NUREG-0654

FEMA-REP-1

Rev. 1

Supp. 1

Criteria for Preparation and Evaluation of

Radiological Emergency Response Plans and

Preparedness in Support of

Nuclear Power Plants

Criteria for Utility Offsite Planning and Preparedness

Final Report

E.M. Podolak,

M.E. Sanders,

U.S. Nuclear

Commission

.•.0 0

%~ - o

Jr./NRC

V.L. Wingert, R.W. Donovan/FEMA

Regulatory Federal Emergency Managemeni

Agency

Reprinted April 1990
NUREG-0654

FEMA-REP-1

Rev. 1

Supp. 1

Criteria for Preparation and Evaluation of

Radiological Emergency Response Plans and

Preparedness in Support of

Nuclear Power Plants

Criteria for Utility Offsite Planning and Preparedness

Final Report

Manuscript Completed: August 1988

Date Published: September 1988

E.M. Podolak, Jr./NRC

M.E. Sanders, V.L. Wingert, R.W. Donovan/FEMA

U.S. Nuclear Regulatory Commission

Washington D.C. 20555

Federal Emergency Management Agency .Washington D.C. 20472
ABSTRACT

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

Agency (FEMA) have added a supplement to NUREG-0654/FEMA-REP-1, Rev. 1 that

provides guidance for the development, review, and evaluation of utility offsite radiological emergency response planning and preparedness for those

situations in which State and/or local governments decline to participate in

emergency planning. While this guidance primarily applies to plants that do

not have full-power operating licenses, it does have relevance to operating

nuclear power plants.

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TABLE OF CONTENTS

'Page

I. Introduction

A. Purpose 1

B. Use of Document 1

C. Authorities I

D. Assumptions 2

E. Scope 2

F. Definitions 3

G. Summary of Changes 3

H. Application of the "Realism" Rule 4

II. Planning Standards and Evaluation Criteria

A. Assignment of Responsibilty (Organization Control) 7

B. Onsite Emergency Organization 9

C. Emergency Response Support and Resources 9

D. Emergency Classification System 10

E. Notification Methods and Procedures 11

F. Emergency Communications 13

G. Public Education and Information 14

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 22

M. Recovery and Reentry Planning and Postaccident

Operations 23

N. Exercises and Drills 24

0. Radiological Emergency Response Training 27

P. Responsibility for the Planning Effort: Development,

Periodic Review and Distribution of Emergency Plans 29
CRITERIA FOR UTILITY OFFSITE PLANNING AND PREPAREDNESS

I. INTRODUCTION

A. Purpose

The Nuclear Regulatory Commission (NRC) and the Federal Emergency Management Agency (FEMA) have added a supplement to NUREG-0654/FEMA-REP-1, Rev.

1 that provides guidance for the development, review and evaluation of

utility offsite radiological emergency response planning and preparedness

for those situations in which State and/or local governments1 decline to

participate in emergency planning. While this guidance primarily applies

to plants that do not have full-power operating licenses, it does have

relevance to operating nuclear power plants.

B. Use of Document

This document has been developed for use in reviewing and evaluating

utility-prepared offsite emergency plans and preparedness. This document

i's intended to be used with Section I and Appendices 1-5 of the existing

NUREG-0654/FEMA-REP-1, Rev. 1. A notice has been provided in the Federal

Register to announce the availability of this document. Except where specifically modified, the existing licensee-only evaluation criteria of the

current Section II are not affected by this document. For those situations

in which State and/or local governments are participating in the emergency

planning process, the existing NUREG-0654/FEMA-REP-1, Rev. 1 evaluation

criteria will apply.

C. Authorities

This document is intended to facilitate the implementation of the changes

to 10 CFR Part 50.47(c)(1) and 10 CFR Part 50, Appendix E, Section IV.F of

the NRC regulations, effective December 3, 1987 (52 FR,42078) dealing with

the following: "Evaluation of the Adequacy of Offsite Emergency Planning

for Nuclear Power Plants at the Operating License Review Stage Where State

and/or Local Governments Decline to Participate in Offsite Emergency

Planning." The relevancy of this rule change to full-power operating

nuclear power plants is explained in the "Supplementary Information"

Section:

"The rule does not specifically apply to plants that already have

operating licenses...10 CFR 50.54(s)(2)(11) of the Commission's

regulations already provides a mechanism (the "120-day clock")

for addressing situations in which deficiencies are identified

'This refers to State and local governments identified as having an emergency

preparedness and response role in the offsite plan. It is not restricted to

the Emergency Planning Zones (EPZs) but may include governments that are

identified in the plan as hav-ing a role, such as, providing reception and

congregate care centers.

4,l

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F-
in emergency planning at operating plants. To the extent that

this rule provides criteria by which a utility plan would be

judged by State and local withdrawal from participation in

emergency planning, those criteria would presumably be of

assistance to decisionmakers in determing under

10 CFR 50.54(s)(2)(11), whether remedial action should be taken,

and if so, what kind and where deficiencies in emergency planning

remain uncorrected after 120 days."

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

of Understanding dated April 18, 1985, wherein the parties agreed to

evaluate offsite plans prepared by utilities and provided to FEMA by the

NRC.

D. Assumptions

The following NRC assumptions are used for the development, review and

evaluation of utility offsite plans and preparedness.

1. In an actual radiological emergency, State and local officials that

have declined to participate in emergency planning will:

a. Exercise their best efforts to protect the health and safety o1

the public;

b. Cooperate with the utility and follow the utility offsite plan;

and

c. Have the resources sufficient to implement those portions of

the utility offsite plan where State and local response is

necessary.

Although it is assumed that non-participating State and local organizati,

will respond and follow the utility's offsite plan, it is not assumed thi

these organizations will be as familiar with the plan as if they had participated in the planning process and exercised with the utility. Therefore, the utility's offsite response plan and the offsite response organ

zation will provide compensating actions through the use of liaisons to

deal with the coordination of information and resources with State and

local governments and to provide advice and assistance to responding

State and local governments in implementing their assigned roles and funi

tions under the utility's offsite response plan. In accordance with agri

ment between the NRC and FEMA, the NRC will defend any legal challenges

to these assumptions.

