NRC Enforcement Policy 

November 1, 2016 

U. S. Nuclear Regulatory Commission 

Office of Enforcement 

Washington, DC 20555-00 

 
NRC Enforcement Policy 

1 

TABLE OF CONTENTS 

Preface .......................................................................................................................................... 4

1.0 Introduction ....................................................................................................................... 5

1.1 Purpose .......................................................................................................................... 6

1.2 Applicability ..................................................................................................................... 6

1.3 Statutory Authority .......................................................................................................... 7

1.4 Regulatory Framework ................................................................................................... 7

1.5 Adequate Protection Standard ....................................................................................... 7

1.6 Responsibilities ............................................................................................................... 8

2.0 NRC Enforcement Process ............................................................................................... 8

2.1 Identification of Violations ............................................................................................... 9

2.2 Assessment of Violations ............................................................................................... 9

2.2.1 Factors Affecting Assessment of Violations ............................................................. 9

2.2.2 Traditional Enforcement ......................................................................................... 11

2.2.3 Assessment of Violations Identified Under the ROP or cROP ............................... 12

2.2.4 Using Traditional Enforcement to Disposition Violations Identified at Power 

Reactors ................................................................................................................. 12

2.2.5 Export and Import of Nuclear Equipment and Material .......................................... 13

2.2.6 Construction ........................................................................................................... 13

2.3 Disposition of Violations ............................................................................................... 14

2.3.1 Minor Violation ........................................................................................................ 14

2.3.2 Noncited Violation .................................................................................................. 14

2.3.3 Notice of Violation .................................................................................................. 16

2.3.4 Civil Penalty ............................................................................................................ 16

2.3.5 Orders .................................................................................................................... 25

2.3.6 Demand for Information .......................................................................................... 25

2.3.7 Administrative Actions ............................................................................................ 26

2.3.8 Reopening Closed Enforcement Actions ................................................................ 26

2.3.9 Enforcement Guidance Memoranda ...................................................................... 26

2.3.10 Commission Notification and Consultation on Enforcement Actions ...................... 26

2.3.11 Inaccurate and Incomplete Information .................................................................. 27

2.3.12 Reporting of Defects and Noncompliance .............................................................. 29

2.4 Participation in the Enforcement Process ..................................................................... 29

2.4.1 Predecisional Enforcement Conference ................................................................. 30
NRC Enforcement Policy 

2 

2.4.2 Regulatory Conference .......................................................................................... 30

2.4.3 Alternative Dispute Resolution ............................................................................... 30

3.0 USE OF ENFORCEMENT DISCRETION ....................................................................... 31

3.1 Violations Identified during Extended Shutdowns or Work Stoppages ......................... 32

3.2 Violations Involving Old Design Issues ......................................................................... 32

3.3 Violations Identified Because of Previous Enforcement Action .................................... 33

3.4 Violations Involving Certain Discrimination Issues ....................................................... 33

3.5 Violations Involving Special Circumstances ................................................................. 34

3.6 Use of Discretion in Determining the Amount of a Civil Penalty ................................... 34

3.7 Exercise of Discretion to Issue Orders ......................................................................... 35

3.8 Notices of Enforcement Discretion for Operating Power Reactors and Gaseous 

Diffusion Plants ............................................................................................................ 35

3.9 Violations Involving Certain Construction Issues .......................................................... 36

3.10 Reactor Violations With No Performance Deficiencies ................................................. 37

4.0 Enforcement actions involving individuals ....................................................................... 37

4.1 Considerations in Determining Enforcement Actions Involving Individuals .................. 39

4.2 Notices of Violation and Orders to Individuals .............................................................. 39

4.3 Civil Penalties to Individuals ......................................................................................... 40

4.4 Confirmatory Orders to Individuals ............................................................................... 41

5.0 Public Availability of Information Regarding Enforcement Actions .................................. 41

6.0 Violation EXAMPLES ...................................................................................................... 41

6.1 Reactor Operations ...................................................................................................... 42

6.2 Fuel Cycle Operations .................................................................................................. 44

6.3 Materials Operations .................................................................................................... 46

6.4 Licensed Reactor Operators ......................................................................................... 50

6.5 Facility Construction (10 CFR Parts 50 and 52 Licensees and Fuel Cycle Facilities) .. 52

6.6 Emergency Preparedness ............................................................................................ 54

6.7 Health Physics .............................................................................................................. 56

6.8 Transportation .............................................................................................................. 59

6.9 Inaccurate and Incomplete Information or Failure to Make a Required Report ............ 61

6.10 Discrimination ............................................................................................................... 65

6.11 Reactor, Independent Spent Fuel Storage Installation, Fuel Facility, and Special 

Nuclear Material Security ............................................................................................. 67

6.12 Materials Security ......................................................................................................... 69

6.13 Information Security ...................................................................................................... 73
NRC Enforcement Policy 

3 

6.14 Fitness for Duty ............................................................................................................ 75

6.15 Export and Import Activities .......................................................................................... 77

7.0 Glossary .......................................................................................................................... 79

8.0 Table of Base Civil Penalties .......................................................................................... 84

9.0 INTERIM ENFORCEMENT POLICIES ........................................................................... 86

9.1 Enforcement Discretion for Certain Fire Protection Issues (10 CFR 50.48) ................. 86

9.2 Enforcement Discretion for Permanent Implant Brachytherapy Medical Event ............ 89

10.0 PAPERWORK REDUCTION ACT STATEMENT and PUBLIC PROTECTION 

NOTIFICATION ............................................................................................................... 91
NRC Enforcement Policy 

4 

PREFACE 

The U.S. Nuclear Regulatory Commission (referred to as the NRC, Commission, or 

Agency) Enforcement Policy sets forth the general principles governing the NRC’s enforcement 

program and the Commission’s expectations regarding the process to be used by the NRC to 

assess and disposition violations of NRC requirements. However, this is a policy statement and 

not a regulation. The Commission may deviate from this statement of policy as appropriate 

under the circumstances of a particular case. The Policy also describes how organizations and 

individuals subject to NRC enforcement actions can provide input to the process. A glossary is 

provided which defines specific terms or words as they are used in the context of this Policy. 

The NRC Enforcement Manual contains specific processes and guidance for implementing this 

Policy. The guidance provided in the Enforcement Manual has been written to be consistent 

with this Enforcement Policy. The Enforcement Manual appears on the NRC’s public Web site, 

http://www.nrc.gov (select Public Meetings and Involvement, then Enforcement, then

Guidance, then Enforcement Manual or select Electronic Reading Room, ADAMS 

Documents, and search ADAMS using accession number ML102630150). 

A compilation of the statutes and materials pertaining to current nuclear regulatory legislation 

can be found on the NRC webpage. 

Changes to the NRC Enforcement Policy since it was first published with links to a summary of 

each change and the Federal Register notice for each change are maintained on the NRC 

Office of Enforcement (OE) webpage. 
NRC Enforcement Policy 

5 

1.0 INTRODUCTION 

The mission of the NRC is to license and regulate the Nation’s civilian use of byproduct, source, 

and special nuclear materials to ensure adequate protection of public health and safety, 

promote the common defense and security, and protect the environment. 

The following are some of the activities that the NRC performs as part of its mission: 

a. establishing requirements and guidance addressing the possession and use of source, 

byproduct, and special nuclear material 

b. licensing applicants to use source, byproduct, and special nuclear material and construct 

and operate licensed facilities in accordance with NRC requirements and specific license 

conditions 

c. promoting the transparency and openness of the NRC’s enforcement program for all 

stakeholders 

Oversight of licensed activities ensures that licensees are complying with NRC requirements 

and license conditions. Enforcement is an important part of the NRC’s oversight activities. 

 Figure 1. How the NRC Regulates 
NRC Enforcement Policy 

6 

1.1 Purpose 

The NRC Enforcement Policy supports the NRC’s mission to ensure adequate protection of 

public health and safety, promote the common defense and security, and protect the 

environment. Adequate protection is presumptively assured by compliance with NRC 

requirements. Compliance with NRC requirements, including regulations, technical 

specifications, license conditions, and Orders, provides reasonable assurance to the NRC and 

the public that safety and security are being maintained. The application of this Policy ensures 

that associated enforcement actions properly reflect the safety or security significance of such 

violations. Consistent with this objective, the Enforcement Policy endeavors to do the following: 

a. Deter noncompliance by emphasizing the importance of compliance with NRC 

requirements. 

b. Encourage prompt identification and prompt comprehensive correction of violations of 

NRC requirements. 

1.2 Applicability

The Enforcement Policy applies to all NRC licensees and applicants, to various categories of 

nonlicensees, and to individual employees of licensed and nonlicensed entities involved in 

NRC-regulated activities. These include, but are not limited to the following: 

a. organizations and individuals holding NRC licenses 

b. license applicants 

c. contractors and subcontractors to NRC licensees 

d. holders of and applicants for various NRC approvals, including, but not limited to: 

1. NRC certificates of compliance 

2. early site permits 

3. standard design certifications 

4. quality assurance (QA) program approvals 

5. certifications 

6. limited work authorizations (LWA) 

7. construction authorizations 

8. other permits and forms of NRC approval 

e. vendors supplying safety-related components to NRC licensees 

f. employees of any of the above 

Not all NRC requirements apply to all of the categories listed above; however, the Agency will 

use the Enforcement Policy, as appropriate, to address violations of NRC requirements. 
NRC Enforcement Policy 

7 

It is NRC policy to hold licensees, certificate holders, and applicants responsible for the acts of 

their employees, contractors, or vendors and their employees, and the NRC may cite the 

licensee, certificate holder, or applicant for violations committed by its employees, contractors, 

or vendors and their employees. 

The NRC may use the term “licensee” in this Policy to generally refer not only to licensees, but 

also to certificate holders and applicants. 

1.3 Statutory Authority 

The NRC derives its principal authority to license and regulate the civilian use of nuclear 

materials from two statutes: (1) the Atomic Energy Act (AEA) of 1954, as amended, which 

provides broad authority to license and regulate the civilian use of nuclear materials, and (2) the 

Energy Reorganization Act (ERA) of 1974, as amended, which established the Agency and its 

major offices. The Administrative Dispute Resolution Act of 1996 (ADRA), 5 U.S.C. §§ 571-584, 

provides the statutory framework for the Federal Government to use alternative dispute 

resolution (ADR). 

1.4 Regulatory Framework 

The NRC’s enforcement program is governed by its regulations. Title 10 of the Code of Federal 

Regulations (10 CFR) Part 2, “Agency Rules of Practice and Procedure,” Subpart B, “Procedure 

for Imposing Requirements by Order, or for Modification, Suspension, or Revocation of a 

License, or for Imposing Civil Penalties,” describes the formal procedures that the NRC uses to 

implement its enforcement authority. 

1.5 Adequate Protection Standard 

Adequate protection of the public health and safety and assurance of the common defense and 

security and protection of the environment are the NRC’s fundamental regulatory objectives. 

Compliance with NRC requirements plays a critical role in giving the NRC confidence that safety 

and security are being maintained. While adequate protection is presumptively assured by 

compliance with NRC requirements, circumstances may arise where new information reveals 

that an unforeseen hazard or security issue or security event exists or that a substantially 

greater potential exists for a known hazard to occur. In such situations, the NRC has the 

statutory authority to require action by licensees, their employees and contractors, and 

certificate holders above and beyond existing regulations to maintain the level of protection 

necessary to avoid undue risk to public health and safety, and to ensure security of materials. 

The NRC also has the authority to exercise discretion to permit continued operations—despite 

the existence of a noncompliance—where the noncompliance is not significant from a risk 

perspective and does not, in the particular circumstances, pose an undue risk to public health 

and safety. When noncompliance with NRC requirements occurs, the NRC must evaluate the 

degree of risk posed by that noncompliance to determine whether immediate action is required. 

If the NRC determines that the noncompliance itself is of such safety significance that adequate 

protection is no longer provided, or that the noncompliance was caused by a failure of licensee 

controls so significant that it calls into question the licensee’s ability to ensure adequate 

protection, the NRC may demand immediate action, up to and including a shutdown or 
NRC Enforcement Policy 

8 

suspension of licensed activities. Based on the NRC’s evaluation of noncompliance, the 

appropriate action could include refraining from taking any action, taking specific enforcement 

action including the use of civil penalties, issuing Orders, or providing input to other regulatory 

actions or assessments, such as increased NRC oversight of a licensee’s activities. Since 

some requirements are more important to safety than others, the NRC endeavors to use a 

risk-informed approach when applying NRC resources to the oversight of licensed activities, 

including enforcement activities. 

1.6 Responsibilities 

The Executive Director for Operations (EDO) and the principal enforcement officers of the NRC, 

the Deputy Executive Director for Reactor and Preparedness Programs (DEDR) and the Deputy 

Executive Director for Materials, Waste, Research, State, Tribal, Compliance, Administration 

and Human Capital (DEDM), have been delegated the authority to approve or issue all 

escalated enforcement actions. The DEDM is responsible to the EDO for NRC enforcement 

programs. The Director, OE, with some limitations, is delegated the authority by the DEDM to 

approve, sign, and issue all enforcement actions and to oversee and implement the NRC 

enforcement program.1 

Subject to the oversight and direction of the Director, OE, and with the approval of the DEDM, 

where necessary, the regional offices normally issue notices of violation (NOVs) and proposed 

civil penalties. Subject to the same oversight as the regional offices, the Directors of the Office 

of Nuclear Reactor Regulation (NRR), the Office of Nuclear Material Safety and Safeguards 

(NMSS), the Office of New Reactors (NRO), and the Office of Nuclear Security and Incident 

Response (NSIR) may also approve, sign, and issue certain enforcement actions as delegated 

by the Director, OE. The Director, OE, has delegated authority to the Directors of NRR, NMSS, 

NRO, and NSIR to issue Orders not related to specific violations of NRC requirements (i.e., 

nonenforcement-related Orders.) The Chief Financial Officer has been delegated the authority 

to issue Orders where licensees violate Commission regulations by nonpayment of license and 

inspection fees. (See NRC Enforcement Manual for a discussion of delegation of enforcement 

authority.) 

2.0 NRC ENFORCEMENT PROCESS 

The NRC’s enforcement process has the following basic steps. 

a. First, violations must be identified. 

b. Next, the NRC must assess the severity or significance of the violation. 

c. Finally, the NRC must disposition the violation. 

Throughout the process, an organization or individual subject to an NRC enforcement action 

has multiple opportunities to provide input. 

 

1 See NRC Enforcement Manual for additional information regarding the authority delegated to the Director, 

OE.
NRC Enforcement Policy 

9 

2.1 Identification of Violations 

The enforcement process begins with the identification of violations, either through NRC 

inspections or investigations, a licensee report, or substantiation of an allegation. 

All violations are subject to consideration for civil enforcement action; some violations may also 

be considered for criminal prosecution by the U.S. Department of Justice. After a potential 

violation is identified, it is assessed in accordance with this Policy. The NRC’s enforcement 

assessment process is fact driven, performance based, and, when appropriate and possible, 

risk informed. The NRC reviews each case being considered for enforcement action on its own 

merits to ensure that the severity of a violation is characterized at the level appropriate to the 

safety or security significance of the particular violation. 

2.2 Assessment of Violations 

After a violation is identified, the NRC assesses its severity or significance (both actual and 

potential). Under traditional enforcement, the severity level (SL) assigned to the violation 

generally reflects the assessment of the significance of a violation. For most violations 

committed by power reactor licensees, the significance of a violation is assessed using the 

Reactor Oversight Process (ROP) or the Construction Reactor Oversight Process (cROP), as 

discussed below in Section 2.2.3, “Assessment of Violations Identified Under the ROP or 

cROP.” All other violations at power reactors or power reactor facilities under construction will 

be assessed using traditional enforcement as described in Section 2.2.4, “Using Traditional 

Enforcement to Disposition Violations Identified at Power Reactors.” Violations identified at 

facilities that are not subject to an ROP or cROP are assessed using traditional enforcement. 

2.2.1 Factors Affecting Assessment of Violations 

In determining the appropriate enforcement response to a violation, the NRC considers the four 

specific factors discussed below. Whenever possible, the NRC uses risk information in 

assessing the safety or security significance of violations and assigning severity levels. A 

higher severity level may be warranted for violations that have greater risk, safety, or security 

significance, while a lower severity level may be appropriate for issues that have lower risk, 

safety, or security significance. Duration of the violation is also an appropriate consideration in 

assessing the significance of the violation. 

a. Whether the violation resulted in actual safety or security consequences. In evaluating 

actual consequences, the NRC considers issues such as whether the violation resulted 

in the onsite or offsite releases of radiation or radiation exposures exceeding 10 CFR 

Part 20, “Standards for Protection Against Radiation,” regulatory limits, onsite or offsite 

chemical hazard exposures resulting from licensed or certified activities, accidental 

criticality, core damage, loss of significant safety barriers, loss of control of radioactive 

material or radiological emergencies, any violations during an actual General Emergency 

that prevents offsite response organizations from implementing protective actions (under 

their emergency plans) to protect public health and safety, or whether the security 

system did not function as required and, as a result of the failure, a significant event or 

an event that resulted in an act of radiological sabotage occurred. 
NRC Enforcement Policy 

10 

b. Whether the violation had potential safety or security consequences. In evaluating 

potential consequences, the NRC considers whether the violation created a credible 

accident, security failure, or exposure scenario that could potentially have significant 

actual consequences. For facilities under construction, the NRC considers the actual or 

potential impact of the violation on the quality of construction and its resulting effect on 

the safety and security of the facility. 

c. Whether the violation impacted the ability of the NRC to perform its regulatory oversight 

function. The NRC considers the safety and security implications of noncompliances 

that may affect the NRC’s ability to carry out its statutory mission. These types of 

violations include failures to provide complete and accurate information; failures to 

receive prior NRC approval for changes in licensed activities, when required; failures to 

notify the NRC of required changes in licensed activities, when required; failures to 

perform 10 CFR 50.59, “Changes, Tests and Experiments,” and similar analyses; 

failures to maintain an up-to-date and accurate FSAR; and failures to comply with 

reporting requirements, etc. Even inadvertent reporting failures are important because 

many of the surveillance, quality control, and auditing systems on which both the NRC 

and its licensees rely to monitor compliance with safety standards are based primarily on 

complete, accurate, and timely recordkeeping and reporting. The existence of a 

regulatory process violation does not automatically mean that the issue is significant to 

safety or security. In determining the significance of a violation, the NRC will consider 

appropriate factors for the particular regulatory process violation. These factors may 

include the significance of the underlying issue, whether the failure actually impeded or 

influenced regulatory action, the level of individuals involved in the failure and the reason 

why the failure occurred given their position and training, and whether the failure 

invalidates the licensing basis. 

Unless otherwise categorized in the violation examples contained in this Policy (i.e., 

Section 6.0), the severity level of a violation involving the failure to make a required 

report to the NRC will depend on the significance of and the circumstances surrounding 

the matter that should have been reported. However, the severity level of an untimely 

report, in contrast to no report, may be reduced depending on the circumstances. The 

NRC will not normally cite a licensee for a failure to report a condition or event unless 

the licensee was actually aware of the condition or event that it failed to report. On the 

other hand, the Agency will normally cite a licensee for a failure to report a condition or 

event if the licensee knew of the information to be reported and did not recognize that it 

was required to make a report. 

d. Whether the violation involved willfulness. Willful violations are of particular concern 

because the NRC’s regulatory program is based on licensees and their contractors, 

employees, and agents acting with integrity and communicating with candor. The 

Commission cannot tolerate willful violations. Therefore, a violation may be considered 

more significant than the underlying noncompliance if it includes indications of 

willfulness. Violations with willful aspects will typically be considered for escalated 

enforcement (i.e., SL I, II, or III). The term “willfulness” as used in this Policy refers to 

conduct involving either a careless disregard for requirements or a deliberate violation of 

requirements or falsification of information. In determining the significance of a violation 

involving willfulness, the NRC will consider such factors as the position, training, 
NRC Enforcement Policy 

11 

experience level, and responsibilities of the person involved in the violation (e.g., 

licensee official or nonsupervisory employee), the significance of any underlying 

violation, the intent of the violator (i.e., careless disregard or deliberateness), and the 

economic or other advantage, if any, gained as a result of the violation. The relative 

weight given to each of these factors in the significance assessment will depend on the 

circumstances of the violation. However, if a licensee refuses to correct a minor 

violation within a reasonable time such that it willfully continues, the violation should be 

considered more than minor. Licensees are expected to take significant remedial action 

in responding to willful violations commensurate with the circumstances, such that the 

action reflects the seriousness of the violation, thereby creating a deterrent effect within 

the licensee’s organization. 

2.2.2 Traditional Enforcement 

Under its traditional enforcement process, the NRC assesses significance by assigning a 

severity level to all violations by those subject to the NRC’s enforcement authority as defined in 

Section 1.2, “Applicability of the Enforcement Policy,” and to some violations by power reactor 

licensees. However, the Agency assesses most violations by power reactor licensees under the 

ROP or cROP using the significance determination process (SDP) (see Section 2.2.3). (Section 

6.0 of this Policy provides examples of SL I, II, III, and IV violations in 15 activity areas. These 

examples are not intended to be exhaustive or controlling). 

Recognizing that the regulation of nuclear activities in many cases does not lend itself to a 

mechanistic treatment, judgment and discretion must be exercised in determining the severity 

levels of the violations and the appropriate enforcement sanctions. This judgment and 

discretion include the decision to issue an NOV, or to propose or impose a civil penalty and the 

amount of this penalty, after considering the general principles of this statement of policy and 

the significance of the violations, as well as the surrounding circumstances. 

Severity level designations reflect different degrees of significance depending on the activity 

area in which the severity level is designated. For example, the immediacy of any hazard to the 

public associated with SL I in reactor operations is not directly comparable to that associated 

with SL I violations in facility construction. 

a. SL I violations are those that resulted in or could have resulted in serious safety or 

security consequences (e.g., violations that created the substantial potential for serious 

safety or security consequences or violations that involved systems failing when actually 

called on to prevent or mitigate a serious safety or security event). 

b. SL II violations are those that resulted in or could have resulted in significant safety or 

security consequences (e.g., violations that created the potential for substantial safety or 

security consequences or violations that involved systems not being capable, for an 

extended period, of preventing or mitigating a serious safety or security event). 

c. SL III violations are those that resulted in or could have resulted in moderate safety or 

security consequences (e.g., violations that created a potential for moderate safety or 

security consequences or violations that involved systems not being capable, for a 

relatively short period, of preventing or mitigating a serious safety or security event). 
NRC Enforcement Policy 

12 

d. SL IV violations are those that are less serious, but are of more than minor concern, that 

resulted in no or relatively inappreciable potential safety or security consequences (e.g., 

violations that created the potential of more than minor safety or security 

consequences). 

e. Minor Violations are those that are less significant than a SL IV violation. Minor 

violations do not warrant enforcement action and are not normally documented in 

inspection reports. However, minor violations must be corrected. 

2.2.3 Assessment of Violations Identified Under the ROP or cROP 

The assessment, disposition, and subsequent NRC action related to inspection findings 

identified at operating power reactors are determined by the ROP, as described in NRC 

Inspection Manual Chapter (IMC) 0305, “Operating Reactor Assessment Program,” and IMC 

0612, “Power Reactor Inspection Reports.” The assessment, disposition, and subsequent NRC 

action related to inspection findings identified at power reactors under construction are 

determined by the cROP, as described in IMC 2505, “Periodic Assessment of Construction 

Inspection Program Results” and in IMC 0613, “Power Reactor Construction Inspection 

Reports.” 

Inspection findings identified through the ROP are assessed for significance using the SDP 

described in IMC 0609, “Significance Determination Process.” Inspection findings identified 

through the cROP are assessed for significance using the SDP described in IMC 2519, 

“Construction Significance Determination Process.” The SDPs use risk insights, where 

possible, to assist the NRC staff in determining the significance of inspection findings identified 

within the ROP or cROP. Inspection findings processed through the SDP, including associated 

violations, are documented in inspection reports and are assigned one of the following colors, 

depending on their significance. 

a. red—inspection findings with high safety or security significance 

b. yellow—inspection findings with substantial safety or security significance 

c. white—inspection findings with low-to-moderate safety or security significance 

d. green—inspection findings with very low safety or security significance 

With the exceptions noted below in Section 2.2.4, violations associated with ROP or cROP 

inspection findings are not normally assigned severity levels, nor are they normally subject to 

civil penalties, although civil penalties are considered for any violation that involves actual 

consequences. 

