U.S. NUCLEAR REGULATORY COMMISSION MANAGEMENT DIRECTIVE (MD)

MD 8.8 MANAGEMENT OF ALLEGATIONS DT-10-17

Volume 8: Licensee Oversight Programs

Approved By: Gregory B. Jaczko, Chairman

Date Approved: November 15, 2010

Expiration Date: November 15, 2015

Issuing Office: Office of Enforcement

Contact Name: David J. Vito

301-415-2319

EXECUTIVE SUMMARY

Directive and Handbook 8.8 describe NRC’s policies and procedures for handling allegations 

associated with NRC-regulated activities. NRC employees are required to adhere to the 

policy and procedures for handling allegations set forth in this directive and any applicable 

regional or headquarters office implementing procedures. In case of conflict between this 

directive and regional or headquarters office procedures, this directive takes precedence.

This revision incorporates changes desired by NRC management and changes in 

organizational responsibility. This revision also addresses Commission direction in the 

following Office of the Secretary (SECY) staff requirements memoranda (SRM):

• SECY-02-0166 regarding the handling of discrimination issues;

• SECY-04-0020 regarding the sensitivity of security information;

• SECY-04-0044 regarding the use of Early Alternative Dispute Resolution (Early ADR) 

with regard to allegations of discrimination;

• SECY-02-0163 regarding staff responsiveness to alleger responses after allegation 

closure;

• SECY-07-0032 regarding correspondence with allegers on security-related concerns;

• SECY-04-0191 related to Regulatory Issue Summary (RIS) RIS-05-026, which 

discusses control of sensitive unclassified non-safeguards information related to 

nuclear power reactors;

• SECY-05-101 related to RIS-05-031, which discusses control of security-related sensitive 

unclassified non-safeguards information handled by individuals, firms, and entities subject 

to NRC regulation of the use of source, byproduct, and special nuclear material;

• COMSECY-08-009 regarding recommended actions for allegation process 

modification put forth by a Senior Executive Review Panel formed to evaluate lessons 

learned from the handling of allegations related to security officer inattentiveness; and 
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• SRM-M100119 regarding the outcome of a Commission briefing on the NRC 

enforcement and allegation programs, dated February 18, 2010.

Also incorporated are changes prescribed in allegation guidance memoranda (AGMs) issued 

since the last revision of the management directive in February 1999 (specifically

AGMs 2000-001, 2003-001, 2004-002, 2004-003, 2004-003 (Revision 1), 2005-001, 

2007-001, 2008-001, and 2008-001 (Revision 1)).

The handbook has been streamlined. Specific details related to allegation process 

implementation and practice, such as correspondence templates or situational examples,

have been transferred to a separate Allegation Manual, which will be maintained by the Office 

of Enforcement (OE) on the NRC internal Web site, http://www.internal.nrc.gov/OE.

TABLE OF CONTENTS

I. POLICY..............................................................................................................................3

A. Managing Allegations ...................................................................................................3

B. Addressing Potential Procedural Conflicts ....................................................................3

II. OBJECTIVES ....................................................................................................................3

III. ORGANIZATIONAL RESPONSIBILITIES AND DELEGATIONS OF AUTHORITY...........5

A. Commission..................................................................................................................5

B. Executive Director for Operations (EDO) ......................................................................5

C. Deputy Executive Director for 

Materials, Waste, Research, State, Tribal, and 

Compliance Programs (DEDMRT)................................................................................6

D. Office of the General Counsel (OGC) and the Regional Counsel..................................6

E. Office of the Inspector General (OIG) ...........................................................................6

F. Director, Office of Information Services (OIS)...............................................................7

G. Director, Office of Investigations (OI)............................................................................7

H. Director, Office of Enforcement (OE) ............................................................................7

I. Director, Office of Federal and State Materials and 

Environmental Management Programs (FSME)............................................................8

J. Regional Administrators and Headquarters Office Directors .........................................8

K. Agency Allegation Advisor (AAA)................................................................................10

L. Office Allegation Coordinator (OAC)...........................................................................11

IV. APPLICABILITY ..............................................................................................................12

V. DIRECTIVE HANDBOOK ................................................................................................12

VI. REFERENCES.................................................................................................................13
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I. POLICY

A. Managing Allegations

It is the policy of the U.S. Nuclear Regulatory Commission to manage allegations 

concerning NRC-regulated activities in order to accomplish the following:

— Encourage individuals to identify concerns associated with NRC-regulated activities1

— Protect the identities of individuals, where appropriate and possible, to preclude 

potential harassment, intimidation, or retaliation by employers against individuals 

who raise concerns to NRC or stigmatization by coworkers or members of the public. 

to their employers or to NRC. 

— Determine the validity and safety significance of allegations associated with 

NRC-regulated activities and, where appropriate, pursue feedback from 

responsible parties. 

— Immediately respond to an allegation involving an Overriding Safety Issue (OSI).

— Acknowledge the receipt of allegations and inform individuals who make allegations, 

where appropriate and possible, of NRC’s evaluation and conclusions regarding their 

concerns. 

— Investigate allegations of potential wrongdoing. 

— Request information from licensees or other affected persons/organizations 

regarding selected allegations, if appropriate. 

— Provide input to agency efforts to monitor whether licensees promote a work 

environment conducive to employees raising safety concerns through the trending of 

allegations. Insight is also gained from reviews of licensee employee concerns 

programs, licensee self-assessments, and observations by NRC inspectors.

B. Addressing Potential Procedural Conflicts

This directive takes precedence in case of conflict between this directive and regional or 

headquarters office procedures.

II. OBJECTIVES

— To ensure that NRC employees adhere to the policy and procedures for handling 

allegations set forth in this directive and any applicable regional or headquarters office 

implementing procedures.

— To ensure that individuals making allegations are treated professionally, are encouraged 

to provide information, and receive timely feedback by way of correspondence, 

telephone discussions, and visits, as appropriate.

 

1 For the purposes of this directive, concerns associated with NRC-regulated activities involve 

those affecting the agency’s strategic goals of safety and security.
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— To ensure that the identity of an alleger is not disclosed outside the agency unless one 

of the following applies:

• The alleger has clearly indicated no objection to being identified, and releasing the 

alleger’s identity is necessary to evaluate the allegation, or otherwise serves the 

needs of the agency.

• Disclosure is necessary because of an OSI (see definition of OSI issue in Section VI, 

“Glossary,” of Directive Handbook 8.8).

• Disclosure is necessary pursuant to an order of a court or NRC adjudicatory authority 

or to inform Congress or State or Federal agencies in furtherance of NRC 

responsibilities under law or public trust.

• Disclosure is necessary to further a wrongdoing investigation.

• An investigation involves a matter of alleged discrimination.

• Disclosure is necessary to support a hearing on an enforcement matter.

• Disclosure is mandated by the Freedom of Information Act (FOIA).

• The alleger has taken actions that are inconsistent with and override the purpose of 

protecting his or her identity.

— To ensure that allegers filing a discrimination complaint are informed that a personal remedy 

may be available to them through the Department of Labor (DOL) for any discriminatory 

practices by their employers (or former/prospective employers) for engaging in protected 

activity under Section 211 of the Energy Reorganization Act of 1974 (ERA), as amended. 

— To ensure that, as an alternative to an investigation by the NRC Office of Investigations (OI), 

allegers who establish a prima facie showing of potential discrimination for engaging in 

protected activity are offered the opportunity to engage in mediation with their employer (or 

former/prospective employer) through the NRC’s Early Alternative Dispute Resolution (Early 

ADR) program or through a licensee’s internal dispute resolution program as a means of 

obtaining issue resolution, and that the alleger understands that the timeliness requirement 

for filing a complaint with DOL (180 days) is not altered by the NRC’s Early ADR program.

— To ensure that the following types of procedures are established and followed:

• Procedures for notifying OI of matters that involve potential wrongdoing; and

• Procedures for the initiation, prioritization, and termination of resulting OI 

investigations.

— To ensure that allegations are properly documented, assigned for evaluation, assessed 

for safety significance, and evaluated in accordance with this directive. 

— To ensure that concerns pertaining to Agreement State licensees that are not under 

NRC jurisdiction are provided to the appropriate regional office and referred to the 

affected Agreement State through the Regional State Agreement Officer (RSAO). 

— To ensure that matters related to occupational health and safety are referred to the 

responsible licensee and to DOL’s Occupational Safety and Health Administration 

(OSHA), as appropriate, in accordance with NRC Inspection Manual Chapter (IMC) 1007.
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— To ensure that concerns processed as allegations as defined in Section VI, “Glossary,”

of Directive Handbook 8.8 are entered into and tracked by the Allegation Management 

System (AMS) database.

— To ensure that each action office—

• Maintains current and accurate information on assigned allegations in the official 

agency record (OAR) and through the AMS.

• Shares the information with other headquarters and regional offices on a 

need-to-know basis.

III. ORGANIZATIONAL RESPONSIBILITIES AND DELEGATIONS OF AUTHORITY

A. Commission

1. Approves, as appropriate, the revocation of the confidentiality agreement for an 

alleger who has been granted confidential source status (see Section IV.C.1 of 

Directive Handbook 8.8). 

2. Approves, as appropriate, the release of the identity of an alleger who has been 

granted confidential source status. For the circumstances under which the identity of 

an alleger who has been granted confidential source status may be revealed, refer to 

Section IV.E of Directive Handbook 8.8.

3. Provides guidance when NRC is considering investigating the character or suitability of 

an entity under NRC’s statutory authority. (This also applies to the personnel of such 

entity.) The Commission provides such guidance when the matter being considered for 

investigation is unrelated to a violation of NRC regulatory requirements.

B. Executive Director for Operations (EDO)

1. Establishes policy and procedures for receiving, tracking, processing, and evaluating 

allegations. 

2. Establishes the policy for initiating, assigning priority, and terminating OI 

investigations. 

3. Resolves differences with regard to the need for and the prioritization of OI 

investigations that cannot be resolved by the Deputy Executive Director for Materials, 

Waste, Research, State, Tribal, and Compliance Programs (DEDMRT). 

4. Develops the policy for protecting the identity of allegers, including those allegers 

who have been granted confidential source status under a confidentiality agreement.

5. Approves, as appropriate, the release of the identity of an alleger who has been granted 

confidential source status by the EDO or offices reporting to the EDO. For the 

circumstances under which the identity of an alleger who has been granted confidential 

source status may be revealed, refer to Section IV.E of Directive Handbook 8.8.

6. Designates those persons who may grant confidential source status to an alleger or 

who may further delegate the authority to do so. 
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7. Approves, as appropriate, the revocation of the confidentiality agreement for an 

alleger who has been granted confidential source status by the EDO or offices 

reporting to the EDO (see Section IV.C.1 of Directive Handbook 8.8). 

8. Approves allegation guidance memoranda (AGMs) providing interim policy guidance, 

as necessary, between revisions of this management directive (MD).

C. Deputy Executive Director for Materials, Waste, Research, State, Tribal, and 

Compliance Programs (DEDMRT)

1. Resolves any difference over need, priority, and schedules for investigations that 

cannot be resolved at the office level with the Director of OI and the director of the 

responsible office. 

2. Oversees the development of agency guidance related to the handling of allegations 

and the initiation, prioritization, and termination of investigations of allegations of 

wrongdoing or discrimination by other than NRC employees and NRC contractors.

D. Office of the General Counsel (OGC) and the Regional Counsel

1. Provide legal counsel on selected matters regarding interactions with allegers and 

the processing of allegations. 

2. Provide assistance, as requested, to the action office in preparing notifications to the 

Atomic Safety and Licensing Board Panel (ASLBP). See definition of action office in 

Section VI, “Glossary,” of Directive Handbook 8.8.

3. Provide legal counsel, as requested, on confidentiality agreements, FOIA and 

Privacy Act requests, AGMs, claims of discrimination (prima facie showing 

assessment), determinations of willfulness, determinations regarding the existence of 

a violation, and other matters.

4. Review the regulatory basis, as requested, for investigations to be conducted by OI.

5. Designate a point of contact for providing advice to the Agency Allegation Advisor 

(AAA) on NRC witnesses and positions relevant to DOL litigation (OGC authority only).

6. Review settlement agreements reached through the Early ADR program, a 

licensee’s internal dispute resolution program, as well as those provided to NRC by 

DOL involving claims of discrimination for restrictive language contrary to NRC 

employee protection regulations (OGC authority only).

E. Office of the Inspector General (OIG)

Investigates complaints of fraud, waste, abuse, or misconduct by NRC staff or 

contractors as well as complaints of mismanagement of agency programs.
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F. Director, Office of Information Services (OIS)

1. Provides data processing support to maintain the AMS.

2. Provides data processing assistance to the AAA, including continuing development, 

enhancement, and modification of the AMS to meet changing needs.

3. Provides FOIA and Privacy Act policy advice, as necessary, to assist OI and the 

Office of Enforcement (OE) in complying with FOIA and Privacy Act requests.

G. Director, Office of Investigations (OI)

1. Investigates allegations of wrongdoing or discrimination by other than NRC 

employees and NRC contractors as requested by the Commission, on OI’s initiative, 

or as advised by staff.

2. Implements the policy for initiating, assigning priority, and terminating investigations.

3. Implements, in conjunction with the EDO, the policy for protecting alleger identity 

(including the identity of those allegers who have been granted confidential source 

status pursuant to a confidentiality agreement).

4. Ensures that every effort is made to protect the identity of an alleger unless identity 

disclosure is necessary to conduct a wrongdoing investigation as delineated in 

Section II of this directive.

5. Coordinates investigations with Federal, State, and local law enforcement agencies, 

as necessary.

6. Approves, as appropriate, the revocation of the confidentiality agreement for an 

alleger who has been granted confidential source status by OI (see Section IV.C.1 of 

Directive Handbook 8.8). 

7. Seeks Commission guidance before initiating a full investigation relating to the 

character or integrity of an individual in instances in which the character or suitability 

aspects of the matter being considered for investigation are unrelated to a violation 

of NRC regulatory requirements. 

8. Informs the Department of Justice (DOJ) of the results of substantiated investigations and 

provides interface and support, as requested, when DOJ seeks criminal prosecution.

H. Director, Office of Enforcement (OE)

1. Appoints the AAA. 

2. Proposes agencywide policy and procedures regarding the processing of allegations 

to the EDO for approval. 

3. Approves AGMs providing interim guidance on implementation of existing allegation 

program policy, as necessary, between revisions of this MD. 

4. Monitors DOL’s activities as they relate to Section 211 of the ERA, as amended. 
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5. Administers, or delegates the administration of, enforcement actions taken as a 

result of substantiated allegation concerns.

6. Coordinates civil enforcement actions on the basis of investigations involving DOJ. 

7. Administers the Early ADR program.

I. Director, Office of Federal and State Materials and Environmental Management 

Programs (FSME)

1. Reviews each Agreement State program to ensure that it includes provisions for 

handling allegations and other concerns related to Agreement State licensee activities.

2. Monitors activities conducted by Agreement States regarding allegations and other 

concerns involving Agreement State licensees.

3. Assesses, on a periodic basis, Agreement State performance in response to allegations 

and other concerns that have been referred to the Agreement States for resolution.

4. Reviews concerns asserting performance problems or wrongdoing on the part of 

Agreement State officials or staff (such matters are not processed as allegations).

5. Supports the Office of International Programs (OIP) with the processing of 

allegations related to that office.

J. Regional Administrators and Headquarters Office Directors

1. Implement the organizational responsibilities noted in Sections III.J.3 and III.J.4 

below related to allegation training and alleger identity protection, which apply to all 

regional and headquarters offices.

2. In addition to the regional offices, the following NRC line and staff offices also 

implement the responsibilities noted in Sections III.J.5 through III.J.15 because these 

offices have an increased likelihood of receiving allegations:

(a) OE,

(b) FSME, 

(c) OGC,

(d) OI,

(e) OIP,

(f) The Office of Nuclear Material Safety and Safeguards (NMSS),

(g) The Office of New Reactors (NRO),

(h) The Office of Nuclear Reactor Regulation (NRR),

(i) The Office of Nuclear Regulatory Research (RES), and 

(j) The Office of Nuclear Security and Incident Response (NSIR).
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3. Ensure, through initial and periodic refresher training, and through the development 

of guidance documentation, as appropriate, that staff are aware of and follow the 

NRC’s policy and procedures for receiving, tracking, processing, and evaluating 

allegations. Ensure that all regional and headquarters office staff who perform work 

involving NRC-regulated activity and/or who have the opportunity to periodically 

interface with NRC licensee personnel or external stakeholders receive allegation 

refresher training at least annually. 

4. Ensure that all staff protect the identity of allegers (including those allegers who have 

been granted confidential source status). Implement the Commission’s policy 

statement on confidentiality and approve confidentiality agreements as delegated by 

the EDO or the Director of OI in accordance with Commission policy. 

5. Appoint an Office Allegation Coordinator (OAC) and establish an Allegation Review 

Board (ARB) for each allegation, as appropriate (see definitions of OAC and ARB in 

Section VI, “Glossary,” of Directive Handbook 8.8). [Note: OGC, OI, and OE are not 

required to appoint an OAC as they are not considered action offices for the 

purposes of this directive.] Other headquarters offices should appoint an OAC and 

establish an ARB if it is deemed that their mission so requires. After receiving an 

allegation, staff in headquarters offices that do not retain an OAC shall transfer the 

allegations to an assigned responsible OAC in an action office, who shall coordinate 

and track the actions taken in response to the allegation (e.g., NSIR-related 

allegation processing is coordinated by the NRR OAC, and OIP-related allegation 

processing is coordinated by the FSME OAC).

6. Ensure that allegation-related information is only provided to individuals in the action 

office with a need to know. In addition to the notification of staff that are assigned

allegation followup action, the responsible NRC manager, in coordination with the 

OAC, will ensure that resident inspectors are informed about open allegations and 

past allegation trends related to their assigned facility and that non-resident 

inspectors are informed about open allegations and past allegation trends pertaining 

to areas to be inspected and other areas, as appropriate.

7. As the action office, determine the safety significance and generic safety implications 

of the allegation, if any, and evaluate the allegation appropriately and as promptly as 

resources allow and before any applicable licensing decision date. Ensure that 

technical allegation concerns that possess generic safety implications are transferred 

to the OAC for the responsible headquarters office for action and disseminated to 

other affected regional and headquarters offices for information, as appropriate.

