NUREG-0654/FEMA-REP-1

Rev. 2

Criteria for

Preparation and Evaluation of Radiological

EM ERGE NCY R ESPONSE 

PLANS AND PREPAREDNESS

in Support of Nuclear Power Plants

Final Report
AVAILABILITY OF REFERENCE MATERIALS

IN NRC PUBLICATIONS

NRC Reference Material

As of November 1999, you may electronically access 

NUREG-series publications and other NRC records at the

NRC’s Library at www.nrc.gov/reading-rm.html. Publicly 

released records include, to name a few, NUREG-series 

publications; Federal Register notices; applicant, licensee, 

and vendor documents and correspondence; NRC 

correspondence and internal memoranda; bulletins and 

information notices; inspection and investigative reports; 

licensee event reports; and Commission papers and their 

attachments.

NRC publications in the NUREG series, NRC regulations, 

and Title 10, “Energy,” in the Code of Federal Regulations

may also be purchased from one of these two sources:

1. The Superintendent of Documents

U.S. Government Publishing Office 

Washington, DC 20402-0001

Internet: www.bookstore.gpo.gov

Telephone: (202) 512-1800

Fax: (202) 512-2104

2. The National Technical Information Service

5301 Shawnee Road

Alexandria, VA 22312-0002

Internet: www.ntis.gov

1-800-553-6847 or, locally, (703) 605-6000 

A single copy of each NRC draft report for comment is

available free, to the extent of supply, upon written

request as follows:

Address: U.S. Nuclear Regulatory Commission

Office of Administration

Multimedia, Graphics, and Storage & 

Distribution Branch 

Washington, DC 20555-0001 

E-mail: distribution.resource@nrc.gov

Facsimile: (301) 415-2289

Some publications in the NUREG series that are posted 

at the NRC’s Web site address www.nrc.gov/reading-rm/

doc-collections/nuregs are updated periodically and may 

differ from the last printed version. Although references to 

material found on a Web site bear the date the material 

was accessed, the material available on the date cited 

may subsequently be removed from the site.

Non-NRC Reference Material

Documents available from public and special technical 

libraries include all open literature items, such as books, 

journal articles, transactions, Federal Register notices, 

Federal and State legislation, and congressional reports. 

Such documents as theses, dissertations, foreign reports 

and translations, and non-NRC conference proceedings 

may be purchased from their sponsoring organization.

Copies of industry codes and standards used in a

substantive manner in the NRC regulatory process are 

maintained at—

The NRC Technical Library

Two White Flint North

11545 Rockville Pike

Rockville, MD 20852-2738

These standards are available in the library for reference 

use by the public. Codes and standards are usually 

copyrighted and may be purchased from the originating 

organization or, if they are American National Standards, 

from—

American National Standards Institute

11 West 42nd Street

New York, NY 10036-8002

Internet: www.ansi.org

(212) 642-4900

Legally binding regulatory requirements are stated only in 

laws; NRC regulations; licenses, including technical 

specifications; or orders, not in NUREG-series publications. 

The views expressed in contractor prepared publications in 

this series are not necessarily those of the NRC.

The NUREG series comprises (1) technical and 

administrative reports and books prepared by the staff 

(NUREG–XXXX) or agency contractors (NUREG/CR–XXXX), 

(2) proceedings of conferences (NUREG/CP–XXXX),

(3) reports resulting from international agreements

(NUREG/IA–XXXX),(4) brochures (NUREG/BR–XXXX), and

(5) compilations of legal decisions and orders of the

Commission and the Atomic and Safety Licensing Boards 

and of Directors’ decisions under Section 2.206 of the 

NRC’s regulations (NUREG–0750).

DISCLAIMER: This report was prepared as an account 

of work sponsored by an agency of the U.S. Government. 