2.2.4 Using Traditional Enforcement to Disposition Violations Identified at Power Reactors 

Some aspects of violations at power reactors cannot be addressed solely through the SDP. In 

these cases, violations must be addressed separately from any associated ROP or cROP 

findings (when findings are present). Accordingly, these violations are assigned severity levels 
NRC Enforcement Policy 

13 

and can be considered for civil penalties in accordance with this Policy while the significance of 

the associated ROP or cROP finding (when present) must be dispositioned in accordance with 

the SDP. In determining the severity level assigned to such violations, the NRC will consider 

information in this Policy and the violation examples in Section 6.0 of this Policy, as well as 

SDP-related information, when available. Typically, the types of violations dispositioned using 

traditional enforcement include the following: 

a. violations that resulted in actual safety or security consequences (as described in 

Section 2.2.1.a) 

b. violations that may impact the ability of the NRC to perform its regulatory oversight 

function (as described in 2.2.1.c) 

c. violations involving willfulness (as described in Section 2.2.1.d) 

d. violations not associated with ROP or cROP findings 

2.2.5 Export and Import of Nuclear Equipment and Material 

The NRC will normally take enforcement action for violations of the Agency’s export and import 

requirements in 10 CFR Part 110, “Export and Import of Nuclear Equipment and Material,” for 

radioactive material and equipment within the scope of the NRC’s export and import licensing 

authority (10 CFR 110.8, 110.9, and 110.9a) for (1) completeness and accuracy of information, 

(2) reporting and recordkeeping requirements (10 CFR 110.23, 110.26, 110.50, and 110.54), 

and (3) adherence to general and specific licensing requirements (10 CFR 110.20 - 110.27 and 

10 CFR 110.50). 

2.2.6 Construction 

In accordance with 10 CFR 50.10, no person may begin the construction of a production 

or utilization facility on a site on which the facility is to be operated until that person has 

been issued either a construction permit under 10 CFR Part 50, a combined license 

under 10 CFR Part 52, an early site permit authorizing the activities under 

10 CFR 50.10(d), or a limited work authorization under 10 CFR 50.10(d). In an effort to 

preclude unnecessary regulatory burden on 10 CFR Part 52 combined license holders 

while maintaining safety, the Changes during Construction (CdC) Preliminary 

Amendment Request (PAR) process was developed in Interim Staff Guidance (ISG)-025 

“Interim Staff Guidance on Changes During Construction Under 10 CFR Part 52.” The 

license condition providing the option for a PAR as detailed in ISG-025 allows the 

licensee to request to make physical changes to the plant that are consistent with the 

scope of the associated license amendment request (LAR). The NRC staff may issue a 

No-Objection Letter with or without specific limitations, in response to the PAR. 

Enforcement actions will not be taken for construction pursuant to a PAR No-Objection 

Letter that is outside of the current licensing basis (CLB) while the corresponding LAR is 

under review as long as the construction is consistent with the associated LAR and the 

No-Objection Letter (the latter of which may contain limitations on construction 

activities). The PAR No-Objection Letter authorization is strictly conditioned on the 

licensee’s commitment to return the plant to its CLB if the requested LAR is 
NRC Enforcement Policy 

14 

subsequently denied or withdrawn. Failure to timely restore the CLB may be subject to 

separate enforcement, such as an order, a civil penalty, or both. 

In accordance with 10 CFR 70.23(a)(7) and 10 CFR 40.32(e), commencement of 

construction before the NRC finishes its environmental review of license or amendment 

applications for processing and fuel fabrication, scrap recovery, conversion of uranium 

hexafluoride, uranium enrichment facility construction and operation, or uranium milling 

is grounds for denial to possess and use licensed material in the plant or facility. 

Additionally, in accordance with10 CFR 70.23(b), failure to obtain Commission approval 

for the construction of the principal structures, systems, and components of a plutonium 

processing and fuel fabrication plant before the commencement of such construction 

may also be grounds for denial of a license to possess and use byproduct, source, or 

special nuclear material in the plant or facility.

2.3 Disposition of Violations 

This section describes the various ways that the NRC can disposition violations. 

2.3.1 Minor Violation 

Violations of minor safety or security concern generally do not warrant enforcement action or 

documentation in inspection reports but must be corrected. Examples of minor violations can 

be found in the NRC Enforcement Manual, IMC 0612, Appendix E, “Examples of Minor Issues,” 

IMC 0613, Appendix E, “Examples of Minor Construction Issues,” and IMC 0617, Appendix E, 

“Minor Examples of Vendor and Quality Assurance Implementation Findings.” Provisions for 

documenting minor violations can be found in the NRC Enforcement Manual, IMC 0610, 

IMC 0612, IMC 0613, IMC 0616, and IMC 0617. 

2.3.2 Noncited Violation 

If a licensee or nonlicensee has implemented a corrective action program that is determined to 

be adequate by the NRC,2 the NRC will normally disposition SL IV violations and violations 

associated with green ROP or cROP findings as noncited violations (NCVs) if all the criteria in 

Paragraph 2.3.2.a. are met. 

For licensees and nonlicensees that are not credited by the NRC as having adequate corrective 

action programs, the NRC will normally disposition SL IV violations and violations associated 

with green ROP or cROP findings as NCVs if all of the criteria in Paragraph 2.3.2.b. are met. If 

the SL IV violation or violation associated with a Green ROP or cROP finding was identified by 

the NRC, the NRC will normally issue a Notice of Violation. 

Inspection reports or inspection records document NCVs and briefly describe the corrective 

action the licensee or nonlicensee has taken or plans to take, if known. Licensees and 

nonlicensees are not required to provide written responses to NCVs; however, they may provide 

a written response if they disagree with the NRC’s description of the NCV or dispute the validity 

of the NCV. 

 

2 The NRC may credit a formal corrective action program that has been inspected and found to meet 

regulatory guidance, industry standards, or both.
NRC Enforcement Policy 

15 

a. Licensees and Nonlicensees with a credited Corrective Action Program3 

1. The licensee or nonlicensee must place the violation into a corrective action 

program to restore compliance and address recurrence. 

2. The licensee or nonlicensee must restore compliance (or demonstrate objective 

evidence of plans to restore compliance) within a reasonable period of time (i.e., 

in a timeframe commensurate with the significance of the violation) after a 

violation is identified. 

3. For traditional enforcement, the violation must either not be repetitive4 as a result 

of inadequate corrective action, or, if repetitive, the repetitive violation must not 

have been identified by the NRC. This criterion does not apply to violations 

associated with green ROP or cROP findings. 

4. The violation must not be willful. Notwithstanding willfulness, an NCV may still 

be appropriate in the following circumstances: 

(a) The licensee or nonlicensee identified the violation and promptly provided 

the information concerning the violation, if not required to be reported, to 

appropriate NRC personnel, such as a resident inspector or regional 

branch chief. 

(b) The violation involved the acts of an individual in a low-level position 

within the licensee’s or nonlicensee’s organization (and not a licensee or 

nonlicensee official as defined in Section 7.0, “Glossary”). 

(c) The violation appears to be the isolated action of the employee without 

management involvement, and the violation was not caused by lack of 

management oversight as evidenced by either a history of isolated willful 

violations or a lack of adequate audits or supervision of employees. 

(d) The licensee or nonlicensee took significant remedial action 

commensurate with the circumstances. This action demonstrated the 

seriousness of the violation to other employees and contractors, thereby 

creating a deterrent effect within the licensee’s or nonlicensee’s 

organization. 

The approval of the Director, OE, is required to disposition willful violations as 

NCVs. 

 

3 The NRC will credit a formal corrective action program that has been inspected and found to meet regulatory 

guidance, industry standards, or both.

4 A violation is considered “repetitive” if it could reasonably be expected to have been prevented by the 

licensee's corrective action for a previous violation. In addition, a violation is considered “repetitive” if a previous 

licensee finding occurred within the past 2 years of the inspection at issue, or the period between the last two 

inspections, whichever is longer. 
NRC Enforcement Policy 

16 

b. All Other Licensees and Nonlicensees 

1. The licensee or nonlicensee identified the violation.5

2. The licensee or nonlicensee corrected or committed to correcting the violation 

within a reasonable period of time by specific corrective action committed to by 

the end of the inspection, including immediate corrective action and 

comprehensive action to prevent recurrence. 

3. The violation is not repetitive as a result of inadequate corrective action. 

4. The violation is not willful. Notwithstanding willfulness, an NCV may still be 

appropriate if it meets the criteria in Section 2.3.2.a.4 above. 

The approval of the Director, OE, is required to disposition willful violations as NCVs. 

2.3.3 Notice of Violation 

A Notice of Violation (NOV) (see 10 CFR 2.201, “Notice of Violation”) is a written notice setting 

forth one or more violations of a legally binding requirement and normally requires the recipient 

to provide a written response describing (1) the reasons for the violation or, if contested, the 

basis for disputing the violation, (2) the corrective steps that have been taken by the licensee or 

other person and the results achieved, (3) the corrective steps that will be taken, and (4) the 

date when full compliance will be achieved. The NRC may waive all or portions of a written 

response to the extent that relevant information has already been provided to the NRC in writing 

or documented in an NRC inspection report or inspection record. The NRC may require 

responses to NOVs to be under oath; however, normally, responses under oath will be 

considered necessary only for SL I, II, or III violations; violations assessed using an SDP as 

white, yellow, or red; or violations of NRC Orders. A civil penalty may be issued in conjunction 

with an NOV. 

2.3.4 Civil Penalty 

A civil penalty (see 10 CFR 2.205, “Civil Penalties”) is a monetary penalty that the NRC may 

impose for violations of (1) certain specified licensing provisions of the AEA or supplementary 

NRC rules or Orders, (2) any requirement for which a license may be revoked, (3) reporting 

requirements under Section 206 of the ERA, or (4) any NRC rule adopted under Section 147 of 

the AEA with respect to safeguards information. Based on the circumstances of a specific case, 

the NRC may increase a civil penalty where application of the guidance in this Policy would 

normally result in a zero penalty or a base civil penalty, to ensure that the proposed civil penalty 

reflects the safety significance of the case. The NRC’s policy of imposing graduated civil 

penalties generally takes into account the gravity of the violation as the primary consideration 

and the ability to pay as a secondary consideration. Thus, operations involving greater nuclear 

 

5 An NOV is warranted when a licensee or nonlicensee identifies a violation as a result of an event where the 

root cause of the event is obvious or the licensee had prior opportunity to identify the problem but failed to take action 

that would have prevented the event. Disposition as an NCV may be warranted if the licensee or nonlicensee 

demonstrated initiative in identifying the violation’s root cause.
NRC Enforcement Policy 

17 

material inventories, significantly higher consequences resulting from a release or exposure to 

radioactive material and consequences to the public and workers receive higher civil penalties. 

Regarding the secondary factor of the ability of various classes of licensees to pay the civil 

penalties, it is not the NRC’s intention that the economic impact of a civil penalty be so severe 

that it adversely affects a licensee’s ability to safely conduct licensed activities or puts a licensee 

out of business (Orders, rather than civil penalties, are used when the NRC’s intent is to 

suspend or terminate licensed activities). 

Civil penalties are considered for all SL I, II, and III violations. The civil penalty assessment 

process described in this section and depicted in Figure 2 should be followed to determine the 

appropriateness of a civil penalty for any escalated enforcement action. Notwithstanding the 

outcome of the normal civil penalty assessment process, discretion, as discussed in this section 

and in Section 3.6, “Use of Discretion in Determining the Amount of a Civil Penalty,” may be 

exercised by either escalating or mitigating the amount of the civil penalty. 

Violations assessed under an SDP normally are not considered for civil penalties. However, 

civil penalties are considered for violations associated with inspection findings evaluated 

through an SDP that involve actual consequences. 

The NRC may exercise discretion and assess a separate violation and attendant civil 

penalty up to the statutory limit for each day the violation continues (i.e., daily civil 

penalties). The NRC may exercise this discretion when a licensee was aware of a 

violation of at least moderate significance (i.e., at least a SL III) and had a clear 

opportunity to prevent, identify, and correct the violation but failed to do so. 

In evaluating whether daily civil penalties are appropriate, the NRC will consider such 

factors as whether the violation resulted in actual consequences to public health and 

safety or to the common defense and security, the safety significance of the violation, 

whether the violation was repetitive because of inadequate corrective actions, the 

degree of management culpability in allowing the violation to continue or in not 

precluding it, the responsiveness of the licensee once the violation and its significance 

were identified and understood, whether the continuing violation was willful, and the 

duration of the violation. These evaluation factors are not necessarily of equal 

significance; therefore, for each case, the NRC will weigh the relative importance of each 

contributing factor, as well as any extenuating circumstances, to determine whether it is 

appropriate to use daily civil penalties. 

When the NRC determines that the use of daily civil penalties is appropriate as part of 

an enforcement action, the Agency will assess a base civil penalty for the first day of the 

violation in accordance with the civil penalty assessment process discussed in this 

section and Section 8.0, “Table of Base Civil Penalties,” of the Policy. Then, to 

determine the total civil penalty for the continuing violation, the NRC will supplement the 

base civil penalty determination with a daily civil penalty for some or all of the days the 

violation continues. The NRC will determine the amount of the daily civil penalty on a 

case-by-case basis after considering the factors noted in the preceding paragraph and 

any relevant past precedent for similar violations. The daily civil penalty may be less 

than the maximum statutory daily limit in effect at the time of the violation.
NRC Enforcement Policy 

18 

The NRC considers civil penalties for violations associated with loss of regulated material (i.e., 

the NRC’s lost source policy). The loss of NRC-regulated material is a significant regulatory 

and security concern because of the potential unauthorized possession or use of the material 

and because of the potential for overexposure to members of the public from its misuse. Such 

violations may include but are not limited to the loss, abandonment, improper transfer, or 

improper disposal of a device, source, or other form of regulated material. Notwithstanding the 

normal civil penalty assessment process, in cases where a licensee has lost its regulated 

radioactive material, the NRC may exercise discretion and impose a civil penalty. However, the 

Agency may mitigate or escalate a civil penalty amount based on the merits of a specific case. 

When appropriate, the NRC may consider, for example, information on the estimated or actual 

cost of authorized disposal and the actual consequences of the material remaining out of the 

control of the licensee, as well as any effect on radiation workers or the environment. Normally, 

the NRC will not apply the lost source policy to generally licensed devices that are not required 

to be registered in accordance with 10 CFR 31.5(c)(13)(i). The NRC will continue to apply the 

normal Enforcement Policy in those cases where licensees have lost control of regulated 

material. 

For cases involving the willful failure to either file for reciprocity or obtain an NRC specific 

license, the NRC will normally consider a civil penalty to deter noncompliance for economic 

benefit. Therefore, notwithstanding the normal civil penalty assessment process, in cases 

where there is any indication (e.g., statements by company employees regarding the 

nonpayment of fees, previous violations of the requirement including those not issued by the 

NRC, or previous filings without a significant change in management) that the violation was 

committed for economic gain, the NRC may exercise discretion and impose a civil penalty. The 

resulting civil penalty will normally be no more than 3 times the base civil penalty; however, the 

agency may mitigate or escalate the amount based on the merits of a specific case. 

The Commission recognizes that violations occur in a variety of activities and have varying 

impacts; therefore, the civil penalty tables in Section 8.0 of this Policy contain graduated 

sanctions based on the severity level of the violation. The tables present the base civil penalty 

(i.e., normal civil penalty, for any severity level violation for each type of licensee before 

consideration of factors to either escalate or use discretion to increase or decrease those 

amounts). The civil penalty amounts applied should be those in effect at the time of the 

violation. 
NRC Enforcement Policy 

19 

The flow chart (Figure 2) presented below is a graphic representation of the civil penalty 

assessment process and should be used in conjunction with the narrative in this section. 

The civil penalty assessment process considers four decision points. Although each of these 

decision points may have several associated considerations for any given case, the outcome of 

the assessment process for each violation or problem, absent the exercise of discretion, is 

limited to one of the following three results: no civil penalty, a base civil penalty, or a base civil 

penalty escalated by 100 percent. The four decision points are the following: 

a. Did the licensee have any previous escalated enforcement action (regardless of the 

activity area) within the past 2 years of the inspection at issue, or the period between the 

last two inspections, whichever is longer? When the NRC determines that a nonwillful 

SL III violation or problem has occurred, and the licensee has not had any previous 

escalated actions (regardless of the activity area) during the past 2 years or two 

inspections, whichever period is longer, the NRC will consider whether the licensee’s 

corrective action for the present violation or problem is reasonably prompt and 

comprehensive (see the discussion under Section 2.3.4.c, below). Using 2 years as the 

basis for assessment is expected to cover most situations, but considering a slightly 

longer or shorter period may be warranted based on the circumstances of a particular 

case. For a licensee-identified violation or an event, the starting point of this period is 

when the licensee becomes aware that a problem or violation exists that requires 

corrective action. For an NRC-identified violation, the starting point is when the NRC put 

the licensee on notice of the need to take corrective action for the previous violation, 

which could be during the inspection, at the inspection exit meeting, or as part of post 

inspection communication with the licensee. The 2 year period typically ends on the 

date of the second violation. 
NRC Enforcement Policy 

20 

b. Should the licensee be given credit for actions related to identification of the violation? 

A stated purpose of this Policy is to encourage prompt identification of violations of NRC 

requirements. While the decision regarding credit for identification can become 

complicated, the overarching consideration is whether the NRC should give credit for a 

licensee’s efforts to identify the violation. It is the responsibility of the licensee to bring 

information on efforts to identify the violation to the attention of the NRC. The NRC will 

not undertake an inquiry to obtain information on whether identification credit is 

warranted. 

1. The civil penalty assessment should normally consider the factor of identification, 

in addition to corrective action (see the discussion in Section 2.3.4.c, below). In 

these circumstances, the NRC should consider whether the licensee should be 

given credit for actions related to identification when any of the following 

conditions exist: 

(a) the violation is a SL I or II 

(b) the violation is a willful SL III 

(c) the licensee has been issued at least one other escalated action during 

the past 2 years or 2 inspections, whichever is longer. 

 In each case, the decision should be focused on identification of the problem 

requiring corrective action. In other words, although giving credit for identification

and corrective action should be separate decisions, the concept of identification

presumes that the identifier recognizes the existence of a problem and 

understands that corrective action is needed. The decision on identification

requires considering all the circumstances of identification including the following: 

(a) whether the problem requiring corrective action was identified by the 

NRC, identified by the licensee, or revealed through an event 

(b) whether prior opportunities existed to identify the problem requiring 

corrective action, and if so, the age and number of those opportunities 

(c) whether the problem was revealed as the result of a licensee 

self-monitoring effort, such as conducting an audit, a test, a surveillance, 

a design review, or troubleshooting 

(d) for a problem revealed through an event, the ease of discovery and the 

degree of licensee initiative in identifying the root cause of the problem 

and any associated violations 

(e) for NRC-identified issues, whether the licensee would likely have 

identified the issue in the same time period if the NRC had not been 

involved 
NRC Enforcement Policy 

21 

(f) for NRC-identified issues, whether the licensee should have identified the 

issue (and taken action) earlier 

(g) for cases in which the NRC identified the overall problem requiring 

corrective action (e.g., a programmatic issue), the degree of licensee 

initiative or lack of initiative in identifying the problem or problems 

requiring corrective action 

2. Although some cases may consider all of the above factors, the importance of 

each factor will vary based on the type of case, as discussed in the following 

general guidance: 

(a) Licensee Identified—When a problem requiring corrective action is 

licensee identified (i.e., identified by the licensee before the problem 

results in an event), the NRC should normally give the licensee credit for 

actions related to identification, regardless of whether prior opportunities 

existed to identify the problem. 

(b) Identified through an Event—When a problem requiring corrective action 

is identified through an event (i.e., the problem is self-revealing), the 

decision as to whether to give the licensee credit for actions related to 

identification normally should consider the ease of discovery, whether the 

event occurred as the result of a licensee’s self-monitoring effort (i.e., 

whether the licensee was “looking for the problem”), the degree of 

licensee initiative in identifying the problem or problems requiring 

corrective action, and whether prior opportunities existed to identify the 

problem. 

Any of these considerations may be overriding if particularly noteworthy 

or particularly egregious. For example, if the event occurred as the result 

of conducting a surveillance or similar self-monitoring effort (i.e., the 

licensee was looking for the problem), the licensee should normally be 

given credit for identification. Even if the problem was easily discovered 

(e.g., revealed by a large spill of liquid), the NRC may choose to give 

credit because noteworthy licensee effort was exerted in discovering the 

root cause and associated violations, or simply because no prior 

opportunities, for example, procedural cautions, post-maintenance 

testing, quality control failures, readily observable parameter trends, or 

repeated or locked-in annunciator warnings) existed to identify the 

problem. 

(c) NRC Identified—When a problem requiring corrective action is NRC 

identified, the decision as to whether to give the licensee credit for actions 

related to identification should normally be based on an additional 

question: should the licensee have reasonably identified the problem 

(and taken action) earlier? 
NRC Enforcement Policy 

22 

In most cases, this reasoning may be based simply on the ease of the 

NRC inspector’s discovery (e.g., conducting a walkdown, observing in the 

control room, performing a confirmatory NRC radiation survey, hearing a 

cavitating pump, or finding a valve obviously out of position). In some 

cases, the licensee’s missed opportunities to identify the problem may 

include a similar previous violation, NRC or industry notices, internal 

audits, or readily observable trends. 

If the NRC identified the violation but concludes that, under the 

circumstances, the licensee could not have reasonably identified the 

problem earlier, the matter would be treated as licensee identified for 

purposes of assessing the civil penalty. 

(d) Mixed Identification—For “mixed” identification situations (i.e., where 

multiple violations exist, some identified by the NRC and some by the 

licensee, or where the NRC prompted the licensee to take action that 

resulted in the identification of the violation), the NRC’s evaluation should 

normally determine whether the licensee could reasonably have been 

expected to identify the violation in the NRC’s absence. This 

determination should consider, among other things, the timing of the 

NRC’s discovery, the information available to the licensee that caused the 

NRC’s concern, the specificity of the NRC’s concern, the scope of the 

licensee’s efforts, the level of licensee resources given to the 

investigation, and whether the licensee had dismissed the NRC’s analysis 

or was pursuing it in parallel. 

In some cases, the licensee may have addressed the isolated symptoms 

of each violation (and may have identified the violations), but failed to 

recognize the common root cause and to take the necessary 

comprehensive action. In this case, the decision as to whether to give the 

licensee credit for actions related to identification should focus on 

identification of the problem requiring corrective action (e.g., the 

programmatic breakdown). As such, depending on the chronology of the 

various violations, the earliest of the individual violations might be 

considered missed opportunities for the licensee to have identified the 

larger problem. 

(e) Missed Opportunities To Identify—Missed opportunities include prior 

notifications or missed opportunities to identify or prevent violations such 

as (1) through normal surveillances, audits, or QA activities, (2) through 

prior notice (i.e., specific NRC or industry notification), or (3) through 

other reasonable indication of a potential problem or violation, such as 

observations of employees and contractors, and failure to take effective 

corrective steps. A missed opportunity may include findings of the NRC, 

the licensee, or industry made at other facilities operated by the licensee 

where it is reasonable to expect the licensee to act to identify or prevent 

similar problems at the facility subject to the enforcement action at issue. 

In assessing this factor, the NRC will consider, among other things, the 
NRC Enforcement Policy 

23 

opportunities available to discover the violation, the ease of discovery, the 

similarity between the violation and the notification, the period of time 

between when the violation occurred and when the notification was 

issued, the action taken (or planned) by the licensee in response to the 

notification, and the level of management review that the notification 

received (or should have received). 

The evaluation of missed opportunities should normally depend on 

whether the information available to the licensee should reasonably have 

caused action that would have prevented the violation. A missed 

opportunity to identify is normally not applied where the licensee 

appropriately considered the information available to it and took, or 

planned to take, reasonable action within a reasonable time. 

In some situations, the missed opportunity is a violation in itself. In these 

cases, unless the missed opportunity is a SL III violation in itself, the 

missed opportunity violation may be grouped with the other violations into 

a single SL III “problem.” However, if the missed opportunity is the only

violation, then it should not normally be counted twice (i.e., counting it as 

both a violation and a missed opportunity constitutes “double counting”), 

unless the number of opportunities missed was particularly significant. 

The timing of the missed opportunity should also be considered. While a 

rigid timeframe is unnecessary, for consistency in implementation, 

2 years should generally be considered as the period reflecting relatively 

current performance. 

3. When the NRC determines that the licensee should receive credit for actions 

related to identification, the civil penalty assessment should normally result in 

either no civil penalty or a base civil penalty, depending on whether corrective 

action is judged to be reasonably prompt and comprehensive. When the 

licensee is not given credit for actions related to identification, the civil penalty 

assessment should normally result in an NOV with either a base civil penalty or a 

base civil penalty escalated by 100 percent, depending on the quality of 

corrective action. 

c. Were the licensee’s corrective actions prompt and comprehensive? 