8. Ensure that safety-significant allegations are promptly reviewed and take any actions 

necessary to address an OSI. 

9. Ensure that allegations concerning NRC licensees, license or certificate applicants, 

or other affected organizations are reviewed for possible notification of the ASLBP

and transferred, if applicable, to the responsible headquarters office. The responsible 

headquarters office will make the ASLBP notification when required. 

10. Review the status and resolution of any allegations that are related to a proposed 

licensing or escalated enforcement action to determine their effect. 
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11. Approve the release of an alleger’s identity (unless the alleger has been granted 

confidential source status) when circumstances compel NRC to do so

(see Section II.F.12 of Directive Handbook 8.8).

12. Ensure that OI is promptly informed if an allegation involves suspected wrongdoing, 

except when NRC employees or NRC contractors are involved (see Section II.J.4(i) 

of Directive Handbook 8.8). Provide technical assistance, as requested, to OI for 

investigating allegations.

13. As the action office, monitor OI investigations of allegations to ensure that the 

investigative priority and schedule meet regulatory needs.

14. Ensure that a program self-assessment is performed in alternate years when the AAA 

is not performing an allegation program assessment at the regional or headquarters 

office. [Note: OI, OE, and OGC are not required to perform biennial self-assessments 

as they are not considered action offices for the purposes of this directive.]

15. Ensure that the RSAO monitors and assesses, as appropriate, Agreement State 

responses to allegations and other concerns that have been referred to the 

Agreement States (Regional Administrator responsibility only). 

K. Agency Allegation Advisor (AAA)

1. Oversees implementation of the agency allegation program as set forth in this 

directive.

2. Develops and implements policy and procedures related to allegations, provides this 

guidance to the regional and headquarters offices, and maintains this directive and 

the Allegation Manual.

3. Issues interim guidance in the form of AGMs, as appropriate, between revisions of 

this directive. 

4. Provides liaison with outside agencies and other NRC offices on allegation-related 

matters. 

5. Ensures that the AMS database accommodates NRC staff needs to track allegations. 

Works with OIS to provide AMS enhancements to satisfy new demands and also works 

with the regional and headquarters offices on emerging uses of AMS data. 

6. Provides or coordinates responses to assigned principal correspondence. This 

includes coordinating responses to inquiries from the following:

(a) Commission or other NRC offices,

(b) Congress (in coordination with the Office of Congressional Affairs (OCA)),

(c) The public, and

(d) Other external sources.

7. Helps develop strategy for dealing with a licensee having a significant discrimination 

allegation history through a thorough review of related documentation, including the 

results of OI and DOL investigations of discrimination allegations.
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8. Supports the regional and headquarters offices through the provision of periodic 

training on allegation handling and sensitivity.

9. Performs a biennial assessment of allegation activities conducted by each regional office 

and specified headquarters offices. (Guidance regarding the scope of and evaluation 

criteria for the biennial allegation program assessment is located in the Allegation Manual.)

10. Reports annually to the EDO on conduct of the allegation program in each regional and 

specified headquarters offices, as reflected in AAA assessments and regional or

headquarters office self-assessments, and provides an analysis of any allegation trends. 

11. Conducts OAC counterpart meetings at least annually. 

12. Serves, with OGC support, as the agency point of contact to assist persons 

requesting NRC information, positions, or witnesses relevant to DOL litigation. 

Refers requests for assistance to the appropriate contacts within NRC for review in 

accordance with applicable regulations and Commission policy. 

13. Provides input to agency efforts to evaluate whether licensees are providing a safety 

conscious work environment (SCWE) through the trending of allegations and insight 

provided by reviews of licensee employee concerns programs, licensee 

self-assessments, and NRC inspector observations. Input is provided to the regional 

offices in preparation for the Reactor Oversight Program mid-cycle and end-of-cycle 

review meetings at which the SCWE cross-cutting area is discussed 

(see NRC IMC 0305), and at other times on an as-requested basis. 

L. Office Allegation Coordinator (OAC)

1. Serves as the administrative point of contact for the processing and tracking of 

allegations assigned to the regional and headquarters offices.

2. Administers the action office’s allegation program as set forth in the following:

(a) MD 8.8,

(b) AGM,

(c) Allegation Manual, and

(d) Applicable regional or headquarters office implementing procedures.

3. Establishes and maintains files, prepares reports, and schedules and participates in 

ARB meetings.

4. Prepares and distributes ARB meeting minutes and coordinates allegation-related 

activities with the following, as appropriate:

(a) Management and responsible staff,

(b) OI,

(c) OGC, and

(d) OACs of the other action offices.
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5. Ensures that the allegation file contains all documentation provided by the alleger

and all documents used in making decisions regarding the allegation.

6. Enters and tracks allegation activities in the AMS from receipt to closure. 

7. Participates in OAC counterpart meetings.

8. Responds to FOIA and Privacy Act requests related to allegations.

9. Ensures that management and responsible staff are informed of allegations under 

their purview. Provides support to the responsible manager, such that the 

responsible manager is able to inform the resident inspectors and other inspectors, 

as appropriate, about open allegations, ARB-assigned actions, and past allegation 

trends related to areas to be inspected.

10. Responds to requests from project managers concerning allegations that involve 

topics that are also the subject of 10 CFR 2.206 petitions.

11. Ensures that allegation-related correspondence and other staff-generated 

documentation related to allegations (with the exception of OI documentation) is 

consistent with the requirements of this directive. 

12. Ensures that actions taken to evaluate allegations and effect allegation closure are 

properly documented and appropriately address the concerns provided. 

13. Provides, or supports staff in providing information to an alleger regarding the 

evaluation of his or her allegation, as appropriate, unless notifying the alleger would 

interfere with ongoing OI, OE, OIG, or DOJ activities or be detrimental to the

protection of sensitive and security-related information. 

14. Takes responsible steps, in coordination with regional management and OGC, to 

facilitate DOL’s investigation of discrimination concerns by assisting DOL in obtaining 

access to licensed facilities and any necessary security clearances. 

IV. APPLICABILITY

The policy and guidance in this directive and handbook apply to all NRC employees except 

employees of OIG. OIG has internal procedures in place to ensure that allegations received 

by OIG are transferred to the appropriate action office for processing. Matters concerning 

NRC staff or contractor misconduct under OIG purview are not processed as allegations in 

accordance with this MD. Consistent with Section II.J.4(i) of Directive Handbook 8.8, the 

agency refers such issues or concerns to OIG for its evaluation. Staff requirements for 

reporting complaints of misconduct by NRC staff or contractors, as well as complaints of 

mismanagement of agency programs to OIG, are provided in detail in MD 7.4.

V. DIRECTIVE HANDBOOK

Directive Handbook 8.8 contains policy and program guidance for the management and 

processing of allegations. OE maintains an Allegation Manual containing more detailed 

discussion of program practices on the NRC internal Web site, so that users will have 

access to the latest practice guidance and reference information.
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VI. REFERENCES

Code of Federal Regulations

10 CFR 1.12, “Office of the Inspector General.”

10 CFR 2.206, “Requests for Action Under This Subpart.”

10 CFR 2.390, “Public Inspections, Exemptions, Requests for Withholding.”

10 CFR Part 9, Subpart A, “Freedom of Information Act Regulations.”

10 CFR Part 9, Subpart B, “Privacy Act Regulations.”

10 CFR Part 9, Subpart D, “Production or Disclosure in Response to Subpoenas or 

Demands of Courts or Other Authorities.”

10 CFR 9.17, “Agency Records Exempt From Public Disclosure.”

10 CFR 19.16(a), “Requests by Workers for Inspections.”

10 CFR 19.20, 30.7, 40.7, 50.7, 52.5, 60.9, 61.9, 63.9, 70.7, 71.9, 72.10, 76.7, 

“Employee Protection,” and 150.20, “Recognition of Agreement State Licenses.”

29 CFR Part 24, “U.S. Department of Labor Procedures for Handling Discrimination 

Complaints Under Federal Employee Protection Statutes.”

Nuclear Regulatory Commission Documents

Allegation Manual, available at 

http://www.internal.nrc.gov/OE.

Allegation Guidance Memoranda (AGM)2

AGM-2000-001, “Guidance on Correspondence, Releasing Information in 

Response to Freedom of Information Act (FOIA) Requests, and Defining 

Discrimination and the Elements of a Prima Facie Case of Discrimination,” 

July 5, 2000.

—

AGM-2003-001, “Authorized Use of Hand-Delivered Commercial Carriers as an 

Alternate Means of Communicating with Allegers,” March 11, 2003.

AGM-2004-002, “Guidance on the Confirmation of Identity of Concerned 

Individuals Who Submit Allegations via the Internet,” July 29, 2004.

AGM-2004-003, “Implementation of the Alternative Dispute Resolution Pilot 

Program Within the Allegation Program,” October 15, 2004.

AGM-2004-003, Rev. 1, “Implementation of the Alternative dispute Resolution 

Pilot Program Within the Allegation Program,” April 27, 2005.

 

2 Allegation guidance memoranda (AGMs) provide interim guidance to the NRC staff. These 

AGMs have been provided as reference to reflect interim guidance issued since the last MD 

revision. These AGMs have been incorporated into this MD.
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AGM-2005-001, “Guidance on Correspondence to Licensees and Concerned 

Individuals Regarding Security-Related Concerns,” March 16, 2006.

AGM-2007-001, “Updated Guidance on Correspondence to Concerned 

Individuals Regarding Security-Related Concerns,” May 14, 2007.

AGM-2008-001,” Interim Guidance in Response to Lessons Learned from the 

Allegation Assessment of Inattentive Security Officers at Peach Bottom Atomic 

Power Station,” December 29, 2008.

AGM-2008-001, Rev. 1, “Final Guidance in Response to Lessons Learned from 

the Allegation Assessment of Inattentive Security Officers at Peach Bottom 

Atomic Power Station,” February 2, 2010.

Commission Papers (SECY)—

SECY-02-0163, “Allegation Program Survey,” September 5, 2002.

SECY-02-0166, “Policy Options and Recommendations for Revising the NRC's 

Process for Handling Discrimination Issues,” September 12, 2002.

SECY-04-0020, “Treatment of Physical Protection Under the Reactor Oversight 

Process,” February 5, 2004.

SECY-04-0044, “Proposed Pilot Program for the Use of Alternative Dispute 

Resolution in the Enforcement Program,” March 12, 2004.

SECY-04-0191, “Withholding Sensitive Unclassified Information Concerning 

Nuclear Power Reactors from Public Disclosure,” October 19, 2004.

SECY-05-0101,” Withholding from Public Disclosure Sensitive Unclassified 

Information Concerning Materials Licensees and Certification Holders,” 

June 8, 2005.

SECY-07-0032, “Recommended Staff Actions Regarding Correspondence with 

Allegers Involving Security-Related Concerns,” February 12, 2007.

COMSECY-08-009, “Report of the Senior Executive Review Panel – Peach 

Beach Bottom Lessons Learned,” March 5, 2008.

NRC Announcement No. 18, “Reporting Suspected Wrongdoing – Office of the Inspector 

General (OIG),” March 3, 1994.

NRC Enforcement Manual, Rev. 6, December 22, 2008, available at 

http://www.nrc.gov/about-nrc/regulatory/enforcement/guidance.html.

NRC Enforcement Policy, November 28, 2008, available at 

http://www.nrc.gov/about-nrc/regulatory/enforcement/enforce-pol.html.

NRC Inspection Manual, Chapter 0305, “Operating Reactor Assessment Program.”

NRC Inspection Manual, Chapter 1007, “Interfacing Activities Between Regional Offices 

of NRC and OSHA.”

NRC Inspection Manual, Chapter 1120, “Preliminary Notifications.”
MD 8.8 MANAGEMENT OF ALLEGATIONS Date Approved:11/15/2010

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NRC Inspection Procedure 71152, “Identification and Resolution of Problems.”

NRC Management Directives—

3.1, “Freedom of Information Act.”

3.2, “Privacy Act.”

3.4, “Release of Information to the Public.”

7.4, “Reporting Suspected Wrongdoing and Processing OIG Referrals.”

8.11, “Review Process for 10 CFR 2.206 Petitions.”

9.19, “Organization and Functions, Office of Enforcement.”

10.160, “Open Door Policy.”

12.2, “NRC Classified Information Security Program.”

12.4, “NRC Telecommunications Systems Security Program.”

12.5, “NRC Automated Information Security Program.”

12.6, “NRC Sensitive Unclassified Information Security Program.”

12.7, “NRC Safeguards Information Security Program.”

NRC Policy Statement, “Investigations, Inspections, and Adjudicatory Proceedings,”

49 FR 36032, September 13, 1984.

NRC Policy Statement, “Handling of Late Allegations,” 50 FR 11030, March 19, 1985.

NRC Policy Statement, “Freedom of Employees in the Nuclear Industry to Raise Safety 

Concerns Without Fear of Retaliation,” 61 FR 24336, May 14, 1996.

NRC Policy Statement, “Protecting the Identity of Allegers and Confidential Sources,”

61 FR 25924, May 23, 1996.

NUREG/BR-0313, Rev. 1, “Pre-Investigation ADR Program.”

Office of Investigations, Investigative Procedures Manual, Revised August 2006.

Staff Requirements Memorandum (SRM) M100119, “Briefing on the NRC Enforcement 

and Allegations Programs,” February 18, 2010.

United States Code

Atomic Energy Act of 1954, as amended (42 U.S.C. 2011 et seq.).

Energy Reorganization Act of 1974, as amended, Section 211, “Employee 

Protection” (42 U.S.C. 5801 et seq.).

Freedom of Information Act and Privacy Act of 1974, as amended (5 U.S.C. 552, 

5 U.S.C. 552a).

18 U.S.C., “Crimes and Criminal Procedure.”
U.S. NUCLEAR REGULATORY COMMISSION DIRECTIVE HANDBOOK (DH)

DH 8.8 MANAGEMENT OF ALLEGATIONS DT-10-17

Volume 8: Licensee Oversight Programs 

Approved By: Gregory B. Jaczko, Chairman

Date Approved: November 15, 2010

Expiration Date: November 15, 2015

Issuing Office: Office of Enforcement

Contact Name: David J. Vito

301-415-2319

EXECUTIVE SUMMARY 

Directive and Handbook 8.8 describe NRC’s policies and procedures for handling allegations 

associated with NRC-regulated activities. NRC employees are required to adhere to the 

policy and procedures for handling allegations set forth in this directive and any applicable 

regional or headquarters office implementing procedures. In case of conflict between this 

directive and regional or headquarters office procedures, this directive takes precedence.

This revision incorporates changes desired by NRC management and changes in 

organizational responsibility. This revision also addresses Commission direction in the 

following Office of the Secretary (SECY) staff requirements memoranda (SRM):

• SECY-02-0166 regarding the handling of discrimination issues;

• SECY-04-0020 regarding the sensitivity of security information;

• SECY-04-0044 regarding the use of Early Alternative Dispute Resolution (Early ADR) 

with regard to allegations of discrimination;

• SECY-02-0163 regarding staff responsiveness to alleger responses after allegation 

closure;

• SECY-07-0032 regarding correspondence with allegers on security-related concerns;

• SECY-04-0191 related to Regulatory Issue Summary (RIS) RIS-05-026, which 

discusses control of sensitive unclassified non-safeguards information related to 

nuclear power reactors;

• SECY-05-101 related to RIS-05-031, which discusses control of security-related sensitive 

unclassified non-safeguards information handled by individuals, firms, and entities subject 

to NRC regulation of the use of source, byproduct, and special nuclear material;

• COMSECY-08-009 regarding recommended actions for allegation process 

modification put forth by a Senior Executive Review Panel formed to evaluate lessons 

learned from the handling of allegations related to security officer inattentiveness; and 
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• SRM-M100119 regarding the outcome of a Commission briefing on the NRC 

enforcement and allegation programs, dated February 18, 2010.

Also incorporated are changes prescribed in allegation guidance memoranda (AGMs) issued 

since the last revision of the management directive in February 1999 (specifically 

AGMs 2000-001, 2003-001, 2004-002, 2004-003, 2004-003 (Revision 1), 2005-001, 

2007-001, 2008-001, and 2008-001 (Revision 1)).

The handbook has been streamlined. Specific details related to allegation process 

implementation and practice, such as correspondence templates or situational examples, 

have been transferred to a separate Allegation Manual, which will be maintained by the Office 

of Enforcement (OE) on the NRC internal Web site, http://www.internal.nrc.gov/OE.

TABLE OF CONTENTS

I. OVERVIEW OF THE NRC ALLEGATION PROGRAM......................................................4

A. Allegation/Alleger Definition..........................................................................................4

B. Evaluation of an Allegation ...........................................................................................4

C. Protection of Alleger’s Identity ......................................................................................5

II. ALLEGATION PROCESS..................................................................................................5

A. Methods Through Which an Allegation May Be Received.............................................5

B. Allegation Intake...........................................................................................................5

C. Matters of Potential Wrongdoing Identified by NRC Staff..............................................8

D. Concerns Involving an Agreement State Licensee........................................................8

E. Concerns Involving Agreement State Oversight............................................................8

F. Alleger Identity Protection.............................................................................................9

G. Discrimination Concerns and Department of Labor (DOL) Information .......................13

H. Processing the Received Allegation............................................................................14

I. Allegation Review Board (ARB)..................................................................................18

J. Allegation Evaluation ..................................................................................................21

K. Periodic Status Letters to Allegers..............................................................................29

L. Allegation Closure ......................................................................................................29

M. Alleger Response After Closure..................................................................................33

N. NRC Response to Fears of Retaliation .......................................................................34

O. Allegation Management System (AMS) ......................................................................34

P. Handling Allegations That May Impact Licensing or 

Certification Decisions or Allegations That Are Filed Late...........................................35

Q. Freedom of Information Act (FOIA) Requests.............................................................35
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R. Training of the NRC Staff............................................................................................36

S. Allegation Guidance Memorandum (AGM) .................................................................36

III. NRC CONTACTS FOR DEPARTMENT OF LABOR (DOL) INFORMATION...................36

A. Requests by Individuals or by DOL.............................................................................36

B. Requests for Reports From OI....................................................................................37

C. Production or Disclosure in Response to Subpoenas or Demands of 

Courts.........................................................................................................................37

D. Freedom of Information Act (FOIA) and Privacy Act ...................................................37

E. Amicus Curiae Briefs ..................................................................................................37

F. Correspondence.........................................................................................................37

IV. GRANTING AND REVOKING CONFIDENTIAL SOURCE STATUS ...............................37

A. General ......................................................................................................................37

B. Granting Confidential Source Status...........................................................................38

C. Revocation of Confidential Source Status...................................................................40

D. Withdrawal of Confidential Source Status...................................................................40

E. Official Disclosures .....................................................................................................40

V. INITIATING, PRIORITIZING, AND TERMINATING INVESTIGATIONS BY THE 

OFFICE OF INVESTIGATIONS (OI) ................................................................................42

A. Staff Requirement To Advise OI of Matters of Potential Wrongdoing..........................42

B. Submittal of Information to OI .....................................................................................43

C. Resolution of Differences............................................................................................44

D. Initiation of an Investigation by OI...............................................................................44

E. Termination of Investigations......................................................................................45

F. Resolution of Matters Returned by OI Without Investigation .......................................45

VI. GLOSSARY.....................................................................................................................45
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I. OVERVIEW OF THE NRC ALLEGATION PROGRAM

This section provides general information related to the program that manages the receipt, 

evaluation, and closure of allegations received by NRC. Additional information regarding the 

implementation of the allegation program in practice in accordance with the requirements of 

this handbook can be found in the Allegation Manual, which is a separate document 

maintained by the Office of Enforcement (OE).