Neither the U.S. Government nor any agency thereof, nor 

any employee, makes any warranty, expressed or implied, 

or assumes any legal liability or responsibility for any third 

party’s use, or the results of such use, of any information, 

apparatus, product, or process disclosed in this publication, 

or represents that its use by such third party would not 

infringe privately owned rights.
NUREG-0654/FEMA-REP-1, Rev. 2

Criteria for Preparation and Evaluation 

of Radiological Emergency Response 

Plans and Preparedness in Support of 

Nuclear Power Plants

Final Report

December 2019

NUREG-0654/FEMA-REP-1, Rev. 2 iii

ABSTRACT

NUREG-0654/FEMA-REP-1, “Criteria for Preparation and Evaluation of Radiological Emergency Response 

Plans and Preparedness in Support of Nuclear Power Plants,” is a joint United States Nuclear Regulatory 

Commission (NRC) NUREG-series publication and Federal Emergency Management Agency (FEMA) 

guidance document. Both agencies use the document to evaluate the adequacy of the emergency plans and 

preparedness of state, local, and tribal governments within the emergency planning zones (EPZs) surrounding 

commercial nuclear power plants (NPPs), as well as those of the commercial NPP applicants and licensees. 

This NUREG-0654/FEMA-REP-1, Revision 2 update reflects changes to both NRC and FEMA regulations, 

guidance, policies, and doctrine, as well as advances in technology and best practices that have occurred since 

the document was originally issued in November 1980. This update also incorporates the four supplemental 

documents and addenda that have been issued in the intervening years, and is intended to modernize and 

consolidate the guidance making it easier for users to understand. 

ABSTRACT

NUREG-0654/FEMA-REP-1, Rev. 2 v

CONTENTS

Abstract . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii

Abbreviations and Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .ix

SECTION I: Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

A. Background. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

B. Scope ............................................................................. 2

Use of This Document ................................................................ 2

Document Hierarchy ................................................................. 4

Alternative Approaches ............................................................... 4

C. Planning Basis ...................................................................... 5

Background ........................................................................ 5

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

Time Factors Associated with Releases................................................... 6

Radiological Characteristics of Releases .................................................. 6

Continuing Assessment of the Planning Basis for Radiological Emergency Preparedness ........... 7

D. Coordinated Government Emergency Planning ............................................ 8

Integrated Guidance and Criteria ........................................................ 8

E. Form and Content of Plans ............................................................. 9

F. Tribal Governments ................................................................. 10

G. Criteria for Emergency Planning in an Early Site Permit Application .......................... 11

Emergency Planning Provisions of the Rule .............................................. 11

Identification of Physical Characteristics ................................................. 11

Major Features of Emergency Plans .................................................... 12

Complete and Integrated Plans ........................................................ 12

CONTENTS
vi NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION II: Planning Standards and Evaluation Criteria . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Introduction ............................................................................... 13

A: Assignment of Responsibility ......................................................... 14

B: Emergency Response Organization ..................................................... 15

C: Emergency Response Support and Resources ............................................. 24

D: Emergency Classification System ...................................................... 26

E: Notification Methods and Procedures ................................................... 27

F: Emergency Communications ......................................................... 28

G: Public Education and Information ..................................................... 29

H: Emergency Facilities and Equipment ................................................... 30

I: Accident Assessment ................................................................ 32

J: Protective Response . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

K: Radiological Exposure Control ........................................................ 38

L: Medical and Public Health Support .................................................... 40

M: Recovery, Reentry, and Post-Accident Operations ............................................ 41

N: Exercises and Drills ................................................................. 43

O: Radiological Emergency Response Training ............................................. 46

P: Responsibility for the Planning Effort: Development, Periodic Review, 

 and Distribution of Emergency Plans ................................................... 47

SECTION III: Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Authorities and References ............................................................... 49

CONTENTS

TABLES

Table B-1: Emergency Response Organization (ERO) Staffing and Augmentation Plan ............... 16
NUREG-0654/FEMA-REP-1, Rev. 2 vii

PREFACE

NUREG-0654/FEMA-REP-1, Revision 2, “Criteria for Preparation and Evaluation of Radiological 

Emergency Response Plans and Preparedness in Support of Nuclear Power Plants,” integrates 35 years 

of lessons learned within the Radiological Emergency Preparedness (REP) Program1

 and consolidates 

and clarifies previous guidance. This document is consistent with NRC and the Department of Homeland 

