

x

NUREG-0654, Supp. 2 - 18 -
J. Protective Response (continued)

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

Applicant State Local

4. Each organization's concept for implementing protective measures for the

plume exposure pathway shall be

described including items such as those

listed below, if available. Where

appropriate, a description of contacts

and arrangements made with offsite

agencies with emergency planning

responsibilities must be included.

a. maps showing evacuation routes, evacuation areas, shelter areas, and relocation centers in host areas

b. maps showing population distribution

around the site This shall be by

evacuation areas. (Each applicant

shall also present the information

in a sector format)

c. proposed means for notifying all

segments of the transient and

resident population

x

x

x x

x x

d. proposed means for protecting

those persons whose mobility may be

impaired (e.g. institution or other

confinement)

e. proposed means for the use of radioprotective drugs for emergency workers

and institutionalized persons within

the plume exposure EPZ whose immediate

evacuation may be infeasible or very

difficult

x x

f. proposed means of relocation x x

- 19 - NUREG-0654, Supp. 2
J. Protective Response (continued)

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

ApDlicant State Local

g. potential relocation centers in host

areas which are at least 5 miles,

and preferably 10 miles, beyond the

boundaries of the plume exposure

emergency planning zone

h. projected traffic capacities of evacuation routes under emergency conditions

i. control of access to evacuated areas

and organization responsibilities

for such control

j. identification of and means for

dealing with potential impediments

(e.g., seasonal impassability of

roads) to use of evacuation routes

and contingency measures

k. time estimates for evacuation of

various sectors and distances based

on a dynamic analysis (time-motion

study under various conditions) for

the plume exposure pathway EPZ (See

Appendix 4 of NUREG-0654/FEMA-REP-1,

Revision 1, and Section II of this

document)

1. the bases for the choice of recommended

protective actions from the plume exposure

pathway during emergency conditions. This

shall include expected local protection

afforded in residential units or other

shelter for direct and inhalation exposure,

as well as evacuation time estimates

5. Each organization shall describe the means

for registering and monitoring evacuees

at reception centers in host areas.

L X _

I

x x

NUREG-0654, Supp. 2 - 20 -
K. Radiological Exposure Control

Planning Standard

Means are described for controlling radiological exposures to emergency

workers in an emergency.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

ADplicant State Local

1. Each applicant shall describe guidelines

on dose limits for

a. removal of injured persons

b. undertaking corrective actions

c. performing assessment actions

d. performing field radiological

measurements in the plume EPZ

x

x

x

e. providing first aid

f. performing personnel decontamination

g. providing ambulance service

x

x

h. providing medical treatment

services

2. Each applicant shall describe an

onsite radiation protection program

to be implemented during emergencies,

including methods to implement dose

limits. General guidance on dose limits

for workers performing emergency iservices

can be found in EPA 400-R-92-001.

3. a. Each organization shall describe

how they would determine the doses

received by emergency personnel involved in any nuclear accident,

including volunteers.

x

x

3 EPA 400-R-92-001, 'Manual of Protective Action Guides and

Actions for Nuclear Incidents," May 1992.

Protective

- 21 - NUREG-0654, Supp. 2
K. Radiological Exposure Control (continued)

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

Applicant State Local

b. Each organization shall describe

how they would acquire and distribute

dosimeters, both direct-reading and

permanent record devices. X

4. Each organization shall describe a

decision chain for authorizing emergency workers to incur exposures in

excess of the EPA dose limits for

workers performing emergency services. x x x

5. a. Each organization, as appropriate,

shall specify action levels for

determining the need for decontamination of emergency workers, equipment and vehicles, and the general

public and their possessions.

b. Each organization, as appropriate,

shall describe a means for radiological decontamination of emergency

personnel wounds, supplies, instruments, and equipment.

X L L

I x x

NUREG-0654, Supp. 2 - 22 -
L. Medical and Public Health SuDport

Planning Standard

Contacts and arrangements are described for medical services for

contaminated injured individuals.

Applicability and Cross

Evaluation Criterion - Reference to Plans

ESP

ADDlicant State Local

1. Each organization shall describe the

contacts and arrangements made for

local and backup hospital and medical

services having the capability for

evaluation of radiation exposure and

uptake.

2. Each State shall develop lists

indicating the location of public,

private, and military hospitals and

other emergency medical services

facilities within the State or

contiguous States considered capable

of providing medical support for

any contaminated injured individual.

The listing shall include the name,

location, type of facility and

capacity, and any special radiological

capabilities. Contacts and arrangements made in developing this list

should be described.

x x x

- 23 - NUREG-0654, Supp. 2
M. Recovery and Reentry Planning and Postaccident Operations (Not

applicable to ESPs)

N. Exercises and Drills (Not applicable to ESPs)

0. Radiological Emergency Response Training

Planning Standard

A radiological emergency response training

those who may be called on to assist in an

program is described for

emergency.

Evaluation Criterion

Applicability and Cross

Reference to Plans

ESP

ADDlicant State Local

1. Each organization shall describe a

training program for instructing and

qualifying personnel who will implement

radiological emergency response plans.