A. Allegation/Alleger Definition

1. An “allegation” is a declaration, statement, or assertion of impropriety or inadequacy 

associated with NRC-regulated activities, the validity of which has not been established. 

Potential licensee wrongdoing suspected by NRC staff that prompts an investigation by 

the NRC Office of Investigations (OI) is also processed as an allegation. A more detailed 

definition including exceptions is provided in Section VI, “Glossary,” of this handbook. 

2. An “alleger” is any individual or organization that submits an allegation to NRC or 

that provides information in a public forum that is recognized as an allegation 

involving a nuclear or radiological safety matter or possible wrongdoing related to a 

nuclear or radiological safety matter.

B. Evaluation of an Allegation

1. There is no threshold for the acceptance of a concern that meets the definition of an 

allegation provided in Section VI, “Glossary,” of this handbook.

2. The type and amount of effort required to evaluate and close an allegation is 

determined by the Allegation Review Board (ARB) on a case-by-case basis.

3. Allegation evaluation is accomplished through any combination of the following:

(a) Technical review;

(b) Inspection;

(c) Evaluation of information requested from the affected licensee, or another NRC 

regional or headquarters office; or

(d) Obtaining the results of investigations or evaluations conducted by—

(i) OI,

(ii) The Department of Justice (DOJ),

(iii) The Department of Labor (DOL),

(iv) A State agency, or

(v) Another Federal agency.
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C. Protection of Alleger’s Identity

1. Alleger identity protection is an important aspect of the program. All reasonable efforts 

are taken not to disclose an alleger’s identity outside the NRC (unless NRC is compelled 

to do so for any of the reasons described in Section II.F.12(c) of this handbook), and an 

alleger’s identity is only revealed within the agency on a need-to-know basis.

2. The staff is responsible for controlling documents that could reveal an alleger’s 

identity, using applicable allegation documentation control guidance.

II. ALLEGATION PROCESS

A. Methods Through Which an Allegation May Be Received

1. Any NRC employee may receive or recognize an allegation.

2. An alleger’s concern may be made known to NRC via several methods, for example:

(a) In person,

(b) By telephone,

(c) By e-mail, or

(d) In print.

3. An allegation may also be recognized by an NRC staff member in information 

provided in a public forum including, but not limited to:

(a) Television,

(b) Radio,

(c) Newspaper,

(d) Internet, or

(e) Social media (e.g., Facebook, Twitter, blog).

B. Allegation Intake

1. If an allegation is received in person or by telephone, the NRC staff will be 

courteous, professional, and responsive to the alleger.

2. All communications with the alleger shall be documented in the allegation file.

3. Off-the-Record Information 

(a) NRC does not accept “off-the-record” information from allegers.

(b) An alleger who attempts to provide information “off-the-record” is to be advised that 

all information received by NRC is accepted officially and appropriately acted upon.
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4. Obtaining Information from an Alleger

(a) A staff member who receives an allegation in person or by telephone will attempt to 

obtain as much information as possible about the alleger’s concern(s) so that safety 

significance may be determined and to facilitate NRC review of the concern(s).

(b) If the alleger’s name and contact information is not initially provided, an effort 

should be made to obtain it so that feedback may be provided to the alleger and 

so that the alleger may be subsequently contacted if additional information is 

needed. Allegation process identity protection provisions should be provided to 

the alleger (see Sections II.F.4 and II.F.12 of this handbook).

(c) If the alleger is willing to provide his or her name and contact information, he or 

she is informed that NRC will provide feedback regarding the allegation by way of 

the responsible regional or headquarters office, that is, the action office.

(d) If an allegation is received by telephone, and the alleger is unwilling to provide 

contact information, the staff member receiving the allegation should record the 

telephone number or name or both from caller identification (caller ID), if 

available. If, after the NRC’s identity protection policy is explained to the alleger, 

the alleger still declines to provide contact information, the alleger should be 

informed that the caller ID information has been recorded by NRC for future 

reference, if needed. Specifically, the NRC staff member should pose a question 

to the alleger similar to the following:

“I understand and respect that you want to remain anonymous, but I should 

inform you that I can observe/obtain the phone number from which you are 

calling. In the rare case that we need to contact you for additional information 

about your concern(s) to ensure adequate public health and safety, would it 

be appropriate for us to call this number?”

In this instance, the allegation receipt documentation should clearly document 

that the alleger wished to remain anonymous, that NRC used caller ID to obtain 

the contact information, and the alleger’s response to the above questions.

Note: Any indication that this practice is negatively impacting the allegation 

program should be reported to the Agency Allegation Advisor (AAA).

5. Allegations Involving Security Concerns

(a) If the alleger is involved in security-related activities or has security concerns, the 

alleger is to be reminded of the proper protocol for transmitting classified or 

Safeguards Information. See Management Directive (MD) 12.2, “NRC Classified 

Information Security Program,” MD 12.4, “NRC Telecommunications Systems

Security Program,” MD 12.5, “NRC Automated Information Security Program,” and 

MD 12.7, “NRC Safeguards Information Security Program,” for additional details.

(b) If a setting is inappropriate for transmitting such information, separate 

arrangements will be made to enable proper transmittal.
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6. If the Alleger Requests No Contact with NRC

(a) On occasion, an alleger will provide contact information but request no further 

contact with the NRC. When this occurs during the intake process involving 

allegations received in person or by telephone, the employee receiving the 

allegation should explain the advantages of continued involvement in the 

allegation process (i.e., to facilitate NRC’s understanding of the concerns raised, 

to obtain additional information as needed, to afford the alleger the opportunity to 

assess and provide feedback regarding NRC’s conclusions, and to encourage 

the alleger’s continued involvement).

(b) If the request for no contact is made in writing, or it is not clear that the NRC 

employee receiving the verbal contact has explained the advantages of the alleger’s 

continued involvement in the allegation process, then the responsible branch chief, 

the Office Allegation Coordinator (OAC), or other appropriate NRC staff member will, 

as directed by the ARB, attempt an additional contact with the alleger.

(i) Such communication should be made verbally, if possible, preferably not at 

the alleger’s place of employment.

(ii) All communications with the alleger shall be documented in the allegation file.

(iii) During this discussion, the NRC staff member should remain respectful of the 

alleger’s views and comfort level with remaining engaged in the allegation process.

(c) The purpose of this additional attempt to contact the alleger is as follows:

(i) To obtain additional information related to the allegation, if needed;

(ii) To inform the alleger that the NRC is considering a Request for Information 

(RFI) from the licensee, if appropriate, and determine whether the alleger 

would have any objection to NRC issuing an RFI to the licensee; and

(iii) To explain the advantages of continued involvement in the allegation process 

and to encourage the alleger’s continued involvement.

(d) If Alleger Continues to Reject Contact with NRC

(i) Sometimes, the alleger will continue to reject contact with the NRC even after 

the additional contact from NRC is made (see Sections II.B.6(b) and II.B.6(c) 

of this handbook). 

(ii) In such cases, the contacting staff member should encourage the alleger to, 

at a minimum, accept allegation closure documentation from NRC regarding 

his or her concerns so that he/she can review NRC’s conclusions and provide 

feedback, if desired.

(iii) If the alleger reaffirms his or her desire not to participate in the allegation 

process, the agency shall honor the request and not provide the alleger with 

an acknowledgment letter or a closure letter. In this way, NRC will not 

negatively impact the alleger’s willingness to use the allegation process in the 

future. In this circumstance, an additional attempt to contact the alleger will 

not be made unless NRC determines that additional information is needed to 

ensure adequate public health and safety.
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(e) If the additional contact with the alleger is not accomplished, the basis will be 

documented in the allegation file. Specifically, the allegation file will include—

(i) Documentation that NRC was unable to contact the alleger; or

(ii) The ARB record documenting an ARB decision not to attempt an additional 

contact with the alleger.

C. Matters of Potential Wrongdoing Identified by NRC Staff

During inspection or assessment of licensee activities, NRC staff may identify matters 

that involve potential wrongdoing on the part of licensee employees or licensee contract 

employees. Such matters, although not from a source external to the NRC are also 

tracked as allegations if they prompt investigation by OI. This facilitates the action office

in its monitoring of related OI followup. Additionally, any allegation from an external 

source that asserts a failure to meet requirements may have the potential for being

willful, thus staff must be alert to any implicit issues and indicators of wrongdoing when 

reviewing such an allegation and identify them for consideration by the allegation 

program, if not identified by the alleger as a potential wrongdoing matter.

D. Concerns Involving an Agreement State Licensee

1. Individuals who contact the NRC with concerns about Agreement State licensees are 

often unaware of the Agreement State program. However, once the Agreement State 

program is explained, most individuals indicate a willingness to contact and be 

contacted directly by Agreement State personnel about the evaluation of their 

concern(s). Such matters are provided to the appropriate Regional State Agreements 

Officer (RSAO) for referral to the Agreement State and are not processed as 

allegations.

2. If the individual is unwilling to contact or to have his or her identity disclosed to the 

Agreement State, the NRC will still refer the concern(s) to the Agreement State, 

without providing the individual’s identity, and request a response. Such matters are 

entered into the allegation process and tracked to closure.

3. Additional guidance related to the handling of Agreement State licensee concerns is 

provided in the Allegation Manual.

E. Concerns Involving Agreement State Oversight

1. Concerns involving State regulatory bodies that oversee the activities of Agreement 

State licensees are not processed as allegations and include—

(a) Concerns regarding the performance of such State regulatory bodies or their 

personnel; and

(b) Concerns regarding potential wrongdoing committed by State regulatory bodies 

or their personnel.

2. If an NRC employee receives or is informed about a matter discussed in 

Section II.E.1 above, the NRC employee should promptly forward the matter to the 

Office of Federal and State Materials and Environmental Management Programs

(FSME) for evaluation outside the allegation process.
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F. Alleger Identity Protection

1. An alleger will be informed of the degree to which his or her identity can be protected 

by NRC (see Sections II.F.4 through II.F.12 of this handbook).

2. If an allegation is received in person or by telephone, information about alleger 

identity protection should be provided during the initial discussion, if possible.

3. If an allegation is received by other means (e.g., letter, electronic mail), and the 

alleger’s identity and contact information is known, the OAC, or other designated 

individual will notify the alleger by telephone (if possible), letter, or electronic mail of 

the degree to which his or her identity can be protected.

(a) This action is taken so that an alleger does not incorrectly assume that his or her 

identity is protected by NRC under all circumstances.

(b) For an alleger who has been granted confidential source status, identity 

protection is also referred to as confidentiality. See Section VI, “Glossary,” of this 

handbook for definitions of identity protection, confidentiality, and confidential 

source, and Section IV, “Granting and Revoking Confidentiality Source Status,”

of this handbook for specific detail related to the granting of confidential source 

status.

4. NRC will take all reasonable efforts not to disclose an alleger’s identity.

(a) An alleger’s identity, or information that would reveal an alleger’s identity, is not 

normally distributed or discussed among NRC staff. If discussion of alleger 

identity is necessary to evaluate an allegation, the discussion shall only involve 

staff with a need to know.

(b) Staff should be sensitive to the location of allegation-related discussions in order 

to provide reasonable assurance that sensitive allegation information is not 

disclosed to staff without a need-to-know or to non-NRC personnel.

(c) As a general rule, documents containing the alleger’s identity and information 

that could identify the alleger are maintained in the official allegation file or 

related OI investigation files, or both.

(i) When practical, the alleger’s name and other identifying information should be 

redacted from allegation documents before they are distributed outside of the 

official allegation file or related OI investigation file to assigned staff. Note: For 

example, it may be impractical to redact the transcript of a lengthy OI interview 

with an alleger which would repeat the alleger’s name many times.

(ii) Allegation file documentation must be appropriately controlled as noted in 

Sections II.H.3(b), II.H.3(c), and II.H.4 of this handbook. 

(d) OI is always made aware of an alleger’s identity if a wrongdoing or discrimination 

matter is involved or suspected, and is otherwise informed of the alleger’s identity 

as deemed appropriate. 
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5. Coordinating with the OAC, the responsible NRC manager will provide 

allegation-related information to staff who are assigned allegation followup action, 

and the responsible NRC manager will also take the following actions:

(a) Inform resident inspectors about open allegations and past allegation trends 

related to their assigned facility. Inform non-resident inspectors about open 

allegations and past allegation trends pertaining to areas to be inspected

and other areas, as appropriate. This will afford inspectors with an 

opportunity to provide information to the responsible manager and the OAC 

if the inspection effort develops information applicable to other allegation 

concerns not directly related to the areas to be inspected.

(b) Ensure that the allegation-related information provided to resident and nonresident inspectors does not include the identity of the alleger, unless doing so is 

necessary to evaluate the allegation.

6. NRC practice is to neither confirm nor deny to a licensee or the public that an 

individual is an alleger, except when compelled to disclose an alleger’s identity for 

any of the reasons indicated in Section II.F.12 of this handbook. The following 

provisions apply with regard to protecting the identity of all allegers, including those 

who have been granted confidential source status:

(a) Inspections and inspection-related documents should address relevant issues 

without acknowledging that an issue was raised in the context of an allegation.

(b) Approval of the applicable regional administrator or headquarters office director 

is required if a licensee is to be informed that an inspection activity is related to 

an allegation.

(i) The licensee is notified when it is deemed necessary during the conduct of—

• An inspection requested by a worker in accordance with 10 CFR 19.16(a); or

• An OI investigation of wrongdoing.

(ii) Sometimes, the licensee is already aware of the allegation based on an 

earlier RFI related to the allegation.

7. NRC-generated documents related to an allegation are not to include 

information that could identify an alleger, with the exception of allegation 

intake documentation, OI reports, OI interview transcripts, and letters 

addressed to the alleger.

8. Information identifying the alleger may be released to the licensee when the alleger 

has clearly indicated no objection to being identified and releasing the alleger’s 

identity is necessary to obtain resolution of the allegation or otherwise serves the 

needs of the agency.
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9. When information identifying the alleger is released to the licensee—

(a) The identity of the alleger should normally be provided to the licensee verbally 

rather than in a letter requesting information from the licensee.

(b) Written documentation of the alleger’s lack of objection to the identity release will 

be noted in the related allegation file.

10. Before information generated by OI is released to the public, OI will review and 

redact information that could identify an alleger.

11. In rare circumstances, the ARB might consider publicly identifying an issue as an 

allegation (see Section II.I.2(a)(x) of this handbook).

12. Limitations on Alleger Identity Protection

(a) All allegers (including those who have been granted confidential source status) 

are informed of the limitations on NRC’s ability to protect their identity.

(b) Allegers are notified of the limitations on NRC’s ability to protect their identity—

(i) During the initial receipt of the allegation, or other discussion with the alleger 

prior to the issuance of an acknowledgment letter, if possible; or

(ii) In an acknowledgment letter (after the initial receipt of the allegation); or

(iii) In a confidentiality agreement (if the alleger has been granted confidential 

source status).

(c) The alleger is informed that NRC may be compelled to disclose his or her identity 

under one or more of the following circumstances:

(i) Disclosure is necessary because of an overriding safety issue (OSI).

(ii) Disclosure is necessary pursuant to an order of a court or NRC adjudicatory 

authority or to inform Congress or State or Federal agencies in furtherance of 

NRC responsibilities under law or public trust.

(iii) Disclosure is necessary to support a hearing on an enforcement matter.

(iv) Disclosure is necessary to further a wrongdoing investigation.

(v) The alleger has taken actions that are inconsistent with and override the 

purpose of protecting the alleger’s identity.

(vi) Disclosure is mandated by the Freedom of Information Act (FOIA) 

(see Section II.Q of this handbook).

(d) NRC may reveal an alleger’s identity outside the agency if the alleger has clearly 

stated no objection to being identified. However, this course of action is not 

normally taken unless releasing the alleger’s identity is necessary to obtain 

resolution of the allegation, or otherwise serves the needs of the agency.

(e) For allegations involving discrimination, the alleger is informed that NRC will 

disclose his or her identity to the licensee, the alleged discriminating entity (if not 

the licensee), or to both. Otherwise, it would be impossible to pursue such an 

investigation. 
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(f) For allegations involving wrongdoing, the alleger is informed that his or her 

identity may be disclosed at OI’s discretion in order to pursue the investigation. In 

these instances, it is not necessary for OI to consult with the associated action 

office director in order to release the alleger’s identity. A reasonable effort should 

be made by the OAC, or other appropriate staff, to contact the alleger and 

explain why such a disclosure was made.

(g) When the alleger has not agreed to identity release, and it is necessary for NRC 

to release the alleger’s identity for any of the reasons outlined in 

Sections II.F.12(c)(i) through II.F.12(c)(vi) above, the staff (excluding OI) will 

consult with the action office director to discuss specific circumstances and 

obtain approval for the identity release. If the alleger has been granted 

confidential source status, refer to Section IV.E of this handbook for guidance 

regarding identity disclosure.