The purpose of the corrective action factor is to encourage licensees to (1) take the 

immediate actions necessary upon discovery of a violation that will restore safety, 

security, and compliance with the license, regulation(s), or other requirement(s) and 

(2) develop and implement (in a timely manner) the lasting actions that will not only 

prevent recurrence of the violation at issue, but will be appropriately comprehensive, 

given the significance and complexity of the violation, to prevent occurrence of violations 

with similar root causes. 

Regardless of other circumstances (e.g., past enforcement history, identification), the 

licensee’s corrective actions should always be evaluated as part of the civil penalty 
NRC Enforcement Policy 

24 

assessment process. As a reflection of the importance given to this factor, an NRC 

judgment that the licensee’s corrective action has not been prompt and comprehensive 

will always result in the issuance of at least a base civil penalty. 

In assessing this factor, the NRC will consider the timeliness of the corrective action 

(including the promptness in developing the schedule for long-term corrective action), 

the adequacy of the licensee’s root cause analysis for the violation, and, given the 

significance and complexity of the issue, the comprehensiveness of the corrective action 

(i.e., whether the action is focused narrowly on the specific violation or broadly on the 

general area of concern). 

Normally, the judgment of the adequacy of corrective actions will hinge on whether the 

NRC had to act to focus the licensee’s evaluative and corrective process to obtain 

comprehensive corrective action. This will normally be determined at the time of the 

predecisional enforcement conference (e.g., by outlining substantive additional areas 

where corrective action is needed). Earlier informal discussions between the licensee 

and NRC inspectors or management may result in improved corrective action but should 

not normally be a basis to deny credit for corrective action. For cases in which the 

licensee does not receive credit for actions related to identification because the NRC 

identified the problem, the assessment of the licensee’s corrective action should begin 

from the time when the NRC put the licensee on notice of the problem. Notwithstanding 

eventual effective comprehensive corrective action, if immediate corrective action was 

not taken to restore safety and compliance once the violation was identified, corrective 

action would not be considered prompt and comprehensive. 

The NRC, in considering the comprehensiveness of the corrective action, will consider 

whether the licensee applied the corrective actions to all its similarly licensed operations 

that could be susceptible to the same failure (for those licensees having more than one 

facility or location). When the NRC, at the time of the enforcement conference, identifies 

additional peripheral or minor corrective action still to be taken, the licensee may be 

given credit in this area, as long as the licensee’s actions addressed the underlying root 

cause and are considered sufficient to prevent recurrence of the violation and similar 

violations. 

Corrective action for violations involving discrimination should normally be considered 

comprehensive only if the licensee takes prompt, comprehensive corrective action that 

(1) appropriately addresses the broader environment for raising safety concerns in the 

workplace and (2) provides a remedy for the particular discrimination at issue. 

If the corrective action is judged to be prompt and comprehensive, an NOV normally 

should be issued with no associated civil penalty. If the corrective action is judged to be 

less than prompt and comprehensive, the NOV normally should be issued with a base 

civil penalty. 
NRC Enforcement Policy 

25 

In response to violations of 10 CFR 50.59, corrective action should normally be 

considered prompt and comprehensive only if the licensee makes a prompt decision on 

operability and does either of the following: 

1. Makes a prompt evaluation under 10 CFR 50.59 if the licensee intends to 

maintain the facility or procedure in the as-found condition 

2. Promptly initiates corrective action consistent with Criterion XVI of 

10 CFR Part 50, Appendix B, “Quality Assurance Criteria for Nuclear Power 

Plants and Fuel Reprocessing Plants,” if the licensee intends to restore the 

facility or procedure to the final safety analysis report (FSAR) description 

d. In view of the circumstances of the violation, should the NRC exercise enforcement 

discretion to either escalate or mitigate the amount of the civil penalty? 

As discussed in Section 3.6, “Use of Discretion in Determining the Amount of a Civil 

Penalty,” discretion may be exercised by either escalating or mitigating the amount of 

the civil penalty determined after applying the civil penalty adjustment factors to ensure 

that the proposed civil penalty reflects all relevant circumstances of the particular case. 

However, in no instance will a civil penalty for any one violation exceed the statutory 

daily limit. 

2.3.5 Orders 

An Order is a written NRC directive to modify, suspend, or revoke a license; to cease and desist 

from a given practice or activity; or to take such other action as may be proper (see 

10 CFR 2.202, “Orders”). Orders may be issued in lieu of, or in addition to, civil penalties, as 

appropriate, for SL I, II, and III violations. Unless a separate response is warranted pursuant to 

10 CFR 2.201, the NRC does not need to issue an NOV in addition to the Order when the NOV 

is based on violations described in the Order. Orders may be made immediately effective, 

without prior opportunity for a hearing, whenever the NRC determines that the public health, 

safety, interest, or common defense and security so requires, or if the violation or conduct 

causing the violation is willful. In such cases, the Order may provide, for stated reasons, that 

the proposed action be immediately effective pending further action. Otherwise, the Agency 

grants a prior opportunity for a hearing on the Order. 

The NRC may also issue Orders to nonlicensees, including contractors and subcontractors, 

holders of NRC approvals (e.g., certificates of compliance, early site permits, standard design 

certifications, or applicants for any such approvals), and to employees of any of the foregoing 

and to licensed individuals, such as licensed reactor operators, and nonlicensed individuals. 

A more detailed discussion of Orders is available in the Enforcement Manual. 

2.3.6 Demand for Information 

The Commission may also issue a demand for information (DFI) (see 10 CFR 2.204, “Demand 

for Information”) to determine whether an Order under 10 CFR 2.202 should be issued or 

whether other action should be taken. 
NRC Enforcement Policy 

26 

2.3.7 Administrative Actions 

The NRC also uses administrative actions, such as confirmatory action letters, notices of 

deviation, and notices of nonconformance, to supplement its enforcement program. These 

administrative actions are explained in the Enforcement Manual and defined in the glossary of 

this Policy. The NRC expects licensees and other persons subject to the Commission’s 

jurisdiction to adhere to any obligations and commitments resulting from administrative actions 

and will consider issuing additional Orders, as needed, to ensure compliance. 

2.3.8 Reopening Closed Enforcement Actions 

Under special circumstances (e.g., when the NRC receives significant new information 

indicating that an enforcement sanction was incorrectly applied), the Agency may consider, on a 

case-by-case basis, reopening a closed enforcement action to increase or decrease the severity 

of a sanction or to correct the record. 

Special circumstances include, but are not limited to, situations where (1) persons provided 

incomplete or inaccurate information that would have been considered material to the NRC’s 

disposition of a case, (2) information was deliberately withheld or obscured, or (3) the licensee 

made errors in calculations that would not have normally been reviewed by the NRC. Special 

circumstances do not normally include the discovery of additional information that was 

reasonably available to the NRC at the time the Agency made its initial enforcement decision 

unless the Commission determines that action is necessary to ensure that the facility provides 

adequate protection to the health and safety of the public and is in accord with the common 

defense and security. 

2.3.9 Enforcement Guidance Memoranda 

Enforcement guidance memoranda (EGM) are used to provide the NRC staff with temporary 

enforcement guidance, including, in some instances, enforcement discretion, when the criteria 

specified in the EGM are met. EGM normally describe the situation that has occurred that 

requires the use of such guidance, as well as the length of time the EGM will be in effect. For a 

list of current EGM, see Appendix A of the NRC Enforcement Manual. 

2.3.10 Commission Notification and Consultation on Enforcement Actions 

Certain enforcement actions require either advance written notification to the Commission or 

advance consultation with and approval by the Commission depending on the nature of the 

proposed sanction. Specific enforcement actions requiring prior Commission notification and 

consultation include, but are not limited to, the following: 

a. Enforcement Actions Requiring Written Notification to the Commission: 

1. All enforcement actions involving civil penalties or Orders 

2. All notices of enforcement discretion involving natural events, such as severe 

weather conditions 
NRC Enforcement Policy 

27 

3. The first time that discretion is exercised for a plant that meets the criteria of 

Section 3.1, “Violations Identified during Extended Shutdowns or Work 

Stoppages” 

4. Where appropriate, based on the uniqueness or significance of the issue, when 

discretion is exercised for violations that meet the criteria of Section 3.5, 

“Violations Involving Special Circumstances” 

b. Enforcement Actions Requiring Advance Consultation with the Commission: 

1. An action affecting a licensee’s operation that requires balancing the public 

health and safety or common defense and security implications of not operating 

against the potential radiological or other hazards associated with continued 

operation 

2. Proposals to impose a civil penalty for a single violation or problem that is greater 

than 3 times the Severity Level I value shown in Table A of Section 8.0 for that 

class of licensee 

3. Any proposed enforcement action that involves a SL I violation 

4. Any action that the EDO believes warrants Commission involvement 

5. Any proposed enforcement case involving an Office of Investigations (OI) report 

where the NRC staff (other than the OI staff) does not arrive at the same 

conclusions as those in the OI report concerning issues of intent if the Director, 

OI, concludes that Commission consultation is warranted 

6. Any proposed enforcement action on which the Commission asks to be 

consulted 

7. Any proposals to use discretion to impose a daily civil penalty 

2.3.11 Inaccurate and Incomplete Information 

A violation of the regulations involving the submittal of incomplete or inaccurate information can 

result in the full range of enforcement sanctions. The labeling of a communication failure as a 

material false statement will be made on a case-by-case basis and will be reserved for 

egregious violations. Violations involving inaccurate or incomplete information or the failure to 

provide significant information identified by a licensee or applicant normally will be categorized 

based on the guidance herein, in Section 2.2, “Assessment of Violations,” and in Section 6.9, 

“Inaccurate and Incomplete Information or Failure To Make a Required Report.” 
NRC Enforcement Policy 

28 

The Commission recognizes that oral information may in some situations be inherently less 

reliable than written submittals because of the absence of an opportunity for reflection and 

management review. However, the Commission must be able to rely on oral communications 

from a licensee or applicant official concerning significant information. Therefore, in determining 

whether to take enforcement action for an oral statement, the Commission may consider factors 

such as (1) the degree of knowledge that the communicator should have had regarding the 

matter, in view of his or her position, training, and experience, (2) the opportunity and time 

available before the communication to ensure the accuracy or completeness of the information, 

(3) the degree of intent or negligence, if any, involved, (4) the formality of the communication, 

(5) the reasonableness of NRC reliance on the information, (6) the importance of the information 

that was inaccurate or not provided, and (7) the reasonableness of the explanation for not 

providing complete and accurate information. 

In the absence of at least careless disregard, an incomplete or inaccurate unsworn oral 

statement normally will not be subject to enforcement action unless it involves significant 

information provided by a licensee or applicant official (e.g., information to support a Notice of 

Enforcement Discretion). However, enforcement action may be taken for an unintentionally 

incomplete or inaccurate oral statement provided to the NRC by a licensee or applicant official 

or others on behalf of a licensee or applicant, if a record was made of the oral information and 

provided to the licensee or applicant, thereby permitting an opportunity to correct the oral 

information. An example of such a situation would be a case in which the licensee or applicant 

had available a transcript of the communication or meeting summary containing the error and 

did not subsequently correct the error in a timely manner. 

When a licensee or applicant has corrected inaccurate or incomplete information, the decision 

to issue an enforcement action for the initial inaccurate or incomplete information normally will 

depend on the circumstances, including the ease of detection of the error, the timeliness of the 

correction, whether the NRC or the licensee or applicant identified the problem with the 

communication, and whether the NRC relied on the information prior to the correction. 

Generally, if the matter was promptly identified and corrected by the licensee or applicant before 

the NRC relies on the information, or before the NRC raises a question about the information, 

no enforcement action will be taken for the initial inaccurate or incomplete information. On the 

other hand, if the misinformation is identified after the NRC relies on it, or after some question is 

raised regarding the accuracy of the information, then some enforcement action normally will be 

taken even if the information is corrected. However, if the initial submittal was accurate when 

made but later turns out to be erroneous because of newly discovered information or an 

advance in technology, a citation normally would not be appropriate if, when the new 

information became available or the advance in technology was made, the initial submittal was 

corrected. The failure to correct inaccurate or incomplete information that the licensee or 

applicant does not identify as significant normally will not constitute a separate violation. 

However, the circumstances surrounding the failure to correct may be considered relevant to 

the determination of enforcement action for the initial inaccurate or incomplete statement. For 

example, an unintentionally inaccurate or incomplete submission may be treated as a more 

severe matter if the licensee or applicant later determines that the initial submittal was in error 

and does not correct it, or if there were clear opportunities to identify the error. If a licensee or 

applicant recognizes that information not corrected is significant, a separate citation may be 

made for the failure to provide significant information. In any event, in serious cases where the 

licensee’s or applicant’s actions in not correcting or providing information raise questions about 
NRC Enforcement Policy 

29 

the licensee’s or applicant’s commitment to safety or its fundamental trustworthiness, the 

Commission may exercise its authority to issue orders modifying, suspending, or revoking the 

license. Enforcement determinations are made on a case-by-case basis, taking into 

consideration the issues described in this section. 

2.3.12 Reporting of Defects and Noncompliance 

Licensees and entities that supply products or services for use in nuclear activities are subject 

to certain requirements designed to ensure that products or services that could affect safety 

meet regulatory standards. Through procurement contracts with licensees or their contractors, 

suppliers may be required to have quality assurance programs that meet applicable quality 

assurance requirements (e.g., 10 CFR Part 50, “Domestic Licensing of Production and 

Utilization Facilities,” Appendix B, “Quality Assurance Criteria for Nuclear Power Plants and Fuel 

Reprocessing Plants,” or 10 CFR Part 71, “Packaging and Transportation of Radioactive 

Material,” Subpart H, “Quality Assurance”). Contractors supplying basic components or 

services to licensees or their contractors are subject to the requirements of 10 CFR Part 21, 

“Reporting of Defects and Noncompliance,” for reporting defects and failures to comply 

associated with a substantial safety hazard. Contractors constructing or modifying 10 CFR Part 

50 construction permit holder or 10 CFR Part 52 licensee facilities, up to the 52.103(g) finding, 

are subject to the additional requirements of 10 CFR 50.55(e) for reporting of defects and 

failures to comply associated with a substantial safety hazard, and any significant breakdown in 

the quality assurance program that could cause a defect in basic components when 

contractually imposed. 

When inspectors determine that violations of NRC requirements (e.g., 10 CFR Part 50, 

Appendix B) have occurred that could adversely affect the quality of a safety-significant product 

or service, the NRC will typically take enforcement action. NOVs and civil penalties will be 

used, as appropriate, for licensee failures to ensure that their contractors have programs that 

meet applicable requirements. The NRC may also issue NOVs to contractors and vendors who 

violate 10 CFR Part 21 and may also issue NOVs for other violations such as those resulting 

from deliberate misconduct. Civil penalties may be imposed against individual directors or 

responsible officers of a contractor organization who deliberately fail to provide the notice 

required by 10 CFR 21.21(d)(1). The NRC may issue NOVs or orders to nonlicensees who are 

subject to the specific requirements of 10 CFR Part 71 and 10 CFR Part 72, “Licensing 

Requirements for the Independent Storage of Spent Nuclear Fuel, High-Level Radioactive 

Waste, and Reactor-Related Greater than Class C Waste.” Notices of Nonconformance will be 

used for contractors who fail to meet commitments related to NRC activities but are not in 

violation of specific requirements. 

2.4 Participation in the Enforcement Process 

Before making a final enforcement decision in cases where the NRC is considering taking 

escalated enforcement action (i.e., a SL III or higher NOV or a greater-than-green ROP or 

cROP finding), the NRC will typically offer the organization or individual subject to the 

enforcement action a conference with the NRC to present facts relevant to the assessment and 

disposition of the apparent violations. The NRC may also request a conference if additional 

information is needed to make a determination relevant to the assessment and disposition of the 

apparent violations (e.g., whether violations occurred, the severity level of the violations, 
NRC Enforcement Policy 

30 

willfulness of any violations, and whether credit should be given for corrective actions or selfidentification). The conference is normally held at an NRC regional office and is normally open 

to public observation except when the proposed enforcement action involves discussions of 

classified or Safeguards Information, an enforcement action against an individual, proprietary 

information, or other sensitive, nonpublic information. In addition, licensees, nonlicensees, and 

individuals can be offered ADR (see Section 2.4.3, “Alternative Dispute Resolution”). 

 Predecisional Enforcement Conference 

A predecisional enforcement conference (PEC) is a conference held with a licensee for 

violations assessed using traditional enforcement. (The term “licensee,” as used in Section 

2.4.1, is applied broadly and includes NRC licensees, applicants, licensed and nonlicensed 

individuals, contractors, vendors, and other persons.) The purpose of the PEC is to obtain 

information from the licensee to assist the NRC in determining whether an enforcement action is 

necessary and, if so, what the appropriate enforcement action is. The PEC focuses on areas 

such as (1) a common understanding of the facts, root causes, and missed opportunities 

associated with the apparent violation and (2) a common understanding of the corrective actions 

taken or planned. If held, a PEC is normally the final step in the NRC’s fact-finding process 

before making an enforcement decision. 

When the NRC determines that there is a violation for which escalated enforcement action 

appears warranted, the Agency normally offers the licensee the opportunity to attend a PEC or 

provide a written response to the apparent violation, or both, before the NRC makes an 

enforcement decision. If the NRC concludes that it has sufficient information to make an 

informed enforcement decision involving a licensee, the NRC will notify the licensee that a PEC 

does not appear to be necessary, and unless the licensee specifically requests a PEC, one will 

not be held. The NRC may specifically request a PEC if it needs additional information before 

making a final enforcement decision. If the NRC does not request a PEC or if the licensee does 

not accept the NRC’s offer to attend a PEC, the licensee may choose to respond in writing to a 

documented apparent violation (including its root causes and a description of planned or 

implemented corrective actions) before the NRC takes enforcement action. To the extent 

practicable, the NRC will consider the licensee’s response before taking enforcement action. 

A more detailed discussion of PECs is available in the Enforcement Manual. 

 Regulatory Conference 

A regulatory conference is conducted, in lieu of a PEC, for power reactor inspection findings 

assessed using an SDP. For reactor inspection findings that are preliminarily assessed as 

greater than green, the licensee will normally be given an opportunity to meet with the NRC to 

exchange information related to that assessment. Because the significance assessment 

typically requires a determination as to whether violations occurred, a subsequent PEC is not 

normally required. 

 Alternative Dispute Resolution 

The ADRA authorizes and encourages the use of ADR procedures by Federal agencies. ADR 

refers to a variety of processes that emphasize creative, cooperative approaches to handling 
NRC Enforcement Policy 

31 

conflicts in lieu of adversarial procedures. Mediation is the form of ADR typically used by the 

NRC. The use of ADR in the NRC’s enforcement program is available for cases involving 

discrimination and other wrongdoing as well as escalated nonwillful (traditional) enforcement 

cases, with the potential for civil penalties (not including violations associated with findings 

assessed through the ROP or cROP). 

ADR may also be used for discrimination violations based solely on a finding by the U.S. 

Department of Labor (DOL); however, the NRC will not negotiate the DOL finding. Individuals 

within the Commission’s jurisdiction may also be offered ADR. ADR complements, and works in 

conjunction with, the traditional NRC enforcement process. ADR may be offered (1) before a 

PEC, (2) after the initial enforcement action is taken (i.e., an NOV or proposed imposition of a 

civil penalty), or (3) with the imposition of a civil penalty and prior to a hearing request. Use of 

the ADR program is voluntary for all parties, including the NRC; any participant may end the 

process at any time. Mediation activities are kept confidential in accordance with 

5 U.S.C. § 574; however, the terms of the settlement agreement are normally formalized in a 

Confirmatory Order, which is published in the Federal Register. Normally, there is also a press 

release providing information about the settlement agreement. 

In some circumstances, it may not be appropriate for the NRC to engage in ADR (e.g., the U.S. 

Department of Justice has substantial involvement in the case, cases in which the subject 

matter is such that a Confirmatory Order detailing the terms of a settlement agreement cannot 

be made public, or other particularly egregious cases in which the public interest is not served 

by engaging in ADR). The approval of the Director, OE, is required in those cases where the 

staff proposes not to offer ADR. 

Additional information concerning the NRC’s ADR program is available in the NRC Enforcement 

Manual and on the NRC Web site. 

In addition, an individual and his or her employer (or former employer) can use ADR to resolve 

discrimination complaints (under Section 211 of the ERA) before the initiation of investigative 

activities by OI (i.e., pre-investigation ADR, commonly referred to as “early ADR”) (see NRC 

Management Directive 8.8, “Management of Allegations”) or a licensee-sponsored ADR 

program that is similar in nature to the NRC’s early ADR program. If the parties reach a 

settlement agreement using early ADR or licensee-sponsored ADR, the NRC subsequently 

reviews the agreement to ensure that it does not include any provisions in violation of the NRC’s 

“Employee Protection” regulations. If no such restrictive provisions exist, the NRC will not 

investigate the discrimination complaint or take enforcement action. 

3.0 USE OF ENFORCEMENT DISCRETION 

The NRC may choose to exercise discretion and either escalate or mitigate enforcement 

sanctions or otherwise refrain from taking enforcement action within the Commission’s statutory 

authority. The exercise of discretion allows the NRC to determine what actions should be taken 

in a particular case, notwithstanding the guidance contained in this statement of policy. After 

considering the general tenets of this Policy and the safety and security significance of a 

violation and its surrounding circumstances, judgment and discretion may be exercised in 

determining the severity levels of violations and the appropriate enforcement sanctions to be 

taken. 
NRC Enforcement Policy 

32 

3.1 Violations Identified during Extended Shutdowns or Work Stoppages 

Notwithstanding the outcome of the normal NOV and civil penalty assessment processes, the 

NRC may reduce or refrain from issuing an NOV or a proposed civil penalty for a SL II, III, or IV 

violation that is identified after one of the following: 

a. The NRC has taken significant enforcement action based on a major safety event 

contributing to an extended shutdown of an operating nuclear reactor or a material 

licensee (or a work stoppage at a construction site). 

b. The licensee enters an extended shutdown or work stoppage related to generally poor 

performance over a long period of time, provided that the violation is documented in an 

inspection report (or inspection records for some materials cases) and meets all of the 

following criteria: 

1. The violation was either identified by the licensee as a result of a comprehensive 

program for violation identification and correction developed in response to the 

shutdown or work stoppage or identified as a result of an employee or contractor 

concern identified to the licensee through its internal processes. 

2. The violation was based on activities of the licensee before the events leading to 

the shutdown. 

3. The violation would not be categorized at SL I. 

4. The violation was not willful. 

5. The licensee’s decision to restart the plant from the shutdown or work stoppage 

requires NRC coordination and/or action. 

c. Notwithstanding the discretion criterion described above in 3.1.b.4, enforcement 

discretion for violations involving willfulness may still be appropriate under the specific 

circumstances of a case. However, the Director, OE, must approve the exercise of such 

discretion when a willful violation is involved. 

3.2 Violations Involving Old Design Issues 

For operating facilities, the NRC may exercise discretion to refrain from proposing a civil penalty 

for a SL II or III violation involving a past problem, such as in engineering, design, or installation, 

if the violation is documented in an inspection report (or inspection records for some material 

cases) that describes the corrective action and it meets all of the following criteria: 

a. It was identified by the licensee as a result of a voluntary initiative. 

b. It was or will be corrected, including immediate corrective action and long-term 

comprehensive corrective action to prevent recurrence, within a reasonable time 

following identification (this action should involve expanding the initiative, as necessary, 
NRC Enforcement Policy 

33 

to identify other failures caused by similar root causes). 

c. It was unlikely to be identified (after the violation occurred) by efforts such as normal 

surveillances or routinely scheduled QA activities. 

The NRC may refrain from issuing an NOV for a SL II, III, or IV violation that meets the above 

criteria, provided that the violation was caused by conduct that is not reasonably linked to the 

licensee’s present performance (normally, violations that are at least 3 years old or violations 

occurring during plant construction) and that there had not been prior notice so that the licensee 

could not have reasonably identified the violation earlier. This exercise of discretion is to 

encourage licensees to initiate efforts to identify and correct subtle violations that are not likely 

to be identified by routine efforts before degraded safety systems are called on to work. 

3.3 Violations Identified Because of Previous Enforcement Action 

The NRC may refrain from issuing an NOV or a proposed civil penalty for a SL II, III, or IV 

violation that is identified after the NRC has taken enforcement action, if the violation is 

identified by the licensee as part of the corrective action for the previous enforcement action and 

the violation has the same or similar root cause as the violation for which enforcement action 

was previously taken. Additionally, the new example must not substantially change the safety 

significance or the character of the regulatory concern arising out of the initial violation and must 

be corrected, including immediate corrective action and long-term comprehensive corrective 

action to prevent recurrence, within a reasonable time following identification. 