E. Scope

In developing this document, the planning standards of NUREG-0654/FEMAREP-1, Rev. 1.have not been changed and they apply to the offsite respon

organization defined below. This complies with the NRC rule change cite

in C. above. The guidance will be used for the development, review and

evaluation of offsite emergency plans and preparedness in which State

and/or local governments decline to participate in emergency planning an

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preparedness. The planning standards are the-same as those used to evaluate licensee, State and local plans and preparedness. The evaluation

criteria have been modified with due allowance for the non-participation

of State and local governments and for the compensatory measures that

n, must be proposed, developed and implemented by the utility. Under 10 CFR

ing 50.47(c)(i)(ii) the utility is expected to make a sustained good faith

effort to secure and retain the participation of the pertinent State and/

or local governments. The degree of participation that the utility is able

m to gain from State and local organizations during the planning process

should be reflected in the utility's offsite plans and preparedness; and

the resources to implement the offsite plan must be identified and committed by the utility and by State and local governments participating in

the planning process. The appropriate FEMA guidance memoranda, policy

memoranda and REP documents (e.g., FEMA REP-2, 10, 12) will be applied to

define the conditions of adequacy and inadequacy of emergency plans and

preparedness for specific evaluation criteria. The numbering pattern for

and the evaluation criteria in this document is the same as that used in the

existing Section II of NUREG-0654/FEMA-REP-1, Rev. 1. Therefore, numbers

that apply to licensee-only evaluation criteria are missing and additional

that criteria have been assigned new numbers.

F. Definitions

ety of

The following definitions apply to the use of this document.

plan; 1. Offsite Response Organization (ORO): The utility offsite emergency

response organization comprised of other participating voluntary and

private organizations, and local, State and Federal governme'nts

of engaging in the development of offsite emergency plans and preparedness for a nuclear power plant.

2. Nonparticipating Organization: State and local governments that decline

izations to participate in emergency planning and preparedness for a nuclear

?d that power plant.

I parFhere- G. Summary of Changes

)rganito The following is a summary of the changes to the evaluation criteria of

md NUREG-0654/FEMA-REP-1, Rev. 1.

I

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

i agree- Throughout the revised evaluation criteria "offsite response organizaIges tion" replaces references to "State and local governments" as that

phrase was used in NUREG-0654/FEMA-REP-1, Rev. 1.

2. In addition, evaluation criteria were modified or added to compensate

for lack of participation by State and local governments in the

!MA- planning process, for these functions:

ýsponse

cited a. Identification of the functions which require State and local

and authorization before implementing (A.2.a.).

,e

1g and b. Identification of additional liaison personnel to advise and

assist State and local officials in an emergency (C.5.).

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c. Provision for advising State and local officials on emergency

actions to be taken (D.4., J.10.f.).

d. Provision for coordinating emergency messages with State and

local governments (E.8.).

e. Provision for communications with non-participating State and

local emergency operations facilities (F.1.).

f. Provision for public information describing the role of the

offsite response organization vs. the State and local organizations during the emergency (G.L.e.).

g. Establishment of an emergency operations center for use in

directing and controlling offsite response functions (H.3.).

h. Offsite response organization shall have the administrative and

physical means (even though they might not have the responsibility) for activating the alert and notification system (E.6.

and J.9.).

i. Recommendation on the use of potassium iodide (KI) for the general public (J.10.f.)

j. Provision for encouraging participation in exercises and drills

by State and local governments but not requiring it (N.2.a. and

N.6.).

k. Provision of training to persons in the utility's offsite

response organization who will be responders (0.4.k.).

1. Provision for offering training to non-participating State and

local governments and other organizations (0.6.).

m. Provision for providing copies of the offsite plan and its

revisions to non-participating State and local government

entities with which the offsite response organization identifies

interfaces in its offsite plan (P.11).

H. Application of the "Realism" Rule

The Commission amended its rules in 10 CFR 50.47c(1) to provide criteria for

the evaluation at the operating license review stage of utility-prepared emergency plans in situations in which state'and/or local governments decline to

participate further in emergency planning (52 FR 42079). The revised rule reads

as follows (emphasis added):

(c)(1) Failure to meet the applicable standards set forth in

paragraph (b) of this section may result in the Commission declining to

issue an operating license; however, the applicant will have an

opportunity to demonstrate to the satisfaction of the Commission that

deficiencies in the plans are not significant for the plant in question,

that adequate interim compensating actions have been or will be taken

promptly, or that there are other compelling reasons to permit plant

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operations. Where an applicant for an operating license asserts that its

inability to demonstrate compliance with requirements of paragraph (b)

of this section results wholly or substantially from the decision of state

and/or local governments not to participate further in emergency planning,

an operating license may be issued if the applicant demonstrates to the

Commission's satisfaction that:

(i) The applicant's inability to comply with the requirements of

paragraph (b) of this section is wholly or substantially the result of

the non-participation of state and/or local governments.

(ii) The applicant'has made a sustained, good faith effort to secure

and retain participation of the pertinent State and/or local

governmental authorities, including the furnishing of copies of its

emergency plan.-

(iii) The applicant's emergency plan provides reasonable assurance

that public health and safety is not endangered by operation of the

facility concerned. To make that finding, the applicant must demonstrate

that, as outlined below, adequate protective measures can and will be

taken in the event of an emergency. A utility plan will be evaluated

against the same planning standards applicable to a state or local plan,

as listed in paragraph (b) of this section, with due allowance made both

for--

(A) Those elements for which state and/or local non-participation makes

compliance infeasible and

(B) The utility's measures designed to compensate for any deficiencies

resulting from state and/or local non-participation.