Security’s (DHS’) FEMA regulations2

 and doctrine. FEMA expects state, local, and tribal governments to 

adopt and transition to Revision 2 of this document. Part B of the Introduction provides information for use 

of this document. Part B also provides information regarding the NRC’s plans for using this document and 

how the NRC staff complies with section 50.109 of Title 10 of the Code of Federal Regulations (CFR), and any 

applicable finality provisions in 10 CFR Part 52. The decision to revise this document and maintain the joint 

ownership between NRC and FEMA was agreed upon by the FEMA/NRC Emergency Preparedness (EP) 

Steering Committee. This update aligns with national preparedness doctrine as directed by the President in 

directives and supported by the National Preparedness System (NPS)3

. Additionally, this revision incorporates 

the REP Program guidance into the NPS, thus ensuring that it is risk- and threat-informed and appropriate for 

the whole community. 

The revised document is the product of a joint NUREG-0654/FEMA-REP-1 Task Force consisting of 

headquarters and regional staff members of both agencies. Multiple public meetings and call-in sessions were 

held to engage stakeholders, including Federal partners and state, local, and tribal governments, and industry 

representatives. Stakeholders provided constructive input to inform the writing process and validate work 

products. The Task Force strived to achieve the same relevance that the original authors accomplished. The 

concepts within this document have served the REP community well since first released in 1980 and were 

embraced by the Task Force during the rewrite process. NRC and FEMA staff, as directed by the FEMA/NRC 

EP Steering Committee, will conduct periodic, joint reviews of this document to determine if an update or 

revision is warranted.

The NUREG-0654/FEMA-REP-1 Task Force acknowledges the contributions of the Nuclear Energy Institute 

(NEI), the Conference of Radiation Control Program Directors (CRCPD), and the National Emergency 

Management Association (NEMA). The Task Force also acknowledges the contributions made by other Federal 

agencies, state, local, and tribal government organizations, members of the public, and the nuclear industry.

The contents of this document do not have the force and effect of law and are not meant to bind the public in 

any way. This document is intended only to provide clarity to the public regarding existing requirements under 

the law or agency policies.

1 The REP Program includes both NRC and FEMA programs that administer EP for commercial NPP sites and surrounding areas. The 

programs encompass the plans, training, exercises, and resources necessary to prepare emergency personnel to rapidly identify, evaluate, 

and respond to emergencies.

2 This document contains and references information collection requirements that are subject to the Paperwork Reduction Act of 1995 

(44 U.S.C. 3501 et seq.). Existing requirements were approved by the Office of Management and Budget (OMB), NRC control numbers 

3150-0011 and 3150-0151 and FEMA control number 1660-0024. The NRC and FEMA 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.

3 NPS contemporary EP guidance includes, but is not limited to, the National Preparedness Goal and System Description; the National 

Planning Frameworks; Comprehensive Preparedness Guide (CPG) 101, “Developing and Maintaining Emergency Operations Plans”; 

CPG 201, “Threat and Hazard Identification and Risk Assessment (THIRA) and Stakeholder Preparedness Review (SPR) Guide”; the core 

capabilities; the National Incident Management System (NIMS) and Incident Command System (ICS); the Homeland Security Exercise and 

Evaluation Program (HSEEP); and the Integrated Planning System.