(h) The OAC or other designated staff member will notify the alleger in writing, and

by telephone, if possible, if any of the following determinations are made:

(i) It is necessary to release the alleger’s identity to any organization, individual, 

or to the public, for any of the reasons outlined in Sections II.F.12(c)(i) 

through II.F.12(c)(vi) and Section II.F.12(d) above.

(ii) The alleger’s name or other personal identifier has already been released for 

any of the reasons outlined in Sections II.F.12(c)(i) through II.F.12(c)(vi)

above.

(iii) It is known that the alleger’s identity may be compromised or was released 

inappropriately by NRC. See NRC MD 3.4, “Release of Information to the 

Public,” for staff actions subsequent to an inappropriate identity release.

13. Advising an Alleger About Confidential Source Status 

(a) Most allegers accept the standard alleger identity protection provisions discussed 

in Sections II.F.1 through II.F.12 of this handbook and will provide the NRC with 

detail regarding their concern(s) on that basis.

(i) Occasionally however, an alleger will decline to provide detailed information 

to NRC regarding his or her concern(s) and/or his or her identity, for fear of 

being identified as the information source.

(ii) In such instances, the staff member receiving the allegation should make an 

effort to understand the reason(s) for the alleger’s reluctance to provide the 

information, inform the alleger of the standard alleger identity protection 

provisions, and indicate that confidential source status can be provided under 

certain circumstances (but not for concerns involving discrimination). See 

Section VI, “Glossary,” of this handbook for definitions of identity protection, 

confidentiality, and confidential source.

(iii) If a staff member is not knowledgeable or is unsure about discussing 

confidential source status, he or she should arrange for the alleger to contact 

an OAC or responsible manager.
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(iv) If the alleger continues to be reluctant to provide necessary information or 

expressly requests confidential source status, a confidentiality agreement 

may be offered to the alleger. See Section IV.B of this handbook and the 

standardized confidentiality agreement form in the Allegation Manual for 

additional guidance related to the granting of confidential source status. 

(b) If the alleger requests confidential source status before providing information, the 

guidance in Section IV.B of this handbook is to be followed.

(c) Sometimes an alleger refuses to accept an offer of confidential source status and 

to provide relevant information. In such circumstances, NRC may consider 

issuance of a subpoena or other means to obtain needed information, if the NRC 

has the alleger’s contact information. 

(d) If an alleger persists in not offering necessary information and in addition refuses 

to provide his or her identity, the staff member receiving the allegation will take 

the following actions:

(i) Document the allegation in as much detail as possible.

(ii) Advise the alleger that he or she may contact the OAC or a designated staff 

member in the future for information on the status of any actions being taken 

on the information supplied.1

G. Discrimination Concerns and Department of Labor (DOL) Information 

1. If an allegation involves a claim of discrimination under Section 211 of the Energy 

Reorganization Act of 1974 (ERA), as amended, the alleger is to be informed of the 

following:

(a) ERA Section 211 affords personal remedies such as reinstatement and 

compensation for lost wages when an employer is found by DOL to have 

discriminated against an alleger for engaging in protected activity. See definition 

of protected activity in Section VI, “Glossary,” of this handbook. 

(b) Personal remedies may be obtained through the DOL for any retaliatory or 

discriminatory practices by the employer if a complaint is filed in a timely manner 

and the employer does not have a legitimate reason for the adverse action taken 

against the employee.

(c) An ERA Section 211 complaint must be filed with DOL, in writing, within 180 days 

of the date of the discriminatory action or the date any notice, in writing or 

otherwise, of an adverse action is received by the alleger. The Allegation Manual 

provides guidance on obtaining the appropriate DOL contact information.

(d) NRC will determine whether or not an investigation is warranted on the basis of 

the information provided by the alleger.

 

1 In any future contact, if one were to occur, the alleger should be requested to provide NRC with evidence 

that he or she is the individual who originally contacted NRC, such as by providing a previously agreed 

upon code number or phrase, or a specific detail related to the allegation that only the alleger would know.
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(e) If NRC opens an investigation, the alleger’s identity will be disclosed, since a matter 

of alleged discrimination cannot be investigated without identifying the alleger.

(f) NRC may complete its investigation of the discrimination allegation before 

resolution by DOL and may take action independent of DOL.

(g) Any issue associated with NRC regulated activity that provides a basis for the 

discrimination concern that the alleger indicates has not been adequately 

resolved by the licensee is entered into and evaluated by the NRC allegation 

process without regard to action that may be taken by DOL. In this regard, when 

NRC is notified by DOL that it is investigating a complaint of discrimination under 

ERA Section 211, and the alleger has not also brought his or her concern(s) to 

NRC, the action office shall obtain a copy of the complaint (if DOL has not 

already provided it to NRC) and contact the alleger to obtain clarification with 

regard to the concerns that provide a basis for the discrimination concern. 

2. Employees of State agencies that are NRC or Agreement State licensees may not 

have the option of filing a discrimination complaint with DOL. Allegers who are State 

employees should be instructed to consider contacting appropriate State entities to 

determine if the State has a program for processing such matters. Employees of 

Federal agencies (other than the Department of Energy (DOE)) who raise allegations 

of discrimination should be instructed to consider contacting the Merit Systems 

Protection Board (MSPB).

H. Processing the Received Allegation

1. Actions of the Receiving Employee and Action Office Staff

(a) An NRC employee receiving an allegation will inform his or her supervisor and 

also provide the information to the appropriate OAC.

(i) The allegation is initially assessed by these individuals to determine if it

involves a potential OSI.

(ii) Sometimes the receiving employee is from a headquarters office that does 

not retain an OAC and is unsure of the appropriate OAC. In that case, the 

information may be provided to allegation program staff in the Office of 

Enforcement, who will forward it to the appropriate OAC.

(b) Any employee who receives an allegation will document the allegation and 

forward it to the responsible OAC, and should do so within 5 calendar days of 

receipt. The receiving employee should not retain copies of the allegation once it 

is verified that the allegation has been received by the OAC.

(i) The receiving employees shall follow the Sensitive Unclassified NonSafeguards Information (SUNSI) handling requirements for transmitting 

allegation information to the OAC.

(ii) If the received information contains Safeguards Information (SGI), the 

receiving employee shall refer to MD 12.7 for documentation guidance.
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(c) Generally, action will not be taken to determine the validity of an allegation, nor 

will an allegation be discussed with licensees or other affected organizations until 

after the initial ARB meeting and/or the OAC or designated staff has briefed 

appropriate NRC management. Should it be determined by NRC management 

that immediate action and/or licensee notification is necessary to address an OSI 

prior to an initial ARB meeting, a subsequent ARB meeting shall be held as soon 

as practicable, to affirm actions already taken and develop followup actions. If the 

regional or headquarters office staff that determined the immediate actions to be 

taken constituted an ARB quorum, and an evaluation plan was approved at that 

time, documentation of this discussion may be credited as the initial ARB.

(d) After reviewing the allegation receipt documentation (or other pertinent 

information, if the ARB is being reconvened for a particular allegation), 

responsible action office staff will take the following actions:

(i) Clarify concerns and develop actions to evaluate the allegation to be 

recommended to the ARB, including whether the allegation involves a safety 

concern that requires immediate corrective action (see Section II.I of this 

handbook for ARB guidance).

(ii) Propose the necessary followup actions for discussion at an ARB meeting 

and, as assigned by the ARB, implement those actions.

(iii) Propose actions to be explored during the ARB meeting, if time does not 

permit staff review prior to the ARB. 

2. OAC Actions 

(a) The OAC coordinates efforts to support action office evaluation of the allegation 

in as efficient and effective a manner as possible, considering the circumstances 

of the issue(s) raised. 

(b) The OAC convenes an ARB of appropriate personnel to review each allegation 

for safety significance and determine appropriate actions to evaluate the 

allegation (see Section II.I of this handbook for ARB guidance).

(c) The OAC ensures that timely and accurate information on allegations is 

maintained and made available to responsible staff for ARB discussion and 

allegation evaluation. The OAC also provides responsible managers with status 

information related to open allegations, and historical allegation data to enable 

identification of and a focus on allegation trend areas.

(d) As appropriate, an ARB may assign the following actions to the OAC or other 

designated staff:

2

(i) Notify appropriate agencies of concerns outside NRC jurisdiction; 

 

2

 Alternatively, if the receiving OAC determines that a received concern is clearly outside NRC 

jurisdiction, the OAC can, without submitting the concern to an ARB, refer the concern to the 

appropriate entity. The receiving OAC can also provide external agency contact information to the 

concerned individual without submitting the concern to an ARB.
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(ii) Provide external agency contact information to the concerned individual (e.g., the 

contact information for the Equal Employment Opportunities Commission for 

alleged discrimination related to age, sex, race, or ethnic origin).

(e) If an allegation has generic implications or involves licensing, technical expertise, 

or other activities not performed by the receiving office, the receiving OAC will 

take the following actions:

(i) Notify headquarters offices and other regional offices that may be affected.

(ii) Discuss the potential for allegation transfer to a headquarters office.

(iii) Discuss the potential need to request information from a headquarters office

(see Sections II.J.4(a) and II.J.4(c) of this handbook).

• To request input from the Office of Nuclear Reactor Regulation (NRR), 

use a Task Interface Agreement (TIA).

• To request input from the FSME, the Office of Nuclear Material Safety 

and Safeguards (NMSS), the Office of New Reactors (NRO), or the Office 

of Nuclear Security and Incident Response (NSIR), use a Technical 

Assistance Request (TAR).

3. Allegation Documentation 

(a) A unique identifying number is established for each allegation when the OAC 

documents the allegation in the Allegation Management System (AMS) database. 

(b) The OAC establishes a hard copy file for each allegation to contain all allegationrelated documentation. The allegation files are to be retrievable only by allegation 

number (i.e., there must be no alleger identifying information on the outside of 

the allegation file folder). 

(c) Allegation File Cover Sheets3

(i) If an allegation file is removed from its official storage location for review by 

assigned staff, a blue “Warning - Sensitive Allegation Material” cover sheet 

(NRC Form 762) must be attached to the top of the file.

(ii) There is an exception for allegation files involving an alleger with confidential 

source status. Such files require a red “Warning - Confidential Allegation 

Material” cover sheet (NRC Form 761).

(d) Documentation that contains the identity of an alleger or other information that 

would identify an alleger may be separated from the official allegation file if it is 

appropriately protected.

(i) The documentation must have the appropriate cover sheet to indicate that it

contains sensitive allegation information.

(ii) The documentation should be conspicuously marked (typed or stamped) to 

indicate that the document identifies an alleger, depending on the document type. 

 

3 Allegation File storage and access control mechanisms are outlined in Section II.H.4 of this handbook.
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(iii) The following are examples of document types that could identify an alleger:

• A letter to an alleger;

• A letter from an alleger;

• A document from an alleger; or

• Another type of document that specifically identifies the alleger or 

contains other alleger identifying information.

(iv) More specific guidance regarding allegation file documentation handling in 

accordance with SUNSI handling requirements is provided in the Allegation 

Manual. Cover sheets must also be attached to allegation documents that are 

provided in response to a FOIA request and must stay on the package 

throughout the FOIA process.

(e) It may be determined that an allegation-related matter is to be addressed in a 

Preliminary Notification (PN).

(i) The PN should not identify the following:

• The source of the allegation concern(s);

• The information was provided by an alleger; or

• The information is the subject of an allegation.

(ii) Approval of the action office director should be obtained before issuance of 

the PN. See Inspection Manual Chapter (IMC) 1120, “Preliminary 

Notifications,” for additional information.

4. Storage of Official Agency Allegation Files and Documents

(a) Official agency allegation files shall be maintained in a designated storage 

location under the control of the OAC. The OAC will restrict NRC personnel 

access to allegation files to those with a need-to-know. 

(b) Keycard access to NRC buildings provides adequate security for allegation files 

and documents containing the identity of an alleger. Allegation files and documents 

containing the identity of an alleger who has been granted confidential source 

status or Safeguards Information shall be stored in a container approved for such 

information and shall not be stored with allegation files that do not contain such 

information. (More specific guidance regarding allegation file storage in 

accordance with SUNSI storage requirements is provided in the Allegation 

Manual.) 

(c) The OAC will limit the distribution of allegation file documentation outside of the 

action office to allegation information that is being transferred to another regional 

or headquarters office, documentation that is produced in response to an 

allegation-related FOIA request, or allegation-related documents that are provided to 

the Office of the Secretary (SECY) for certification that records are true copies. 
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I. Allegation Review Board (ARB) 

An ARB is a board established by regional administrators and headquarters office 

directors to determine the safety significance and appropriate NRC followup actions for 

each allegation.

1. Participants and Functions 

(a) An ARB consists of a chairperson (an action office director, division director, 

deputy director, or senior manager designee), an OAC, and at least one other 

responsible individual from the action office. Other personnel may participate as 

deemed necessary by the ARB chairperson. For matters of suspected 

wrongdoing or alleged discrimination, an OI representative and an Office of the 

General Counsel (OGC) representative or regional counsel should be in 

attendance for consultation. If an OI representative and/or an OGC 

representative or regional counsel are not available, the ARB shall assign the 

absent party or parties an action to review decisions made by the ARB to 

determine if additional ARB discussion is necessary. 

(b) Normally, an initial ARB meeting is to be held within 30 calendar days of 

allegation receipt by the agency.4

2. ARB Proceedings 

However, when an allegation is determined to 

involve an overriding safety issue, an ARB should be held as soon as possible.

(a) The ARB accomplishes the following:

(i) Considers the safety significance of each allegation concern. 

(ii) Assigns followup actions and estimated completion times for concern 

evaluation consistent with the safety/risk significance of the allegation 

concerns, as determined by the ARB. Assigns actions for alleger feedback as 

prescribed by the allegation process and supplemental alleger feedback, as 

deemed appropriate.

(iii) Assigns responsibility for allegation evaluation, both within and outside the 

action office, as appropriate. Allegation evaluation is accomplished by technical 

review, inspection, by requesting feedback from the affected licensee via an

RFI or another NRC regional office or headquarters office via a TIA or TAR, by 

obtaining the results of investigations or evaluations conducted by OI, DOJ, 

DOL, a State agency, or another Federal agency, or by any combination of 

these actions. The basis for an ARB decision to send an allegation-related RFI 

to the licensee shall be documented in the ARB meeting summary. 

(iv) Provides guidance and direction to assigned action office staff. 

 

4 It is recognized that delays in allegation receipt (and in the subsequent scheduling of an initial ARB) 

may be encountered in some circumstances. As an example, time needed by the Office of the 

Inspector General (OIG) to evaluate information received by that office that also includes allegation 

information may delay receipt of the allegation information by the action office. When such a delay is 

encountered, the initial ARB should be held as soon as possible, particularly when the alleger’s 

identity is known.
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(v) Recommends offering an alleger who has articulated a prima facie showing of 

potential discrimination for engaging in protected activity the opportunity to resolve 

his or her concern through Alternate Dispute Resolution (ADR). See Section II.I.3 

of this handbook and NUREG/BR-0313, Rev. 1, “Pre-Investigation ADR Program.”

(vi) Facilitates discussions with responsible NSIR or regional security inspection 

personnel regarding the proper categorization of security-related allegation 

concerns for the purpose of determining the amount of detail that may be 

disclosed external to the NRC upon closure of the allegation (e.g., in a closure 

letter to an alleger). See Section II.L.3(d)(i) of this handbook for guidance 

regarding the determination of the appropriate security information category.

(vii) Facilitates discussions of allegations involving alleged wrongdoing and 

discrimination with OI, including the determination of investigative priorities. 

Section V, “Initiating, Prioritizing, and Terminating Investigations by the Office 

of Investigation (OI),” of this handbook provides detail regarding the 

requirement for staff to notify OI of allegations of potential wrongdoing and to 

engage OI to coordinate followup actions related to wrongdoing and 

discrimination issues. The ARB assures that a potential violation describing 

the technical/legal basis for the alleged wrongdoing is provided to OI prior to 

the initiation of an investigation. If an alleged wrongdoing concern lacks the 

specificity needed to determine further regulatory actions, the ARB will first 

recommend that the staff attempt to gather more information directly from the 

alleger. The ARB can also request assistance from OI (i.e., an OI Assist to 

Staff), to support the staff in obtaining additional information regarding the 

allegation. The ARB may also consider issuing an RFI to the licensee in an 

attempt to obtain information associated with, but not directly related to, the 

wrongdoing concern (e.g., procedural, programmatic or personnel-related 

information). However, typically this action should not be considered before 

an attempt is made to gather more information directly from the alleger or via 

inspection activities or via an OI Assist to Staff. The ARB can also request 

assistance from OI to obtain testimony regarding other matters, including 

feedback related to the condition of a licensee’s safety culture or safety 

conscious work environment.

(viii) Facilitates discussion of alleged wrongdoing and discrimination matters with 

OI at various stages of review, as necessary. 

(ix) Requests legal reviews by representatives of OGC or regional counsel, as 

appropriate. 

(x) Considers, on very rare occasion, and after discussion with the alleger, 

whether advertising that inspection and/or investigation efforts are allegationrelated would, while still protecting the alleger’s identity, significantly improve 

the staff’s evaluation by affording facility employees an opportunity to bring 

pertinent information to the NRC’s attention (since public dissemination of 

allegation-related information is not a standard course of action). Similarly, on 

very rare occasion, such as for allegations raised in a highly public manner, 

concerns impacting many individuals, and significant safety issues, the ARB, 

in coordination with the AAA, and after discussion with the alleger, may 

consider whether documenting the results of an allegation assessment 
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publicly would improve public confidence in the allegation program or 

otherwise serve the agency’s mission. To ensure that such action does not 

lead the public to assume that all allegation concerns are or will be made 

public, all such communications shall clearly explain the reason for discussing 

the allegation publicly. In these instances, the ARB should consider any 

objections raised by the alleger before proceeding and should not normally 

authorize such an action over an alleger’s objection. If the ARB reaches a 

decision to publicize that a forthcoming inspection is allegation-related or to 

publicly document the results of an allegation assessment, the approval of the 

applicable regional administrator or headquarters office director shall be 

obtained before taking the action. The staff should monitor the impact of 

public dissemination of allegation-related information on the allegation 

program and report all concerns to the AAA.