In making its determination on the adequacy of a utility plan,.the NRC

will recognize the reality that in an actual emergency, State and local

government officials will exercise their best efforts to protect the

health and safety of the public. The NRC will determine the adequacy of

that expected response, in combination with the utility's compensating

measures, on a case-by-case basis, subject to the following guidance. In

addressing the circumstance where applicant's inability to comply with

the requirements of paragraph (b) of this section is wholly or substan.

tially the result of non-participation of state and/or local governments,

it may be presumed that in the event of'an actual radiological emergency,

State and local officials would generally follow the utility plan. However,

this presumption may be rebutted by, for example, a good faith and timely

proffer of an adequate and feasible state and/or local radiological emergency plan that would in fact be relied upon in a radiological emergency.

At the same time the Commission added a new Paragraph 6 Section IV.F. of

10 CFR Part 50, Appendix E, which reads.as follows:

6. The participation of state and local governments in an emergency

exercise is not required to the extent that the applicant has

identified those governments as refusing to participate further in

emergency planning activities pursuant to 10 CFR 50.47(c)(1). In such

cases, an exercise shall be held with the applicant or licensee and

such governmental entities as elect to participate in the emergency

planning process.

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The emphasized portion above is the kernel of the so called "realism rule".

In its "realism rule", the Commission provides the details of how a

utility-sponsored offsite utility plan would be evaluated. While asserting

that State and local participation in emergency planning is essential to the

maximum effectiveness of a plan, the Commission has provided, that, in the case

of non-participation of State and local governments in the planning process, a

license can be issued even if emergency planning falls short of the ideal, but

is still adequate to protect the public health and safety. Specifically, a

license.can be issued under 10 CFR 50.47c(1)(iii) if the Commission finds that

the applicants emergency plan provides reasonable assurance that the public

health and safety is not endangered by operation of the facility (provided

that the non-participation tests are met). As stated in the preamble to the

final rule (52 FR 42084):

The rule recognizes - as did Congress when it enacted and re-enacted the

provisions of Section 109 of the NRC Authorization Act of 1980 - that no

utility plan is likely to be able provide the same degree of public

protection that would obtain under ideal conditions, i.e., a state or

local participation, but that it may nevertheless be adequate (emphasis

added).

Thus, ultimately, the Commission will have to determine

prepared offsite plans and preparedness 2 .

the adequacy of utility

2 The "realism" concept can be applied to resolve deficiencies in emergency plans

and exercises. For example, if towing cars is not identified as a State or

local responsibility in a utility prepared offsite plan or if more cars need to

be "towed" during an exercise than the utility can accommodate, the "realism"

concept could be applied to resolve what otherwise might be a planning deficienc2

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II. PLANNING STANDARDS AND EVALUATION CRITERIA

A. Assignment of Responsibility (Organization Control)

Planning Standard

Primary responsibilities for emergency response by the nuclear facility

licensee, and by State and local organizations within the Emergency Planning Zones have been assigned, the emergency responsibilities of the

various supporting organizations have been specifically established, and

each principal response organization has staff to respond and to'augment

its initial response on a continuous- basis.

Evaluation Criteria

1. a. The offsite plan shall identify the elements of the offsite

response organization for Emergency Planning Zones (see Appendix

5 of NUREG-0654/FEMA-REP-1, Rev. I).3

b. The offsite response organization shall specify its concept of

operations, and its relationship to the total effort. The concept of operation will explain how the offsite response organization will function with non-participating State and local

governments, and will specify the various modes of operation.

c. The offsite plan shall illustrate these interrelationships in a

block diagram. This diagram will define the roles for the offsite response organization and non-participating State and local

governments, and identify the lead interfaces.

d. The offsite response organization shall identify a specific

individual by title who shall be in charge of the emergency

response.

e. The offsite response organization shall provide for 24-hour per

day emergency response, including 24-hour per day staffing of

communications links.

2. a. The offsite response organization shall specify the functions

and responsibilities for major elements and key individuals by

title, of emergency response, including the following: Command

and Control, Alerting and Notification, Communications, Public

Information, Accident Assessment, Public Health and Sanitation,

Social Services, Fire and Rescue, Traffic Control, Emergency

Medical Services, Law Enforcement, Transportation, Protective

Response (including authority to request Federal assistance and

to initiate other protective actions), and Radiological Exposure

.Offsite response organization is defined as the utility offsite emergency

response organization along with other participating voluntary and private

organizations, and local, State and Federal governments engaging in the

development of offsite emergency plans for a nuclear power plant.

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Control. The description of these functions shall include a

clear and concise summary such as a table of primary and support

responsibilities using the agency as one axis, and the function

as the other. This description shall specify those functions

which may require State or local authorization before

implementing, such as:

i. Directing traffic;

ii. Blocking roadways, erecting barriers in roadways and

channeling traffic;

iii. Posting traffic signs on roadways;

iv. Removing obstructions from public roadways, including towing vehicles;

v. Activating sirens and directing the broadcasting of EBS

messages;

vi. Making decisions and recommendations to the public concerning protective actions for the plume exposure pathway;

vii. Making decisions and recommendations to the public concerning protective actions for the ingestion exposure pathway;

viii. Making decisions and recommendations to the public concerning recovery and reentry;

ix. Dispensing fuel from tank trucks to automobiles along

roadsides;

x. Performing access control at an EOC, relocation centers and

the EPZ perimeters; and

The offsite plan shall also identify similar functions and

responsibilities and interfaces for an anticipated State and

local response to an emergency.

b. The offsite plan shall contain where applicable (by reference to

specific acts, codes or statutes) the legal basis for such

authorities including those that reserve functions to State and

local governments.

3. The offsite plan shall include written agreements referring to the

concept of operations developed between Federal agencies, the offsite

response organization, and other support organizations having an

emergency response role within the Emergency Planning Zones. The

agreements shall identify the emergency measures to be provided and

the mutually acceptable criteria for their implementation, and specify the arrangements for exchange of information. These agreements

may be provided in an appendix to the offsite plan or the offsite

plan itself may contain descriptions of these matters and a signature

page in the offsite plan may serve to verify the agreements. The

signature page format is appropriate for organizations where response

functions are covered by laws,-regulations or executive orders where

separate written agreements are not necessary.