PREFACE

NUREG-0654/FEMA-REP-1, Rev. 2 ix

ABBREVIATIONS AND ACRONYMS

ADAMS Agencywide Documents Access and Management System

ANS Alert and Notification System

CFR Code of Federal Regulations

Ci Curie 

COL Combined License

CPG Comprehensive Preparedness Guide

CRCPD Conference of Radiation Control Program Directors

DHS U.S. Department of Homeland Security

DRD Direct-Reading Dosimeter

EAL Emergency Action Level 

ECCS Emergency Core Cooling System

ECL Emergency Classification Level

EOC Emergency Operations Center

EOF Emergency Operations Facility 

EP Emergency Preparedness

EPA U.S. Environmental Protection Agency

EPZ Emergency Planning Zone 

ERDS Emergency Response Data System 

ERO Emergency Response Organization

ESF Emergency Support Function

ESP Early Site Permit

ETE Evacuation Time Estimate

FDA U.S. Food and Drug Administration

FEMA Federal Emergency Management Agency

FIOPs Federal Interagency Operational Plans

FMT Field Monitoring Team 

FR Federal Register

GE General Emergency

HAB Hostile Action-Based

HHS U.S. Department of Health and Human Services

HSEEP Homeland Security Exercise and Evaluation Program 

HSPD-5 Homeland Security Presidential Directive 5

I&C Instrumentation and Control

ICS Incident Command System

IT Information Technology

ABBREVIATIONS AND ACRONYMS
x NUREG-0654/FEMA-REP-1, Rev. 2 

ITAAC Inspections, Tests, Analyses, and Acceptance Criteria

JIC Joint Information Center

JIS Joint Information System

KI Potassium Iodide

MOU Memorandum of Understanding

NDRF National Disaster Recovery Framework

NEI Nuclear Energy Institute

NEMA National Emergency Management Association

NIMS National Incident Management System

NOUE Notification of Unusual Event

NPP Nuclear Power Plant

NPS National Preparedness System

NRC U.S. Nuclear Regulatory Commission 

NRF National Response Framework 

NRIA Nuclear/Radiological Incident Annex

OCA Owner Controlled Area

OMB Office of Management and Budget 

ORO Offsite Response Organization

OSC Operations Support Center 

PAD Protective Action Decision

PAG Protective Action Guide

PAR Protective Action Recommendation 

PKEMRA Post-Katrina Emergency Management Reform Act

PPD-8 Presidential Policy Directive 8

PRD Personal Radiation Detector

RAC Regional Assistance Committee 

REP Radiological Emergency Preparedness

SAE Site Area Emergency

SOARCA State-of-the-Art Reactor Consequence Analyses

SRPC Site Radiation Protection Coordinator

THIRA Threat and Hazard Identification and Risk Assessment

TSC Technical Support Center

UE Unusual Event

USDA U.S. Department of Agriculture

ABBREVIATIONS AND ACRONYMS
NUREG-0654/FEMA-REP-1, Rev. 2 1

SECTION I: Introduction

SECTION I: Introduction

A. BACKGROUND

NRC and FEMA staff prepared this joint document 

in support of the NRC’s responsibilities under the 

Atomic Energy Act, as amended.1

Following the March 1979 Three Mile Island 

accident, in a statement made on December 7, 1979, 

President Jimmy Carter announced the transfer of 

responsibility for offsite emergency activities to 

FEMA. FEMA received this assignment because 

of its responsibilities, outlined in Executive 

Order 12148 of July 20, 1979, to coordinate civil 

emergency planning, management, and assistance 

functions and to represent the President in working 

with state and local governments and the private 

sector to stimulate vigorous participation in the 

civil EP programs.2

 This assignment aligned with 

FEMA’s statutory role in promoting, funding, 

coordinating, and providing technical assistance 

for disaster preparedness, as defined in Section 201 

of the Disaster Relief Act of 1974.3

 Accordingly, 

FEMA established its REP Program to manage 

its responsibility to review, evaluate, and approve 

offsite emergency planning and preparedness in 

areas around commercial NPPs. As emergency 

management evolved, additional authorities in the 

Stafford Act and the NPS have assisted FEMA in 

performing its radiological preparedness duties. The 

NRC retained responsibility for onsite activities and 

authority for making licensing decisions.

1 Pub. L. No. 83-703

2 Pursuant to DHS Delegation 9000.1, the DHS Secretary delegated to the FEMA Administrator the authority to perform the functions 

assigned to the Secretary of Homeland Security in Executive Order 12148, as revoked in part and amended by Section 1 of Executive Order 

12673 and Section 52 of Executive Order 13286 of February 28, 2003, relating to FEMA.

3 42 USC 5131, as amended by the Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public Law 100-707, 102 Stat. 4689 

(1988). This Act constitutes the statutory authority for most Federal disaster response activities, especially as they pertain to FEMA and 

FEMA programs.