3.4 Violations Involving Certain Discrimination Issues 

For violations of the NRC’s employee protection regulations (e.g., 10 CFR 30.7, 50.7, and 52.5), 

the NRC may exercise discretion to mitigate enforcement sanctions and refrain from issuing a 

civil penalty or an NOV, or both, when a licensee who, without the need for Government 

intervention, identifies an issue of discrimination and takes prompt, comprehensive, and 

effective corrective action to address both the particular situation and, if required, the overall 

work environment for raising safety concerns. 

Similarly, the NRC may exercise discretion when a licensee settles a complaint filed with DOL 

under Section 211 of the ERA before DOL makes an initial finding of discrimination and, as 

necessary, addresses the overall work environment. Alternatively, if DOL makes a finding of 

discrimination, the licensee may choose to settle the case before the evidentiary hearing begins. 

In such cases, the NRC may exercise its discretion not to take enforcement action when the 

licensee has addressed the overall work environment for raising safety concerns and has 

publicized that a complaint of discrimination for engaging in protected activity was made to DOL, 

that the matter was settled to the satisfaction of the employee, and that, if the DOL area office 

found discrimination, the licensee has acted to positively reemphasize that discrimination will 

not be tolerated. 

After the initiation of an OI investigation and subsequent substantiation of the discrimination 

complaint, the NRC may also exercise discretion (i.e., mitigate enforcement sanctions) in 

discrimination cases in which a licensee settles a matter promptly after a person comes to the 

NRC without going to DOL. The NRC would normally not exercise such discretion in cases in 
NRC Enforcement Policy 

34 

which the licensee does not appropriately address the overall work environment or in cases that 

involve the following: allegations of discrimination as a result of providing information directly to 

the NRC, allegations of discrimination caused by a manager above first-line supervisor, 

allegations of discrimination where a history of findings of discrimination (by DOL or the NRC) or 

settlements suggests a programmatic rather than an isolated discrimination problem, or 

allegations of discrimination that appear particularly blatant or egregious. 

3.5 Violations Involving Special Circumstances 

Notwithstanding the outcome of the normal enforcement process, the NRC may reduce or 

refrain from issuing a civil penalty or an NOV for a SL II, III, or IV violation based on the merits 

of the case after considering the guidance in this statement of policy and such factors as the 

age of the violation, the significance of the violation, the clarity of the requirement and 

associated guidance, the appropriateness of the requirement, the overall sustained performance 

of the licensee, and other relevant circumstances, including any that may have changed since 

the violation occurred. This discretion is expected to be exercised only where application of the 

normal guidance in the Policy is unwarranted. In addition, the NRC may refrain from issuing 

enforcement action for violations resulting from matters not within a licensee’s control, such as 

equipment failures that were not avoidable by reasonable licensee QA measures or 

management controls (e.g., reactor coolant system leakage that was not within the licensee’s 

ability to detect during operation, but was identified at the first available opportunity or outage). 

Generally, however, licensees are held responsible for the acts of their employees and 

contractors. Accordingly, this Policy should not be construed to excuse personnel or contractor 

errors. 

3.6 Use of Discretion in Determining the Amount of a Civil Penalty 

Notwithstanding the outcome of the normal civil penalty assessment process addressed in 

Section 2.3.4, “Civil Penalty,” the NRC may exercise discretion6 by either: (1) proposing a civil 

penalty where application of the civil penalty assessment factors would otherwise result in zero 

penalty, (2) escalating the amount of the resulting civil penalty to ensure that the proposed civil 

penalty appropriately reflects the significance of the issue, or (3) mitigating the amount based on 

merits of the case and the ability of the various classes of licensees to pay. In accordance with 

Section 2.3.10, “Commission Notification and Consultation on Enforcement Actions,” of this 

Policy, the Commission must be notified of all enforcement actions involving civil penalties and 

must be consulted for any proposed civil penalty for a single violation or problem that is greater 

than 3 times the value in Tables A and B in Section 8.0 for the severity level violation being 

considered. 

Civil penalty discretion should be considered for, but is not limited to, the following: 

a. violations or problems originally categorized at a SL I or II 

b. overexposures or the release of licensed material in excess of NRC limits 

 

6 In the context of Section 3.6, “discretion” refers to the escalation or mitigation of an enforcement action or 

sanction. This differs from the typical use of the term “discretion” to indicate the NRC’s choice to mitigate or not take 

enforcement action for an issue.
NRC Enforcement Policy 

35 

c. particularly poor licensee performance 

d. situations when the licensee’s previous enforcement history has been particularly poor, 

or when the current violation directly repeats an earlier violation 

e. willfulness, particularly instances where the licensee made a conscious decision to be in 

noncompliance with NRC requirements in order to obtain an economic benefit 

f. situations where the violation resulted in a substantial increase in risk, including cases in 

which the duration of the violation has contributed to the substantial increase in risk 

g. violations involving a Master Materials Licensee (MML)—Discretion not to issue a civil 

penalty may be used in cases where the MML’s oversight program resolved the issue 

appropriately. In recognition of the scope, level of responsibility, and independence 

entrusted to MMLs, the NRC may use discretion to increase a civil penalty by multiples 

of the normal base civil penalty. This increase would normally be applied in cases 

where a programmatic failure occurred in the MML’s oversight program. 

h. loss of control of regulated material 

i. for cases involving an individual or a licensee where a concern exists that the outcome 

from the proposed civil penalty may be overly punitive rather than deterrent. 

3.7 Exercise of Discretion to Issue Orders 

The NRC may exercise discretion, where necessary or desirable, by issuing Orders with or in 

lieu of civil penalties to achieve or formalize corrective actions and to deter further recurrence of 

serious violations. 

3.8 Notices of Enforcement Discretion for Operating Power Reactors and Gaseous 

Diffusion Plants7

The NRC may choose not to enforce the applicable technical specification (TS) limiting 

condition for operation (LCO) or other license conditions, in circumstances where compliance 

would involve an unnecessary plant transient or the performance of a test, inspection, or system 

realignment that may not be the most prudent action to take under the specific plant conditions, 

or unnecessary delays in plant startup, without a corresponding health and safety benefit. 

Similarly, for example, for a gaseous diffusion plant, circumstances may arise where compliance 

with a technical safety requirement or TS or other certificate condition would unnecessarily call 

for a total plant shutdown or, notwithstanding that a safety, safeguards, or security feature was 

degraded or inoperable, compliance would unnecessarily place the plant in a transient or 

condition where those features could be required. 

 

7 NOEDs will not be used at reactors during construction before the Commission’s 10 CFR 

52.103(g) or 10 CFR 50.57 finding, as applicable. However, the NRC may choose to exercise discretion 

and either escalate or mitigate enforcement sanctions or otherwise refrain from taking enforcement action 

within the Commission’s statutory authority, as identified in Section 3.0 of this Enforcement Policy. 
NRC Enforcement Policy 

36 

The NRC will issue a notice of enforcement discretion (NOED) only if the staff is clearly satisfied 

that the action is consistent with protecting the public health and safety or security. The NRC 

staff may also grant enforcement discretion in cases involving severe weather or other natural 

phenomena, based upon balancing the public health and safety or common defense and 

security of not operating against the potential radiological or other hazards associated with 

continued operation, and a determination that safety will not be impacted unacceptably by 

exercising this discretion. The staff shall inform the Commission expeditiously following the 

granting of a NOED in these situations. 

Issuance of an NOED does not change the fact that a violation will occur, nor does it imply that 

enforcement discretion is being exercised for any violation that may have led to the violation at 

issue. In each case where the NRC has chosen to issue an NOED, enforcement action will 

normally be taken for the root causes, to the extent violations were involved, that led to the 

noncompliance for which enforcement discretion was used. 

Additional guidance on the process for issuing an NOED is found on the NRC’s web site. 

3.9 Violations Involving Certain Construction Issues 

a. Fuel Cycle Facilities 

The NRC may choose to exercise discretion for fuel cycle facilities under construction 

(construction is defined in 10 CFR 40.4 for source material licensees and in 10 CFR 70.4 

for special nuclear material licensees) based on the general enforcement discretion 

guidance contained in Section 3 of this Enforcement Policy. 

b. Part 50 Construction Permit and LWA Holders 

The NRC may exercise discretion for Construction Permit and LWA holders during 

construction using the general enforcement discretion guidance in Section 3 of the 

Enforcement Policy. 

c. COL Holders (Reactor Facilities) 

The NRC may exercise discretion for COL holders during construction using the general 

enforcement discretion guidance in Section 3 of the Enforcement Policy, as applicable. 

Additionally, the NRC may reduce or refrain from issuing an NOV/NCV for a violation associated 

with an unplanned change that deviates from the licensing basis that is implemented during 

construction8 and that would otherwise require prior NRC approval (in the form of a license 

amendment) when all of the following criteria are met: 

 

8 The NRC may issue an enforcement action, including consideration of willfulness, for the cause 

of these unplanned changes, such as a failure to implement appropriate work controls or quality control 

measures, or a failure to adhere to procedures, processes, instructions, or standards that implement NRC 

requirements. This enforcement may be appropriate for the actions that led to the changes during 

construction issue. 
NRC Enforcement Policy 

37 

• The licensee identifies the unplanned changes implemented, which the staff 

would normally disposition as a Severity Level IV violation of NRC 

requirements.9

• The licensee submits the necessary information without delay to the NRC so 

that it can conduct a timely evaluation of the change as part of the license 

amendment review process, or submits information to the NRC stating that it 

will restore the current licensing basis. 

• Either (1) the cause of the deviation was not within the licensee’s control, 

such that the change was not avoidable by reasonable licensee quality 

assurance measures or management controls, or (2) the licensee placed the 

cause of the unplanned change in its corrective action program to ensure 

comprehensive corrective actions to address the cause of the change to 

preclude recurrence. 

For similar issues not identified by the licensee, the NRC may refrain from issuing an NOV/NCV 

on a case-by-case basis depending upon the circumstances of the issue, such as whether the 

requirements were clearly understood or should have been understood at the time, the cause of 

the issue, and why the licensee did not identify the issue. 

When the NRC determines that an unplanned change during construction associated with a 

violation of requirements meets the outlined criteria above and the licensee without delay 

submits the necessary information for NRC evaluation, the licensee’s continued failure to meet 

the current licensing basis (CLB) will not be treated as a willful or continuing violation only while 

the licensee prepares the license amendment request and the NRC reviews the submittal. 

(Note: If the NRC subsequently denies a requested license amendment change, or if the NRC 

requires additional measures to be taken for the change to be considered acceptable, then a 

separate NOV or order may be issued to ensure appropriate corrective actions are taken, 

including restoring the configuration to the CLB). 

3.10 Reactor Violations With No Performance Deficiencies 

The NRC may exercise discretion for violations of NRC requirements by reactor licensees for 

which there are no associated performance deficiencies (e.g., a violation of a TS which is not a 

performance deficiency). 

4.0 ENFORCEMENT ACTIONS INVOLVING INDIVIDUALS 

Any individual may be subject to NRC enforcement action if the individual (1) deliberately 

causes or would have caused, if not detected, a licensee to be in violation of any regulation or 

Order, or any term, condition, or limitation of any license issued by the Commission related to 

NRC-licensed activities or (2) deliberately submits materially inaccurate or incomplete 

information to the NRC, a licensee, an applicant or a licensee, or a contractor or subcontractor 

 

9 NRC-identified violations that result in a “use as built” determination or that result in an unplanned 

change (or both) will normally be dispositioned as a cited, noncited, or minor violation, whether or not the 

unplanned change issue is resolved by a subsequently approved license amendment. 
NRC Enforcement Policy 

38 

of a licensee or applicant for a license (e.g., see “Deliberate Misconduct” regulations in 

10 CFR 30.10, 10 CFR 50.5, 10 CFR 52.4, and 10 CFR 76.10). 

The Agency will normally take enforcement actions against nonlicensed individuals only in 

cases involving deliberate misconduct by the nonlicensed individual, in cases involving a lack of 

reasonable assurance, as discussed below in Section 4.2, “Notices of Violation and Orders to 

Individuals,” and in cases in which an individual violates any requirement directly imposed on 

him or her (e.g., a violation of any rule adopted under Section 147, “Safeguards Information,” of 

the AEA). However, the NRC may take enforcement action against NRC-licensed reactor 

operators even if the violation does not involve deliberate misconduct, since operators licensed 

by the NRC are subject to all applicable Commission requirements (see 10 CFR 55.53(d)). 

The NRC considers enforcement actions against individuals to be significant actions that will be 

closely evaluated and judiciously applied. Typically, the NRC will take an enforcement action 

involving an individual, either licensed or nonlicensed, only when the violation has actual or 

potential safety or security significance. NOVs and Orders are examples of enforcement 

actions that may be issued to individuals. Enforcement actions issued to individuals will 

normally be placed on the NRC OE Web site. Generally, before taking enforcement action 

against an individual, the NRC will seek to gather information to determine whether an Order or 

other enforcement action should be issued. The Agency may gather such information by 

conducting a PEC, by requesting a written response from the individual, or by issuing a DFI. If 

the violation was deliberate, the individual may also be provided the opportunity to address the 

apparent violation during ADR. The exact nature of the opportunity to address the apparent 

violation will depend on the circumstances of the case, including the significance of the issue, 

the enforcement sanction that the NRC is contemplating, and whether the individual has already 

had an opportunity to respond to the apparent violation. 

If the NRC discovers (through inspections or investigation-related material) potentially damaging 

or disqualifying information regarding an individual’s trustworthiness and reliability, and the 

individual currently possesses Unescorted Access (UA) or is in the process of obtaining 

Unescorted Access Authorization (UAA), the NRC will consider, on a case-by-case basis, 

notifying the licensee that has granted, or is processing the UA or UAA of the information. This 

notification may occur in the preliminary or final determination stage of the enforcement 

process, as appropriate, with approval of the Director, OE. The NRC will strongly consider the 

degree of certainty associated with the information in making this decision. If the NRC makes 

such a notification, it nevertheless remains the licensee’s responsibility to evaluate the 

information provided in accordance with its access authorization program to determine the 

appropriate actions regarding individual access authorizations. A licensee may reasonably 

reach a conclusion that the information provided by the NRC is not disqualifying under the 

circumstances (e.g., based on additional facts, based on a different assessment of the facts, or 

based upon the final resolution of the enforcement process). 

Since it is NRC policy to hold licensees responsible for the acts of their employees and 

contractors, in most cases, the NRC will cite the licensee for violations committed by their 

employees and contractors. Violations with a significance that would typically warrant escalated 

enforcement action against the licensee may warrant an enforcement action against an 

individual (e.g., deliberately providing inaccurate or incomplete information or deliberate 

falsification of documents). Typically, the NRC will not take enforcement action against the 
NRC Enforcement Policy 

39 

employee or contractor if failures of licensee management (e.g., improper training or inadequate 

procedures) are responsible for the individual’s improper actions. In deciding whether to issue 

enforcement actions both to a licensee and a nonlicensed individual, the NRC will make 

decisions on a case-by-case basis. 

4.1 Considerations in Determining Enforcement Actions Involving Individuals 

The NRC recognizes that decisions regarding enforcement actions against individuals will have 

to be made on a case-by-case basis. The NRC may propose an enforcement action or refrain 

from taking an enforcement action after considering all the relevant circumstances of each case. 

The primary factors considered by the NRC in considering whether to take action or what action 

to take are (1) the significance of the underlying violation or technical issue (not considered in 

discrimination cases) and (2) the individual’s position within the organization 

(i.e., notwithstanding an individual’s job title, consider the position of the individual within the 

licensee’s organizational structure and the individual’s responsibilities related to the oversight of 

licensed activities and to the use of licensed material). 

Other factors include, but are not limited to, whether the violation was the result of deliberate 

misconduct (typically a prerequisite for taking action against a nonlicensed individual), the 

benefit to the wrongdoer (e.g., direct personal or corporate gain), the degree of management 

responsibility or culpability, and the attitude of the wrongdoer (e.g., admission of wrongdoing, 

acceptance of responsibility). 

4.2 Notices of Violation and Orders to Individuals 

Although the NRC has the authority to issue NOVs to any individual who holds an NRC license 

and violates NRC requirements, regardless of whether willfulness, either deliberate misconduct 

or careless disregard, was involved, actions against licensed individuals for nonwillful violations 

are rare. In the case of a licensed operator’s failure to meet applicable fitness-for-duty 

requirements (i.e., 10 CFR 55.53(j)), the NRC may issue an NOV to the individual, or an Order 

to suspend, modify, or revoke the individual’s 10 CFR Part 55 operator’s license. The Agency 

may also issue to licensed individuals Orders containing provisions that would modify or revoke 

the individual’s license or prohibit involvement in NRC-licensed activities for a specified period 

of time (normally the period of suspension would not exceed 5 years) or until certain conditions 

are satisfied (e.g., completing specified training or meeting certain qualifications). 

The Commission may also take enforcement action (e.g., an Order or NOV) against 

nonlicensed individuals, including contractors and subcontractors and their employees, who 

knowingly provide components, equipment, or other goods or services that relate to a licensee’s 

activities subject to NRC regulations. However, the NRC will not normally issue an enforcement 

action against a nonlicensed individual unless the individual’s actions were a result of deliberate 

misconduct. When needed to ensure adequate protection of public health and safety and the 

common defense and security or the public interest, the NRC may issue an Order to an 

unlicensed person, whether a firm or an individual, requiring (1) the removal of the person from 

all NRC-licensed activities for a specified period of time (normally, the period of suspension 

would not exceed 5 years) and (2) prior notice to the NRC before engaging in NRC-licensed 

activities. In addition, Orders to employers who are NRC licensees could require retraining, 
NRC Enforcement Policy 

40 

additional oversight, independent verification of activities performed by the individual, if the 

individual is to be involved in licensed activities, and to inform other persons or NRC licensees 

who make reference inquiries (e.g., employment reference inquiries) regarding the nonlicensed 

individual or firm, of the issuance of such an Order. 

For either a licensed or nonlicensed individual, the initial determination of a period of prohibition 

from NRC-licensed activities is normally based on the significance of the underlying violation 

and the individual’s level of responsibility within the organization. A high level of significance 

combined with a high degree of responsibility results in initially considering a 5-year prohibition 

period. Depending on the circumstances of the case, the NRC may consider either escalation 

(including a permanent ban from NRC-licensed activities in significant cases) or mitigation of the 

prohibition period. 

In addition to the above, the NRC may take enforcement action against a licensee that may 

affect an individual, where the conduct of the individual calls into question the NRC’s reasonable 

assurance that licensed activities will be properly conducted. The NRC may take enforcement 

action for reasons that would warrant refusal to issue a license on an original application. 

Accordingly, appropriate enforcement actions may be taken regarding matters that raise issues 

of integrity (e.g., lying to the NRC), competence, fitness for duty, or other matters that may not 

necessarily be a violation of specific Commission requirements. 

4.3 Civil Penalties to Individuals 

Except for individuals subject to civil penalties under Section 206 of the ERA, as amended, the 

NRC will not normally impose a civil penalty against an individual. However, Section 234 of the 

AEA gives the Commission authority to impose civil penalties on “any person.” Furthermore, 

any person, whether or not a licensee of the Commission, who violates any regulations adopted 

under Section 147, “Safeguards Information,” of the AEA will be subject to the full range of 

enforcement sanctions, including civil penalties. Section 11s of the AEA broadly defines 

“person” to include individuals, a variety of organizations, and their representatives or agents. 

The NRC may issue a civil penalty to any individual who deliberately releases 

Safeguards Information (SGI), including SGI-M, regardless of whether that individual is 

employed by a licensee. If an individual deliberately released or failed to properly 

control SGI after employment ends with a licensee, the NRC will typically consider 

individual enforcement actions, including civil penalties in accordance with this Policy, as 

described below. 

The NRC will typically not issue a civil penalty to an individual for non-deliberate 

violations of SGI requirements if that individual’s employer (a licensee, certificate holder, 

applicant for a license or a certificate of compliance, or contractor) places the violation in 

its corrective action program and has taken, or plans to take, corrective actions to 

restore compliance. The NRC will consider, based on the circumstances of a case, the 

appropriateness of a civil penalty for non-deliberate releases of SGI by an individual in 

which the employer failed to take or plan to take corrective actions and for cases 

involving deliberate or non-deliberate releases of SGI by an individual after employment 

has ended with a licensee. 
NRC Enforcement Policy 

41 

The NRC considers an individual’s reasons and potential motivations for disclosing SGI 

and the willingness of the individual to correct or mitigate the release of information in 

determining if a civil penalty is to be issued and in determining the final civil penalty 

amount. The NRC typically reserves civil penalties for cases involving egregious 

violations and for individuals who refuse to correct or mitigate the release of information. 

Table A in Section 8.0 of this Policy lists the base civil penalty to individuals who release 

SGI. The intent of civil penalties to individuals is to serve as a deterrent; these penalties 

generally do not require a base civil penalty as high as that issued to a licensee or 

contractor. However, willful violations may support a civil penalty outside of the range 

listed in Section 8.0. 

Section 6.13, “Information Security,” of this Policy provides a risk-informed approach for 

assessing the significance of information security violations. Also, in determining the 

appropriate SL for the release of SGI, the NRC will consider the type of SGI information 

disclosed, its availability to the public, the damage or vulnerability that the information 

caused or may cause to the licensee that possessed ownership of the SGI, and the 

damage that the information caused or could cause to public health and safety. The 

NRC will also use SGI-related significance determination process (under the Reactor 

Oversight Process) information, when available, to inform the SL determination. 

4.4 Confirmatory Orders to Individuals 

Agreements with individuals reached as a result of the ADR process are normally formalized by 

the issuance of a Confirmatory Order. ADR is typically offered to individuals consistent with the 

process used for licensees (see Section 2.4.3 of this Policy). 

5.0 PUBLIC AVAILABILITY OF INFORMATION REGARDING ENFORCEMENT ACTIONS 

In accordance with 10 CFR 2.390, “Public Inspections, Exemptions, Requests for Withholding,” 

enforcement actions and licensees’ responses are normally made publicly available for 

inspection. However, some security-related information and medical records, except if obtained 

pursuant to the Commission’s regulations, will not be made available to the public. The NRC 

Office of Public Affairs is responsible for making final decisions as to whether press releases will 

be issued; however, such releases are normally issued for Orders and civil penalties at the 

same time that the Order or proposed imposition of the civil penalty is issued. Press releases 

may also be issued when a civil penalty is withdrawn or substantially mitigated. Press releases 

are not normally issued for NOVs that are not accompanied by Orders or proposed civil 

penalties, unless the issue or licensee involved is of some particular interest. 

6.0 VIOLATION EXAMPLES 

The violation examples in this Policy are intentionally broad in scope so as to serve as a set of 

guiding examples that are neither exhaustive nor controlling for making severity level 

determinations. Licensed activities are placed in the most appropriate activity area in light of the 

particular violation involved, including activities not directly covered by one of the listed areas. 

The violation examples are not intended to address every possible circumstance. However, 

when an enforcement case scenario very nearly achieves all or some of the criteria set forth in 
NRC Enforcement Policy 

42 

an example, the case should be considered to be at the severity level of that example. For 

example, when using the examples in Section 6.7, “Health Physics,” if the circumstances of a 

case are such that one or more of the severity levels in an example were very nearly reached, 

and it was only fortuitous that the limit was not actually met or exceeded, then the severity level 

for the subject example would be applicable. Additionally, if the circumstances for a case do not 

squarely fit any particular violation example, a comparable example in the same activity area 

may be considered to determine the severity (e.g., the case for an industrial licensee presents a 

set of circumstances and considerations comparable to those for a medical example provided in 

Section 6.3, “Materials Operations;” hence, the severity level for the medical example can be 

applied). 

Many examples are written to reflect the risks associated with the use of nuclear 

materials. However, violations during construction generally occur before the nuclear 

material and its associated risk are present. Therefore, the NRC will consider the lower 

risk significance of violations that occur during construction in the areas of emergency 

preparedness, reactor operator licensing, and security and may reduce the severity level 

for those violations from that indicated by the examples in those areas. In order to 

maintain consistent application, the staff must coordinate with the Office of Enforcement 

before applying this lower risk significance concept for violations that occur during 

construction. 

 Reactor Operations 

a. SL I violations involve, for example: 

1. A system10 that is part of the primary success path and which functions or 

actuates to mitigate a Design Basis Accident (DBA) or transient that either 

assumes the failure of or presents a challenge to the integrity of a fission product 

barrier is unable to perform its licensing basis safety function11 when actually 

called on to function; 

2. An inadvertent or unplanned criticality; or 

3. A technical specification safety limit is exceeded. 

b. SL II violations involve, for example: 

1. A system that is part of the primary success path and which functions or actuates 

to mitigate a DBA or transient that either assumes the failure of or presents a 

challenge to the integrity of a fission product barrier would be unable to perform 

its licensing basis safety function had it been called upon to function. 