(xi) Establishes written minutes documenting issues discussed, meeting 

participants, safety significance assessments provided, investigation priorities 

established, and actions assigned by the ARB. 

(b) The ARB should be reconvened if new information is presented that changes the 

safety significance of an allegation concern, indicates that alteration of an 

existing course of action should be considered, or if additional discussion of the 

allegation is otherwise deemed necessary. Additionally, the ARB should be 

reconvened 6 months after initial receipt, and approximately every 4 months 

thereafter to review an allegation that is older than 6 months, unless the only 

open concern(s) relates to matters involving OI or DOL that have no open 

technical issue or the technical concern awaits completion of action by another 

Government agency. An allegation older than 6 months that has an ongoing OI 

investigation but no open technical issues may be discussed during routine OI 

investigation status/priority discussions with action office management.

(c) If an OI investigation has been initiated regarding an allegation involving an alleger 

whose identity is known, and the alleger is interviewed by OI, the transcript or 

summary of interview with the alleger shall be provided to the action office OAC so 

that it may be reviewed by responsible regional and headquarters office staff. If 

new issues are identified or information exists to warrant a change in investigation 

priority after the transcript or summary of interview has been reviewed by the staff, 

the ARB should reconvene to determine appropriate action. 

(d) After each ARB, actions assigned and decisions recorded and approved by the 

ARB shall be documented in the allegation file and entered into the AMS 

database by the OAC. This course of action provides reasonable assurance that 

a current record of activity for each allegation is maintained. The OAC will inform 

the responsible NRC manager of the ARB’s final decisions reached and actions 

assigned. The responsible NRC manager, with the support of the OAC, will 

ensure that appropriate staff is informed of the ARB decision, particularly those 

who are assigned specific actions, resident inspectors, and non-resident 

inspectors, as appropriate.
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3. ARB Discussions Involving Allegations of Discrimination 

(a) When an allegation of discrimination is received, the ARB, with OGC or regional 

counsel support, will determine whether a prima facie showing of potential 

discrimination has been articulated by the alleger. See definition of prima facie 

showing of discrimination in Section VI, “Glossary,” of this handbook. For a prima 

facie discrimination case, the ARB will assign an action to offer the alleger an 

opportunity to use Early Alternative Dispute Resolution (Early ADR) as a means 

of obtaining resolution of the issue, as an alternative to an OI investigation. See 

NUREG/BR-0313, Rev.1, “Pre-Investigation ADR Program.”

(b) Exceptions to offering Early ADR to the alleger should be rare and shall be 

approved by the Director of OE before the initiation of an OI investigation. 

Although OI will not be requested to initiate an investigation at the initial ARB 

because of the need to first offer Early ADR to the alleger, the ARB may assign 

an investigation priority of High, Normal, or Low, using guidance set forth in the 

Allegation Manual, for later reference, if Early ADR is not used or is 

unsuccessful. A tentative investigation priority, if assigned at the ARB, should be 

determined without regard to whether DOL is separately investigating the 

allegation of discrimination. The ARB minutes must document the rationale for 

the assigned priority. 

(c) If Early ADR (or any other mediation process) is employed and is successful in 

establishing a settlement between the alleger and his or her employer or 

former/prospective employer, an OI investigation will not be initiated and 

enforcement action will not be taken, as long as the agreement is reviewed by 

OGC and no restrictive covenants in violation of the applicable employee 

protection rule exist. If Early ADR is not used by the alleger, or if the alleger is 

unsuccessful in establishing a settlement with his or her employer or 

former/prospective employer, or if the alleger or licensee has been unresponsive 

to the Early ADR offer, OI will be requested to initiate an investigation. The 

contingency action to open an OI investigation may be decided upon at the initial 

ARB, or affirmed at a followup ARB meeting after knowledge of the unsuccessful 

Early ADR result has been established.

J. Allegation Evaluation 

1. Acknowledgment Letter 

(a) When the identity of an alleger is known, an acknowledgment letter is to be 

issued to the alleger, normally within 30 calendar days of the date of receipt of 

the allegation. The acknowledgment letter may be prepared and signed by the 

OAC or by any appropriate action office official, as established by the action 

office, with the concurrence of the OAC. The acknowledgment letter shall include 

a restatement of the alleger’s concerns, along with information relevant to the 

issues involved (e.g., the Early ADR and DOL processes, identity protection, 

important contacts, whether concerns are being referred to another entity (like an 

Agreement State), or whether an RFI from the licensee is being considered). A 

standardized acknowledgment letter is available in the Allegation Manual. 

Whenever possible, acknowledgment letters (and all other written 
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correspondence to an alleger) should be sent using a delivery mechanism that 

allows for verification of receipt. Note: For instances in which an alleger requests 

electronic correspondence (e-mail), the OAC should request the alleger to verify 

receipt of the information.

(b) If discrimination has been alleged, and a prima facie showing of potential 

discrimination has been articulated, the acknowledgment letter shall offer the 

alleger the opportunity to use Early ADR, while making clear that Early ADR does 

not stay the 180-day timeliness requirement for filing a discrimination complaint 

with DOL. The OAC will inform OE that an offer of Early ADR has been made. 

Note: The alleger should not be offered an opportunity to use Early ADR until 

after the matter of alleged discrimination has been discussed by the ARB, since 

the ARB, with OGC or regional counsel support, must conclude that a prima facie 

showing of potential discrimination has been articulated by the alleger before 

Early ADR is offered.

(c) For sensitive, security-related concerns, the acknowledgment letter will reiterate 

the concern(s) raised but will inform the alleger that NRC, following evaluation of 

the concerns, may only be able to provide limited information regarding the staff’s 

review, assessment, and findings. The letter shall not include classified, 

Safeguards, or sensitive security information.

2. Alleger Interview by NRC Technical Staff

In some cases, an interview with the alleger by the NRC technical staff may be 

warranted. Depending on the nature of the allegation and the time sensitivity of the 

issue, assistance from OI or other resources may be requested. If an alleger 

requests an interview with NRC to more clearly explain his or her concerns, or to 

present information, every effort should be made to accommodate such a request. 

All contacts with the alleger should be documented and forwarded to the OAC for 

inclusion in the allegation file. If travel to the action office is necessary, and travel 

compensation is requested by the alleger, travel costs can be offered with 

management approval and will be borne by the action office. 

3. Evaluation by NRC Technical Staff 

(a) After completing inspection activities or review as assigned by the ARB or as 

directed by management to address an OSI, technical staff will notify designated 

responsible staff and the OAC of the completed actions. The allegation status 

can then be tracked, and subsequent allegation process activities may be 

initiated (e.g., the development of closure documentation).

(b) The technical staff will document evaluation of each allegation concern in a 

report or other appropriate correspondence and submit the documentation to the 

OAC for inclusion in the allegation file, along with all supporting information. See 

Sections II.L.1 and II.L.3 of this handbook for guidance regarding staff 

development of allegation closure of documentation.
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4. Allegation Transfers, RFIs, and Referrals 

(a) Considering an Allegation Transfer, RFI, or Referral

(i) Other actions that may be considered by the ARB in support of an allegation 

evaluation are—

• Transfer of an allegation or specific concerns within an allegation to the 

appropriate regional or headquarters office;

• Requesting information from a licensee via an RFI;

• A request for input from another NRC headquarters office through a TIA 

or TAR; or

• A referral to another government agency or other external entity.

• Normally, ARB approval is obtained before the actions noted in 

Section II.J.4(a)(i), Bullet 1 through Bullet 4 are taken. However, if in the 

judgment of the receiving OAC, a concern is clearly under the purview of 

another regional or headquarters office or is outside NRC’s jurisdiction, 

the OAC can take the following actions without submitting the concern to 

an ARB:

− Transfer the allegation or specific concerns within the allegation to the 

appropriate regional or headquarters office;

− Refer the concern to the appropriate external agency or entity; or

− Provide contact information for the external agency or entity to the 

concerned individual.

(ii) Matters necessitating referral to law enforcement agencies shall be 

coordinated with OI. 

(iii) Matters necessitating referral to an Agreement State should be coordinated 

with the appropriate RSAO. 

(b) Informing an Alleger of an Allegation Transfer, RFI, or Referral 

When it is determined that information is to be requested from the licensee or an 

issue is to be referred to another Government agency or external entity, the 

alleger should receive feedback regarding such action. The notification may be 

provided via a letter to or a documented conversation with the alleger. If an 

allegation is transferred within NRC, feedback may be provided to the alleger by 

either the receiving office or the office to which the allegation is transferred.

(c) Allegation Transfers and Allegation-Related TIAs or TARs

(i) When a regional or headquarters office receives an allegation and determines 

that the allegation should be transferred to another regional or headquarters

office, the offices must contact each other before the transfer. The office to 

which the allegation is to be transferred should be in agreement that it is the 

appropriate action office to evaluate the allegation. If agreement is reached, 

the allegation is transferred. It is not necessary for the regional or 
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headquarters office that initially received the allegation to enter the allegation 

into the AMS or conduct an ARB meeting in this instance. 

(ii) When a regional or headquarters office determines that technical assistance 

is needed from another headquarters office in reviewing an allegation through 

a TIA (NRR) or TAR (NMSS, FSME, NRO, NSIR), the other office must agree 

to the request for technical review. The fact that the request for technical 

review is related to an allegation must clearly be documented, so that the 

headquarters office from which technical assistance is being requested is 

made aware of allegation response timeliness issues.

(d) Requests for Information From the Licensee 

(i) Policy Regarding the Issuance of an RFI to the Licensee 

• Engaging the licensee in the evaluation of an allegation provides NRC 

with unique insights into the licensee’s handling of employee concerns 

and provides the licensee with unique insights into its own safety culture.

• A licensee has primary responsibility for ensuring the safe operation of 

the facility and can promptly address issues through ready access to site 

personnel, equipment, and documentation related to allegation concerns; 

therefore, action offices should request information from the licensee in 

support of allegation closure whenever possible and appropriate, and in 

all instances involving an OSI.

• As indicated in the sections that follow, the ARB should refrain from 

issuing an RFI to the licensee in instances that could compromise an 

alleger’s identity or an NRC investigation, if it is unlikely that the licensee 

will be able to perform an independent evaluation, or if a State or Federal 

agency providing the allegation does not approve of the RFI.

• Other items to be considered by the ARB in deciding whether or not to 

request information from the licensee include the following: feedback from 

the alleger regarding the option of issuing an RFI to the licensee;

allegation history and trends; whether NRC inspection or technical review 

is preferred in place of or in addition to an RFI; and past licensee 

performance in responding to allegation-related RFIs.

• Additional guidance in this area is provided in the Allegation Manual, which 

includes an “Allegation Review Board Worksheet,” intended to support 

discussion at the ARB when an RFI to the licensee is being considered.

(ii) Conditions Inhibiting the Issuance of an RFI to the Licensee 

A licensee may be asked to provide information regarding an allegation 

involving an OSI in any circumstance, as deemed appropriate. However, in 

other circumstances, an RFI from the licensee should normally not be 

considered if any of the following conditions apply:

• Information cannot be released in sufficient detail to the licensee without 

compromising the identity of the alleger (unless the alleger has no 

objection to the NRC’s requesting information from the licensee and 

understands the possibility that his or her identity may be compromised).
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• The licensee could compromise an NRC investigation or inspection 

because of knowledge gained by the licensee from the RFI. 

• The allegation is made against senior licensee management or parties 

who would normally receive the RFI, such that an independent and 

effective evaluation is unlikely. 

• The basis of the allegation is information received from a Federal or State 

agency that does not approve of the information being released to the 

licensee in an RFI.

(iii) Requesting Information From the Licensee in Response to an Overriding 

Safety Issue (OSI)

• If an allegation raises an OSI, then NRC staff will normally issue an RFI to 

the licensee (verbally first, then in writing) regarding the allegation,

regardless of any factor in Section II.J.4(d)(ii). In this instance, the 

consideration of a waiting period for alleger feedback regarding a 

proposed RFI is waived.

• Note: If the alleger has confidential source status, refer to the alleger’s 

confidentiality agreement for specific guidance regarding the release of 

information to a licensee about an OSI. In this instance, the alleger is 

normally given an opportunity to voice any objection regarding the RFI. If 

sufficient effort is made to evaluate feedback provided by the alleger or to 

contact the alleger, if no feedback has been provided, and the staff 

continues to believe that the RFI is warranted, the staff may proceed with 

the RFI despite the alleger’s objection or lack of response.

(iv) Informing the Alleger About an Allegation-Related RFI to the Licensee 

• Before an RFI is provided to a licensee regarding an allegation, all 

reasonable efforts should be made to notify an alleger whose identity is 

known of the planned RFI.

• The fact that an alleger is aware that an RFI may be or will be provided to the 

licensee is normally confirmed via the acknowledgment letter to the alleger.

• However, this understanding may be otherwise documented (e.g., during 

the initial documented contact with the alleger, or in a telephone 

conversation record).

(v) RFI Letter to the Licensee

• The RFI letter to the licensee regarding an allegation should reference the 

allegation number and inform the licensee of the concern(s) in a level of 

detail that will enable the licensee to evaluate the concern but should not 

include the identity of the alleger or information that could permit the 

licensee to identify the alleger.

• The letter should request that the licensee review the matter and provide 

a written report of the results of that review.

• Staff expectations regarding the quality and scope of the licensee’s 

evaluation, the qualifications and independence of review personnel, and 
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limitations on the distribution of the NRC letter and its enclosure(s) should 

be conveyed, and the licensee should be requested to describe how 

these attributes were met in its response to the NRC.

• If interviews are to be conducted or if samples of documentation, systems, 

structures, or components are to be evaluated, the licensee is expected to 

provide the basis for determining the number of individuals interviewed, the 

interview questions used, and the adequacy of sample sizes.

• The licensee is also expected to note any violation of NRC requirements 

identified during the course of the review.

• Letters requesting information from licensees regarding allegations are 

not issued on the public docket.

• A standardized letter requesting information from the licensee is available 

in the Allegation Manual.

• Letters requesting information from the licensee regarding allegations that 

contain security-related information should be treated as SUNSI and 

should be handled in accordance with established agency guidance. This 

requirement refers to information requests concerning the following:

physical protection, material control and accounting for special nuclear 

material, security-related orders or confirmatory action letters, insider 

mitigation, access authorization, or fitness-for-duty issues that are 

programmatic or associated with security personnel.

• When SUNSI handling requirements differ between allegation information and 

sensitive security-related information, the more restrictive guidance applies.

• The letter requesting information from the licensee shall also request that 

the licensee contact the NRC to ensure a common understanding of the 

scope of the allegation and the NRC’s expectations for followup and 

response, and to discuss the licensee’s plans for evaluating the concerns 

that are the subject of the RFI. 

(vi) Staff Review of Licensee Response to an RFI

• The technical staff will review the licensee’s response to an RFI for 

adequacy.

• The staff’s review should include some alternate verification of aspects of 

the information provided. Acceptable verification methods include, but are 

not limited to, the following:

− Verify the existence and applicability of technical references,

procedures, corrective action documentation, or calculations noted in 

the licensee’s response.

− Review recent inspection results in the functional area related to the 

allegation.

− Ask followup questions on the material provided by the licensee.

− Conduct an independent inspection or technical review.
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• If the licensee does not conduct a thorough review, it may be necessary 

for NRC to request the licensee to perform a supplemental review or to 

independently inspect or investigate the allegation concern(s).

• The staff should inform the licensee of an identified inadequacy in the 

licensee’s response to the RFI.

• NRC staff conclusions with regard to the licensee’s response and any 

independent verification, inspection, or investigative efforts should be 

documented for inclusion in allegation closure documentation.

• Additional guidance for staff review of the licensee’s RFI response and 

actions to be taken if the RFI response is inadequate, inaccurate, or 

otherwise unacceptable is provided in the Allegation Manual. The 

Allegation Manual includes a “Checklist for NRC Staff Review of Licensee 

Response to an Allegation Request for Information.”

(e) Referral of Concerns About Agreement State Licensees 

(i) In accordance with the terms of the agreement between NRC and an 

Agreement State, NRC must refer concerns received regarding Agreement 

State licensees to the Agreement State for review and evaluation.

(ii) If, after the Agreement State program is described to an individual who 

contacts NRC with concerns about an Agreement State licensee, the 

concerned individual agrees to contact and be contacted directly by the 

Agreement State, the concerns are provided to the appropriate RSAO for 

referral to the Agreement State and are not processed as allegations.

(iii) If the concerned individual is unwilling to contact or to have his or her identity 

disclosed to the Agreement State, the allegation program is used to track the 

evaluation of the concerns raised about the Agreement State licensee.

(iv) Additional guidance related to the referral of concerns involving Agreement 

State licensees is provided in the Allegation Manual.

(f) Referral of Industrial Safety Concerns to the Occupational Safety and Health 

Administration (OSHA)

Concerns submitted to NRC within the purview of OSHA are to be handled in 

accordance with NRC IMC 1007, “Interfacing Activities Between Regional Offices 

of NRC and OSHA,” and applicable regional or headquarters office procedures.

(g) Referral of Concerns to Government Agencies and Military Organizations

(i) Concerns under the jurisdiction of Government agencies and the military or 

other organizations outside NRC’s jurisdiction will be referred by designated 

action office staff to the appropriate organization. [For example, concerns 

about environmental quality related to other than nuclear material or concerns 

about the radiological aspects of Superfund sites are to be referred to the 

Environmental Protection Agency (EPA).]
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(ii) Notification of Federal, State, and local law enforcement agencies and the 

determination of the amount of information to be provided to them are the 

responsibility of the appropriate OI field office and the Director of OI.

(iii) The concerned individual should be informed that the matter is not within 

NRC regulatory jurisdiction and that he or she may contact any of these 

organizations directly.

(iv) Identity protection of the concerned individual should be considered in staff 

referrals of such matters in accordance with the identity protection guidance 

in this handbook (see Sections II.F and IV.B of this handbook). 

(h) Referral of Offsite Emergency Preparedness Matters Related to NRC Licensed 

Facilities to the Federal Emergency Management Agency (FEMA)

(i) Allegations involving offsite emergency preparedness matters related to NRC 

licensed facilities are to be assigned to NSIR. 