The NRC Authorization Act of 1980 (Public Law 

96-295) directed the NRC to establish EP as a 

criterion for licensing commercial NPPs.4

 Section 

109 of Public Law 96-295 directed the NRC 

to establish through rulemaking (a) standards, 

developed in consultation with FEMA, for the 

evaluation of state and local government radiological 

emergency planning and preparedness and (b) a 

requirement that the NRC will issue operating 

licenses only if it determines that there is (i) a state 

or local emergency response plan compliant with 

the standards developed in consultation with FEMA 

or (ii) in absence of such a plan, a state, local, 

or utility emergency response plan that provides 

reasonable assurance that public health and safety is 

not endangered by the NPP’s operation.5

 The NRC 

revised its regulations in Part 50 of Title 10 of the 

CFR to incorporate additional EP requirements, 

including 16 planning standards for onsite and offsite 

emergency plans as required by Public Law 96-295. 

FEMA maintains the same 16 planning standards in 

its regulations in Part 350 of Title 44 of the CFR.

4 Congress reenacted the provisions of section 109(a)(2) of Public Law 96-295 related to emergency planning in two subsequent laws: section 

5 of Public Law 97-415 and section 108 of Public Law 98-553. These laws provided authorization of appropriations for the NRC for fiscal 

years 1982/1983 and 1984/1985, respectively. Although the laws have since expired, the basic terms of the emergency planning provisions of 

these laws are contained in both NRC and FEMA regulations.

5 Pub. L. No. 96-295, § 109 (b)(1)(A)-(B). 
2 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

B. SCOPE

6 In this document, licensees refers to licensees of NPPs under 10 CFR Parts 50 and 52, and applicants refers to applicants for licenses for 

NPPs under 10 CFR Parts 50 and 52.

This document is one of many guidance documents 

used to ensure the preparedness of our nation. This 

guidance document focuses on preparedness for 

radiological incidents at NPPs that could impact 

public health and safety. The NRC and FEMA 

regard all of the planning standards identified within 

regulations as essential for adequate radiological 

emergency planning. The evaluation criteria in 

Section II address those elements and attributes of 

emergency plans and preparedness programs that 

are directly tied to meeting the planning standards 

in 10 CFR 50.47(b) and 44 CFR 350.5(a). The NRC 

and FEMA evaluate the adequacy of the emergency 

plans and preparedness programs based on these 

evaluation criteria.

If NRC and FEMA determine that all of the 

applicable evaluation criteria for a planning 

standard are met, then an emergency plan and 

preparedness program are considered adequate with 

regards to that planning standard. If any evaluation 

criteria for a particular planning standard are not 

met, then the licensee, applicant, or offsite response 

organization (ORO) needs to address the evaluation 

criteria, provide an acceptable alternative to the 

evaluation criteria, or justify why the evaluation 

criteria do not apply to its emergency plan and/or 

preparedness program.

This guidance describes, and makes available to the 

public, approaches that the NRC and FEMA consider 

acceptable for use in implementing specific parts of 

each of the agencies’ regulations. The guidance is not 

a substitute for regulations, and compliance with it is 

recommended but not required.

Use of This Document

This document provides a common source of 

guidance for the following audiences: 

1. NRC.

2. FEMA and other Federal agencies engaged in 

the review and approval of state, local, and tribal 

government planning and preparedness. 

3. OROs and tribal governments.

4. NPP applicants and licensees.6

5. Licensee OROs.

Use by NRC

During regulatory discussions on plant-specific 

operational issues, the staff may discuss with licensees 

various actions consistent with staff positions in this 

document, as one acceptable means of meeting the 

underlying NRC regulatory requirement. However, 

unless the facility license requires use of this 

document, the staff may not represent to the licensee 

that the licensee’s failure to comply with the positions 

in this document constitutes a violation.

The NRC staff does not intend to use the positions 

in this document in a manner that would constitute 

backfitting as that term is defined in 10 CFR 50.109(a)

(1) and described in Management Directive 8.4, 

“Management of Backfitting, Forward Fitting, Issue 

Finality, and Information Requests,” be inconsistent 

with any of the issue finality provisions in 10 CFR 

Part 52, or constitute forward fitting as that term is 

defined and described in Management Directive 8.4.