4. The offsite response organization shall be capable of continuous

(24-hour) operations for a protracted period. The individual in the

offsite response organization who will be responsible for assuring

continuity of resources (technical, administrative, and material)

shall be specified by title.

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B. Onsite Emergency Organization (Not Applicable)

C. Emergency Response Support and Resources

Planning Standard

Arrangements for requesting and effectively using assistance resources

have been made, arrangements to accommodate State and local staff at the

licensee's near-site Emergency Operations Facility have been made, and

other organizations capable of augmenting the planned response have been

identi fied.

Evaluation Criteria

1. The Federal government maintains in-depth capability to assist licensees, States and local governments through the Federal Radiolog- *,ical Emergency Response Plan. Each offsite response organization and

licensee shall make provisions for incorporating the Federal response

capability into its operation plan, including the following:

a. specific persons by title authorized to request Federal assistance; see A.1.d., A.2.a.;

b. specific Federal resources expected, including expected times of

arrival at specific nuclear facility sites; and

c. specific licensee and offsite response organization resources

available to support the Federal response, e.g., air fields,

command posts, telephone lines, radio frequencies and telecommunications centers.

2. The offsite response organization may dispatch representatives

to the licensee's near-site Emergency Operations Facility. (Technical analysis representatives at the near-site EOF are

preferred.)

3. The offsite response organization shall identify radiological laboratories and their general capabilities and expected availability to

provide radiological monitoring and analyses services which can be

used in an emergency.

4. The offsite response organization shall identify nuclear and other

facilities, organizations or individuals which can be relied upon in

an emergency to provide assistance.. Such assistance shall be identified and supported by appropriate letters of agreement.

5. The offsite response organization shall identify liaison personnel

to advise and assist State and local officials during an actual

emegency in implementing those portions of the offsite plan where

State or local response is identified.

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D. Emergency Classification System

Planning Standard

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

which include facility system and effluent parameters, is in use by the

nuclear facility licensee, and State and local response plans call for

reliance on information provided by facility licensees for determinations

of minimum initial offsite response measures.

Evaluation Criteria

3. The offsite response organization shall establish an emergency classification and emergency action level scheme consistent with that

established by the facility licensee.

4. The offsite response organization should have procedures in place

that provide for implementing emergency actions and that provide for

advising State and local officials on emergency actions to be taken

which are consistent with the emergency actions recommended by the

nuclear facility licensee, taking into account local offsite conditions that exist at the time of the emergency.

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E. Notification Methods and Procedures

Planning Standard

Procedures have been established for notification by 'the licensee of State

and local response organizations and for notification of emergency personnel by all response organizations; the content of initial and followup

messages to response organizations and the public has been established;

and means to provide early notification and clear instruction to the

populace within the plume exposure pathway Emergency Planning Zone have

been established.

Evaluation Criteria

S1. The offsite response organization shall establish procedures which

describe the bases for notification of all response organizations

consistent with the emergency classification and action level scheme

set forth in Appendix 1 of NUREG-0654/FEMA-REP-1, Rev. 1. These

procedures shall include means for verification of messages. The

specific details of verification need not be included in the offsite

plan.

2. The offsite response organization shall establish procedures for

alerting, notifying, and mobilizing its own emergency response personnel

and for alerting-and notifying non-participating State and local

governments.

F3. The-offsite response organization shall establish a system for disseminating to the public appropriate information contained in initial

and followup messages received from the.licensee (see Evaluation

Criteria E.3 and E.4 in NUREG-0654/FEMA REP-1, Rev. 1) including the

appropriate notification to appropriate broadcast media, e.g., the

Emergency Broadcast System (EBS).

4. The offsite response organization shall establish administrative and

physical means, and the time required for notifying and providing

prompt instructions to the public within the plume exposure pathway

Emergency Planning Zone (see Appendix 3 of NUREG-0654/FEMA-REP-1,

Rev. 1). It shall be the licensee's responsibility to demonstrate that

such means exist, regardless of who implements this requirement.

The offsite response organization shall have the administrative and

physical means to activate the system.

5. The offsite response organization shall provide written messages

intended for the public, consistent with the licensee's classification scheme. In particular, draft messages to the public giving

instructions with regard to specific protective actions to be taken

by occupants of affected areas shall be prepared and included as part

of the offsite plans. The prescripted messages should address the

various conditions such as the delegation of authority by the State

and local governments to the offsite response organization to issue

prompt instructions. Such messages should include the appropriate

aspects of sheltering, ad hoc respiratory protection e.g., handkerchief

K 11
over mouth, thyroid blocking or evacuation. The role of the licensee

is to provide supporting information for the messages. For ad hoc

respiratory protection see "Respiratory Protective Devices Manual"

American Industrial Hygiene Association, 1963 pp. 123-126.

8. There shall be provisions for coordinating emergency messages if

possible with participating and non-participating State and local

governments.

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F. Emergency Communications

Planning Standard

Provisions exist for prompt communications among principal response organizations to emergency personnel and to the public..

Evaluation Criteria

1. The communication plans for emergencies shall include organizational

titles and alternates for both ends of the communication links. Reliable

primary and backup means of communication for the utility and the offsite

response organization shall be established. The utility and the offsite

response organization shall establish the capability to communicate with

non-participating State and local governments via normal emergency telephone

number(s) (e.g., 911) and via one other backup mode such as the ability to

transmit via existing emergency radio frequencies. Each offsite plan

shall include:

a. provision for 24Thour per day notification to and activation of the

offsite response organization's emergency response network; and at a

minimum, a telephone link and alternate, including 24-hour per day

manning of communication links that initiate emergency response

actions;

b. provision for communications with contiguous States and local governments within the Emergency Planning Zones;

c. provision'for communications as needed with Federal emergency

response organizations;

d. provision for communications between the nuclear facility and the

licensee's near-site Emergency Operations Facility, offsite response

organization's emergency operations centers, and radiological. monitoring teams;

e. provision for alerting or activating emergency personnel in each

response organization;

2. The offsite response organization shall ensure that a coordinated

communication link for fixed and mobile medical support facilities

exists.