 

10 The term “system” as used in these violation examples includes administrative control systems, managerial 

control systems, as well as physical systems. 

11 “Licensing basis safety function” means the total safety function and is not directed toward a loss of 

redundancy. A loss of one subsystem does not defeat the intended safety function as long as the other subsystem is 

operable. 
NRC Enforcement Policy 

43 

c. SL III violations involve, for example: 

1. A licensee fails to shut down the reactor or follow remedial actions permitted by a 

technical specification action requirement when a Limiting Condition for 

Operation (LCO) is not met (i.e., noncompliance with 10 CFR 50.36(c)(2)(i)); 

2. A system that is part of the primary success path and which functions or actuates 

to mitigate a DBA or transient that either assumes the failure of or presents a 

challenge to the integrity of the fission product barrier not being able to perform 

its licensing basis safety function because it is not fully qualified (per the IMC 

0326, “Operability Determinations & Functional Assessment for Conditions 

Adverse to Quality or Safety”) (e.g., materials or components not environmentally 

qualified); 

3. Changes in reactor parameters cause unanticipated reductions in margins to 

safety; 

4. A licensee fails to adequately oversee contractors, which results in the use of 

safety-significant products or services that are defective or of indeterminate 

quality; 

5. Equipment failures caused by inadequate or improper maintenance substantially 

complicate recovery from a plant transient; 

6. A licensee fails to obtain prior Commission approval required by 10 CFR 50.59 

for a change that has a consequence evaluated by the SDP as having 

low-to-moderate or greater safety significance (i.e., white, yellow, or red); or 

7. A licensee fails to update the FSAR as required by 10 CFR 50.71(e), and the 

un-updated FSAR is used to perform a 10 CFR 50.59 evaluation for a change to 

the facility or procedures, implemented without Commission approval, that results 

in a condition evaluated as having low-to-moderate or greater safety significance 

(i.e., white, yellow, or red) by the SDP. 

d. SL IV violations involve, for example: 

1. A failure to comply with a technical specification action requirement 

demonstrates misapplication of the conventions in technical specifications 

Section 1.0, “Use and Application”, or the allowances for LCO and surveillance 

requirement applicabilities in technical specifications Section 3.0; 

2. Violations of 10 CFR 50.59 result in conditions evaluated as having very low 

safety significance (i.e., green) by the SDP; 

3. A licensee fails to update the FSAR as required by 10 CFR 50.71(e) and the lack 

of up-to-date information has a material impact on safety or licensed activities; or 
NRC Enforcement Policy 

44 

4. A licensee fails to adequately assess the risk of plant operations associated with 

implementation of a risk-informed technical specification allowance such that the 

allowance is implemented inappropriately. 

 Fuel Cycle Operations 

This section provides examples in the area of fuel cycle operations for licensees with an 

integrated safety analysis (ISA) under 10 CFR Part 70, “Domestic Licensing of Special Nuclear 

Material,” Subpart H, “Additional Requirements for Certain Licensees Authorized To Possess a 

Critical Mass of Special Nuclear Material,” and fuel cycle licensees without an ISA. The NRC 

will determine the appropriate severity level for a specific violation by using licensee ISAs and 

other applicable risk information.

a. SL I violations involve, for example: 

1. Under 10 CFR Part 70, Subpart H, a high-consequence event occurs; or 

2. For licensees not under 10 CFR Part 70, Subpart H, the occurrence of an event 

with a consequence commensurate with a 10 CFR Part 70, Subpart H, highconsequence event, as a result of licensed materials or hazardous chemicals 

produced from licensed materials. 

b. SL II violations involve, for example: 

1. Under 10 CFR Part 70, Subpart H, a high-consequence event is “not unlikely” 

based on a licensee’s ISA; 

2. Under 10 CFR Part 70, Subpart H, an intermediate-consequence event occurs; 

3. For licensees not under 10 CFR Part 70, Subpart H, a very substantial increase 

in the likelihood of a consequence commensurate with a Part 70 highconsequence event occurs; or 

4. For licensees not under 10 CFR Part 70, Subpart H, an event with a 

consequence commensurate with a Part 70, Subpart H intermediateconsequence event occurs as the result of licensed materials or hazardous 

chemicals produced from licensed materials. 

c. SL III violations involve, for example: 

1. Under 10 CFR Part 70, Subpart H, a high-consequence event is “unlikely” based 

on a licensee’s ISA; 

2. Under 10 CFR Part 70, Subpart H, an intermediate-consequence event is “not 

unlikely” based on a licensee’s ISA; 
NRC Enforcement Policy 

45 

3. For licensees not under 10 CFR Part 70, Subpart H, a substantial increase in the 

likelihood of a consequence commensurate with a Part 70, Subpart H, highconsequence event occurs; 

4. For licensees not under 10 CFR Part 70, Subpart H, a significant increase in the 

likelihood of a consequence commensurate with a Part 70, Subpart H, 

intermediate-consequence event occurs; 

5. A significant failure to comply with the action statement for a technical safety 

requirement Limiting Condition for Operation (LCO) results in the appropriate 

action not being taken within the required time; 

6. Under 10 CFR 70.72, “Facility Changes and Change Process,” or 10 CFR 76.68, 

“Plant Changes,” a significant failure to adequately evaluate a change to the 

facility results in implementation of the change without a required license or 

certificate amendment; 

7. Under 10 CFR 70.24 or 10 CFR 76.89, both titled “Criticality Accident 

Requirements,” a criticality accident alarm system fails to provide either detection 

or annunciation coverage for a substantial time period during which operations 

involving handling or using fissile material occurred; or 

8. A licensee fails to meet or implement more than one emergency planning 

standard. 

d. SL IV violations involve, for example: 

1. Under 10 CFR Part 70, Subpart H, a licensee fails to meet the requirements of 

10 CFR 70.61, “Performance Requirements,” or Appendix A, “Reportable Safety 

Events,” to 10 CFR Part 70, and the failure does not result in a SL I, II, or III 

violation; 

2. A failure of safety systems or controls occurs such that an acceptable safety 

margin has not been maintained, and the failure does not result in a SL I, II, or III 

violation; 

3. A less significant failure to comply with the action statement for a technical safety 

requirement LCO occurs when the appropriate action was not taken within the 

required time; 

4. Under 10 CFR 70.72 or 10 CFR 76.68, a less significant failure to adequately 

evaluate a change to the facility results in implementation of the change without a 

required license or certificate amendment. The failure does not result in a SL I, 

II, or III violation; 

5. Under 10 CFR 70.24 or 10 CFR 76.89, a criticality accident alarm system fails to 

provide either detection or annunciation coverage of fissile material operations 

during a time period when fissile material was handled, used, or stored; 
NRC Enforcement Policy 

46 

6. A licensee fails to meet or implement more than one emergency planning 

standard involving assessment or notification during an Alert emergency; or 

7. A licensee fails to meet or implement any emergency planning standard or 

requirement not directly related to assessment and notification (e.g., emergency 

response training, emergency equipment maintenance). 

 Materials Operations 

a. SL I violations involve, for example: 

1. The loss of control over licensed or certified activities, including chemical 

processes that are integral to the licensed or certified activity, results in serious 

injury or loss of life; 

2. A system designed to prevent or mitigate a serious safety event is inoperable 

when actually required to perform its design function, and this results in serious 

injury or loss of life; 

3. Failure to use a properly prepared written directive as required by 10 CFR 35.40, 

“Written Directives,” or failure to develop, implement, or maintain procedures for 

administrations requiring a written directive as required by 10 CFR 35.41, 

“Procedures for Administrations Requiring a Written Directive,” results in serious 

injury or loss of life; or 

4. Failure to have or to follow written operating procedures as required by 

10 CFR 36.53, “Operating and Emergency Procedures,” results in a serious 

injury or loss of life. 

b. SL II violations involve, for example: 

1. The loss of control over licensed or certified activities, including chemical 

processes that are integral to the licensed or certified activity, results in the 

substantial potential for a significant injury or loss of life, whether or not 

radioactive material is released; 

2. A system designed to prevent or mitigate a serious safety event is inoperable 

when actually required to perform its design function; 

3. A substantial programmatic failure to implement written directives or procedures 

for administrations requiring a written directive, such as a failure of the licensee’s 

procedures to address one or more of the elements in 10 CFR 35.40 or 

10 CFR 35.41, or a failure to train personnel in those procedures, results in a 

medical event; or 

4. Failure to have or to follow written operating procedures as required by 

10 CFR 36.53 results in a substantial potential (e.g., an event did not occur, but 
NRC Enforcement Policy 

47 

no barriers, neither procedural nor system, including interlocks, would have 

prevented it, and the event was not highly unlikely to occur) for a serious injury or 

death. 

c. SL III violations involve, for example: 

1. A system designed to prevent or mitigate a serious safety event has one of the 

following characteristics: 

(a) It is unable to perform its intended function under certain conditions 

(e.g., a safety system is not operable unless the required backup power is 

available), or 

(b) It is outside design specifications to the extent that a detailed evaluation 

would be required to determine its operability; 

2. A programmatic failure occurs to implement written directives or procedures for 

administrations requiring a written directive, such as the following: 

(a) A licensee’s procedures fail to address one or more of the elements in 

10 CFR 35.40 or 10 CFR 35.41, 

(b) A licensee fails to train personnel in procedures for administrations 

requiring a written directive, 

(c) A nonisolated failure occurs to use and follow written directives or 

procedures for administrations requiring a written directive; or 

(d) A licensee fails to have procedures or requirements for written directives 

or fails to have procedures for administrations that require written 

directives. 

3. Except as provided for in section 6.3.d.10 of the Policy, a licensee fails to secure 

a portable gauge as required by 10 CFR 30.34(i); 

4. A significant failure to implement the requirements of 10 CFR Part 34, “Licenses 

for Industrial Radiography and Radiation Safety Requirements for Industrial 

Radiographic Operations,” during radiographic operations includes, but is not 

limited to, the following: 

(a) During radiographic operations at a location other than a permanent 

radiographic installation, a licensee fails to have present a radiographer 

and at least one additional radiographer or qualified individual, 

(b) A licensee fails, during radiographic operations, to use radiographic 

equipment, radiation survey instruments, or personnel monitoring devices 

as required by 10 CFR Part 34, or 
NRC Enforcement Policy 

48 

(c) During radiographic operations, a failure to stop work occurs, after a 

pocket dosimeter is found to have gone off-scale or after an electronic 

dosimeter reads greater than 200 millirem (mrem), and before a 

determination is made of the individual’s actual radiation exposure; 

5. An unqualified person conducts licensed activities. The unqualified person is 

characterized by either of the following: 

(a) lacking adequate qualifications, experience, or training to safely conduct 

activities, or 

(b) lacking the required certification or training for positions such as 

radiographer; authorized user under 10 CFR Part 35, “Medical Use of 

Byproduct Material”; or irradiator operator under 10 CFR 36.51, “Training” 

6. Licensed material is used on humans where such use is not authorized; 

7. A licensee authorizes the release from its control of an individual who does not 

meet the release criteria in 10 CFR 35.75, “Release of Individuals Containing 

Unsealed Byproduct Material or Implants Containing Byproduct Material;” 

8. An individual without supervision operates an irradiator when the individual has 

not been trained as required by 10 CFR 36.51; 

9. A programmatic failure occurs to have and follow written operating procedures as 

required by 10 CFR 36.53; 

10. A programmatic failure occurs to perform inspection and maintenance checks as 

required by 10 CFR 36.61, “Inspection and Maintenance;” 

11. A licensee fails to seek required NRC approval before the implementation of a 

significant change in licensed activities that has radiological or programmatic 

significance, such as the following: 

(a) a change in ownership, 

(b) a change in the location where licensed activities are being conducted or 

where licensed material is being stored, 

(c) an increase in the quantity or type of radioactive material being processed 

or used that has radiological significance, or 

(d) a change in program status with regard to the RSO named on its license 

(e.g., licensee fails to have an RSO; licensee appoints an unqualified 

individual as RSO); 

12. Failures occur involving decommissioning requirements, such as the following: 
NRC Enforcement Policy 

49 

(a) a significant failure to meet decommissioning as required by regulation or 

license condition, or 

(b) failure to meet required schedules without adequate justification 

d. SL IV violations involve, for example: 

1. A licensee fails to use a properly prepared written directive as required by 

10 CFR 35.40, or fails to develop, implement, or maintain procedures for 

administrations requiring a written directive as required by 10 CFR 35.41, 

whether or not a medical event occurs, provided that the failures are 

characterized by all of the following: 

(a) are isolated 

(b) do not demonstrate programmatic weaknesses in implementation 

(c) have limited consequences if a medical event is involved; 

2. A licensee fails to keep the records required by 10 CFR 35.2040, “Records of 

Written Directives,” and 10 CFR 35.2041, “Records for Procedures for 

Administrations Requiring a Written Directive;” 

3. A licensee fails to implement procedures including, but not limited to, 

recordkeeping, surveys, and inventories; 

4. A licensee fails to comply with the U.S. Department of Transportation 

requirement to provide hazardous material (HAZMAT) employee training as 

required by 10 CFR 71.5(a); 

5. There is an isolated failure to have and to follow written operating procedures as 

required by 10 CFR 36.53; 

6. A licensee fails to document the required certification or training for positions 

such as radiographer, authorized user under 10 CFR Part 35, or irradiator 

operator under 10 CFR 36.51; 

7. A licensee fails to seek required NRC approval before the implementation of a 

change in ownership that results in little or no adverse impact on radiological or 

programmatic activities or on the NRC’s ability to inspect licensed activities, such 

that the locations and types of activities are unaffected by the unauthorized 

license transfer; 

8. A licensee fails to seek required NRC approval prior to replacement of the RSO, 

where the RSO was evaluated as qualified; 

9. A licensee fails to seek NRC approval, when required, before changing the 

location where licensed activities are being conducted or where licensed material 
NRC Enforcement Policy 

50 

is being stored that has little or no radiological or programmatic significance, and 

all other safety and security requirements have been met; or 

10. A licensee fails to secure a portable gauge as required by 10 CFR 30.34(i), 

whenever the gauge is not under the control and constant surveillance of the 

licensee, where one level of physical control existed and there was no actual loss 

of material, and that failure is not repetitive. 

 Licensed Reactor Operators 

a. SL I violations involve, for example: 

1. A licensed operator, or a senior operator actively performing the functions 

covered by that position, is involved in procedural errors that result in, or 

exacerbate the consequences of, an Alert or higher level emergency, and, at the 

time the procedural errors occurred, was determined to be either of the following: 

(a) unfit for duty as a result of a confirmed positive test for drugs or alcohol at 

cutoff levels established by the licensee, or 

(b) under the influence of any prescription or over-the-counter drug as 

described in 10 CFR 55.53(j), or 

(c) unfit for duty as determined by a post event fatigue assessment required 

by 10 CFR 26.211(a)(3). 

b. SL II violations involve, for example: 

1. A licensed operator, or a senior operator actively performing the functions 

covered by that position, is involved in procedural errors, and, at the time the 

procedural error occurred, was determined to be any of the following: 

(a) unfit for duty as a result of a confirmed positive test for drugs or alcohol at 

cutoff levels established by the facility licensee, 

(b) under the influence of any prescription or over-the-counter drug as 

described in 10 CFR 55.53(j), 

(c) in noncompliance with a condition stated on the individual’s license, or 

(d) unfit for duty as determined by a post event fatigue assessment required 

by 10 CFR 26.211(a)(3); 

2. A deliberate compromise (see 10 CFR 55.49, “Integrity of Examinations and 

Tests”) occurs of an application, test, or examination required by 10 CFR Part 55, 

“Operators’ Licenses,” or inaccurate or incomplete information is deliberately 

provided to the NRC and has any of the following effects: 
NRC Enforcement Policy 

51 

(a) in the case of initial operator licensing, contributes to an individual being 

granted an operator or senior operator license, or 

(b) in the case of operator requalification, contributes to an individual being 

permitted to continue to perform the functions of an operator or senior 

operator, or 

(c) contributes to a medically unqualified individual performing the functions 

of a licensed operator or senior operator; or 

3. A licensed operator or senior operator, while within the protected area, is 

involved in the use, sale, or possession of illegal drugs or the consumption of 

alcoholic beverages. 

c. SL III violations involve, for example: 

1. A licensed operator, or a senior operator actively performing the functions 

covered by that position, is determined to be any of the following: 

(a) unfit for duty as a result of a confirmed positive test for drugs or alcohol at 

cutoff levels established by the licensee, 

(b) under the influence of any prescription or over-the-counter drug as 

described in 10 CFR 55.53(j), 

(c) in noncompliance with a condition stated on the individual’s license, or 

(d) unfit for duty as determined by a post event fatigue assessment required 

by 10 CFR 26.211(a)(3); 

2. A licensed operator, or a senior operator actively performing the functions 

covered by that position, is inattentive to duty; 

3. A licensed operator or senior operator is involved in the use, sale, or possession 

of illegal drugs; 

4. A nonwillful compromise (see 10 CFR 55.49, “Integrity of Examinations and 

Tests”) of an application, test, or examination required by 10 CFR Part 55, or 

inaccurate or incomplete information inadvertently provided to the NRC, 

subsequently contributes to the NRC making an incorrect regulatory decision, 

such as the following: 

(a) in the case of initial operator licensing, contributes to an individual being 

granted an operator or senior operator license, or 

(b) in the case of operator requalification, contributes to an individual being 

permitted to continue to perform the functions of an operator or senior 

operator, or 
NRC Enforcement Policy 

52 

(c) contributes to a medically unqualified individual performing the functions 

of a licensed operator or senior operator. 

d. SL IV violations involve, for example: 

1. A nonwillful compromise (see 10 CFR 55.49) of an application, test, or 

examination required by 10 CFR Part 55. For example, 

(a) cases of inaccurate or incomplete information inadvertently provided to 

the NRC that do not contribute to the NRC making an incorrect regulatory 

decision as a result of the originally submitted information; or 

(b) an individual operator who did not meet the American National Standards 

Institute/American Nuclear Society (ANSI/ANS) 3.4, “Medical Certification 

and Monitoring of Personnel Requiring Operator Licenses for Nuclear 

Power Plants,” Section 5, “Health Requirements and Disqualifying 

Conditions,” as certified on NRC Form 396, “Certification of Medical 

Examination by Facility Licensee,” required by 10 CFR 55.23, 

“Certification,” but who did not perform the functions of a licensed 

operator or senior operator while having a disqualifying medical condition; 

or 

(c) an individual operator who did not meet ANSI/ANS 3.4, Section 5, as 

certified on NRC Form 396, “Certification of Medical Examination by 

Facility Licensee,” required by 10 CFR 55.23, due to an incomplete 

medical examination, but was subsequently found to meet the health 

requirements for licensing; or 

(d) an individual operator who met ANSI/ANS 3.4, Section 5, as certified on 

NRC Form 396, required by 10 CFR 55.23, but failed to report a condition 

that would have required a license restriction to establish or maintain 

medical qualification based on having the undisclosed medical condition. 

 Facility Construction (10 CFR Parts 50 and 52 Licensees and Fuel Cycle Facilities) 

a. SL I violations involve, for example: 

1. A significant breakdown of a licensee’s QA program that results in multiple 

structures, systems, or components being completed12 in a manner such that 

they would not have satisfied their intended safety purpose. 

b. SL II Violations involve, for example: 

1. A significant breakdown occurs in the QA program, as exemplified by multiple 

 

12 The term “completed” as used in this example means completion of a construction activity, 

including review and acceptance by the construction Quality Control or Quality Assurance organization. 
NRC Enforcement Policy 

53 

deficiencies in construction QA related to more than one work activity (e.g., 

structural, piping, electrical, foundations). These deficiencies involve the 

licensee’s failure to provide adequate oversight or take prompt corrective action 

and involve multiple examples of deficient construction or construction of 

unknown quality as the result of inadequate program implementation; or 

2. Multiple structures, systems, or components are completed in a manner that 

would have an adverse impact on the safety of operations. 

c. SL III violations involve, for example: 

1. A breakdown occurs in a licensee’s QA program for construction related to a 

single work activity (e.g., structural, piping, electrical, foundations). This 

significant deficiency involves the licensee’s failure to provide adequate oversight 

or take prompt corrective action and entails multiple examples of deficient 

construction or construction of unknown quality as the result of inadequate 

program implementation; 

2. A failure to confirm the design safety requirements of a structure, system, or 

component as the result of inadequate preoperational test program 

implementation; 

3. Ineffective corrective actions result in multiple examples of recurring significant 

deficiencies associated with a single construction activity; 

4. A licensee fails to obtain prior Commission approval required by 10 CFR 50.59 or 

10 CFR 52.98 for a change that results in a condition evaluated as having 

low-to-moderate or greater safety significance; or 

5. A licensee fails to update the FSAR as required by 10 CFR 50.71(e), and the 

FSAR is used to perform a 10 CFR 50.59 or 10 CFR 52.98 evaluation for a 

change to the facility or procedures, implemented without Commission approval, 

that results in a condition evaluated as having low-to-moderate or greater safety 

significance. 

d. SL IV violations involve, for example: 

1. A licensee fails to meet regulatory requirements, including one or more QA 

criteria that have more than minor safety or security significance; 

2. A licensee fails to establish, maintain, or implement adequate controls over 

procurement, construction, examination, or testing processes that are important 

to safety; 

3. A licensee fails to adequately implement QA processes or procedures; 

4. A licensee fails to maintain QA records to demonstrate the adequacy of 

construction; 
NRC Enforcement Policy 

54 

5. A licensee fails to implement adequate 10 CFR Part 21 processes or procedures 

that have more than minor safety or security significance; 

6. Violations of 10 CFR 50.59 or 10 CFR Part 52, Appendix A-D result in conditions 

evaluated as having very low safety significance; or 

7. A licensee has failed to update the FSAR as required by 10 CFR 50.71(e) but the 

lack of up-to-date information has not resulted in any unacceptable change to the 

facility or procedures. 

 Emergency Preparedness 

These examples are appropriate for violations at power reactor facilities for those violations that 

are dispositioned under traditional enforcement rather than under the ROP or cROP. For 

operating power reactors, the NRC treats participant performance deficiencies identified in 

emergency exercises under the ROP. This section also provides examples of violations in the 

area of emergency preparedness at nonpower reactor facilities. 

a. SL I violations involve, for example:

1. During an actual General Emergency, a licensee fails to promptly do any of the 

following: 

(a) correctly classify and declare the event, 

(b) make required notifications (i.e., notifications required by the licensee’s 

emergency plan, 10 CFR 50.72, “Immediate Notification Requirements for 

Operating Nuclear Power Reactors,” or 10 CFR Part 50, Appendix E, 

“Emergency Planning and Preparedness for Production and Utilization 

Facilities”) to responsible Federal, State, and local agencies, or 

(c) respond to the event (e.g., assess actual or potential offsite 

consequences, activate emergency response facilities, and augment shift 

staff). 

b. SL II violations involve, for example:

1. During an actual Site Area Emergency, a licensee fails to promptly do any of the 

following: 

(a) correctly classify and declare the event, 

(b) make required notifications (i.e., notifications required by the licensee’s 

emergency plan, 10 CFR 50.72, or 10 CFR 50, Appendix E) to 

responsible Federal, State, and local agencies, or 
NRC Enforcement Policy 

55 

(c) respond to the event (e.g., assess actual or potential offsite 

consequences, activate emergency response facilities, and augment shift 

staff); 

2. A licensee loses its ability to meet or implement any regulatory requirement 

related to assessment (other than emergency classification) or notification13 such 

that the required function would not be implemented during the response to an 

actual emergency; or 

3. An emergency action level (EAL) initiating condition (IC) has been rendered 

ineffective such that any General Emergency would not be declared for a 

particular off-normal event.14

c. SL III violations involve, for example:

1. During an actual Alert emergency, a licensee fails to promptly do any of the 

following: 

(a) correctly classify and declare the event, 

(b) make required notifications (i.e., notifications required by the licensee’s 

emergency plan, 10 CFR 50.72, or 10 CFR 50, Appendix E) to 

responsible Federal, State, and local agencies, or 

(c) respond to the event (e.g., assess actual or potential offsite 

consequences, activate emergency response facilities, and augment shift 

staff); 

2. A licensee’s ability to meet or implement any regulatory requirement related to 

assessment (other than emergency classification) or notification is degraded 

such that the effectiveness of the emergency plan decreases. Although the 

regulatory requirement could be implemented during the response to an actual 

emergency, the implementation would be degraded (e.g., not fully effective, 

inappropriately delayed); 

3. An EAL IC has been rendered ineffective such that any General Emergency 

would not be declared for a particular off-normal event, but because of redundant 

EALs for that IC, an appropriate declaration could be made but not within the 

15-minute requirement; 

 

13 As used in this example, “assessment” includes classification, assessment of the impact of a release of 

radioactivity, and the making of protective action recommendations; “notification” includes initial and follow-up 

notifications to offsite response organizations. For power reactors, this includes the risk-significant planning 

standards in 10 CFR 50.47(b)(4), (b)(5), (b)(9), and (b)(10). See Inspection Manual Chapter 0609, Appendix B, 

Emergency Preparedness Significance Determination Process, Section 5.0, for examples of conditions that may 

cause a required function not to be implemented or to be implemented in a degraded manner. 