(ii) NSIR is the responsible action office for such matters and will refer the 

concern(s) to and request a response from FEMA to support allegation closure.

(i) Referral to the Office of the Inspector General (OIG) 

(i) Occasionally, a submitted allegation may also include one or more assertions 

related to the performance of NRC staff or contractors and/or 

mismanagement of agency programs or operations. 

(ii) Issues regarding suspected improper conduct by NRC employees or NRC 

contractors will be brought directly or through appropriate NRC management 

to the attention of OIG. These issues are not considered allegations and are 

not to be described in the AMS. 

(iii) Any records pertinent to matters involving OIG should be excluded from the 

allegation file or appropriately redacted and forwarded either directly to OIG 

or to the applicable regional administrator or headquarters office director for 

referral to OIG, as appropriate. Such matters should not be discussed during 

an ARB meeting.

5. Providing an Allegation Concern to OI for Initiation of an Investigation

(a) If wrongdoing is alleged or suspected or if discrimination has been alleged, OI must 

be informed as investigation by OI is considered by the ARB as a possible course of 

action for evaluation of such matters. In these instances, the technical staff should 

normally coordinate with OI before conducting any inspection activity or providing 

any information to the licensee related to an allegation. See Section V, “Initiating, 

Prioritizing, and Terminating Investigations by the Office of Investigations (OI),” of 

this handbook for more guidance related to the initiation of an OI investigation. 

(b) If an allegation includes an OSI as well as a wrongdoing or discrimination matter, 

it may be necessary for the technical staff to perform a technical review or 

release certain information to the licensee before holding an initial ARB, before 

an OI investigation is initiated, or before the publication of the OI investigation 

report. In these circumstances, the action office director will inform the Field 

Office Director or the Director of OI, as appropriate, who will advise the action 
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office of the anticipated effect of the technical staff response or the information 

release on the investigation. The action office will determine if the concerns 

represent an immediate safety issue to justify the risk of compromising the 

effectiveness of the pending OI investigation, potential escalated enforcement, or 

DOJ prosecution, in determining whether to perform the technical review or to 

release the information.

(c) When an alleger has made a prima facie showing of potential discrimination, and 

the alleger has either chosen not to participate in Early ADR, has been 

unresponsive to the offer of Early ADR, or has been unsuccessful in obtaining an 

acceptable settlement via Early ADR or any other mediation process, the ARB 

will recommend that OI initiate an investigation.

(d) If an allegation related to a wrongdoing or alleged discrimination matter is 

substantiated, OI will inform DOJ of the investigation conclusion so that DOJ may 

consider the matter for potential criminal prosecution. In general, the fact that a 

particular matter has been or will be provided to DOJ will not be disclosed to the 

licensee or the public. If a regional or headquarters office director believes that 

he or she must disclose that an allegation has been provided or will be provided 

to DOJ, the concurrence of the Director of OI will be obtained before disclosing 

the information. If DOJ accepts the issue, generally any ongoing NRC actions at 

that point in terms of further investigation, enforcement considerations, and 

allegation closure are held in abeyance pending completion of the DOJ review.

K. Periodic Status Letters to Allegers

In instances of unusual delay in evaluating an allegation, the OAC or other designated 

staff should ensure that the alleger is provided periodic status letters regarding the NRC’s 

evaluation of concerns. Normally, the alleger should be advised every 180 days or sooner 

of the status of pending open allegation concerns. For wrongdoing issues, the alleger 

should be informed that the review is in progress. A standardized status letter is available 

in the Allegation Manual. If a closure letter is to be issued to the alleger within 2 weeks of 

the date a status letter is due, it is not necessary to send the status letter.

L. Allegation Closure 

1. Staff Action 

As assigned, the technical staff shall develop closure documentation for each 

allegation concern, describing the scope and depth of the review performed and 

indicating the staff’s conclusion as to the validity of the concern. The responsible 

technical branch chief shall review and concur in the basis for closing each allegation 

concern, as developed by the technical staff.

2. OAC Action 

(a) The OAC tracks all allegation concerns from receipt to closure. An allegation may 

not be closed until a determination has been made as to the validity of its 

concern(s). In some instances, facts put forth by the alleger may be found to be 

true, even though the safety implications asserted by the alleger are found not to 

be valid or not to be representative of a safety problem or a violation of 
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requirements. In these circumstances, closure of the concern involves 

acknowledging information provided by the alleger that was found to be true, 

while clearly explaining that an inadequacy associated with NRC-regulated 

activity was not substantiated. A concern also can be closed if the ARB and the 

OAC determine that insufficient information was available to ascertain a 

conclusion regarding the concern. The Allegation Manual includes suggestions 

regarding the discussion of allegation concern closure in the closure letter to the 

alleger or closure memorandum to the allegation file along with issues to be 

considered in determining whether an allegation concern should be documented 

as substantiated in the AMS database.

(b) An allegation cannot be closed until all the concerns within the allegation are 

closed and a closure letter has been issued to the alleger (if the alleger’s identity 

is known) or a document has been submitted to the allegation file that discusses 

closure of each concern, if the alleger’s identity is unknown, if no written 

correspondence is to be provided to the alleger at the alleger’s request, or if the 

concerns are NRC-identified or licensee-identified. The OAC prepares or 

coordinates the preparation of a closure letter to the alleger or closure 

memorandum to the allegation file as indicated in Section II.L.3 below and also 

concurs in the closure document. The OAC is also responsible for entering 

allegation concern closure information in the AMS.

3. Documentation of Allegation Evaluation 

(a) A final document (e.g., memorandum, draft closure letter, inspection report, 

technical evaluation, field notes, investigation report) will be prepared by 

responsible staff to document the evaluation and closure of the allegation 

concerns. The document should describe the safety/security and regulatory 

significance for any substantiated concern. On the basis of this documentation, 

and if the identity of the alleger is known, the OAC shall prepare or coordinate 

the preparation of a closure letter to the alleger for signature by the OAC or 

appropriate manager, setting forth the facts and the NRC’s evaluation and 

conclusions regarding each allegation concern. If a closure letter is not required, 

the OAC shall prepare or coordinate the preparation of a closure memorandum 

to the allegation file with an enclosure that restates each allegation concern and 

describes the NRC’s evaluation and conclusions with regard to each concern 

(the document provided to the OAC by responsible staff may be used as the 

closure memorandum if it contains necessary detail and is concurred by the 

OAC). If a closure letter or closure memorandum makes reference to a licensee’s 

RFI response, the closure documentation should clearly:

(i) Identify each allegation concern as provided or as modified by the alleger.

(ii) Describe the licensee’s evaluation and response.

(iii) Document NRC’s evaluation of the licensee’s response and overall 

conclusions regarding the validity of the concern(s), including any NRC staff 

independent verification, inspection, or investigative efforts conducted to 

validate aspects of the licensee’s response.
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(b) If an alleger cannot be contacted or if an ARB decision was reached not to 

contact the alleger upon closure of the allegation, the basis for not contacting the 

alleger will be documented in the allegation file. 

(c) A standardized closure letter and a standardized closure memorandum to the 

allegation file are available in the Allegation Manual. 

(d) Certain types of allegation concerns require the application of additional specific 

guidance when developing closure documentation. 

(i) Information provided in closure letters to allegers with regard to security-related 

concerns will be limited in accordance with the sensitivity of the concern, as 

defined by the following categories which describe the concern sensitivity from 

high to low.5

• Category I – Security-related concerns that involve a potential generic 

security vulnerability. Letters to allegers will reiterate the concerns, but 

provide no details regarding the NRC’s evaluation or conclusion.

This category should be determined based on the allegation 

concern, as received, assuming that the concern is true:

• Category II – Security-related concerns that, if true, would constitute a 

more than minor finding or violation, as determined by applicable guidance 

or review panels. Letters to allegers will reiterate the concerns and provide 

limited information regarding the NRC’s evaluation and conclusions such 

that information that an adversary could exploit is protected.

• Category III – Security-related concerns that, if true, would, at most, 

constitute a minor violation or finding, as determined by applicable 

guidance or review panels. Letters to allegers will reiterate the concerns 

and describe the actions taken by the staff to evaluate the concerns and 

the staff’s conclusions regarding the validity of the concerns, but would 

not include a description of the compensatory actions taken such that 

information that an adversary could exploit is protected.

(ii) Other examples would include closure of a discrimination concern that has 

been resolved through Early ADR, and the closure of concerns related to 

Agreement State licensees that have been tracked as allegations because 

the alleger did not want NRC to provide his or her identity to the Agreement 

State. Detailed guidance for the closure of allegation concerns related to 

these and other specified conditions is provided in the Allegation Manual.

 

5 Additional information may be provided verbally to the alleger for Category II and Category III 

concerns if requested and the staff can verify that the alleger is currently employed at the 

NRC-licensed facility that is associated with the allegation concerns as a member of the security force 

with normal access to such information.
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4. Notification of Results of OI Investigations and Assists 

(a) Notification of OI Investigation Closure When No Enforcement Action Is Intended 

Following the issuance of an OI report of investigation for which a conclusion was 

reached, the staff determines whether enforcement is warranted. If it is 

determined that enforcement is not warranted, the action office informs 

responsible individuals in the action office and other headquarters offices about 

the issue and OI’s investigation conclusion. Section 6 of the NRC Enforcement 

Manual provides guidance for subsequent staff actions, including review of the OI 

investigation report, the opportunity to provide dissenting views, and whether and 

how to inform the licensee about the OI investigation results. If a letter is to be 

issued informing the licensee of the OI investigation results, it is issued as a 

public document (if it does not contain Safeguards Information or sensitive 

security information) and should not contain information that could reveal the 

identity of an alleger. The closure letter to the alleger will, if applicable, inform 

him or her that the investigation has been closed and will provide the results of 

the OI investigation and the staff’s conclusions (to the extent practical 

considering any sensitive security information). Both the letter to the licensee and 

the letter to the alleger should indicate that the complete OI report may be 

requested under the FOIA. 

(b) Notification of OI Investigation Closure When Enforcement Action Is Pending 

(i) When an enforcement action is pending, the alleger cannot normally be 

informed of the results of the investigation until the licensee is informed. 

Section 6 of the NRC Enforcement Manual also provides guidance for staff 

actions regarding the review, determination, and implementation of 

enforcement actions, including notification of the licensee.

(ii) Once the licensee has been notified about pending enforcement action 

regarding a substantiated wrongdoing case, a closure letter may be provided 

to the alleger informing him or her of the staff’s conclusions regarding the 

wrongdoing concern. It is not necessary to await the issuance of the final 

enforcement action to the licensee before providing the closure letter to the 

alleger although the ARB may decide to do so in certain instances. For 

substantiated discrimination cases, a copy of the information provided to the 

licensee about the results of the OI investigation (as prescribed in 

Section 6.2.3 of the Enforcement Manual), along with a copy of the letter that 

transmits that information to the licensee shall be provided to the alleger at 

the time these documents are sent to the licensee. The letter to the licensee 

is issued as a public document and should not contain information that could 

reveal the identity of the alleger.

(c) Release of Information Concerning Completed OI Investigations of Discrimination 

to Parties in an Ongoing DOL Proceeding 

In instances in which OI has completed an investigation that makes a finding on 

the merits of a discrimination concern and issues its report to the staff before 

completion of DOL proceedings on the same matter, the staff will inform the 

parties to the DOL proceeding of OI’s conclusion after coordinating with OE. For 

substantiated cases in which a predecisional enforcement conference or a 
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post-investigation ADR session is to be held, both parties will be provided with 

information about the results of the OI investigation as prescribed in the 

Enforcement Manual. In those instances when NRC decides to await completion 

of the DOL process before proceeding with the enforcement process, or for 

unsubstantiated cases, an OI synopsis or an OI report summary will be provided 

to both parties, along with information on how to submit a request for the 

complete OI report under the FOIA, if desired.

(d) Closure of Issues Involving OI Assists to the Staff 

(i) In the absence of a specific indication of wrongdoing, OI may provide its 

investigative expertise to assist in matters of regulatory concern (e.g., 

interviewing to obtain additional relevant information). Upon the 

recommendation of an ARB and approval from an OI Field Office Director, OI 

may open an Assist to Staff. When a specific indication of potential 

wrongdoing is not immediately apparent in the description of an allegation 

concern or should the staff seek information regarding other regulatory 

matters, such as the condition of a licensee’s safety conscious work 

environment, OI’s involvement may consist of assisting the NRC staff in 

determining whether wrongdoing is indicated or to obtain additional 

information or testimony related to a specific concern. 

(ii) When a specific indication of potential wrongdoing is identified following an OI 

Assist to Staff, OI will open a full investigation into the wrongdoing matter, and 

staff closure of the issue will be handled as indicated in Sections II.L.4(a), 

II.L.4(b), and II.L.4.(c) above. When OI’s Assist to Staff does not yield a 

specific indication of wrongdoing or an issue warranting further regulatory 

review, the matter will be administratively closed by OI. Generally, OI will 

document the results of any interviews conducted to obtain information about 

specific concerns in response to staff requests. In these instances, the OAC 

or assigned staff may use the information as documented by OI to prepare 

the allegation closure documentation. 

M. Alleger Response After Closure 

An alleger may provide feedback regarding NRC’s closure of his or her allegation by 

indicating that the NRC’s response was, in some way, insufficient, inaccurate, or 

otherwise unacceptable. In such instances, responsible action office staff and the OAC 

should review the alleger’s response against the closure correspondence provided to 

assess the validity of the alleger’s feedback. An ARB shall be reconvened so that the 

matter may be discussed with senior management and to determine appropriate 

additional actions. As appropriate, an NRC response should be provided to the alleger, 

normally within 30 days of receiving the alleger’s feedback, describing the actions taken 

by NRC in response. If it is anticipated that it will take longer than 30 days to respond to 

the alleger’s feedback, or if the alleger’s feedback includes a new allegation, an initial 

response should be provided to the alleger acknowledging the alleger’s feedback and/or

the new allegation, and indicating that additional NRC feedback is forthcoming. 
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N. NRC Response to Fears of Retaliation 

1. NRC may take action to prevent retaliation before it occurs at a licensee’s facility. 

This NRC action is independent of the Early ADR or DOL processes. 

2. If NRC receives a credible report from an individual expressing reasonable fears of 

retaliation for engaging in protected activity, and the individual is willing to be 

identified to the licensee, the action office director should initiate actions to alert the 

licensee that NRC has received information from an individual concerned that 

retaliation may occur for engaging in protected activities. 

3. The need to notify the licensee should be discussed at an ARB meeting with 

representatives from OGC or regional counsel and from OI. If the ARB considers it 

appropriate to notify the licensee, the ARB should make a recommendation to the 

regional administrator or headquarters office director that senior licensee 

management be notified by either holding a documented meeting, a documented 

management telephone call, or issuing a letter. The general purpose of this 

interaction is to inform licensee management of the NRC’s knowledge of the matter, 

potential effects on the safety conscious work environment, consequences to the 

licensee if discrimination was to occur, and the NRC’s intention to monitor the 

situation. So as not to expose the alleger to undue publicity, letters of this nature 

should not be docketed or otherwise made publicly available, and if a meeting is 

held, it should be closed to the public. The licensee should be asked to respond to 

the NRC’s concerns in writing. The licensee’s response should not be docketed or 

otherwise submitted to the NRC Document Control Desk.

4. When a number of individuals from the same licensee or organization express 

concern about the potential for retaliation or other management behaviors that 

discourage the reporting of safety issues, other actions may be warranted, especially 

if a history of discrimination findings or settlements exists. Actions might include an

inspection, investigation, survey, issuance of a “Chilling Effect Letter,” or other 

techniques for assessing the climate for raising concerns. See definition of the term 

“chilling effect” in Section VI, “Glossary,” of this handbook and the Enforcement 

Manual for further information.

O. Allegation Management System (AMS)

1. The AMS is a computerized information system that contains a summary of 

significant data pertinent to each allegation. The AMS is not a Privacy Act system of 

records because information cannot be retrieved by alleger name or by any type of 

identifier assigned to the alleger’s name. 

2. Allegations received by NRC are entered in the AMS database, with each allegation 

concern being individually indicated and tracked. The AMS database tracks 

allegations and allegation concerns from receipt to closure, including staff 

involvement, basic descriptive and status information, and reference to closure 

documentation. 

3. Sensitive information, such as names or other personal identifiers of non-NRC 

persons must not be entered in the AMS. All information entered must be 
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unclassified, must not contain any Safeguards Information or any proprietary or 

commercial information (10 CFR 2.390), and must not violate the Privacy Act. 

4. AMS entries should not reveal information related to criminal or civil wrongdoing on 

the part of individuals and/or NRC licensees that could compromise NRC inspections 

and/or investigations concerning alleged events.

5. Because of the sensitive nature of the information in the AMS, access to the AMS 

database is normally limited to the AAA, OACs, other allegation support staff, and 

representatives of OIG. AMS reports are provided on a need-to-know basis for 

specified data.

P. Handling Allegations That May Impact Licensing or Certification Decisions or 

Allegations That Are Filed Late

1. Ideally, all allegations concerning a particular licensing or certification matter will be 

satisfactorily resolved by the applicant before any license or certificate is issued. If 

allegation concerns having a potential impact on the safety of a facility relate to the 

staff’s findings for pending licensing or certification decisions, these allegation concerns 

are termed “late-filed” and must be resolved by the applicant before the NRC can issue 

a license or certificate. The applicant’s resolution of less significant allegation concerns 

will be evaluated independent of the issuance of the license or certificate. 

2. If an allegation concern is material to an issue in a licensing or certification 

proceeding, the action office will promptly consult the appropriate licensing or 

certifying office for assistance in determining appropriate action. The action office is 

responsible for recommending Atomic Safety and Licensing Board Panel (ASLBP) 

notification to the licensing or certifying office, if warranted. The licensing or certifying 

office will consult with OGC on preparation of the ASLBP notification.

3. For each pending license or certificate, each action office will forward to the 

appropriate licensing or certifying organization not less than 30 working days before 

the license or certificate issuance date, using the applicant’s estimate, an evaluation 

of the safety significance of all allegation concerns not scheduled to be resolved 

before the license or certificate issuance date. This evaluation will include a 

recommendation as to whether any or all of the allegations constitute grounds for 

delaying issuance of (or otherwise restricting) a license or certificate. For power 

reactors, a similar report will be prepared and forwarded to NRR or NRO not less 

than 30 working days before a Commission decision authorizing license issuance.