3. The offsite response organization shall conduct periodic testing of the

entire emergency communications system (see evaluation criteria H.10,

N.2.a and Appendix 3 of NUREG-0654/FEMA-REP-1, Rev. 1)..

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G. Public Education and Information

Planning Standard

Information is made available to the public on a periodic basis on how they

will be notified and what their initial actions shall be in an emergency

(e.g., listening to a local broadcast station and remaining indoors), the

principal points of contact with the news media for dissemination of information during an emergency (including the physical location or locations) are

established in advance, and procedures for coordinated dissemination of information to the public are established.

Evaluation Criteria

1. The offsite response organization shall provide a coordinated periodic

(at least annually) dissemination of information to the public regarding

how they will be notified and what their actions should be in an emergency. This information shall include, but not necessarily be limited

to:

a. educational information on radiation;

b. contact for additional information;

c. protective measures, e.g., evacuation routes and relocation centers,

sheltering, respiratory protection, radioprotective drugs;

d. special needs of the handicapped; and

e. special steps to be taken to describe the role of the offsite response organization vs. the State and local organizations during the

emergency.

Means for accomplishing this dissemination may -include, but are not

necessarily limited to: information in the telephone book; posting in

public areas; and publications distributed on an annual basis.

2. The public information program shall provide the permanent and transient

adult population within the plume exposure EPZ an adequate opportunity to

become aware of the information annually. The programs should include

provision for written material that is likely to be available in a residence during an emergency. Updated information shall be disseminated at

least annually. Signs or other measures (e.g., decals, posted notices,

or other means, placed in hotels, motels, gasoline stations and phone

booths) shall also be used to disseminate to any transient population

within the plume exposure pathway EPZ appropriate information that will

be helpful if an emergency or accident occurs. Such notices should refer

the transient to the telephone directory or other source of local emergency

information and guide the visitor to appropriate radio and television

frequencies.

3. The offsite response organization shall designate the points of contact

and physical locations for use by news media during an emergency. This

should include provisions for accommodating State and local government

public information personnel assigned a role under the offsite plan.

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4. a. The offsite response organization shall designate a spokesperson

who shall have access to all necessary information.

b. The offsite response organization shall establish arrangements for

timely exchange of information among designated spokespersons.

c. The offsite response organization shall establish coordinated

arrangements for dealing with rumors.

5. The offsite response organization shall conduct coordinated programs at

least annually to acquaint news media with the offsite emergency plans,

information concerning radiation, and points of contact (see G.1e) for

release of public information in an emergency.

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H. Emergency Facilities and Equipment

Planning Standard

Adequate emergency facilities and equipment to support the emergency response

are provided and maintained.

Evaluation Criteria

3. The offsite response organization shall establish an emergency operations center for use in directing and controlling offsite response functions.:'..,':

4. The offsite response organization shall provide for timely activation

and staffing of the facilities and centers described in the offsite plan.

7. The offsite response organization, where appropriate, shall provide for

offsite radiological monitoring equipment in the vicinity of the nuclear

facility.

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

inventory and operationally check emergency equipment/instruments at

least once each calendar quarter and after each use. There shall be

sufficient reserves of instruments/equipment to replace those which are

removed from emergency kits for calibration or repair. Calibration of

equipment shall be at intervals recommended by the supplier of the

equipment.

11. The offsite plan shall, in an appendix, include identification of emergency kits by general category (protective equipment, communications

equipment, radiological monitoring equipment and emergency supplies).

12. The offsite response organization shall establish a central point (preferably associated with the licensee's near-site Emergency Operations

Facility), for the receipt and analysis of all field monitoring data and

coordination of sample media.

-16-
I Accident Assessment

Planning Standard

Adequate methods, systems dnd equipment for assessing and monitoring actual or

potential offsite consequences of a radiological emergency condition are in

.use.

Evaluation Criteria

7. The offsite response organization shall describe the capability and rek,.! sources for field monitoring within the plume exposure Emergency Planning

Zone which are an intrinsic part of the concept of operations for the

facility.

' 8. The offsite response organization, where appropriate, shall provide

methods, equipment and expertise to make rapid assessments of the actual

or potential magnitude and locations of any radiological hazards through

liquid or gaseous release pathways. This shall include activation, notification means, field team composition, transportation, communication,

monitoring equipment and estimated deployment times.

9. The offsite response organization shall have a capability to detect and

measure radioiodine concentrations in air in the plume exposure EPZ as

low as i0,7 pCi/cc (microcuries per cubic centimeter) under field conditions. Interference from the presence of noble gas and background radiation shall not decrease the stated minimum detectable activity.

10. The offsite response organization shall establish means for relating the

various measured parameters (e.g., contamination levels, water and air

activity levels) to dose rates for key isotopes (i.e., those given in

Table 3, page 18 of NUREG-0654/FEMA-REP-1, Rev. 1) and gross radioactivity

measurements. Provisions shall be made for estimating integrated dose

4 from the projected and actual dose rates and for comparing these estimates

with the protective action guides. The detailed provisions shall be

described in separate procedures.

11. Arrangements to locate and track the airborne radioactive plume shall be

made, using either or both Federal and offsite response organization

resources.

-17-
J. Protective Response

Planning Standard

A range of protective actions have been developed for the plume exposure path-,

way EPZ for emergency workers and the public. Guidelines for the choice of

protective actions during an emergency, consistent with Federal guidance, are

developed and in place, and protective actions for the ingestion exposure path--;

way EPZ appropriate to the locale have been developed.

Evaluation Criteria

2. Each licensee and the offsite response organization shall make provisions .

for evacuation routes and transportation for onsite individuals to some

suitable offsite location, including alternatives for inclement.weather,

high traffic density and specific radiological conditions.