14 An EAL IC may be rendered ineffective by changes to facility procedures, systems, or equipment; errors in 

numeric thresholds; or any other cause that could result in an IC that should be declared not being declared in a 

timely and accurate manner following the change.
NRC Enforcement Policy 

56 

4. An EAL IC has been rendered ineffective such that any Site Area Emergency 

would not be declared for a particular off-normal event; or 

5. A licensee’s ability to meet or implement any regulatory requirement not related 

to assessment or notification is lost such that the required function would not be 

implemented during the response to an actual emergency. 

d. SL IV violations involve, for example:

1. The licensee’s ability to meet or implement any regulatory requirement not

related to assessment or notification such that the effectiveness of the 

emergency plan decreases. Although the regulatory requirement could be 

implemented during the response to an actual emergency, the implementation 

would be degraded (e.g., not fully effective, inappropriately delayed); 

2. An EAL IC has been rendered ineffective such that any General Emergency 

would not be declared for a particular off-normal event, but because of redundant 

EALs for that IC, an appropriate declaration could be made in an accurate and 

timely manner; 

3. An EAL IC has been rendered ineffective such that any Site Area Emergency 

would not be declared for a particular off-normal event, but because of redundant 

EALs for that IC, an appropriate declaration could be made but not within the 

15-minute requirement; or 

4. An EAL IC has been rendered ineffective such that any Alert Emergency or 

Notice of Unusual Event would not be declared for a particular off-normal event, 

or declared in a degraded manner for a particular off-normal event. 

 Health Physics 

Personnel overexposures and associated violations incurred during a lifesaving or other 

emergency response effort will be treated on a case-by-case basis. 

a. SL I violations involve, for example: 

1. An adult worker receives a radiation exposure during any year in excess of 

25 rem (0.25 sievert (Sv)) total effective dose equivalent; 75 rem (0.75 Sv) to the 

lens of the eye; or 250 rem (2.5 Sv) to the skin of the whole body, or to the feet, 

ankles, hands, or forearms, or to any other organ or tissue; 

2. A declared pregnant woman receives a radiation exposure over the gestation 

period of the embryo/fetus of 2.5 rem (0.025 Sv) total effective dose equivalent; 

3. A minor worker (i.e., an individual less than 18 years of age) receives a radiation 

exposure during any year in excess of 2.5 rem (0.025 Sv) total effective dose 

equivalent; 7.5 rem (0.075 Sv) to the lens of the eye; or 25 rem (0.25 SV) to the 
NRC Enforcement Policy 

57 

skin of the whole body, or to the feet, ankles, hands or forearms, or to any other 

organ or tissue; 

4. A member of the public receives an annual exposure in excess of 1 rem 

(0.01 Sv) total effective dose equivalent; 

5. A release of radioactive material occurs to an unrestricted area in annual 

average concentrations in excess of 50 times the limits for members of the public 

as stated in 10 CFR 20.1302(b)(2)(i); or 

6. Disposal of licensed material occurs in quantities or concentrations in excess of 

10 times the limits of 10 CFR 20.2003, “Disposal by Release into Sanitary 

Sewerage.” 

b. SL II Violations involve, for example: 

1. An adult worker receives a radiation exposure during any year in excess of 

violations 10 rem (0.1 Sv) total effective dose equivalent; 30 rem (0.3 Sv) to the 

lens of the eye; or 100 rem (1.0 Sv) to the skin of the whole body, or to the feet, 

ankles, hands, or forearms, or to any other organ or tissue; 

2. A declared pregnant woman receives a radiation exposure over the gestation 

period of the embryo/fetus in excess of 1.0 rem (0.01 Sv) total effective dose 

equivalent; 

3. A minor worker receives a radiation exposure during any year in excess of 

1.0 rem (0.01 Sv) total effective dose equivalent; 3.0 rem (0.03 Sv) to the lens of 

the eye; or 10 rem (0.1 Sv) to the skin of the whole body, or to the feet, ankles, 

hands, or forearms, or to any other organ or tissue; 

4. A member of the public receives an annual exposure in excess of 0.5 rem 

(5 millisieverts (mSv)) total effective dose equivalent; 

5. Release of radioactive material occurs to an unrestricted area in annual average 

concentrations in excess of 10 times the limits stated in 10 CFR 20.1302(b)(2)(i) 

(except when the Commission has approved operation up to 0.5 rem (5 mSv) per 

year under 10 CFR 20.1301(c)); or 

6. Disposal of licensed material occurs in quantities or concentrations in excess of 

5 times the limits of 10 CFR 20.2003. 

c. SL III Violations involve, for example: 

1. An adult worker receives a radiation exposure during any year in excess of 5 rem 

(0.05 Sv) total effective dose equivalent; 15 rem (0.15 Sv ) to the lens of the eye; 

or 50 rem (0.5 Sv) to the skin of the whole body or to the feet, ankles, hands, or 

forearms, or to any other organ or tissue; 
NRC Enforcement Policy 

58 

2. A declared pregnant woman receives a radiation exposure over the gestation 

period of the embryo/fetus in excess of 0.5 rem (5 mSv) total effective dose 

equivalent (except when doses are in accordance with the provisions of 

10 CFR 20.1208(d)); 

3. A minor worker receives a radiation exposure during any year in excess of 

0.5 rem (5 mSv) total effective dose equivalent; 1.5 rem (0.015 Sv) to the lens of 

the eye; or 5 rem (0.05 Sv) to the skin of the whole body, or to the feet, ankles, 

hands or forearms, or to any other organ or tissue; 

4. An annual exposure of a member of the public in excess of 0.1 rem (1 mSv) total 

effective dose equivalent (except when operation up to 0.5 rem (5 mSv) per year 

under 10 CFR 20.1301(c)); 

5. A release of radioactive material occurs to an unrestricted area in annual 

average concentrations in excess of 2 times the effluent concentration limits 

referenced in 10 CFR 20.1302(b)(2)(i) (except when the Commission has 

approved operation up to 0.5 rem (5 mSv) per year under 10 CFR 20.1301(c)); 

6. A substantial potential exists for exposures or releases in excess of the 

applicable limits in 10 CFR 20.1001–20.2401, whether or not an exposure or 

release occurs; 

7. Disposal of licensed material occurs in quantities or concentrations in excess of 

the regulatory limits of 10 CFR 20.2003; 

8. A licensee releases, for unrestricted use, contaminated or radioactive material or 

equipment that poses a realistic potential for exposure of the public exceeding 

the annual dose limits for members of the public; 

9. A technically unqualified person conducts licensee activities; or 

10. A violation involves failure to secure, or maintain surveillance over, licensed 

material in the following situations: 

(a) involves licensed material in any aggregate quantity greater than 

1,000 times the quantity specified in Appendix C, “Quantities of Licensed 

Material Requiring Labeling,” to 10 CFR Part 20, “Standards for 

Protection against Radiation,” 

(b) involves licensed material in any aggregate quantity greater than 10 times 

the quantity specified in Appendix C to 10 CFR Part 20, where the failure 

is accompanied by the absence of a functional program to detect and 

deter security violations that includes training, staff awareness, detection 

(including auditing), and corrective action (including disciplinary action), or 

(c) results in a substantial potential for exposures or releases in excess of 

the applicable limits in 10 CFR Part 20. 
NRC Enforcement Policy 

59 

d. SL IV violations involve, for example: 

1. Intakes exceed those specified in 10 CFR 20.1201(e) or the equivalent for 

10 CFR 20.1207, “Occupational Dose Limits for Minors;” 

2. A release of radioactive material occurs to an unrestricted area in annual 

average concentrations in excess of the limits for members of the public as 

referenced in 10 CFR 20.1302(b)(2)(i) (except when the Commission has 

approved operation up to 0.5 rem (5 mSv) per year under 10 CFR 20.1301(c)); 

3. A radiation dose rate in an unrestricted or controlled area exceeds 0.002 rem 

(0.02 millisieverts) in any 1 hour (2 mrem/hour) or 50 mrem (0.5 mSv) in a year; 

4. A licensee fails to conduct required leakage or contamination tests or to use 

properly calibrated equipment, although the failure does not contribute to an 

event; 

5. Doses to a member of the public exceed any of the U.S. Environmental 

Protection Agency’s generally applicable environmental radiation standards in 

40 CFR Part 190, “Environmental Radiation Protection Standards for Nuclear 

Power Operations,” as required by 10 CFR 20.1301(e); or 

6. An isolated failure occurs to secure, or maintain surveillance over, licensed 

material in any aggregate quantity greater than 10 times the quantity specified in 

Appendix C to 10 CFR Part 20, provided that both of the following apply: 

(a) The material is labeled as radioactive or located in an area posted as 

containing radioactive materials, and 

(b) Such failure occurs despite a functional program to detect and deter 

security violations that includes training, staff awareness, detection 

(including auditing), and corrective action (including disciplinary action); 

 Transportation 

Some transportation requirements apply to more than one licensee involved in the same activity 

(e.g., a shipper and a carrier). When such a violation occurs, the NRC will direct enforcement 

action against the responsible licensee or licensees. 

a. SL I violations involve, for example: 

1. Failure to meet transportation requirements results in loss of control of 

radioactive material with a breach in package integrity such that the material 

causes a radiation exposure to a member of the public in excess of the 

regulatory limits; 

2. Surface contamination exceeds 50 times the NRC limit; or 
NRC Enforcement Policy 

60 

3. External radiation levels exceed 10 times the NRC limit. 

b. SL II violations involve, for example: 

1. Failure to meet transportation requirements results in loss of control of 

radioactive material with a breach in package integrity such that there is a clear 

potential for a member of the public to receive a radiation exposure in excess of 

the regulatory limits; 

2. Surface contamination exceeds 10 times, but not more than 50 times, the NRC 

limit; 

3. External radiation levels exceed 5 times, but not more than 10 times, the NRC 

limit; or 

4. A licensee fails to make required initial notifications associated with SL I or II 

violations. 

c. SL III violations involve, for example: 

1. Surface contamination exceeds 5 times, but not more than 10 times, the NRC 

limit; 

2. External radiation exceeds 1 times, but not more than 5 times, the NRC limit; 

3. A violation involves labeling, placarding, shipping paper, packaging, loading, or 

other requirements that could reasonably result any of the following: 

(a) a significant failure to identify the type, quantity, or form of material 

(b) a failure of the carrier or recipient to exercise adequate controls 

(c) a substantial potential for either personnel exposure or contamination 

above regulatory limits or improper transfer of material 

4. A licensee fails to make required initial notification associated with SL III 

violations. 

d. SL IV Violations involve, for example: 

1. A breach of package integrity occurs without external radiation levels exceeding 

the NRC limit or without contamination levels exceeding the NRC limits; 

2. Surface contamination is in excess of, but is not more than 5 times, the NRC 

limit; 
NRC Enforcement Policy 

61 

3. A licensee fails to register as an authorized user of an NRC-Certified Transport 

package; 

4. A licensee fails to demonstrate that packages for special-form radioactive 

material meet applicable regulatory requirements; or 

5. A licensee fails to demonstrate that U.S. Department of Transportation 

specifications are met for 7A Type A packages as required by 10 CFR 71.5, 

“Transportation of Licensed Material.” 

 Inaccurate and Incomplete Information or Failure to Make a Required Report 

a. SL I violations involve, for example: 

1. A licensee official deliberately provides or maintains information known by the 

licensee official to be incomplete or inaccurate. If the information had been 

completely and accurately provided or maintained, it would likely have caused 

the NRC to issue an Order requiring suspension or cessation of licensed activity 

or other immediate action to protect the public health and safety or common 

defense and security; 

(a) For example, deliberately incomplete or inaccurate information associated 

with an inspections, tests, analyses, and acceptance criteria (ITAAC) 

notification letter is submitted in accordance with 10 CFR 52.99, 

“Inspection during Construction.” If the information had been complete 

and accurate, it would likely have caused the NRC to issue an Order 

halting a significant portion of construction activities; 

2. A deliberate withholding of information or a deliberate failure to make a required 

report occurs. If the information had been provided or the report been made, it 

would likely have caused the NRC to issue an Order requiring suspension or 

cessation of licensed activity or other immediate action to protect the public 

health and safety or common defense and security; 

3. A licensee official provides or maintains information with careless disregard of its 

completeness or accuracy. If this information had been completely and 

accurately provided or maintained, it would likely have caused the NRC to issue 

an Order requiring suspension or cessation of licensed activity or other 

immediate action to protect the public health and safety or common defense and 

security; 

(a) For example, a licensee official submits incomplete or inaccurate 

information associated with an ITAAC notification letter, in accordance 

with 10 CFR 52.99, with careless disregard for its completeness and 

accuracy. If this information had been complete and accurate, it would 

likely have caused the NRC to issue an Order halting a significant portion 

of construction activities; 
NRC Enforcement Policy 

62 

4. A withholding of information or a failure to make a required report occurs, with 

careless disregard of the underlying requirement. If the information had been 

provided or the report been made, it would likely have caused the NRC to issue 

an Order requiring suspension or cessation of licensed activity or other 

immediate action to protect the public health and safety or common defense and 

security; or 

5. A deliberate failure to notify the Commission as required by 10 CFR Part 21, 

“Reporting of Defects and Noncompliance.” 

b. SL II violations involve, for example: 

1. A licensee official deliberately provides or maintains information known by the 

licensee official to be incomplete or inaccurate. If the information had been 

completely and accurately provided or maintained, it would likely have caused 

the NRC to reconsider a regulatory position or undertake a substantial further 

inquiry; 

(a) For example, a licensee official deliberately provides incomplete or 

inaccurate information associated with an ITAAC notification letter, 

submitted in accordance with 10 CFR 52.99. If this information had been 

complete and accurate, it would likely have caused the NRC to reject 

closure of that ITAAC; 

2. A licensee official provides or maintains information with careless disregard of its 

completeness or accuracy. If this information had been completely and 

accurately provided or maintained, it would likely have caused the NRC to 

reconsider a regulatory position or undertake a substantial further inquiry. 

(a) For example, a licensee official provides incomplete or inaccurate 

information associated with an ITAAC notification letter, submitted in 

accordance with 10 CFR 52.99, with careless disregard for its 

completeness and accuracy. If this information had been complete and 

accurate, it would likely have caused the NRC to reject closure of that 

ITAAC; 

3. A deliberate withholding of information or a deliberate failure to make a required 

report occurs. If the information had been provided or the report been made, it 

would likely have resulted in reconsideration of a regulatory position or 

substantial further inquiry; 

4. A withholding of information or a failure to make a required report occurs with 

careless disregard of the underlying requirement. If the information had been 

provided or the report been made, it would likely have resulted in reconsideration 

of a regulatory position or substantial further inquiry; 

5. Inaccurate or incomplete information is provided or maintained. If this 

information had been completely and accurately provided or maintained, it would 
NRC Enforcement Policy 

63 

likely have caused the NRC to issue an Order requiring suspension or cessation 

of licensed activity or other immediate action to protect the public health and 

safety or common defense and security; 

6. A withholding of information or a failure to make a required report occurs. If the 

information had been provided or the report been made, it would likely have 

caused the NRC to issue an Order requiring suspension or cessation of licensed 

activity or other immediate action to protect the public health and safety or 

common defense and security; or 

7. A licensee fails to make an immediate notification as required by 

10 CFR 20.2202(a)(1) or (a)(2). 

8. A deliberate failure to notify the Commission as required by 10 CFR 50.55(e). 

c. SL III violations involve, for example: 

1. Inaccurate or incomplete information is provided or maintained. If this 

information had been completely and accurately provided or maintained, it would 

likely have caused the NRC to reconsider a regulatory position or undertake a 

substantial further inquiry; 

(a) For example, incomplete or inaccurate information associated with an 

ITAAC notification letter, submitted in accordance with 10 CFR 52.99, is 

submitted. If this information had been complete and accurate, it would 

likely have caused the NRC to reject closure of that ITAAC; 

2. A withholding of information or a failure to make a required report occurs. If this 

information had been provided or the report been made, it would likely have 

caused the NRC to reconsider a regulatory position or undertake a substantial 

further inquiry. The following are examples: 

(a) failure to make a 24-hour notification required by 10 CFR 20.2202(b) or 

an immediate notification required by 10 CFR 20.2201(a)(1)(i); 

(b) failure to make any report required by 10 CFR 73.71, “Reporting of 

Safeguards Events,” or Appendix G, “Reportable Safeguards Events,” to 

10 CFR Part 73, “Physical Protection of Plants and Materials,” or 

10 CFR Part 26, “Fitness for Duty Programs”; 

(c) failure to submit an initial NRC Form 241, “Report of Proposed Activities 

in Non-Agreement States,” as required by 10 CFR 150.20, “Recognition 

of Agreement State Licenses”; 

(d) for materials licensees, failure to make an immediate or 24-hour report or 

notification when required; or 

(e) failure to make a report required by 10 CFR 50.72, “Immediate 
NRC Enforcement Policy 

64 

Notification Requirements for Operating Nuclear Power Reactors,” or 

10 CFR 50.73, “Licensee Event Report System,” associated with any 

SL III violation; 

3. A programmatic failure to comply with 10 CFR 20.2207, “Reports of Transactions 

Involving Nationally Tracked Sources,” occurs; 

4. A 10 CFR Part 50 licensee submits inaccurate or incomplete performance 

indicator (PI) data to the NRC. Accurate or complete information would have 

caused a PI to change from green to either yellow or red, white to either yellow or 

red, or yellow to red; or 

5. A failure to provide the notice required by 10 CFR Part 21 or 10 CFR 50.55(e), 

for example: 

(a) An inadequate review or failure to review such that, if an appropriate 

review had been made as required, a 10 CFR Part 21 or 10 CFR 50.55(e) 

report would have been required; or 

(b) A withholding of information or a failure to make a required interim report 

by 10 CFR 21.21, “Notification of Failure to Comply or Existence of a 

Defect and Its Evaluation,” or 10 CFR 50.55(e) occurs with careless 

disregard. 

d. SL IV violations involve, for example: 

1. A licensee fails to make a required report that, had it been submitted, would have 

resulted in, for instance, increasing the inspection scope of the next regularly 

scheduled inspection; 

2. A licensee fails to make a timely written report as required by 

10 CFR 20.2201(b), 20.2204, 20.2206, or 20.2207; 

3. A licensee fails to report an exceedance of the dose constraint established in 

10 CFR 20.1101(d); 

4. A licensee fails to report indicators of programmatic weaknesses as required in 

10 CFR 26.719(d); 

5. A licensee fails to make a report required by 10 CFR 76.120(d)(2), Appendix A to 

10 CFR Part 70, or 10 CFR 70.50(c)(1); 

6. A licensee fails to make a written event report, as required by 

10 CFR 70.50(c)(1), Appendix A to 10 CFR Part 70, or 10 CFR 76.120(d)(2); 
NRC Enforcement Policy 

65 

7. A materials licensee fails to provide or make a 15-day or 30-day written report or 

notification; fails to include all information required by regulation or license 

condition in a 15-day or 30-day report or notification; or is late making a report to 

the NRC required by 10 CFR 35.3045, “Report and Notification of a Medical 

Event,” or 10 CFR 35.3047, “Report and Notification of a Dose to an 

Embryo/Fetus or a Nursing Child,” that does not impact the regulatory response 

by the NRC;

8. A licensee fails to make the 30-day notification required by 

10 CFR 20.2201(a)(1)(ii) or 10 CFR 20.2203(a); 

9. A licensee fails to make a report required by 10 CFR 50.72 or 10 CFR 50.73; 

10. A failure to identify all applicable reporting codes on a Licensee Event Report that 

may impact the completeness or accuracy of other information (e.g., performance 

indicator data) submitted to the NRC; 

11. A 10 CFR Part 50 licensee submits inaccurate or incomplete PI data to the NRC 

that would have caused a PI to change from green to white; 

12. A licensee fails to make an interim report required by 10 CFR 21.21(a)(2) or 

under 10 CFR 50.55(e);

13. Failure to implement adequate 10 CFR Part 21 or 10 CFR 50.55(e) processes or 

procedures that has more than minor safety or security significance; or 

14. A materials licensee fails to provide the NRC with a Form 241, where: 

(a) the licensed activity is not of a type designated as NRC Priority 1, 2, or 3 

inspection (as identified in Enclosure 1 of NRC Manual Chapter 2800); 

and 

(b) the licensee has not previously violated the requirement; and 

(c) the facts of the specific case would not have otherwise resulted in the 

NRC conducting an onsite inspection; and 

(d) the circumstances of the case generally include either the failure to file an 

amended Form 241 for additional work locations of limited scope, or the 

failure to provide an initial Form 241 for work of very limited scope and 

single occurrence of a few days within NRC jurisdiction (e.g., portable 

radiological gauge use). 

 Discrimination 

In certain cases, the severity level of a violation may be escalated based on unique escalating 

factors such as whether the adverse action was taken because the employee had contacted the 

NRC or whether the applicable NRC employee protection regulation (e.g., 10 CFR 50.7 or 
NRC Enforcement Policy 

66 

similar NRC employee protection regulations) was deliberately violated. Conversely, the 

severity level of a violation of an NRC employee protection regulation may be mitigated to a 

lower severity level based on factors unique to the specific facts and circumstances of the case. 

a. SL I violations involve, for example: 

1. An executive-level corporate manager (or equivalent) (which for this definition 

includes a site vice president) is the decisionmaker or plays a significant role in 

the adverse action decisionmaking process regardless of the severity of the 

adverse action, but with at least one of the following escalating factors: 

(a) The adverse action against the employee had a widespread site impact 

on other employees’ willingness to raise concerns, or 

(b) The employer failed to take meaningful action to investigate and address 

the allegation of discrimination, if such allegation was first raised internally 

within the employer’s processes addressing employee concerns; or 

2. A mid- or a senior-level plant manager (or equivalent) or a corporate-level line 

manager (or equivalent) is the decisionmaker or plays a significant role in the 

adverse action decisionmaking process; the employment action is relatively more 

adverse to the employee’s terms, conditions, compensation, or privileges of 

employment (e.g., suspension without pay); and either a.1(a) or a.1(b) above is 

cited, or other unique factors are present. 

b. SL II violations involve, for example: 

1. An executive-level corporate manager (or equivalent) (which for this definition 

includes a site vice president) is the decisionmaker or plays a significant role in 

the adverse action decisionmaking process regardless of the severity of the 

adverse action but without an escalating factor present; 

2. A mid- or senior-level plant manager (or equivalent) or a corporate-level line 

manager (or equivalent) is the decisionmaker or plays a significant role in the 

adverse action decisionmaking process; the employment action is relatively more 

adverse to the employee’s terms, conditions, compensation, or privileges of 

employment (e.g., suspension without pay); and no escalating factor is present; 

3. A mid- or senior-level plant manager (or equivalent) or a corporate-level line 

manager (or equivalent) is the decisionmaker or plays a significant role in the 

adverse action decisionmaking process; the employment action is relatively less 

adverse to the employee’s terms, conditions, compensation, or privileges of 

employment (e.g., verbal counseling); and either a.1(a) or a.1(b) above is cited, 

or other unique escalating factors are present; or 

4. A lower level plant manager (or equivalent) or supervisor (or equivalent) is the 

decisionmaker or plays a significant role in the adverse action decisionmaking 

process; the employment action is relatively more adverse to the employee’s 
NRC Enforcement Policy 

67 

terms, conditions, compensation, or privileges of employment (e.g., suspension 

without pay); and either a.1(a) or a.1(b) above is cited, or other unique escalating 

factors are present. 

c. SL III violations involve, for example: 

1. A mid- or senior-level plant manager (or equivalent) or a corporate-level line 

manager (or equivalent) is the decisionmaker or plays a significant role in the 

adverse action decisionmaking process; the employment action is relatively less 

adverse to the employee’s terms, conditions, compensation, or privileges of 

employment (e.g., verbal counseling); and no escalating factor is present; 

2. A lower level plant manager (or equivalent) or supervisor (or equivalent) is the 

decisionmaker or plays a significant role in the adverse action decisionmaking 

process; the employment action is relatively more adverse to the employee’s 

terms, conditions, compensation, or privileges of employment (e.g., suspension 

without pay); and no escalating factor is present; or 

3. A lower level plant manager (or equivalent) or supervisor (or equivalent) is the 

decisionmaker or plays a significant role in the adverse action decisionmaking 

process; the employment action is relatively less adverse to the employee’s 

terms, conditions, compensation, or privileges of employment (e.g., verbal 

counseling); and either a.1(a) or a.1(b) above is cited, or other unique escalating 

factor(s) are present. 

d. SL IV violations involve, for example: 

1. A lower level plant manager (or equivalent) or supervisor (or equivalent) is the 

decisionmaker or plays a significant role in the adverse action decisionmaking 

process; the employment action is relatively less adverse to the employee’s 

terms, conditions, compensation, or privileges of employment (e.g., verbal 

counseling); and no escalating factor is present. 