Q. Freedom of Information Act (FOIA) Requests

1. Upon receipt of a FOIA request, it is normal practice under the Privacy Act to protect 

from release, an alleger’s identity or alleger-identifying information unless mandated 

by the FOIA in some circumstances (see Section II of this directive and 

Section II.F.12 of this handbook). “Fingerprinting” information that may lead to 

identifying an alleger is also normally redacted when responding to a FOIA request. 

In cases involving non-discrimination issues in which NRC determines that it is 

appropriate to release the identity of an alleger because the alleger is considered 

“widely known” in association with an allegation concern, the responsible OAC will 

make reasonable efforts to inform the alleger before the FOIA release. The means of 
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determining an alleger to be “widely known” in association with an allegation concern 

and subsequently notifying the alleger about the information release are discussed in 

the Allegation Manual. See definition of “widely known alleger” in Section IV, 

“Glossary,” of this handbook.

2. Disclosures may be necessary to further the NRC mission or to address safety 

concerns; however, it is NRC policy to provide the maximum protection allowed by 

the FOIA to protect against the disclosure of the identity of all allegers. More specific 

guidance with regard to allegation-related information that may or may not be 

disclosed in response to a FOIA request, based on the type of information requested 

and the source of the request is provided in the Allegation Manual.

R. Training of the NRC Staff 

Since any NRC employee may receive an allegation and since NRC employees must be 

able to recognize an allegation, all employees shall receive initial training with regard to 

the implementation of the allegation process. After completing initial training, all regional 

and headquarters office staff who perform work involving NRC-regulated activity and/or 

who have the opportunity to periodically interface with NRC licensee personnel or 

external stakeholders should receive allegation refresher training at least annually.

S. Allegation Guidance Memorandum (AGM)

An AGM will be issued, as necessary, between revisions to MD 8.8 to address changes 

in allegation program policy or to provide guidance on implementation of existing policy.

III. NRC CONTACTS FOR DEPARTMENT OF LABOR (DOL) INFORMATION

NRC may contribute to the record in DOL adjudications. The contacts for each are as follows:

A. Requests by Individuals or by DOL

These requests may involve technical issues associated with protected activity, the 

organizational structure of nuclear industry employers, or NRC requirements. NRC is 

available to assist cognizant DOL personnel and individuals with accessing NRC 

information, understanding technical issues, or determining whether an individual is 

engaged in protected activity. The initial contact for requests from individuals outside the 

agency is the AAA. However, allegation and/or enforcement staff in the regional or 

headquarters offices are the NRC contact if DOL is requesting information about a 

specific allegation. If this contact occurs, staff should respond promptly because DOL 

investigators have a short statutory time frame within which to complete their 

investigation (see 29 CFR Part 24, “U.S. Department of Labor Procedures for Handling 

Discrimination Complaints Under Federal Employee Protection Statutes”). The contact 

for legal advice is the Assistant General Counsel for Materials Litigation and 

Enforcement, who will review the request, and if appropriate, transfer it to the proper 

NRC office for response.
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B. Requests for Reports From OI

Requests for reports or evidence developed by OI relevant to a complaint under ERA 

Section 211 shall be provided to the Director of OI, who will consult with the Director of 

OE. For cases that have been forwarded to DOJ for potential criminal prosecution, the 

Director of OI must also consult with DOJ before responding to the request. 

C. Production or Disclosure in Response to Subpoenas or Demands of Courts

NRC may be asked to provide documents or information, including witnesses, in a DOL 

proceeding pursuant to 10 CFR Part 9, Subpart D, “Production or Disclosure in 

Response to Subpoenas or Demands of Courts or Other Authorities.” The OGC contact 

for such requests is the Solicitor, OGC. 

D. Freedom of Information Act (FOIA) and Privacy Act

Information also can be formally requested through the FOIA and the Privacy Act. The 

contact for such requests is the Freedom of Information and Privacy Act Officer, OIS. 

E. Amicus Curiae Briefs

NRC will consider filing amicus curiae briefs when it is determined that the outcome of 

an issue may affect NRC’s enforcement of its regulations. The determination of whether 

to file a brief will depend on consideration of the facts and circumstances of the case and 

the importance of the issue to NRC. All requests for amicus curiae briefs should be 

provided to the Assistant General Counsel for Materials Litigation and Enforcement. 

F. Correspondence

NRC also may correspond directly with the Secretary of Labor to express any opinions 

or concerns on issues raised in DOL proceedings. Requests for communications 

between NRC and the Secretary of Labor should be provided to the Assistant General 

Counsel for Materials Litigation and Enforcement.

IV. GRANTING AND REVOKING CONFIDENTIAL SOURCE STATUS

This part provides guidance for granting and revoking confidential source status and for 

determining when the identity of an alleger who has been granted confidential source status 

may be released outside NRC. While the discussion in this part focuses primarily on the 

granting or revoking of confidential source status for an individual who has raised an 

allegation to NRC, this guidance also applies to other confidential sources established by OI

during the course of a wrongdoing or discrimination investigation who are not considered to 

be allegers. For matters referred to the OIG as noted in Section II.J.4(i) of this handbook, 

the OIG follows its own guidance concerning the granting and revoking of confidentiality.

A. General 

1. On April 5, 1996, the Commission approved a revision to the policy on confidentiality, 

which sets forth agencywide policy on protecting the identity of allegers and 

confidential sources, including allegers who are granted confidential source status. 

The Commission’s inspection and investigatory programs rely, in part, on individuals 
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voluntarily coming forward with information about safety concerns or perceived 

wrongdoing. Protecting the identities of confidential sources is a significant factor in 

ensuring the voluntary flow of this information. This policy statement on 

confidentiality applies to all Commission offices and directs those offices to make 

their best efforts to protect the identity of any source. The guidance in this part and 

instructions in the Allegation Manual and the OI Investigative Procedures Manual 

provide for implementation of the Commission’s policy statement. 

2. Although NRC recognizes the importance of confidentiality, the NRC does not 

believe that confidential source status should be granted to all individuals who 

provide information to NRC, or that confidential source status should be routinely

granted to allegers, particularly in light of the identity protection afforded all allegers. 

Rather, the NRC believes that confidential source status should be granted only 

when necessary to acquire information related to the Commission’s responsibilities 

or when warranted by special circumstances. Confidential source status ordinarily 

should not be granted, for instance, when the individual is willing to provide 

information without being given confidential source status.

B. Granting Confidential Source Status 

1. Confidential source status may be offered to an alleger if the alleger is reluctant to 

provide information (a standardized confidentiality agreement form is available in the 

Allegation Manual). If an alleger makes a request for confidentiality, the NRC must 

determine whether or not a grant of confidential source status is warranted. The NRC 

will gather pertinent information regarding the alleger’s reason for the request, 

alleger involvement in and actions related to the information, regulatory jurisdiction, 

and whether the NRC or others may already have knowledge of the information. The 

Allegation Manual contains a list of typical questions to ask an alleger for whom the 

NRC may consider granting confidential source status. 

2. Depending on the information gathered from an alleger who has not requested 

confidential source status, a determination should be made as to whether or not granting 

confidential source status would be in the best interest of the agency. An authorized 

NRC employee may offer confidential source status if an alleger is not providing 

information for fear of identity disclosure (see Sections IV.B.4 and IV.B.7 of this 

handbook). In this instance, as on the occasion when an alleger requests confidentiality, 

pertinent information must be gathered, as noted in Section IV.B.1 of this handbook, to 

determine whether or not a grant of confidential source status is warranted. 

3. When confidential source status is granted, the alleger is to be provided information 

regarding—

(a) The confidentiality agreement, 

(b) The sensitivity of the information the alleger is providing (including the potential 

that the information itself could reveal the source’s identity), 

(c) How the alleger’s confidentiality is controlled within NRC, and 

(d) How NRC will respond to questions about the alleger’s confidential source status (see 

the Allegation Manual regarding information provided to the confidential source). 
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4. An NRC employee wishing to grant confidential source status must either be 

delegated the authority to do so or must seek authorization from the appropriate 

regional or headquarters office official. Authorization can be prearranged as 

circumstances warrant, possibly involving a meeting with the alleger. The Executive 

Director for Operations (EDO) and the Director of OI may designate those persons 

within their organizations who may grant confidential source status or may further 

delegate the authority to do so. As standard practice, regional administrators, 

headquarters office directors, and OI Field Office Directors have received this 

designation from the EDO or the Director of OI.

5. Authority to grant confidential source status is to be documented in writing either 

through a standing delegation or an ad hoc authorization. In special circumstances, 

an oral authorization is permissible if it is subsequently confirmed in writing. The 

authority to grant confidential source status must be formally documented by the 

action office, such as in an internal regional or headquarters office procedure, in a 

memorandum to the OAC or, in the case of OI, in accordance with the OI 

Investigative Procedures Manual. 

6. Confidential source status may be temporarily given orally in circumstances in which it 

is impossible or inappropriate to sign a confidentiality agreement, such as when the 

information is obtained over the telephone, in a location not conducive to obtaining 

signatures, or (for OI only) when it is believed that insisting on signing an agreement 

document would cause the source to refuse to provide the allegation information. 

Under most of these circumstances, the confidentiality agreement usually will be 

signed within approximately 2 weeks. If documentation is not or cannot be completed 

in that time frame, or may never be completed because of the source’s reluctance, the 

EDO or the responsible OI Field Office Director will determine whether confidentiality 

should continue (see Section IV.C of this handbook). If confidential source status is 

granted orally, this permission must be immediately documented by the person 

granting it and this documentation must be provided to the responsible OAC or, in the 

case of OI, in accordance with the OI Investigative Procedures Manual.

7. Office directors, regional administrators, and in the case of OI, Field Office Directors, 

shall be informed of each grant of confidential source status issued by their office under 

a delegation of authority. These senior officials also shall approve any variance from the 

standard confidentiality agreement and each denial of confidential source status. 

8. OACs will maintain an accurate record of the status of grants of confidential source 

status made by their office or region and will maintain copies of signed confidentiality 

agreements. OI will maintain its records in accordance with its OI Investigative 

Procedures Manual. 

9. In contacts and correspondence with individuals who have been granted confidential 

source status, the NRC staff shall make their best effort to ensure that contacts and 

correspondence do not result in the disclosure of the individual as a confidential 

source. These efforts may include the use of non-Government return addresses, 

plain envelopes, and rental cars (as opposed to Government-owned vehicles). 

10. If at any time and for any reason confidentiality is breached or jeopardized, the 

appropriate regional administrator or headquarters office director should be informed 

and the confidential source should be advised. The director of the action office shall 
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be responsible for reviewing the circumstances associated with the release of the 

identity of the confidential source and will ensure that necessary actions are taken to 

preclude repetition of the breach. This review and the actions taken must be 

documented in the allegation file or the OI confidential source file. MD 3.4, “Release 

of Information to the Public,” provides guidance for staff actions subsequent to an

inappropriate identity release.

C. Revocation of Confidential Source Status

1. A decision to revoke confidential source status can only be made by the 

Commission, the EDO, or the Director of OI, depending on the office that granted 

confidential source status. The Commission may revoke a grant made by any office 

reporting to the EDO or to the Commission. The EDO may revoke grants of 

confidential source status made by offices reporting to the EDO. The Director of OI 

may only revoke grants of confidential source status originally made by OI.

2. Confidential source status will be revoked only in extreme cases, such as when a 

confidentiality agreement is not signed within a reasonable time following an oral 

grant of confidential source status, when a confidential source takes an action so 

inconsistent with the grant of confidential source status that the action overrides the 

purpose of being granted confidential source status, when publicly disclosed 

information reveals the individual’s status as a confidential source, or when the 

individual has intentionally provided false information to NRC. 

3. Before revoking confidential source status, NRC will attempt to notify the confidential 

source and provide him or her with an opportunity to explain why confidential source 

status should not be revoked.

D. Withdrawal of Confidential Source Status

The NRC official granting confidential source status may withdraw confidential source 

status without further approval, provided that the confidential source has made such a 

request in writing and the NRC official has confirmed that the requesting individual is the 

same person who was granted confidential source status, for example, by comparing the 

signature on the withdrawal request to the signature on the confidentiality agreement.

E. Official Disclosures

1. Disclosure to the Licensee or Other Affected Organization 

If it is necessary because of an OSI to release the identity of a confidential source 

outside NRC and the source agrees to this disclosure, the EDO will be consulted 

before the disclosure. If the source cannot be reached to determine if he or she 

objects to the identity release, or does not agree to disclosure, the staff will contact 

the Commission for resolution.
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2. Other Disclosures 

(a) Court Order 

A licensee or other entity could obtain a court order requiring NRC to divulge the 

identity of a confidential source. If this action occurs, NRC will seek to minimize 

the disclosure through protective orders or other means.

(b) NRC Adjudicatory Bodies 

(i) The Commission, as the ultimate adjudicatory authority within NRC, can 

require the NRC staff to reveal a confidential source. In a separate policy 

statement on “Investigations, Inspections, and Adjudicatory Proceedings”

(49 FR 36032; September 13, 1984), the Commission has provided that any 

decision by the ASLBP to order disclosure of the identity of a confidential 

source must be automatically submitted to the Commission for review. 

(ii) In making such a decision, the Commission will consider whether the 

information provided by the confidential source is reasonably available through 

alternative means, whether the information relates directly to the substantive 

allegations at issue in the proceedings, the present employment position of the 

confidential source, whether a party’s right to present rebuttal evidence or to 

conduct the cross-examination will be violated if he or she is not provided the 

names, and whether disclosure is necessary to complete the record.

(iii) The Commission notes that NRC may not have the option of dismissing a case 

to avoid disclosing a confidential source, such as when the identity of the source 

is material and relevant to a substantial safety issue or a licensing proceeding. 

(c) Congress 

Disclosure to Congress may be required in response to a written congressional 

request. The Commission will attempt to have any such disclosure limited to the 

extent possible, such as by ensuring that the request is made by Congress in its 

official oversight capacity, by hand-delivering the requested information, and by 

attempting to satisfy the request by not revealing the identity of the confidential 

source. Congress should be informed that the information provided involves a 

confidential source and should be protected from any disclosure that might serve 

to identify the confidential source. The Office of Congressional Affairs (OCA) will 

provide support to the staff in responding to such a request.

(d) Federal and State Agencies 

(i) If another agency demonstrates that it requires the identity of a confidential 

source or information that would reveal such a source’s identity in furtherance 

of its statutory responsibilities, and agrees to provide the same protection to 

the source’s identity that NRC promised when it granted confidential source 

status, the action office OAC or OI will attempt to contact the source to 

determine if he or she objects to the release. If the source is reached and 

does not object, the EDO or his or her designee, or the Director of OI or his or 

her designee, is authorized to provide the information or the identity to the 

other agency. However, if the source cannot be reached or objects to the 

release of his or her identity, the source’s identity may not be released without 
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the Commission’s approval, except as noted in Section IV.E.2(d)(ii) below. 

The affected agency may then request that the Commission release the 

source’s identity. Ordinarily, the source’s identity will not be provided to 

another agency over the source’s objection. In extraordinary circumstances in 

which furtherance of the public interest requires a release of the source’s 

identity, the Commission may release the identity of a confidential source to 

another agency over the objections of the source. In these cases, however, 

the other agency must agree to provide the same protection to the source’s 

identity that was promised by NRC. 

(ii) As an exception to Section IV.E.2(d)(i), when OI and the DOJ are pursuing 

the same matter or when OI is working with another law enforcement agency, 

the EDO or the Director of OI may reveal the identity of a confidential source 

to DOJ or the other law enforcement agency, as needed, without notifying the 

individual or consulting with the Commission. 

V. INITIATING, PRIORITIZING, AND TERMINATING INVESTIGATIONS BY THE 

OFFICE OF INVESTIGATIONS (OI)

This part provides guidance to staff on advising OI of matters of potential wrongdoing and alleged 

discrimination, submitting pertinent information to OI regarding the priority of investigations, and 

resolving differences between regional and headquarters offices regarding investigations, the 

initiation or termination of investigations, and the resolution of matters not investigated.

A. Staff Requirement To Advise OI of Matters of Potential Wrongdoing 

1. Wrongdoing consists of either a willful violation of regulatory requirements through 

deliberate action or a violation resulting from careless disregard of regulatory 

requirements. All NRC employees should be alert for matters involving potential 

wrongdoing, as such matters must be reviewed with OI, whether they are identified 

by an alleger, a licensee representative acting in his or her official capacity, or the 

NRC staff. The staff will assist OI in the review of matters involving potential 

wrongdoing at an early stage to facilitate the overall investigative process. 

2. Regional and headquarters offices are required to promptly notify OI when the staff is 

aware of an allegation or other matter that could involve wrongdoing on the part of 

licensees or other affected organizations or their contractors. Oral/telephone

notifications to OI are acceptable. Generally, these matters are brought forward by 

the staff through routine reporting channels; however, NRC’s open door policy 

provides that NRC employees may contact OI directly when circumstances so dictate 

(see MD 10.160, “Open Door Policy”).

3. In addition to the discussion in Sections V.A.1 and V.A.2 above, related to the staff 

requirement to advise OI of matters involving potential wrongdoing, it is noted that 

the action office directors and the Director of OE also retain the ability to request OI 

to conduct an investigation.
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B. Submittal of Information to OI

1. After OI is initially notified of a matter involving potential wrongdoing, pertinent 

information (e.g., telephone records, allegation receipt documentation, supporting 

documents, reference information) should be subsequently transmitted to OI. ARB 

meetings are normally used to coordinate with OI on followup actions related to 

wrongdoing issues. An OI representative must be invited to any ARB meeting that is 

scheduled to discuss alleged wrongdoing. 