9. The offsite response organization shall establish a capability for implementing protective measures based upon protective action guides and other

criteria. The offsite response organization shall describe the means for ;

recommending protective actions to the public, for activating the alert

and notififcation system, and for notifying the public of protective action recommendations• This shall be consistent with the recommendations

of EPA regarding exposure resulting from passage of radioactive airborne

plumes (EPA-520/1-75-OO1),.and with those of DHHS/FDA regarding radioactive contamination of human food and animal feeds as published in the

Federal Register on October 22, 1982 (47 FR 47073).

10. The offsite response organization's plans to implement protective measures

for the plume exposure pathway shall include:

a. Maps showing evacuation routes, evacuation areas, preselected radio- T7

logical sampling and monitoring points, relocation centers in host

areas, and shelter areas (identification of radiological sampling

and monitoring points shall include the designations in Table J-1 of

NUREG-0654/FEMA-REP-i, Rev. 1 or an equivalent uniform system described •

in the offsite plan);

b. Maps showing population distribution around the nuclear facility.

This shall be by evacuation areas (licensees shall also present the

information in a sector format);

c. Means for notifying all segments of the transient and resident,

population;

d. Means for protecting those persons whose mobility may be impaired

due to such factors as institutional or other confinement. These

means shall include notification, support and assistance in implementing protective measures where appropriate;

e. Provisions for the use of radioprotective drugs, particularly for

emergency workers and institutionalized persons within the plume

exposure EPZ whose immediate evacuation may be infeasible or very

difficult, including quantities, storage, and means of distribution;

-18- t
f. The offsite response organization's plans should include the method

by.which, decisions by the State Health Department for administering

radioprotective drugs to the general population can be made during an

.,emergency. The plan shall adopt the method used by the State where

such a method is available. The plans shall provide for advising

.. State Health Departments regarding such decisions; and the predetermined condition under which such drugs may be used by offsite emergency

workers;,

g. Means of relocation;

h. 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 (see J.12.);

i. Projected traffic capacities of evacuation routes under emergency

conditions;

j. Control of access to evacuated areas and organization responsibilities for such control;

k. Identification of and means for dealing with potential impediments

(e.g., seasonal impassability of roads) to use of evacuation routes,

and contingency measures;

1. Time estimates for evacuation of various sectors and distances based

on a dynamic analysis (time-motion study under various conditions)

for the plume exposure pathway emergency planning zone (see Appendix 4, NUREG-0654/FEMA-REP-1, Rev. 1); and

m. 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. 2

'See DHHS Federal Register notice of July 24, 1985 (50 FR 30258) entitled

Federal Policy on Distribution of Potassium Iodide Around Nuclear Power Sites

for Use as a Thyroid Blocking Agent.

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

(1) "Public Protection Strategies for Potential Nuclear Reactor Accidents"

Sheltering Concepts with Existing Public and Private Structures" (SAND

77-1725), Sandia Laboratory.

,(2) "Examination of Offsite Radiological Emergency Measures for Nuclear Reactor

Accidents Involving Core Melt" (SAND 78-0454), Sandia Laboratory.

(3) "Protective Action Evaluation Part II, Evacuation and Sheltering as Protective Actions Against Nuclear Accidents Involving Gaseous Releases"

(EPA 520/1-78-001B). U.S. Environmental Protection Agency.

-19-
11. The offsite response organization shall specify the protective, measures • to be used for the ingestion pathway, including the methods for protecting the public from consumption of.contaminated foodstuffs. This shall 7

include criteria for deciding whether dairy animals shall be put on

stored feed. The offsite plan shall identify procedures for detecting

contamination, for estimating the dose commitment consequences of uncontrolled ingestion, and for imposing protection procedures such as impound-'i

ment, decontamination, processing, decay, product diversion, and preservation. Maps for recording survey and monitoring data, key land use data

(e.g., farming), dairies, food processing plants, water sheds, water supply

intake and treatment plants and reservoirs shall be maintained. Provisions

for maps showing detailed crop information may be by including reference to

their availability and location and a plan for their use. The maps shall

start at the facility and include all of the 50-mile ingestion pathway EPZ.

Up-to-date lists of the name and location of all facilities which regularly

process milk products and other large amounts of food or agricultural

products originating in the ingestion pathway Emergency Planning Zone, but

located elsewhere, shall be maintained.

12. The offsite response organization shall describe the means for registering .and monitoring of evacuees at relocation centers in host areas. The

personnel and equipment available shall be capable of monitoring within

about a 12-hour period all residents and transients in the plume exposure

EPZ arriving at relocation centers..

-20-
K. Radiological Exposure Control

Planning Standard

Means for controlling radiological exposures, in an emergency, are established

for emergency workers. The means for controlling radiological exposures shall

include exposure guidelines consistent with EPA Emergency Worker and Lifesaving

Activity Protective Action Guides.

Evaluation Criteria

3. a. The offsite response organization shall.make provision for 24-hourper-day capability to determine the doses received by emergency

personnel involved in any nuclear accident, including volunteers who

are part of the offsite response organization. They shall also make

provisions for distribution of dosimeters, both self-reading and

permanent record devices.

b. The offsite response organization shall ensure that dosimeters are

read at appropriate frequencies and provide for maintaining dose

records for emergency workers involved in any nuclear accident.

4. The offsite response organization shall establish the decision chain for

authorizing emergency workers to incur exposures in excess of the EPA

General Public Protective Action Guides (i.e., EPA PAGs for emergency

workers and lifesaving activities).

5. a. The offsite response organization, as appropriate, shall specify

action levels for determining the need for decontamination.

b. The offsite response organization, as appropriate, shall establish

the means for radiological decontamination of emergency personnel

wounds, supplies, instruments and equipment, and for waste disposal.

-21-
L. Medical and Public Health Support

Planning Standard

Arrangements are made for medical services for contaminated injured individuals.