 Reactor, Independent Spent Fuel Storage Installation, Fuel Facility, and Special Nuclear 

Material Security 

a. SL I violations involve, for example: 

1. The theft, diversion, or act of sabotage involves a formula quantity of special 

nuclear material (SNM), spent nuclear fuel or a very significant quantity of other 

radioactive material having the potential for substantial impact on the public; or 

2. Any failure of a licensee’s security program as outlined in their security plan or 

insider mitigation program results in an act of sabotage against one or more 

target sets or target set elements. 

b. SL II violations involve, for example: 
NRC Enforcement Policy 

68 

1. An act of radiological sabotage that results in the loss or destruction of a quantity 

of SNM of moderate strategic significance or a quantity of other radioactive 

material determined equally or similarly significant by the NRC; 

2. The theft, diversion, or act of radiological sabotage involves a quantity of SNM of 

moderate strategic significance or a quantity of other radioactive material 

determined equally or similarly significant by the NRC, in which one or more 

attributes of the security program did not function as required; 

3. A licensee fails to involve its reviewing official in developing an unescorted 

access authorization determination or determination of fitness for duty, following 

a for-cause action by a licensee that results in an individual’s voluntary or 

involuntary loss of employment; or 

4. A licensee fails to maintain the high assurance standard of 10 CFR 73.20 and 

10 CFR 73.55.

c. SL III violations involve, for example: 

1. An insider (e.g., licensee employee, licensee contractor or subcontractor) 

attempts an act of radiological sabotage to any radiological material; 

2. The security or insider mitigation program has a failure, but the failure does not 

amount to a SL I or II violation that challenges the high assurance standard of 

10 CFR 73.20, “General Performance Objective and Requirements,” or 

10 CFR 73.55, “Requirements for Physical Protection of Licensed Activities in 

Nuclear Power Reactors against Radiological Sabotage;” 

3. A licensee fails to develop and maintain records concerning the denial of access, 

or fails to respond to inquiries concerning denials of access, so that, as a result 

of the failure, a person previously denied unescorted access or unescorted 

access authorization is improperly granted such access; 

4. A licensee fails to ensure that a licensee-approved contractor or vendor access 

authorization program is operating in accordance with regulatory and licensee 

requirements; 

5. A licensee fails to complete more than one of the requirements of an access 

authorization program before granting an individual unescorted access or 

unescorted access authorization; 

6. An individual is assigned to a job task related to implementing the licensee’s 

protective strategy without the person being qualified in accordance with 

regulatory requirements; 

7. A reviewing official relies on a deliberate falsification of information to make an 

unescorted access or unescorted access authorization determination; 
NRC Enforcement Policy 

69 

8. The safeguards or security systems designed or used to prevent, detect, or 

assess, and respond to the theft, loss, or diversion of strategic SNM, or 

significant quantities of other radioactive material, experiences a significant 

failure; or 

9. A licensee fails to conduct a search or conducts an inadequate search at any 

protected area access control point, and this failure results in the introduction of 

firearms, explosives, or incendiary devices or reasonable facsimiles thereof that 

could assist in committing radiological sabotage or theft or diversion of strategic 

SNM. 

d. SL IV violations involve, for example: 

1. A failure of the licensee security or insider mitigation program, as outlined in a 

licensee’s security plan, results in an attempted act of radiological sabotage 

against one or more target set elements; or 

2. A loss of SNM of low strategic significance or less significant quantities of other 

radioactive material was not detected within the time period specified in the 

security plan, other relevant document, or regulation; or 

3. A licensee fails to comply with an element of its material and accounting program 

that results in a fuel cycle facility procedure degradation regarding adequate 

detection or protection against loss, theft, or diversion of SNM. 

 Materials Security 

a. SL I violations involve, for example: 

1. The theft, diversion, or sabotage of a Category 1 quantity of radioactive material 

results from the failure to establish or implement one or more requirements, such 

as the following: 

(a) failure to control unescorted access to a Category 1 quantity of 

radioactive material so that only individuals deemed trustworthy and 

reliable and having job duties that require unescorted access to the 

radioactive material are granted such access; 

(b) failure to immediately respond (e.g., without undue delay in accordance 

with the licensee’s prearranged plan) to an attempted theft, sabotage, or 

diversion of a Category 1 quantity of radioactive material, including 

requesting assistance from the local law enforcement agency; 

(c) failure to provide enhanced monitoring during periods of source delivery 

and shipment of a Category 1 quantity of radioactive material; or 

(d) failure to implement the Radioactive Material Quantities of Concern (RAM 

QC) requirements before shipping a consignment containing a Category 1 
NRC Enforcement Policy 

70 

quantity of radioactive material. 

b. SL II violations involve, for example: 

1. The theft, diversion, or sabotage of a Category 2 quantity of radioactive material 

results from the failure to establish or implement one or more increased control 

requirements, such as the following: 

(a) failure to control unescorted access to a Category 1 or Category 215

quantity of radioactive material so that only individuals deemed 

trustworthy and reliable and having job duties that require unescorted 

access to the radioactive material are granted such access; 

(b) failure to immediately respond (e.g., without undue delay in accordance 

with the licensee’s prearranged plan) to an attempted theft, sabotage, or 

diversion of a Category 1 or Category 2 quantity of radioactive material, 

including requesting assistance from the local law enforcement agency; 

(c) shipping a consignment of a Category 2 quantity of radioactive material 

by a carrier, other than the licensee, without first verifying that the carrier 

uses a package tracking system, implements methods to ensure 

trustworthiness and reliability of drivers, maintains constant control and/or 

surveillance during transit, and has the capability for immediate 

communication to summon appropriate response or assistance; 

(d) failure to provide enhanced monitoring during periods of source delivery 

and shipment of a Category 1 quantity of radioactive material; 

(e) failure to implement the RAM QC Additional Security Measures before 

shipping a consignment containing a Category 1 quantity of radioactive 

material; or 

(f) failure to use a method to disable a vehicle or trailer, in or on which a 

Category 1 or Category 2 quantity of radioactive material is stored, when 

not under direct control and constant surveillance by the licensee. 

c. SL III violations involve, for example: 

1. A licensee fails to immediately respond (e.g., without undue delay in accordance 

with the licensee’s prearranged plan) to an attempted theft, sabotage, or 

diversion of a Category 1 or Category 2 quantity of radioactive material, including 

a failure to request assistance from the local law enforcement agency, but the 

failure does not result in actual theft, sabotage, or diversion of radioactive 

material; 

 

15 Violation examples 6.12. b. 1. (a), (b), and (f) recognize that a licensee may possess a total of either 

Category 1 or Category 2 quantity of radioactive material at the time of the subject incident, but only a Category 2 

quantity was actually involved with theft, diversion, or sabotage. Hence, the severity level is determined by the 

category of material involved in the theft, diversion, or sabotage.
NRC Enforcement Policy 

71 

2. A licensee fails to determine the trustworthiness and reliability of individuals 

having unescorted access to radioactive material quantities of concern and 

devices; 

3. A licensee fails to verify that a carrier uses package tracking systems, 

implements methods that ensure trustworthiness and reliability of drivers, 

maintains constant control and/or surveillance during transit, and has the 

capability for immediate communication to summon appropriate response or 

assistance, before shipping a Category 2 quantity of radioactive material, per 

consignment, by the carrier; 

4. A licensee fails to provide enhanced monitoring during periods of source delivery 

and shipment of a Category 1 quantity of radioactive material; 

5. A licensee fails to initiate an investigation to determine the location of a shipment 

of licensed material containing a Category 2 quantity of radioactive material when 

the shipment does not arrive on or about the expected arrival time; 

6. A licensee fails to notify the NRC Operations Center promptly after initiating a 

response to any actual or attempted theft, diversion, or sabotage of sources or 

devices containing a Category 1 or Category 2 quantity of radioactive material; 

7. A licensee fails to implement the RAM QC before shipping a Category 1 quantity 

of radioactive material, per consignment; 

8. A licensee fails to use a method to disable a vehicle or trailer, in or on which a 

Category 1 or Category 2 quantity of radioactive material is stored, when not 

under direct control and constant surveillance by the licensee; 

9. A licensee fails to contact the local law enforcement agency and does not 

attempt to establish a prearranged response plan with the local law enforcement 

agency, or a programmatic failure occurs in the implementation of the plan; 

10. A licensee fails to establish a program to monitor and immediately detect, 

assess, and respond to unauthorized access to a Category 1 or Category 2 

quantity of radioactive material, or a programmatic failure occurs during 

implementation; 

11. A licensee fails to have a dependable means to transmit information between 

and among the various components of the intrusion detection system or to 

summon the appropriate responder; or 

12. A licensee fails to verify that a recipient licensee is authorized to possess the 

material being transferred. 
NRC Enforcement Policy 

72 

d. SL IV Violations involve, for example: 

1. A licensee fails to document the basis for concluding that an individual was 

determined to be trustworthy and reliable for the purposes of granting unescorted 

access to a Category 1 or Category 2 quantity of radioactive material; 

2. A licensee fails to perform a complete and adequate trustworthiness and 

reliability determination for an individual, such that information relevant to access 

approval was not obtained or considered, but the individual would likely have 

been granted unescorted access if the required information had been obtained or 

considered; 

3. A licensee fails to limit approval for unescorted access with respect to a 

Category 1 or Category 2 quantity of radioactive material to individuals with job 

duties requiring unescorted access; 

4. A licensee fails to maintain a list of persons approved for unescorted access; 

5. A licensee fails to confirm receipt of transferred/shipped radioactive material; 

6. A licensee fails to document the prearranged plan with the local law enforcement 

agency or to update the prearranged plan when changes to the facility design or 

operation affect the potential vulnerability of sources; 

7. An isolated failure occurs in the as-designed operation of the dependable means 

to transmit information between and among the various components of the 

intrusion detection system or to summon the appropriate responder. This is a 

violation if caused by a failure of the licensee in the design, construction, 

operation, or maintenance of the system. (This example does not include 

isolated failures caused by means outside the licensee’s control, such as service 

disruptions;) 

8. A licensee fails to contact the recipient or originator of a shipment to coordinate 

an expected arrival time for a shipment of a Category 2 quantity of radioactive 

material; 

9. An isolated failure occurs in implementing a portion of the licensee’s program to 

monitor and immediately detect, assess, and respond to unauthorized access to 

a Category 1 or Category 2 quantity of licensed radioactive material, such that an 

opportunity exists for unauthorized and undetected access to the material, but 

the opportunity is neither easily nor likely to be exploitable; or 

10. A licensee fails to comply with an element of its procedure to provide enhanced 

monitoring during periods of source delivery and shipment of a Category 1 

quantity of radioactive material, and this failure does not seriously degrade the 

enhanced monitoring capability. 
NRC Enforcement Policy 

73 

 Information Security 

This section applies to information that is classified as SECRET or CONFIDENTIAL 

(National Security or Restricted Data), information that is designated Safeguards in 

accordance with the Atomic Energy Act of 1954, as amended, and information requiring 

protection under 10 CFR Part 37.16 This approach is a change from the traditional 

enforcement violation examples and will use a flow chart and table, along with defined 

terms to determine the potential severity. 

Under this approach, once a noncompliance is identified, a four-step approach will be 

applied to determine the severity level of the violation. The four steps are: 1) based 

upon the provided criteria and the consideration of the totality of the information 

disclosed determine whether the event should be quantified as high significance, 

moderate significance, or low significance and 2) determine the extent of the disclosure. 

Upon completion of steps 1 and 2, determine the options at the intersection of the 

significance row and the disclosure column. Next, in step 3) determine the accessibility 

of the information by following the flow chart answering “Yes” or “No” to whether there 

was Limited Access to the information and in step 4 determine the duration of the 

noncompliance by answering “Short” or “Long” to find the designated letter, A, B, C, or 

D. Next use this letter within the previously determined intersection point from the 

conclusion of steps 1 and 2 to determine the severity level. 

 

16 The violation examples in the NRC’s Enforcement Policy, including the risk-informed examples 

provided in this section, are neither exhaustive nor controlling for making severity level determinations. 

Although not expressly referenced in the examples provided in this section, the NRC’s Enforcement 

Policy is applicable to information security violations involving information that is classified as TOP 

SECRET. 

ABCDABCDABCD

High SL III SL III SL III SL II SL III SL II SL II SL II SL II SL II SL II SL I

Moderate SL IV SL III SL III SL III SL IV SL III SL III SL III SL III SL III SL III SL I

Low SL IV SL IV SL IV SL III SL IV SL IV SL IV SL III SL III SL III SL III SL II

Step 1 

Significance

Step 2 

Disclosure Unknown Disclosure Confirmed to an Unauthorized Individual Disclosed to an individual deemed Trustworthy and Reliable
NRC Enforcement Policy 

74 

Step 1: Significance17 – Describes the decision point to determine the significance of the 

disclosure as it relates to national security and/or common defense and security. 

High Significance: The totality of information disclosed provides a significant amount of 

information about a technology (i.e., key elements of a technology or system) or 

combinations of the following elements related to protective strategies: Response Strategy, 

Target Sets, Physical Security Plan, Contingency Plan or Integrated Response Plan. The 

information can be either SECRET or CONFIDENTIAL (National Security or Restricted 

Data) or Safeguards. 

Moderate Significance: The totality of information disclosed provides limited information 

that may be useful to an adversary about technology information or physical security plan of 

a facility. The information can be either SECRET or CONFIDENTIAL (National Security or 

Restricted Data), Safeguards or information requiring protection under 10 CFR Part 37. 

Low Significance: The totality of information disclosed, taken by itself, would not aid an 

adversary in gaining information about a technology or physical security plan of a facility. 

The information can be either SECRET or CONFIDENTIAL (National Security or Restricted 

Data), Safeguards, information requiring protection under 10 CFR Part 37. 

Step 2: Disclosure – Describes the decision point to determine if: a) the information was 

accessible to any individual(s) via hard copy format or electronic (e.g. computers) form, b) you 

can determine who the individual(s) are, and c) those individual(s) would meet the definition of 

Trustworthy and Reliable. 

Trustworthy and Reliable (T&R): Are characteristics of an individual considered 

dependable in judgment, character, and performance, such that disclosure of Information to 

that individual does not constitute an unreasonable risk to the public health and safety or 

common defense and security. A determination of T&R for this purpose is based upon the 

results from a background investigation or background check in accordance with 

10 CFR 37.5 or 10 CFR 73.2, respectively. To meet the T&R requirement, the individual 

must possess a T&R determination before the disclosure of the information, regardless of 

the “need to know” determination. Note: In accordance with 10 CFR 73.21 or 73.59, there 

are designated categories of individuals that are relieved from fingerprinting, identification 

and criminal history checks and other elements of background checks. 

Unknown Disclosure: Instances when controlled information has been secured, protected, 

or marked improperly but there is no evidence that anyone has accessed the information 

while it was improperly handled. 

 

17 The significance guidance provided in Step 1 is only applicable within the context of the NRC’s 

Enforcement Policy and its application. The significance guidance is not intended to define the “harm” 

that an unauthorized disclosure of SECRET or CONFIDENTIAL information is reasonably expected to 

cause as those definitions are set forth in Executive Order 13526, “Classified National Security 

Information.” Nothing in section 6.13 of the Enforcement Policy should be read to contradict the National 

Policy on classified information. 
NRC Enforcement Policy 

75 

Confirmed: Instances where a person who does not have authorization to access 

controlled information gains access to the information. 

Electronic Media/Confirmed: For electronic media it is considered confirmed once the 

information is no longer on an approved network for that type of information.

Unauthorized Individual: A person who does not possess a T&R determination and a 

need to know. 

Step 3: Limited Access – Describes the decision point to determine the amount of controls 

(e.g., doors, locks, barriers, firewalls, encryption levels) needed to enter or gain access to an 

area or computer system in order to obtain the disclosed security information. 

Hard Copy Format: A location provides limited access if it meets all of the following 

conditions: 

a. the area was locked or had access control measures, and; 

b. individuals that frequented the area were part of a known population, and; 

c. records of personnel entry were maintained to the area via key control or key card 

access. 

Electronic Media: A computer network provides limited access if it meets all of the 

following conditions: 

a. the information is stored in a location that is still within the licensee’s computer network’s 

firewall, and 

b. the licensee has some type of control system in place which delineates who can access 

the information. 

Step 4: Duration – Describes the decision point in which a time period determination is made 

regarding the number of days the information was not controlled properly in accordance with the 

respective handling and storage requirements of the security information. 

Long: Greater than or equal to 14 days from the date of infraction to discovery of the noncompliance. 

Short: Less than 14 days from the date of infraction to discovery of the non-compliance. 

 Fitness for Duty18

a. SL I violations involve, for example: 

1. A licensee fails to substantially implement or substantially maintain reasonable 

assurance of fitness-for-duty program performance in two or more subparts of 

10 CFR Part 26. 

 

18 See Section 6.4 for examples of fitness-for-duty violations specific to licensed reactor operators. 
NRC Enforcement Policy 

76 

b. SL II violations involve, for example: 

1. A licensee fails to remove an individual from unescorted access status when this 

person has been involved in the sale, use, or possession of illegal drugs within 

the protected area, or a licensee fails to take action in the case of an on-duty 

misuse of alcohol, illegal drugs, prescription drugs, or over-the-counter 

medications or once the licensee identifies an individual that appears to be 

impaired or that their fitness is questionable, the licensee fails to take immediate 

actions to prevent the individual from performing the duties that require him or 

her to be subject to 10 CFR Part 26; or 

2. A licensee fails to take action to meet a regulation or a licensee behavior 

observation program requirement when observed behavior within the protected 

area or credible information concerning the activities of an individual indicates 

impairment by any substance, legal or illegal, or mental or physical impairment 

from any cause, which adversely affects their ability to safely and competently 

perform their duties. 

c. SL III violations involve, for example:

1. A licensee fails to take the required action for a person who has violated the 

licensee’s Fitness-For-Duty Policy, in cases that do not amount to a SL II 

violation; 

2. A licensee fails to ensure that a licensee-approved contractor’s or vendor’s 

fitness-for-duty program is operating in accordance with regulatory and licensee 

requirements; 

3. A licensee fails to complete or maintain more than one of the requirements of a 

program for individuals listed in 10 CFR 26.4, “FFD Program Applicability to 

Categories of Individuals;” 

4. A licensee fails to develop and maintain records concerning the denial of access 

or to respond to inquiries concerning denials of access so that, as a result of the 

failure, a person previously denied fitness-for-duty authorization is improperly 

granted such access; 

5. A licensee’s employee assistance program (EAP) staff fails to notify licensee 

management when the EAP staff is aware that an individual’s condition, based 

on information known at the time, may adversely affect the safety or security of 

the facility and the failure to notify did not result in a condition adverse to safety 

or security; or 

6. An individual covered by 10 CFR Part 26, Subpart I, involved in a human error 

that caused or contributed to an actual event or a potential degradation of the 

level of safety of the plant, who at the time the error occurred, was determined to 

be fatigued as a result of a fatigue assessment as defined in 10 CFR 26.211. 
NRC Enforcement Policy 

77 

d. SL IV violations involve, for example: 

1. Failure to prepare, implement, and maintain written procedures that describe the 

methods to be used implementing the FFD policy; 

2. A licensee fails to take an action required by the licensee’s behavior observation 

program in cases that do not amount to a SL I, II, or III violation; or 

3. Failures to appropriately implement any of the requirements (e.g., work hours, 

waivers, self declarations, or fatigue assessment) of 10 CFR Part 26, Subpart I 

that do not result in an actual event or a degradation of a level of safety, but are 

more than minor in that they are not isolated or demonstrate programmatic 

weaknesses in implementation. 

 Export and Import Activities 

Several of the following violation examples involve deliberateness or careless disregard. 

For those examples, the normal Enforcement Policy process for discretion to potentially 

escalate the severity level of the violation based on willfulness is not necessary. 

a. SL I violations involve, for example: 

1. Deliberate misrepresentation of facts, with the knowledge of a licensee 

official, that led to the export of licensable and sensitive equipment or 

material in quantities of concern to a destination that, if represented 

accurately, would not have been authorized by the NRC (or other 

authority); or 

2. Deliberate misrepresentation of facts that led to unauthorized individuals 

obtaining sensitive nuclear equipment or materials in quantities of 

concern. 

b. SL II violations involve, for example: 

1. Failure to provide notice of 10 CFR Part 110, Appendix P, material import 

as required by 10 CFR 110.50 that, if the notice had been provided, 

would have prompted the NRC to take action to block the import; 

2. Misrepresentation of facts in careless disregard of requirements, with the 

knowledge of a licensee official, for the export or import of radioactive or 

byproduct materials, such as those involving the completeness or 

accuracy of the information that, if represented accurately, would not 

have been authorized by the NRC (or other authority); or 

3. Inaccurate or incomplete information provided or maintained that led to 

unauthorized individuals possessing radioactive materials. If this 

information had been completely and accurately provided or maintained, 

it would likely have caused the NRC to terminate or deny a license, to 
NRC Enforcement Policy 

78 

issue an Order requiring suspension or cessation of licensed activity, or to 

take action to block an export or import, to protect the public health and 

safety or common defense and security. 

c. SL III violations involve, for example: 

1. Failure to submit timely notification of the import of 10 CFR part 110, 

Appendix P material, as required by 10 CFR 110.50, where, if this 

information had been provided, it would likely have caused the NRC to 

take further action or inquiry; 

2. Inaccurate or incomplete information on exports or imports of radioactive 

or byproduct materials such that, if the information had been represented 

accurately, it would likely have resulted in the NRC reconsidering the 

authorization of the activity, issuing a request for additional information 

(RAI), or conducting an inspection to resolve the matter; 

3. Export of byproduct material identified in 10 CFR part 110, Appendix P, to 

individuals or entities not authorized to receive such materials; or 

4. Failure to obtain a specific license before the export or import of any NRC 

licensable equipment, special nuclear material, and source or byproduct 

materials, when required. 

d. SL IV violations involve, for example: 

1. Failure to submit timely reports as specified in 10 CFR 110.54; 

2. Export or import of nuclear equipment or materials in excess of the limits 

specified in a specific license or license amendment, when such activity 

would have been authorized by the NRC (or other authority); or 

3. Unauthorized export of foreign-obligated material or equipment in 

violation of 10 CFR 110.50(b)(3) requirements. 

 
NRC Enforcement Policy 

79 

7.0 GLOSSARY

This glossary, while not exhaustive, contains many of the terms commonly used throughout the 

NRC enforcement process. 

Activity Area refers to the area of NRC-licensed activity that a licensee (or other person) 

engages in (e.g., radiography, reactor operations). 

Actual Consequences include such effects as actual, exposures to workers or members of the 

public exceeding regulatory limits (e.g., 10 CFR 20.1201, “Occupational Dose Limits for Adults” 

and 10 CFR 20.1301, “Dose Limits for Individual Members of the Public”), onsite or offsite 

releases of material exceeding regulatory or license limits, accidental criticality, core damage, 

loss of significant safety barriers, and loss of control of radioactive material. 

Adverse Action is any 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 

nonsupervisory position); failure to promote; overall performance appraisal downgrade; verbal 

or written counseling, or other forms of constructive discipline.

Alternative Dispute Resolution (ADR) refers to a variety of processes that emphasize 

creative, cooperative approaches to handling conflicts in lieu of adversarial procedures. 

Mediation and arbitration are the most widely recognized processes. The NRC’s ADR program 

uses mediation rather than arbitration (i.e., the parties develop mutually agreeable corrective 

actions rather than being obligated by an arbitrator’s decision). 

Apparent Violation is a situation or circumstance that does not appear to meet NRC 

requirements and for which the NRC staff has not made a final enforcement determination. 

Careless Disregard refers to situations in which an individual acts with reckless indifference to 

at least one of three things: (1) the existence of a requirement, (2) the meaning of a 

requirement, or (3) the applicability of a requirement. Careless disregard occurs when an 

individual is unsure of the existence of a requirement, the meaning of a requirement, or the 

applicability of the requirement to the situation, but nevertheless proceeds to engage in conduct 

that the individual knows may cause a violation. Although aware that the action might cause a 

violation, the individual proceeds without first ascertaining whether a violation would occur. 