2. OI is also provided information related to allegations of discrimination under Section 211 

of the ERA and invited to ARB meetings at which such matters are discussed. If the 

ARB determines, with OGC or regional counsel support, that an alleger has articulated a 

prima facie showing of potential discrimination, the ARB will assign an action to offer the 

alleger the opportunity to use Early ADR as a means of obtaining issue resolution (see 

Section II.I.3 of this handbook). If Early ADR is employed and is successful in obtaining 

a settlement between the alleger and his or her employer or former/prospective 

employer, OI will not initiate an investigation of the discrimination concern, as long as the 

agreement is reviewed by OGC and no restrictive covenants in violation of the 

applicable employee protection regulation exist. If Early ADR is not used by the alleger, if 

the alleger or the licensee has been unresponsive to the offer of Early ADR, or if the 

alleger is unsuccessful in establishing a settlement with his or her employer or 

former/prospective employer, the ARB will recommend that OI initiate an investigation.

3. Potential wrongdoing or alleged discrimination matters, regardless of their origin, should 

be coordinated with the OAC for entry into and tracking via the allegation process. 

Allegation processing will prompt discussion of these matters at an ARB meeting, with 

OI in attendance, where it is determined whether a potential wrongdoing or alleged 

discrimination matter is to be investigated. Additionally, responsible staff should provide 

a draft Notice of Violation related to an alleged wrongdoing matter, either at the initial 

ARB meeting, or shortly thereafter, to clarify the regulation that may have been willfully 

violated. If the ARB determines that an investigation is to be initiated, a priority of high, 

normal, or low will be assigned to the investigation, using guidance set forth in the 

Allegation Manual. If unable to attend the ARB, representatives of OGC or the regional 

counsel, as appropriate, will be consulted to determine whether there is an appropriate 

regulatory basis for an investigation to be conducted by OI.

4. The priority of an investigation being conducted by OI may be adjusted as 

appropriate by the affected regional administrator or headquarters office director at 

periodic meetings held with OI to discuss investigation priority and status. The 

Director of OE should be consulted, as appropriate, in applying the priority guidance 

with respect to questions on potential severity levels and enforcement actions.
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C. Resolution of Differences

1. After it has been recommended that OI initiate an investigation, OI will generate an 

Investigation Status Report (ISR) with a case priority as noted by the ARB, and provide a 

copy to the OAC. OI will conduct a preliminary investigation during a 90-day evaluation 

phase and then set the estimated completion date if the investigation continues. If there 

are any concerns involving the estimated completion date assigned to the investigation 

by OI or about an OI decision not to investigate a particular matter, the directors of the 

associated regional office, headquarters office, and OE shall be promptly notified so that 

efforts may be initiated to resolve the difference of opinion. 

2. Headquarters offices that are action offices along with OE are responsible to the 

EDO for ensuring that necessary investigations are conducted within their areas of 

responsibility. If a particular headquarters office believes that the priority assigned to 

a matter under OI investigation should be different from that established by the 

regional office at an ARB or at a periodic OI priority/status discussion with the 

regional administrator or his/her designee, the headquarters office should contact the 

regional office promptly to resolve the difference of opinion. 

3. If a decision cannot be reached regarding the appropriate priority for an investigation, 

the director of the associated headquarters office will review a licensing-related 

matter under investigation, and the Director of OE will review an enforcement-related 

matter under investigation. The headquarters office director will then consult with the 

Director of OI in an additional effort to reach a conclusion with regard to OI case 

priority. If the issue of assigned investigation priority remains unresolved after such a

review, the Deputy Executive Director for Materials, Waste, Research, State, Tribal, 

and Compliance Programs (DEDMRT) will be consulted for resolution. 

4. The DEDMRT shall attempt to resolve any remaining differences over the need, 

priority, and estimated completion date, for investigations with the Director of OI and 

the director of the responsible headquarters office. If unsuccessful in resolving the 

differences, the DEDMRT shall refer the matter to the EDO for resolution.

D. Initiation of an Investigation by OI

1. An investigation is an activity conducted by OI to independently gather and examine

testimonial, documentary, and physical evidence, and relevant facts, to assist the

staff, OE, and the DOJ in evaluating matters of potential wrongdoing or 

discrimination. When an OI investigation is initiated, it commences with certain 

preliminary investigative steps by OI to evaluate the nature and substance of a 

matter of alleged wrongdoing. If the preliminary investigation efforts indicate that the 

allegation, if true, was more likely to have been a result of wrongdoing and that the 

priority assigned to the investigation by the ARB was warranted, OI will continue the

investigation to follow appropriate investigative leads to their logical conclusion. 

Investigative efforts will be documented in an OI report of investigation, or closure 

memorandum, as appropriate, with copies provided to the associated headquarters

office, OGC, OE, and appropriate regional offices. 

2. OI will seek the Commission’s guidance before initiating a full investigation relating to 

the character or integrity of an individual when the character or suitability aspects of 
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the matter being considered for investigation are unrelated to a violation of NRC 

regulatory requirements.

3. Additionally, OI may self-initiate investigations or assists as deemed appropriate by 

the Director of OI.

E. Termination of Investigations

1. A case may be closed by OI without further investigation if preliminary investigative 

findings and coordination with the staff indicate that even if the circumstances 

surrounding the alleged wrongdoing issue were true, there would be no violation of a 

regulatory requirement. 

2. The decision to terminate an OI investigation will be made after a case-by-case 

assessment by the responsible OI Field Office Director on the basis of preliminary 

investigative findings, the investigation priority, investigative resource limitations, and 

any other pertinent contributing factor(s). OI will notify the associated regional or 

headquarters office of its basis for closure.

F. Resolution of Matters Returned by OI Without Investigation

1. Matters returned to the staff by OI without having completed a full investigation for the 

reasons discussed in Section V.E. of this handbook will be handled by the staff as part of 

its established process for resolving inspection findings. Staff followup may include 

additional inspections, written requests for information from the licensee, meetings 

between the staff and the licensee, proceeding with enforcement action on the basis of 

the original or supplemented inspection findings, or other actions, as appropriate. If the 

matter warrants a higher priority after supplemental information is developed or the 

original findings are reassessed, the matter may be discussed again with OI for possible 

investigation in accordance with the guidance specified in this handbook. 

2. Matters closed without a full investigation by OI may be closed by the staff when the 

appropriate regional administrator or headquarters office director determines that the 

technical issues involved do not warrant the expenditure of additional agency 

resources, assuming enforcement is not warranted.

VI. GLOSSARY

Action Office

The NRC regional or headquarters office that is responsible for reviewing and taking 

action, as appropriate, to evaluate an allegation. The Office of Nuclear Reactor 

Regulation (NRR), the Office of New Reactors (NRO), the Office of Nuclear Material 

Safety and Safeguards (NMSS), the Office of Federal and State Materials and 

Environmental Management Programs (FSME), the Office of Nuclear Security and 

Incident Response (NSIR), the Office of Nuclear Regulatory Research (RES), and the 

Office of International Programs (OIP) are the action offices for allegations that relate to 

matters under the purview of the headquarters office, such as generic and vendor 

issues. For the purposes of this management directive, the Office of Investigations (OI), 

the Office of Enforcement (OE), the Office of the General Counsel (OGC), and the Office 

of the Inspector General (OIG) are not considered action offices.
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Adverse Action

An action that may adversely impact the compensation, terms, conditions, or privileges of 

employment including, but not limited to, a failure to receive a routine annual pay increase 

or bonus, demotion or arbitrary downgrade of a position, transfer to a position that is 

recognized to have a lesser status or be less desirable (e.g., from a supervisory to a nonsupervisory position), failure to promote, overall performance appraisal downgrade, verbal 

or written counselling, or other forms of constructive discipline, or termination.

Agreement State

A State that has entered into a formal agreement with NRC by which the State assumes 

regulatory responsibility over certain byproduct, source, and small quantities of special 

nuclear material.

Allegation

A declaration, statement, or assertion of impropriety or inadequacy associated with 

NRC-regulated activities, the validity of which has not been established. Excluded from 

this definition are—

• Technical questions generated by NRC staff. NRC staff members should direct their 

technical concerns to NRC management for evaluation within appropriate processes 

(e.g., inspection program, differing professional opinion program);

• Inadequacies provided to NRC staff by licensee employees acting in their official capacity;

1

• Matters already entered into a licensee’s corrective action program that are not 

otherwise accompanied by an assertion of inadequate licensee followup;

2

• Matters being handled by other formal processes, such as petitions for rulemaking, 

petitions filed in accordance with 10 CFR 2.206 or contentions filed in hearings or 

other formal proceedings;

• Misconduct by NRC employees or NRC contractors;

• Non-radiological occupational health and safety issues;

 

1 This exclusion is intended to clarify that inadequacies discussed during official routine conversations 

between licensee employees and NRC staff are not intended to be treated as allegations. However, if 

the information provided by the licensee employee involves a wrongdoing issue or the employee 

expresses dissatisfaction with the licensee’s handling of the issue or another licensee, the information 

should be treated as an allegation.

2 Licensee corrective action processes provide the primary mechanism for the identification 

and resolution of problems. Once an issue is entered into the corrective action process, the licensee 

evaluates an identified problem, categorizes it in terms of safety significance, and takes action toward 

resolution. Unless a concerned individual can articulate why an item entered into the corrective action 

process was not or will not be handled properly by the licensee, such items should not be processed 

as allegations.
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• Concerns related to Agreement State licensee activities when the concerned 

individual agrees to have his or her concerns and identity provided to the Agreement 

State;

• Performance or wrongdoing concerns regarding organizations or personnel from 

State regulatory bodies that oversee Agreement State licensee activities;

• Matters reported to NRC by Agreement States resulting from Agreement State 

inspections; and

• Licensing activities that are forwarded to NRC that involve law enforcement and 

other Government agencies.

Note: Although the source is not external to NRC, matters identified by NRC staff that 

involve potential wrongdoing and that prompt investigation by OI are also tracked as 

allegations to facilitate headquarters and regional office monitoring of related OI 

followup. It is also noted that allegation concerns are not limited to matters that 

constitute a potential violation of NRC requirements.3

Allegation File

A file that contains the documentation concerning an allegation, including, but not limited 

to, correspondence, memoranda to the file, interview records, inspection reports, 

summaries of telephone conversations, discussions, and meetings, and pertinent 

information from related Office of Investigations (OI) activities.

Allegation Guidance Memorandum (AGM)

A guidance document, issued by the Agency Allegation Advisor (AAA), as necessary, 

between revisions to Management Directive 8.8, to address changes in allegation 

program policy or to provide guidance on implementation of existing policy.

Allegation Management System (AMS)

A computerized information system that contains a summary of significant data pertinent 

to each allegation.

Allegation Manual

A guidance document to assist the NRC staff in implementing the allegation program in 

practice. Intended for internal use by NRC staff who receive, evaluate, and respond to 

allegations, the Allegation Manual contains instructions, correspondence templates, and 

reference information to support allegation processing. Because the practices used to 

implement the allegation process and monitor allegation status change periodically, the 

 

3 As an example, a concern about a Commission policy issue, such as a safety conscious work 

environment (SCWE) problem at a facility is an allegation because of its potential bearing on the 

willingness of personnel to raise safety issues associated with NRC-regulated activities. While a 

substantiated concern in this area provides important input to the NRC’s assessment of facility 

performance, a Notice of Violation cannot be issued because there is no applicable regulation. 
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Allegation Manual will be maintained by Office of Enforcement (OE) on the NRC internal 

Web site at http://www.internal.nrc.gov/OE, so that users will have access to the latest 

practice guidance and reference information. Suggestions for changes or additions to 

the Allegation Manual should be provided to OE.

Allegation Review Board (ARB) 

A board established by regional administrators or headquarters office directors to 

determine the safety significance and appropriate NRC followup for each allegation. The 

ARB consists of a chairperson (an action office director, division director, deputy 

director, or senior manager designee), an Office Allegation Coordinator, and at least one 

other responsible person from the action office. Other personnel, as necessary, including 

staff from the Office of Investigations (OI), OE (or regional enforcement personnel), and 

the Office of the General Counsel (OGC) (or regional counsel) may participate as 

deemed necessary by the ARB chairperson.

Alleger

An individual who or an organization that submits an allegation to NRC. Anonymous 

concerns are accepted.

Chilling Effect

A condition that occurs when an event, interaction, decision, or policy change results in a 

perception that the raising of safety concerns to the employer or to the NRC is being 

suppressed or is discouraged.

Confidential Source

An individual who requests that NRC formally confirm, in writing, its intent to protect the 

individual’s identity. This confirmation is usually provided through a signed confidentiality 

agreement” (a standardized confidentiality agreement form is available in the Allegation 

Manual).

Confidentiality

Identity protection for an alleger who has been granted confidential source status. (See 

definitions of “identity protection” and “confidential source” in this Glossary.)

Discrimination

Adverse action taken by an employer against an employee, at least in part, for engaging 

in NRC protected activity.

Early-Alternative Dispute Resolution (Early-ADR)

For the purposes of this management directive, a term that refers to the use of a neutral 

mediator to facilitate discussion between an alleger and his or her employer (or former/

prospective employer) in an effort to facilitate timely resolution of a discrimination 

concern as an alternative to an OI investigation. The process is voluntary and applies 
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only to allegers who have articulated a prima facie showing of potential discrimination 

(see NUREG/BR-0313, Rev. 1,”Pre-Investigation ADR Program”).

Identity Protection

A term that refers to the protection of information that directly or otherwise could identify 

an alleger by name and/or the fact that an alleger provided information to NRC. For an 

alleger who has been granted confidential source status, identity protection is also 

referred to as “confidentiality.”

Inspection

For purposes of this management directive, a special activity usually conducted by 

regional and/or headquarters office staff and used to evaluate an allegation.

Investigation

An activity conducted by the Office of Investigations to independently gather and 

examine testimonial, documentary, and physical evidence, and relevant facts to assist 

the staff, OE, or the Department of Justice in evaluating allegations of wrongdoing 

and/or discrimination.

Licensee

For the purposes of this management directive, this term refers to an 

organization/individual, or a contractor, a subcontractor, or a vendor to an 

organization/individual that is an applicant for, or holder of, a license, permit, or 

certification issued pursuant to NRC regulations to operate a facility or to use, 

manufacture, produce, transfer, receive, acquire, own, possess, distribute, transport, 

import, or export specified quantities of byproduct, source, or special nuclear material.

Office Allegation Coordinator (OAC)

A designated staff member in a regional or headquarters office who serves as the point 

of contact for that action office regarding the processing of allegations.

Overriding Safety Issue

An issue that may represent an actual or potential immediate and/or significant threat to 

public health, safety, or security, warranting immediate action by the licensee to evaluate 

and address the issue.

Prima Facie Showing of Discrimination

Facts provided by an alleger that create a reasonable inference that an employer took 

an adverse action against the alleger for having engaged in protected activity.

Specifically, the alleger must provide facts indicating that (1) the alleger engaged in 

protected activity, (2) an adverse action was taken against the alleger, (3) persons

responsible for the adverse action had knowledge of the alleger’s protected activity, and 

(4) the protected activity was, at least in part, a reason for the adverse action. In such 
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circumstances, further investigation and/or development of evidence is needed in order 

to establish whether discrimination actually occurred.

Protected Activity

Activity related to the administration or enforcement of a requirement imposed under the 

Atomic Energy Act of 1954, as amended, or the Energy Reorganization Act of 1974, as 

amended, which include, but are not limited to, providing NRC or the employer with 

information about alleged violations of either statute or any requirements imposed under 

either statute; refusing to engage in any practice made unlawful under either statute if 

the employee identifies the alleged illegality to the employer; requesting NRC to institute 

action against the employer for administration or enforcement of these requirements; 

testifying before NRC, Congress, or in any Federal or State proceeding regarding any 

provision of the statutes; and assisting or participating in, or preparing to assist or 

participate in, these activities.

Receiving Office

The regional or headquarters office that initially receives an allegation. If an allegation 

falls within the functional responsibility of the receiving office, the action office and the 

receiving office will be the same.

Redaction

The process of concealing information to reasonably assure that a document related to 

an allegation does not contain alleger identifying information or classified, Safeguards, 

sensitive security, privacy, or proprietary information. 

Referral

Requesting another agency or external entity (other than the licensee) to provide 

allegation-related feedback, forwarding an issue to another agency or entity in its entirety 

when the issue is not an allegation, or providing an issue to NRC OIG because it relates 

to the performance of NRC staff or contractors, suspected improper conduct by NRC 

employees or NRC contractors, or mismanagement of agency programs or operations. 

Specifically, an issue is “referred” when (a) the NRC receiving office retains 

administrative responsibility for the allegation-related concern-in-question (i.e., is also 

the action office), but must obtain feedback from another agency or entity in order to 

respond to the concern (e.g., FEMA (for offsite emergency preparedness issues); (b) the 

issue is not under NRC purview (i.e., is not an allegation) and is forwarded by the NRC 

receiving office to the appropriate external agency or entity (e.g., EPA (for issues related 

to Superfund sites) or DOE (for radioactive materials issues under DOE purview)); or 

(c) the issue-in-question is an NRC staff or contractor performance issue to be 

forwarded by the NRC receiving office to NRC OIG.

Regional State Agreement Officer (RSAO)

A designated staff member in a regional office who serves as the point of contact for the 

regional office and the Office of Federal and State Materials and Environmental 

Management Programs regarding Agreement State radiation control programs. The 

RSAO provides technical support regarding the assessment of allegation matters 
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involving Agreement State radiation control programs and provides a liaison function for 

allegations referred to Agreement States.

Request for Information (RFI)

A request by the action office for information from the licensee regarding the validity of 

an allegation concern to enable a complete NRC assessment in response to the 

concern.

Safety Conscious Work Environment (SCWE)

A work environment in which employees are encouraged to raise safety concerns, are 

free to raise concerns to both their management and NRC without fear of retaliation, 

where their concerns are properly reviewed, given the appropriate priority, and are 

appropriately resolved, and where timely feedback is provided to those raising concerns.

Staff

NRC technical, investigative, and other administrative members.

Transfer

An NRC internal exchange of an allegation concern from the NRC receiving office to the 

NRC regional or headquarters office with responsibility for addressing the allegation (i.e., 

the action office).

Widely-Known Alleger

An alleger who has publicly identified himself or herself to the media, held a press 

conference, or is otherwise identified in a public setting as the individual who raised a 

specific allegation concern.

Wrongdoing

A willful violation of regulatory requirements through deliberate action or a violation resulting 

from careless disregard of regulatory requirements. See Section V, “Initiating, Prioritizing, 

and Terminating Investigations by the Office of Investigations (OI),” of this handbook.