For new reactor applications, the NRC staff will use 

the revision of this document in place six months 

before the application docket date to conduct the 

staff’s review, unless the applicant specifies and 

justifies a different revision to be used. Previous 

reviews, in progress or completed, for which a 

licensing decision has not yet been determined 

will continue to be based on the revision of this 

document utilized at the start of the review process, 

unless an applicant requests otherwise.
NUREG-0654/FEMA-REP-1, Rev. 2 3

SECTION I: Introduction

If a licensee believes that the NRC is either using 

this document or requesting or requiring the 

licensee to implement the approaches or processes 

in this document in a manner inconsistent with the 

discussion in this section, then the licensee may 

file a backfit appeal with the NRC in accordance 

with the guidance in NUREG-1409, “Backfitting 

Guidelines,” and NRC Management Directive 8.4.

Use by FEMA

FEMA, as well as other Federal agencies, such as 

those serving on the Regional Assistance Committee 

(RAC), use this guidance document to review 

and approve state, local, and tribal government 

radiological emergency plans. 

Findings by FEMA, with regard to the adequacy 

of radiological emergency preparedness, will be 

related to the capability of the OROs to respond in 

a coordinated manner to emergencies at, or related 

to, particular NPPs. Periodic reviews by FEMA 

will verify the capability of OROs to implement 

various aspects of their emergency plans. This will 

include observation and evaluation of exercises and 

certain drills.

Use by OROs and Tribal Governments 

For OROs participating in the REP Program, 

use of this guidance is recommended during the 

development and maintenance of radiological 

preparedness and emergency plans to protect public 

health and safety in the event of a radiological 

incident at an NPP.

For a tribal government participating in the 

REP Program, it is recommended that the tribal 

government enters into consultation with both 

the NRC and FEMA. In such situations where the 

tribal government decides to act as an independent 

entity, it would be appropriate to meet the 

evaluation criteria marked as applicable for tribal 

governments. This document does not obligate the 

tribal governments to use the evaluation criteria 

to build its emergency plans; however, the tribal 

governments are highly encouraged to consider the 

evaluation criteria. Tribal government agreements 

with states and local governments will dictate the 

7 In this section, voluntarily means that the licensee is seeking the action of its own accord, without the force of a legally binding requirement or 

an NRC representation of further licensing or enforcement action.

degree to which evaluation criteria will apply. 

Additional information for tribal governments can 

be found in Part F.

Use by NPP Applicants and Licensees

NPP applicants and licensees may voluntarily7

use the guidance in this document to demonstrate 

compliance with the underlying NRC regulations. 

For currently approved emergency plans based on 

NUREG-0654/FEMA-REP-1, Revision 1, changes 

to these plans using Revision 1 will continue to be 

evaluated by the NRC using Revision 1. Licensees 

may also use guidance based on Revision 2 to 

make emergency plan changes. Any changes based 

on Revision 2 so used by these licensees will be 

evaluated by the NRC under Revision 2. Licensees 

should indicate the revision of NUREG-0654/

FEMA-REP-1 on which the changes are based. 

Applicants and licensees may seek approval of a new 

emergency plan based on Revision 1, Revision 2, 

or a combination of Revisions 1 and 2. The NRC 

will evaluate emergency plans submitted for initial 

approval using the revision(s) of NUREG-0654/

FEMA-REP-1 upon which the plans are based and, 

once the plans are approved, will evaluate any 

future emergency plan changes using the revision(s) 

of NUREG-0654/FEMA-REP-1 upon which each 

change is based.

Methods or solutions that differ from those described 

in this document may be deemed acceptable if an 

applicant or licensee makes available sufficient 

bases and information for the NRC staff to evaluate 

whether the proposed alternative(s) meet the intent of 

the planning standards.

Licensees may use the information in this document 

for actions which do not require NRC review and 

approval. This would include, for example, changes 

to an emergency plan under 10 CFR 50.54(q) that 

do not require prior NRC review and approval. 

Licensees may use the information in this document 

or applicable parts to address regulatory issues. 