Certificate Holder is any person or entity that has been issued a certificate by the NRC. 

Certificate holders include, but are not limited to, those issued certificates in accordance with 

the requirements of 10 CFR Parts 32, 71, or 76. For the purposes of this Policy, where not 

addressed specifically, Certificate Holders are typically handled the same as Licensees. 

Civil Penalty is a monetary penalty that may be imposed for violations of (1) certain specified 

provisions of the AEA or supplementary NRC rules or Orders, (2) any requirements for which a 

license may be revoked, or (3) reporting requirements under Section 206 of the ERA. 
NRC Enforcement Policy 

80 

Confirmatory Action Letter (CAL) is a letter confirming a licensee’s, contractor’s, or 

nonlicensee’s (subject to NRC jurisdiction) voluntary agreement to take certain actions to 

remove significant concerns about health and safety, safeguards, or the environment. 

Confirmatory Order is an Order that confirms the commitments made by a license or individual 

to take certain actions. Before issuance of the Confirmatory Order, the licensee or individual 

and the NRC mutually agree on the terms of the Order. 

Contractor, as used in this Policy, includes vendors who supply products or services to be used 

in an NRC-licensed facility or activity. 

Corrective Action Program is a licensee’s process for tracking, evaluating, and resolving 

deficiencies. 

Deliberate Misconduct occurs when an individual voluntarily and intentionally (1) engages in 

conduct that the individual knows to be contrary to a requirement, procedure, instruction, 

contract, purchase order, or policy of a licensee, applicant for a license, or a contractor or 

subcontractor of a licensee or applicant for a license or (2) provides materially inaccurate or 

incomplete information to a licensee, applicant for a license, or a contractor or subcontractor of 

a licensee or applicant for a license. 

Demand for Information (DFI), as defined in 10 CFR 2.204, requires a licensee or other 

person subject to the jurisdiction of the Commission to respond with specific information for the 

purpose of enabling the NRC to determine whether an Order should be issued or whether other 

action should be taken. 

Discrimination, as described in 10 CFR 50.7 (or similar provisions in 10 CFR Parts 30, 40, 52, 

60, 61, 63, 70, 71, 72, and 76), is the taking of an adverse action against an employee because 

the employee engaged in certain protected activities. 

Escalated Enforcement Actions include SL I, II, and III NOVs; NOVs associated with an 

inspection finding that the SDP evaluates as having low to moderate (white) or greater safety 

significance; civil penalties; NOVs to individuals; Orders to modify, suspend, or revoke NRC 

licenses or the authority to engage in NRC-licensed activities; and Orders issued to impose civil 

penalties.

Event, as used in this Policy, means (1) an occurrence characterized by an active adverse 

impact on equipment or personnel, readily obvious by human observation or instrumentation, or 

(2) a radiological impact on personnel or the environment in excess of regulatory limits, such as 

an overexposure, a release of radioactive material above NRC limits, or a loss of radioactive 

material. For example, an equipment failure discovered through a spill of liquid, a loud noise, 

the failure of a system to respond properly, or an annunciator alarm would be considered an 

event; a system discovered to be inoperable through a document review would not. Similarly, if 

a licensee discovers, through quarterly dosimetry readings, that employees had been 

inadequately monitored for radiation, the issue would normally be considered licensee identified; 

however, if the same dosimetry readings disclose an overexposure, the issue would be 

considered an event. 
NRC Enforcement Policy 

81 

Fuel Cycle is the series of steps involved in supplying fuel for nuclear power reactors. It can 

include mining, milling, isotopic enrichment, fabrication of fuel elements, use in a reactor, 

chemical reprocessing to recover the fissionable material remaining in the spent fuel, 

reenrichment of the fuel material, refabrication into new fuel elements, waste disposal, storage, 

and transportation. 

Impacts the NRC’s Ability To Perform Its Regulatory Function refers to a situation that 

prevents the NRC from using appropriate regulatory tools to address a noncompliance because 

the Agency is unaware that the noncompliance exists (e.g., provision of inaccurate and 

incomplete information or failure to submit a required report). 

Interim Enforcement Policies (IEPs) refers to a policy that is developed by the NRC staff and 

approved by the Commission for specific topics, typically for a finite period. Generally, IEPs 

grant the staff permission to refrain from taking enforcement action for generic issues which are 

not currently addressed in the Policy and are typically effective until such time that formal 

guidance is developed and implemented or other resolution to the generic issue. IEPs can be 

found in Section 9.0 of the Policy. 

License Applicant, as used in this statement of policy, means any person who submits an 

application for review. 

Licensee is any person or entity authorized to conduct activities under a license issued by the 

NRC. Licensees include, but are not limited to, facilities licensed under 10 CFR Parts 30-36, 

39, 40, 50, 52, 60, 61, 63, 70 or 72. However, in most cases in the Policy the term is applied 

broadly to refer to any or all of entities listed in Section 1.2, “Applicability.” 

Licensee Official, as used in this statement of policy, in general, means a first-line supervisor 

or above, a licensed individual, a radiation safety officer, or an authorized user of licensed 

material whether or not listed on a license. Notwithstanding an individual’s job title, the NRC will 

consider the individual’s responsibilities relative to the oversight of licensed activities and the 

use of licensed material. 

Licensed Reactor Operator, as used in this Policy, includes NRC licensed reactor operators 

(ROs) and NRC licensed senior reactor operators (SROs). 

Lost Source Policy is the NRC’s policy that a civil penalty may be issued for violations 

resulting in regulated material being out of the control of the licensee regardless of the use, 

license type, quantity, or type of regulated material (e.g., loss, abandonment, improper transfer, 

or improper disposal of regulated material). 

Minor Violation is a violation that is less significant than a SL IV violation. Minor violations do 

not warrant enforcement action and are not normally documented in inspection reports. 

However, minor violations must be corrected. 

Noncited Violation (NCV) is a nonrecurring, typically nonwillful, SL IV violation or a violation 

associated with a Green ROP or cROP finding that is not subject to formal enforcement action 

if, for a reactor licensee, the licensee places the violation in a corrective action program to 

address recurrence and restores compliance within a reasonable period of time and, for all other 
NRC Enforcement Policy 

82 

licensees, the licensee corrects or commits to correcting the violation within a reasonable period 

of time.

Nonescalated Enforcement Actions include NOVs that are dispositioned by the NRC as SL IV 

or minor violations. 

Nonlicensee includes, but is not limited to, applicants, contractors, subcontractors, and 

vendors.

Notice of Deviation (NOD) is a written notice describing a licensee’s failure to satisfy a 

commitment where the commitment involved has not been made a legally binding requirement. 

An NOD requests that a licensee provide a written explanation or statement describing 

corrective steps taken (or planned), the results achieved, and the date when corrective action 

will be completed. 

Notice of Nonconformance (NON) is a written notice describing the failure of a licensee’s 

contractor to meet commitments that have not been made legally binding requirements by the 

NRC (e.g., a commitment made in a procurement contract with a licensee or applicant as 

required by 10 CFR Part 50, Appendix B). (If the contractor deliberately fails to meet the terms 

of a procurement contract, the NRC may issue a violation under the Deliberate Misconduct Rule 

in 10 CFR 50.5.) NONs request that nonlicensees provide written explanations or statements 

describing corrective steps (taken or planned), the results achieved, the dates when corrective 

actions will be completed, and measures taken to preclude recurrence.

Notice of Violation (NOV) is a written notice setting forth one or more violations of a legally 

binding requirement (see 10 CFR 2.201). 

Order is used to modify, suspend, or revoke a license, or to take other action against a licensee 

or other person subject to the jurisdiction of the Commission (see 10 CFR 2.202). 

Potential Safety or Security Consequences include potential outcomes based on realistic and 

credible scenarios (i.e., the staff considers the likelihood that safety or security could have been 

negatively impacted under these scenarios). 

Predecisional Enforcement Conference (PEC) is normally conducted with a licensee or 

individual before the NRC makes an enforcement decision when escalated enforcement action 

may warranted (i.e., SL I, II, or III violations, civil penalties, or Orders). The purpose of a PEC is 

to obtain information that will assist the NRC in determining the appropriate enforcement action, 

if any. 

Regulatory Conference is conducted with a reactor licensee to discuss the significance of 

findings evaluated through the SDP, with or without associated violations. These meetings 

focus on the safety significance of the issues and not necessarily on the corrective actions 

associated with the issues. Because the significance assessment from the SDP determines 

whether escalated enforcement action will be taken, a subsequent PEC is not normally 

necessary. 
NRC Enforcement Policy 

83 

Requirement, as used in this Policy, means a legally binding requirement such as a statute, 

regulation, license condition, technical specification, or Order. 

Repetitive Violation is one that could reasonably be expected to have been prevented by a 

licensee’s corrective action for the same, or a similar, previous violation or a previous licensee 

finding that occurred within the past 2 years of the current violation, or that occurred within the 

period covered by the last two inspections, whichever period is longer. 

Risk Information is used wherever possible to develop realistic and credible scenarios to use 

when assessing the safety significance of a violation and assigning severity levels. 

Severity Levels are used (1) to indicate the significance of a violation assessed under 

traditional enforcement and (2) to determine the appropriate enforcement action to be taken. 

Significance, as used in this Policy for violations that do not involve application of the ROP or 

cROP, describes the seriousness of the violation. The significance of violations assessed under 

the ROP or cROP is determined by the SDP, described in IMC 0609 or IMC 2519 and related 

documents. 

Substantial Potential for Overexposure describes a situation where it was fortuitous that the 

resulting radiation exposure did not exceed the dose limits of 10 CFR Part 20. The concern is 

not the significance of the resulting or potential exposure, but whether the licensee provided 

adequate controls over the situation, as required, to prevent exceedance of the 10 CFR Part 20 

limits. 

Traditional Enforcement, as used in this Policy, refers to the process for the disposition of 

violations of NRC requirements, including those that cannot be addressed only through the 

Operating Reactor Assessment Program. Traditional enforcement violations are assigned 

severity levels and typically include, but may not be limited to, those violations involving 

(1) actual safety and security consequences, (2) willfulness, (3) impeding the regulatory 

process, (4) discrimination, (5) violations not associated with ROP or cROP findings, (6) 

materials regulations, and (7) deliberate violations committed by individuals. 

Violation is the failure to comply with a requirement. 

Willful violations involve either a deliberate violation of NRC requirements or deliberately 

falsifying information, or careless disregard of NRC requirements or of the completeness and 

accuracy of information provided. 
NRC Enforcement Policy 

84 

8.0 TABLE OF BASE CIVIL PENALTIES 

TABLE A19

______________________________________________________________________ 

a. Power reactors, gaseous diffusion uranium enrichment plants, and 

 high-level waste repository ....................................................................... $280,000 

b. Fuel fabricators authorized to possess Category I 

or II quantities of SNM and uranium conversion facilities ......................... $140,000 

c. All other fuel fabricators, including facilities under construction, 

 authorized to possess Category III quantities of SNM, industrial processors,20

independent spent fuel and monitored retrievable storage installations, mills, 

 gas centrifuge and laser uranium enrichment facilities ............................... $70,000 

d. Test reactors, contractors, waste disposal licensees, industrial 

 radiographers, and other large material users ............................................ $28,000 

e. Research reactors, academic, medical, 

or other small material users21.................................................................... $14,000 

f. Loss, abandonment, or improper transfer or disposal of regulated 

material, regardless of the use or type of licensee: 

1. Sources or devices with a total activity greater than 

 3.7 × 104 MBq (1 Curie), excluding 

 hydrogen-3 (tritium) ................................................................................ $54,000 

2. Other sources or devices containing the materials and quantities 

 listed in 10 CFR 31.5(c)(13)(i) ................................................................ $17,000 

3. Sources and devices not otherwise described above .............................. $7,000 

 g. Individuals who release safeguards information .......................................... $7,000 

NOTE: In accordance with the Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015 

(the 2015 Act), the civil penalty amounts apply to any penalties assessed on and after the date that the 

new amounts take effect; not from the date of the violation. 

The maximum value in item a. of this Table is calculated by rounding the maximum civil penalty amount 

specified in 10 CFR 2.205 down to the nearest multiple of $10,000. Although the 2015 Act does not 

mandate changes to the lesser civil penalty amounts, the other values are also changed to maintain the 

same proportional relationship between the penalties. 

The values specified in this Table, with the exception of item f., are adjusted utilizing the philosophy 

described in Section 2.3.4, “Civil Penalty,” of the NRC Enforcement Policy. The base civil penalty 

amounts in item f. have been determined to be approximately 3 times the average cost of disposal. For 

specific cases, the NRC may adjust these amounts to correspond to 3 times the estimated or actual cost 

of authorized disposal for the particular material in question. These values are adjusted periodically as 

necessary. 

 

19 The NRC adjusts the amount specified in 10 CFR 2.205 on an annual basis pursuant to the Federal Civil 

Penalties Inflation Adjustment Act Improvements Act of 2015. The NRC may impose civil penalties in amounts 

greater than the values in this table (up to the statutory maximum) based on an increase to the amount specified in 

10 CFR 2.205 as published in the Federal Register. 20 Large firms engaged in manufacturing or distribution of byproduct, source, or special nuclear material.

21 This applies to nonprofit institutions not otherwise categorized in this table, mobile nuclear services, nuclear 

pharmacies, and physician offices.
NRC Enforcement Policy 

85 

TABLE B 

______________________________________________________________________

 Severity Level Base Civil Penalty Amount 

 (Percent of amount listed in Table A) 

 I......................................................... 100% 

 II............................................................80% 

 III..........................................................50% 
NRC Enforcement Policy 

86 

9.0 INTERIM ENFORCEMENT POLICIES 

9.1 Enforcement Discretion for Certain Fire Protection Issues (10 CFR 50.48) 

This section contains the interim Enforcement Policy that the NRC will follow to exercise 

enforcement discretion for certain noncompliances with the requirements in Title 10 of the Code 

of Federal Regulations (10 CFR) 50.48, “Fire Protection” (or fire protection license conditions), 

that are identified as a result of a licensee’s transition to the new risk-informed, performancebased fire protection approach included in 10 CFR 50.48(c) and for certain existing identified 

noncompliances that reasonably may be resolved by compliance with 10 CFR 50.48(c). Under 

10 CFR 50.48(c), reactor licensees may voluntarily comply with the risk-informed, performancebased fire protection approaches in National Fire Protection Association Standard 805, 

“Performance-Based Standard for Fire Protection for Light Water Reactor Electric Generating 

Plants” (NFPA 805), 2001 Edition (with limited exceptions stated in the rule language). 

Enforcement discretion may apply to noncompliances identified during the licensee transition 

process. This timeframe starts on the date as specified in the licensee’s letter of intent to 

transition to 10 CFR 50.48(c) and ends (1) 3 years after that initial start date or (2) on the date 

as specified in the licensee’s commitment letter, as amended and approved by the NRC. If the 

licensee is unable to submit its license amendment request (LAR) within the timeframe stated 

above, it will lose its enforcement discretion. However, licensees with appropriate justification 

and staff approval may regain enforcement discretion once an acceptable22 LAR is submitted. If 

enforcement discretion is not granted, any identified noncompliances may be subject to 

enforcement action. 

Once an acceptable LAR is submitted, enforcement discretion for previously identified 

noncompliances23 and any newly identified noncompliances discovered either by the licensee or 

the NRC while the LAR is under review will continue to be in place until the NRC dispositions 

the LAR.24 If the NRC finds the amendment request unacceptable but gives the licensee an 

opportunity to provide supplemental information, the enforcement discretion will continue while 

the licensee prepares the supplemental information, provided that it submits the information 

within the timeframe stipulated by the staff. If the NRC finds the amendment acceptable after 

receipt of the supplemental information, enforcement discretion will continue until the NRC 

dispositions the amendment. A licensee that submits an LAR that is not acceptably 

supplemented or an LAR that was initially characterized as unacceptable with no opportunity to 

provide supplemental information will lose its enforcement discretion. However, licensees with 

appropriate justification and NRC approval may regain enforcement discretion once an 

acceptable LAR is submitted. If enforcement discretion is not granted, any identified 

noncompliances may be subject to enforcement action. 

 

22 The agency will use the Office of Nuclear Reactor Regulation’s (NRR) Office Instruction, LIC-109, 

“Acceptance Review Procedures,” to evaluate the LAR for acceptability. 

23 These are noncompliances that were previously granted enforcement discretion before submittal of the LAR. 

24 Noncompliances that are identified during the LAR review process and that are determined to be either 

associated with a finding of high safety significance or willful will be considered for potential enforcement 

action. 
NRC Enforcement Policy 

87 

Once the NRC accepts an LAR for licensing review, the timeliness and quality of the responses 

to requests for additional information (RAI) will significantly affect the LAR review schedule. 

Licensees that do not respond in a timely fashion to staff RAIs or do not provide quality RAI 

responses may lose enforcement discretion. 

If, after submitting the letter of intent to comply with 10 CFR 50.48(c) and before submitting the 

LAR , a licensee decides not to complete the transition to 10 CFR 50.48(c), the licensee must 

submit a letter stating its intent to retain its existing licensing basis and withdrawing its letter of 

intent to comply with 10 CFR 50.48(c). After the licensee’s withdrawal from the transition 

process, the NRC, as a matter of practice, will not take enforcement action against any 

noncompliance that the licensee corrected during the transition process and will, on a case-bycase basis, consider refraining from taking action if reasonable and timely corrective actions are 

in progress (e.g., an exemption has been submitted for NRC review). The NRC will disposition 

noncompliances that the licensee has not corrected, and noncompliances that were identified 

after the date of the withdrawal letter, in accordance with normal enforcement practices. 

a. Noncompliances Identified During the Licensee’s Transition Process 

Under this interim Enforcement Policy, the NRC will normally not take enforcement 

action for a violation of 10 CFR 50.48(b) (or the requirements in a fire protection license 

condition) involving a problem in an area such as engineering, design, implementing 

procedures, or installation if the violation is documented in an inspection report and 

meets all of the following criteria: 

1. The licensee identified the violation as a result of a voluntary initiative to adopt 

the risk-informed, performance-based fire protection program under 

10 CFR 50.48(c), or, if the NRC identified the violation, the NRC found it likely 

that the licensee would have identified the violation in light of the defined scope, 

thoroughness, and schedule of its transition to 10 CFR 50.48(c). 

2. The licensee corrected the violation or will correct the violation after completing 

its transition to 10 CFR 50.48(c). Also, the licensee took immediate corrective 

action or compensatory measures or both within a reasonable time 

commensurate with the risk significance of the issue following identification; this 

action should involve expanding the initiative, as necessary, to identify other 

issues caused by similar root causes. 

3. Routine licensee efforts, such as normal surveillance or quality assurance 

activities, were not likely to have previously identified the violation. 

4. The violation was not willful. 

The NRC may take enforcement action when the licensee has not met these conditions 

or when a violation that is associated with a finding of high safety significance is 

identified. 
NRC Enforcement Policy 

88 

Although the NRC may exercise discretion for violations meeting the required criteria, if 

the licensee failed to make a required report to the agency, then it will normally issue a 

separate enforcement action for the licensee’s failure to make the required report. 

b. Existing Identified Noncompliances 

In addition, the licensee may have existing identified noncompliances that could 

reasonably be corrected under 10 CFR 50.48(c). For these noncompliances, the NRC is 

providing enforcement discretion for the implementation of corrective actions until the 

licensee has made the transition to 10 CFR 50.48(c), provided that the noncompliances 

meet all of the following criteria: 

1. The licensee has entered the noncompliance into its corrective action program 

and implemented appropriate compensatory measures. 

2. The noncompliance is not associated with a finding that the Reactor Oversight 

Process significance determination process would evaluate as red, or otherwise 

it would not be categorized at Severity Level I. 

3. The noncompliance was not willful. 

4. The licensee submitted a letter of intent by December 31, 2005, stating its intent 

to transition to 10 CFR 50.48(c). 

 
NRC Enforcement Policy 

89 

9.2 Enforcement Discretion for Permanent Implant Brachytherapy Medical Event 

Reporting (10 CFR 35.3045) 

This section sets forth the interim policy that the NRC will use for medical event reporting 

violations under current 10 CFR 35.3045. Enforcement discretion will typically be exercised for 

reporting violations in the following scenarios, subject to criteria specified below, when the 

authorized treatment mode is permanent implant brachytherapy: (1) the licensee uses total 

source strength and exposure time for evaluating the existence of a treatment site medical 

event; or (2) the total absorbed dose to the treatment site equals or exceeds 120 percent of the 

prescribed dose. This policy does not provide regulatory relief from complying with any other 

aspect of §§ 35.41 or 35.3045, including the requirements related to the evaluation of dose to 

normal tissue. 

The interim policy applies to violations that result from an otherwise appropriate use of total 

source strength and exposure time when determining the existence of a medical event and 

when the use of these values does not result in the misapplication of byproduct material by the 

licensee. 

Specifically, under this interim Enforcement Policy, the NRC will normally not take enforcement 

action for using total source strength and exposure time to compare the dose delivered to the 

treatment site with the prescribed dose when evaluating whether a medical administration is a 

medical event under § 35.3045(a)(1) if the authorized treatment mode is permanent implant 

brachytherapy and all of the following criteria are met: 

a. The licensee's documented procedures required under § 35.41 specify total 

source strength and exposure time as the regulatory evaluation values for 

treatment site dose comparisons; 

b. The licensee entered both the prescribed dose and the delivered dose into the 

written directive as total source strength and exposure time; and 

c. Per § 35.3045, the licensee timely reported the event based on that treatment 

site dose comparison, if applicable. 

In addition, the NRC will normally not take enforcement action against a licensee for not 

submitting a medical event report when the permanent implant brachytherapy treatment site 

total dose equals or exceeds 120 percent of the prescribed dose. This enforcement discretion 

would only apply if: (1) the licensee used absorbed dose to compare the dose delivered to the 

treatment site with the prescribed dose; (2) doses to normal tissues and structures did not 

exceed the regulatory dose limits for reporting medical events specified in current 

§ 35.3045(a)(3); and (3) the total dose for the treatment site was expressed in the written 

directive as absorbed dose. 

This discretion will not be exercised for licensees using source strength and exposure time to 

compare the dose delivered to the treatment site with the prescribed dose, since it is expected 

that the licensee has more control over delivery of the prescribed dose when using source 

strength and exposure time. However, this is not intended to limit the physician’s current ability 

to make intraoperative adjustments in the quantity of source strength to be implanted based on 
NRC Enforcement Policy 

90 

the conditions encountered during the surgical procedure and to document such adjustments in 

the portion of the written directive required after implantation but before completion of the 

procedure. 

Licensees shall comply with all other requirements, as applicable, unless explicitly replaced or 

amended in this interim policy. 

This interim policy will remain in place until the implementation date of a final rule associated 

with the medical event reporting requirements. 

 
NRC Enforcement Policy 

91 

10.0 PAPERWORK REDUCTION ACT STATEMENT AND PUBLIC PROTECTION 

NOTIFICATION 

Paperwork Reduction Act Statement 

This policy statement contains information collection requirements that are subject to the 

Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). These information collections were 

approved by the Office of Management and Budget (OMB), approval number 3150-0136. This 

policy statement references additional mandatory and voluntary information collections 

approved by OMB, approval numbers 3150-0002, 3150-0007, 3150-0008, 3150-0009, 3150-

0010, 3150-0011, 3150-0013, 3150-0014, 3150-0016, 3150-0017, 3150-0018, 3150-0032, 

3150-0035, 3150-0036, 3150-0104, 3150-0146, 3150-0151, 3150-0158, 3150-0195. 

The burden to the public for the voluntary information collections approved under clearance 

number 3150-0136 is estimated to average 166 hours per NOED request and 40 hours per 

NFPA 805 letter of intent, including the time for reviewing instructions, searching existing data 

sources, gathering and maintaining the data needed, and completing and reviewing the 

information collection. The information provided in a NOED request is needed for the NRC to 

determine if the exercise of enforcement discretion is clearly consistent with protecting the 

public health and safety. The information in a letter of intent to transition to NFPA 805 is 

needed to determine when the licensee’s three years of enforcement discretion begins. Send 

comments regarding this burden estimate or any other aspect of these information collections, 

including suggestions for reducing the burden, to the Information Services Branch (T-5 F53), 

U.S. Nuclear Regulatory Commission, Washington, DC 20555-0001, or by email to 

Infocollects.Resource@nrc.gov; and to the Desk Officer, Office of Information and Regulatory 

Affairs, NEOB-10202, (3150-0136), Office of Management and Budget, Washington, DC 20503. 

Public Protection Notification 

The NRC may not conduct or sponsor, and a person is not required to respond to, a request for 

information or an information collection requirement unless the requesting document displays a 

currently valid OMB control number.