Specialized initial training and periodic

retraining shall be provided in the following categories:

a. directors or coordinators of the

response organizations

b. personnel responsible for accident

assessment

c. radiological monitoring teams and

radiological analysis personnel

x

x

d. police, security and fire fighting

personnel

f. first aid and rescue personnel

g. local support services personnel

including civil defense/emergency

service personnel

x

x

x

x x

x x

x x

h. medical support personnel

i. personnel responsible for transmission of emergency information and

instructions

NUREG-0654, Supp. 2 - 24 -
P. Responsibilitv for the Planning Effort: Development. Periodic Review

and Distribution of Emergencv Plans

Planning Standard

Responsibilities are established for plan development and review and for

distribution of emergency plans, and training is described for planners.

Applicability and Cross

Evaluation Criterion Reference to Plans

ESP

ApD1 icant State Local

1. Each organization shall provide for

the training of individuals responsible

for the planning effort. x x x

2. Each organization shall identify by

title the individual with the overall

authority and responsibility for radiological emergency response planning. x

3. Each organization shall designate an

Emergency Planning Coordinator with

responsibility for the development and

updating of emergency plans and coordination of these plans with other response

organizations. x .x x

4. Each organization shall update its plan

and agreements as needed. x

5. The emergency response plans and

approved changes to the plans shall be

forwarded to all organizations and appropriate individuals with responsibility

for implementation of the plans. Revised

pages shall be dated and marked to show

where changes have been made.

6. Each plan shall contain a specific table

of contents. Plans submitted for review

should be cross-referenced to the criteria

in this supplement.

x

x

x x

L X _

- 25 - NUREG-0654, Supp. 2
NRC FORM 335 U.S. NUCLEAR REGULATORY COMMISSION 1. REPORT NUMBER

(2-89) (Assigned by NRC, Add Vol., NRCM 1102, Supp., Rev., and Addendum Num3201, 3202 BIBLIOGRAPHIC DATA SHEET bers, it any.)

(See Instructions on the reverse) NUREG-0654

2. TITLE AND SUBTITLE FEMA-REP-1, Rev. 1 Supp. 2

Criteria for Preparation and Evaluation of Radiological Emergency Response Plans 3. DATE REPORT PUBLISHED

and Preparedness in Support of Nuclear Power Plants MONTH YEAR

Criteria for Emergency Planning in an Early Site Permit Application April 1996

4. FIN OR GRANT NUMBER

Draft Report for Comment

5. AUTHOR(S) 6. TYPE OF REPORT

E Kantor, E. F. Fox, Jr./NRC Technical

V. L Wingert, W. F. McNuttIFEMA 7. PERIOD COVERED (Inclusive Dates)

8. PERFORMING ORGANIZATION - NAME AND ADDRESS (I! NRC, provide Division, Office or Region, U.S. Nuclear Regulatory Commission, and

mailing address; If contractor, provide name and mailing address.)

Division of Reactor Program Management Federal Emergency Management Agency

Office of Nuclear Reactor Regulation 500 C Street, S.W.

U.S. Nuclear Regulatory Commission Washington, DC 20472

Washington, DC 20555-001

S. SPONSORING ORGANIZATION - NAME AND ADDRESS (If NRC, type Same as above'; If contractor, provide NRC Division, Office or Region, U.S. Nuclear Regulatory Commission, and mailing address.)

Same as 8. above

10. SUPPLEMENTARY NOTES

11. ABSTRACT (200 words or less)

The Nuclear Regulatory Commission (NRC) and the Federal Emergency Management Agency (FEMA) have added

Supplement 2 NUREG-0654IFEMA-REP-1, Revision 1, to provide guidance for the development, review, and approval of radiological emergency information and plans submitted with an early site permit application under Subpart

A of 10 CFR Part 52.

12. KEY WORDS/DESCRIPTORS (List words or phrases that will assist researchers In locating the report.) 13. AVAILABILITY STATEMENT

Unlimited

14. SECURITY CLASSIFICATION Emergency planning '(This Page)

Emergency preparedness Unclased

radiological emergency planning Unclassified

([This Report) radiological emergency preparedness

radiological emergency response plans Unclassified

emergency plans 15. NUMBER OF PAGES

emergency planning for early site permit

early site permit 16. PRICE

NRC FORM 335 (2-89)
Federal Recycling Program
. ... - % ~ -- a -~ -11 -11 . .-

NUREG-0654, Rev. 1, Supp. 2

Draft

CRITERIA FOR PREPARATION AND EVALUATION OF RADIOLOGICAL EMERGENCY RESPONSE

PLANS AND PREPAREDNESS IN SUPPORT OF NUCLEAR POWER PLANTS I

APRIL 1996

UNITED STATES

NUCLEAR REGULATORY COMMISSION

WASHINGTON, DC 20555-0001

FIRST CLASS MAIL

POSTAGE AND FEES PAID

USNRC

PERMIT NO. G-67

OFFICIAL BUSINESS

PENALTY FOR PRIVATE USE, $300