Evaluation Criteria

1. The offsite response organization shall arrange for local and backup

hospital and medical services having the capability for evaluation of

radiation exposure and uptake, including assurance that persons providing these services are adequately prepared to handle contaminated individuals.

3. The offsite response organization shall'develop lists indicating the

location of public, private and military hospitals and other emergency

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 capacities and any special radiological capabilities. These

emergency medical services should be able to radiologically monitor contamination personnel, and have facilities and trained personnel able to

care for contaminated injured persons..

4. The offsite response organization shall arrange for transporting victims

of radiological accidents to medical support facilities.

'The availability of an integrated emergency medical services system and a

public health emergency plan serving the area in which the facility is located

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

Health Disaster Plans, 1974, and to the requirements of an emergency medical

services system as outlined in the Emergency Medical Services System Act of

1973 (PL 93-154 and amendments in 1979 PL 96-142), should be a part of and consistent with overall State or local disaster control plans and should be compatible with the specific overall emergency response plans for the facility.

-22-
M. Recovery and Reentry Planning and Postaccident Operations

Planning Standard

General plans for recovery and reentry are developed.

Evaluati on Criteria

1. The offsite response organization, as appropriate, shall develop general

plans and procedures for reentry and recovery and describe the means by

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

evacuated area) are reached. This process should consider both existing

and potential conditions.

3. The offsite plan shall specify means for informing members of the offsite

response organization that a recovery operation is to be initiated, and

of any changes in the organizational structure that may occur.

4. The offsite plan shall establish a method for periodically estimating.

total population exposure.

-23-
N. Exercises and Drills

Planning Standard

Periodic exercises are (will be) conducted to evaluate major portions of emergency response capabilities, periodic drills are (will be) conducted to

develop and maintain key skills, and deficiencies identified as a result of

exercises or drills are (will be) corrected.

Evaluation Criteria

1. a. An exercise is an event that tests the integrated capability and a

major portion of the basic elements existing within emergency preparedness plans and organizations. The emergency preparedness

exercise shall simulate an emergency that results in offsite radiological releases which will require response by offsite response

organizations. Exercises shall be conducted as set forth in NRC and

FEMA rules.

b. An exercise shall include mobilization of offsite response organization resources adequate to verify the capability to respond to an

accident scenario requiring response. This includes the demonstration

of offsite response organization capabilities to interface with nonparticipating State and local government. The offsite response

organization shall provide for a critique of the biennial exercise by

Federal and offsite response organization observers/evaluators. The

scenario should be varied from exercise to exercise such that all

major elements of the plans and preparedness organizations are tested

within a six-year period. Each organization should make provisions

to start an exercise between 6:00 p.m. and 4:00 a.m. Exercises should

be conducted during different seasons of the year. At least one

exercise shall be unannounced.

2. A drill is a supervised instruction period aimed at testing, developing

and maintaining skills in a particular operation. A drill is often a

component of an exercise. A drill shall be supervised and evaluated by a

qualified drill instructor. The offsite response organization shall

conduct'drills, in addition to the biennial exercise at the frequencies

indicated below:

a. Communication Drills

Communications between the licensee and the offsite response organization within the plume exposure pathway Emergency Planning Zone shall

be tested monthly. Communications with Federal emergency response

organizations and offsite response organizations within'the ingestion

pathway shall be tested quarterly. Communications between the nuclear

facility, offsite response organization's operations centers, and

field assessment teams shall be tested annually. Communication

drills shall also include the aspect of understanding the content of

messages. If practicable, attempts should be made to include nonparticipating organizations in the monthly communications drills.

-24-
c. Medical Emergency Drills

A medical emergency drill involving a simulated contaminated individual which contains provisions for participation by the local support

services agencies (i.e., ambulance and offsite medical treatment

facility) shall be conducted annually. The offsite portions of the

medical drill may be performed as part of the required biennial

exercise.

d. Radiological Monitoring Drills

Plant environs and radiological monitoring drills (onsite and offsite) shall be conducted annually. These drills shall include

collection and analysis of all sample media (e.g., water, vegetation,

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

Where appropriate, local organizations shall participate.

e. Health Physics Drill

Health Physics drills shall be conducted semi-annually which involve

response to, and analysis of, simulated elevated airborne and liquid

samples and direct radiation measurements in the environment.

3. The offsite response organization shall describe how exercises and

drills are to be carried out to allow free play for decisionmaking and to

meet the following objectives. Pending the development of exercise

scenarios and exercise evaluation guidance by NRC and FEMA the scenarios

for use in exercises and drills shall include but not be limited to the

following:

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

evaluation criteria;

b. The date(s), time period, place(s) and participating organizations;

c. The simulated events;

d. A time schedule of real and simulated initiating events;

e. .•arrative i summary describing the conduct of the exercises or

Urills to include such things as simulated casualties, offsite fire

department assistance, rescue of personnel, use of protective clothing, deployment of radiological monitoring teams, and public information activities; and

f. A description of the arrangements for and advance materials to be

provided to official observers.

4. Official observers from Federal government and the offsite response

organization shall observe, evaluate, and critique the required exer- [ . cises. A critique shall be scheduled at the conclusion of the exercise

to evaluate the ability of organizations to respond as called for in the

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

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

-25-

I.
5. The offsite response organization shall establish means for evaluating

observer and participant comments on areas needing improvement, including

emergency plan procedural changes, and for assigning responsibility for

implementing corrective actions. The offsite response organization

shall establish management control used to ensure that corrective

actions are implemented.

6. The offsite response organization shall attempt to involve the nonparticipating State and local governments in the exercises and drills,

but their participation is not required.

,it~

-26-
0. Radiological Emergency Response Training

Planning Standard

Radiological emergency response training is provided to those who may be

called on to assist in an emergency.