Additional information for early site permit (ESP) 

applicants can be found in Part G.
4 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

Use by Licensee OROs

For licensees fulfilling and/or conducting offsite EP 

roles and responsibilities that would traditionally be 

addressed by state, local, and/or tribal government 

organizations, it is recommended that the Licensee 

ORO address the evaluation criteria for any of the 

non-participating OROs within this document. 

FEMA will continue to evaluate the offsite portion 

of the planning standards regardless of whether the 

Licensee ORO or OROs are performing the offsite 

preparedness and response functions. 

Document Hierarchy

This document is a joint NRC/FEMA guidance 

document. It contains the planning standards solely 

as a means of referencing the regulations and 

organizing the evaluation criteria. This document 

is considered the main source of joint guidance and 

does not describe regulatory requirements. 

The evaluation criteria address overall emergency 

planning and preparedness capabilities, both onsite 

and offsite. Guidance for the level of detail that 

should be provided in emergency plans to describe 

these capabilities, and allow NRC and FEMA 

staff to determine whether the evaluation criteria 

are met, is further detailed in the current edition 

of the FEMA REP Program Manual and various 

NRC guidance documents. Additional information 

regarding various means by which evaluation criteria 

may be addressed, such as examples of acceptable 

approaches, is also provided in the current edition of 

the FEMA REP Program Manual and various NRC 

guidance documents.

This document is aligned with NPS principles and 

planning concepts. 

Alternative Approaches

Alternative approaches provide an opportunity for 

state, local, and tribal governments, applicants, 

and licensees to meet the planning standards in a 

manner that is different from what the evaluation 

criteria recommend within this guidance document. 

While an alternate approach does not relax the 

requirements of the planning standards, it provides 

an opportunity to propose an alternative method for 

meeting the intent of the planning standards. The 

specific process for submitting proposed alternative 

approaches for approval is further explained within 

the current edition of the FEMA REP Program 

Manual and various NRC guidance documents. 
NUREG-0654/FEMA-REP-1, Rev. 2 5

SECTION I: Introduction

C. PLANNING BASIS

Background 

The 1978 NRC/Environmental Protection Agency 

(EPA) Task Force on Emergency Planning report, 

“Planning Basis for the Development of State and 

Local Government Radiological Emergency Response 

Plans in Support of Light Water Nuclear Power Plants 

(NUREG-0396), EPA 520/1-78-016,” (herein referred 

to as NUREG-0396) provides “...a basis for Federal, 

State and local government emergency preparedness 

organizations to determine the appropriate degree of 

emergency response planning efforts in the environs 

of nuclear power plants.” The NRC’s policy statement 

of October 23, 1979 (44 Federal Register [FR] 61123) 

incorporated NUREG-0396 guidance into EP 

regulations and guidance documents. 

The primary objective of radiological emergency 

planning is to provide dose savings for a spectrum 

of radiological incidents that have the potential to 

produce offsite doses in excess of the current Federal 

protective action guides (PAGs). 

NUREG-0396 established two predominant 

exposure pathways. They are the:

a. Plume exposure pathway – The principal 

exposure sources from this pathway are: 

(a) whole body external exposure to gamma 

radiation from the plume and from deposited 

material; and (b) inhalation exposure from the 

passing radioactive plume. The duration of the 

release leading to potential exposure could range 

from 30 minutes to days. For the plume exposure 

pathway, shelter and/or evacuation would 

likely be the principal immediate protective 

action recommended for the general public. 

Administration of a radioprotective drug may 

also be considered. The ability to best reduce 

potential exposure under the specific conditions 

during the course of a radiological incident 

should determine the appropriate response. 

b. Ingestion exposure pathway – The principal 

exposure from this pathway would be from 

ingestion of contaminated water or foods such 

as milk, fresh vegetables, or aquatic foodstuffs. 

The duration of potential exposure could range 

from hours to months or years. For the ingestion 

exposure pathway, the planning effort involves 

the identification of major exposure pathways 

from contaminated food and water and the 

associated control and interdiction points and 

methods. The ingestion pathway exposures in 

general would represent a longer-term concern, 

although some early protective actions to 

minimize subsequent contamination of milk or 

other supplies should be initiated.