Evaluation Criteria

1. The offsite response organization shall assure the training of appropriate individuals. The offsite response organization shall participate in

and receive training. Where mutual aid agreements exist between local

agencies such as fire, police and ambulance/rescue, the training shall

also be offered to the other departments who are members of the mutual aid

district. 1

4. The offsite response organization shall establish a training program for

instructing and qualifying personnel who will implement radiological emergency response plans. 2 The specialized initial training and periodic

retraining programs (including the scope, nature and frequency) 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;

!Training for hospital personnel., ambulance/rescue, police and fire department

shall include the procedures for notification, basic radiation protection, and

their expected roles. For those local services support organizations who will

enter the site, training shall also include site access procedures and the

identity (by position and title) of the individual in the onsite emergency organization who will control the organizations support activities. Offsite

emergency response support personnel should be provided with appropriate identification cards where required.' 2If the offsite response organization lacks the capability and resources to

accomplish this training, they may look to the licensee and the Federal government (FEMA) for assistance in this training.

-27.-

:i)h)i
d. Police, security and fire fighting personnel;

f. First aid and rescue personnel;

g. Local support services personnel including Civil Defense/Emergency

Service personnel;

h. Medical support personnel;

j. Personnel responsible for transmission of emergency information and

instructions; and

k. Liaison personnel responsible for interfacing with State and local

responders.

5. The offsite response organization shall provide for the initial and

annual retraining of personnel with emergency response responsibilities..

6. The offsite response organization shall offer training to non-participating . State and local governments and other organizations.

-28-

-28-
P. Responsibility for the Planning Effort: Development, Periodic Review and

Distribution of Emergency Plans

Planning Standard

Responsibilities for plan development and review and for distribution of emergency plans are established, and planners are properly trained.

Evaluation Criteria

1. The offsite response organization shall provide for the training of individuals responsible for the offsite planning effort.

.2. The offsite response organization shall identify by title the individual

with the overall authority and responsibility for radiological emergency

response planning.

3. The offsite response organization shall designate an Emergency Planning

Coordinator with responsibility for the development and updating of emergency plans and coordination of these offsite plans with other response

organizations.

4. The offsite response organization shall update its, plan and agreements

as needed, review and certify it to be current on an annual basis. The

update shall take into account changes identified by drills and

exercises.

5. The offsite emergency response plans and approved changes to the plans

shall be forwarded to all participating organizations and appropriate

individuals with responsibility for implementation of the plans. Revised

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

6. The offsite plan shall contain a detailed listing of supporting plans

and their source.

7. The offsite plan shall contain as an appendix listing, by title, procedures required to implement the offsite plan. The listing shall include

the section(s) of the offsite plan to be implemented by each procedure.

8. The offsite plan shall contain a specific table of contents. Plans submitted for review should be cross-referenced to these criteria.

10. The offsite response organization shall provide for updating telephone

numbers in emergency procedures at least quarterly.

11. The offsite response organization shall provide copies of the offsite plan

and its revisions to non-participating State and local government entities

where interfaces are identified in Planning Standard A.

-~ '~_29-
NIIP r•mM - -- II I

NRCM 1102,

3201, 3202

Ul.S. IIIl,,,,~ L.A. -0 t.• w•b••

BIBLIOGRAPHIC DATA SHEET

I REPORT NUMBER (Auigonadhy r0C, add Vol. No., ifanyl

NUREG-0654

FEMA-REP-1 SEE INSTRUCTIONS ON THE REVERSE. Rev. 1. SuDD. 1 2

. TITLE AND SUBTITLE Criteria for Preparation and Evaluation of 3. LEAVE BLANK

Radiological Emergency Response Plans and Preparedness in

Support of Nuclear Power Plants: Criteria for Utility 4. DATE REPORT COMPLETED

Offsite Planning and Preparedness MONTH YEAR

5. AUTHORIS) August 1988

8 DATE REPORT ISSUED

E.M. Podolak, Jr./NRC MONTH " YEA'

M.E. Sanders, V.L. Wingert, R.W. Donkovan/FEMA September . 1988-I

7. PERFORMING ORGANIZATION NAME AND MAILING AODRESS (fnaclugVZ C&*e S. PROJECT/TASK/WORK UNIT NUMBER

NRC/FEMA Task Force ;FIO :RNNUB

Nuclear Regulatory Commission . FIN OR GRANT NUMBER.

Washington, D.C. 20555.

10. SPONSORING ORGANIZATION NAME AND MAILING ADDRESS lkncludaei Cod) a*j 1.TYPE OP REPORT,

NRC/FEMA Task Force ~.iGuidnc Repr...-

Nuclear Regulatory Commission bý PERIOD COVERED 1hwiusivoldalu.......

Washington, D.C. 20555 ~.

12. SUPPLEMENTARY NOTES ~ ,t~

13. ABSTRACT 1200 *fdao, ejpt

This document has been developed for use in revieWing and evaluating' utility-p ared,::.

offsite emergency plans and preparedness. The documenti is intended 'tobe usedI,with'.ý

Section 1 and Appendices 1-5 of the existing NUREG-0654/FEMA-'RIEP-`1, Rev-. 1. The6 do&6mnt

was previously issued in draft for interim use and to invite puici review,&id cpoment.i h 

Changes have been made to this final document where appropr atei. A notlce, has,,been

provided in the Federal Register. Except where specifically modified-,the'exs'tingr .. licensee-only evaluation criteria of the current Section II arehnot•fAfected by thi

document. For those situations in which State and/or local goverhmeits are participati'n

in the emergency planning process, the existing NUREG-0654/FEMA-REP-1 Rev. ,1 'evaluationi

criteria will apply.

T-. 14. DOCUMENT ANALYSIS - a. KEYWORDSIDESCRIPTORS

emergency preparedness

radiological emergency planning

radiological emergency

emergency response plans

b. IDENTIFIERS/OPEN.ENDED TERMS

radiological emergency response plans

lE AVAILABILITY

STATEMENT

Unl imi ted

16. SECURITY CLASSIFICATION

Unclassi fi ed

Unclassified

17. NUMBER OF PAGES

18. PRICE

.1