In addition to the NRC and FEMA, other federal 

agencies provide guidance for these two exposure 

pathways. These agencies include, but are not 

limited to, the EPA, the Department of Health and 

Human Services (HHS) and its agencies (e.g., the 

Food and Drug Administration (FDA)), and the U.S. 

Department of Agriculture (USDA).

Emergency Planning Zones

EPZs are areas for which emergency planning 

is needed to assure prompt and effective actions 

can be taken to protect the public in the event of 

a radiological incident. The EPZs associated with 

each NPP must be defined both for the shorterterm plume exposure pathway and the longer-term 

ingestion exposure pathway. Plans for addressing 

radiological incidents are applied by the response 

organizations in these zones, as applicable. The 

choice of the size of the EPZs represents a judgment 

on the extent of the detailed planning that must be 

performed to ensure an adequate response base. 

During a particular radiological incident, protective 

actions may be restricted to only a portion of the 

EPZ, while the worst possible radiological incidents 

may necessitate response activities and protective 

actions be taken outside the EPZs.

The EPA Policy Statement, “Planning Basis for 

Emergency Responses to Nuclear Power Reactor 

Accidents,” 45 FR 2893, states that “The EPZ for 

airborne exposure has a radius of about 10 miles; 

the EPZ for contaminated food has a radius of about 

50 miles. Predetermined protective action plans are 

needed for the EPZs. The exact size and shape of 

each EPZ will be decided by emergency planning 

officials after they consider the specific conditions at 
6 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

each site.” This concept is reflected in current NRC 

and FEMA EP policies, regulations, and guidance.

The size of the plume exposure pathway EPZ was 

based primarily on the following considerations: 

a. Projected doses from the traditional design basis 

accidents would not exceed Federal PAG levels 

outside the EPZ.

b. Projected doses from most core melt sequences 

would not exceed Federal PAG levels outside 

the EPZ.

c. For the worst core melt sequences, immediate 

life threatening doses would generally not occur 

outside the EPZ.

d. Detailed planning within 10 miles would provide 

a substantial base for expansion of response 

efforts in the event that this proved necessary.

The NRC/EPA Task Force on Emergency Planning 

concluded that it would be unlikely that any 

protective actions for the plume exposure pathway 

would be required beyond the plume exposure 

pathway EPZ. Also, the plume exposure pathway 

EPZ is of sufficient size for actions within this zone 

to provide substantial reduction in severe, early-stage 

health effects in the event of a complete core melt.

The size of the ingestion exposure pathway EPZ was 

based on the following considerations:

a. The downwind range within which contamination 

will generally not exceed the Federal PAGs is 

limited to about 50 miles from an NPP because of 

wind shifts during the release and travel periods.

b. There may be conversion of atmospheric iodine 

to chemical forms which do not readily enter the 

ingestion pathway.

c. Much of any particulate material in a radioactive 

plume would have been deposited on the ground 

within about 50 miles from the NPP.

d. The likelihood of exceeding ingestion exposure 

pathway PAG levels at 50 miles is comparable 

to the likelihood of exceeding plume exposure 

pathway PAG levels at 10 miles.

Time Factors Associated with Releases

The range of times between the onset of radiological 

incident conditions and the start of a radiological 

release could be on the order of less than an hour 

to several hours. Radioactive material may be 

expected to be released for as little as several 

minutes for a short-term release up to a few days 

for a continuous release. These timing estimates 

have been factored into the basis for the emergency 

declaration and alert and notification capabilities 

described in Section II. The EP planning basis also 

requires appropriate mobilization and augmentation 

of both onsite and offsite resources to address a 

variety of potential events. 

Radiological Characteristics of Releases

Planners will need information on the characteristics 

of potential radiological releases in order to specify 

the characteristics of monitoring instrumentation, 

develop dose projections, and identify critical 

exposure modes. 

For atmospheric releases from NPPs, three exposure 

modes have been identified. The three exposure 

modes are: (a) whole body (bone marrow) exposure 

from external gamma radiation and from ingestion 

of radioactive material; (b) thyroid exposure 

from inhalation or ingestion of radioiodines; and 

(c) exposure of other organs from inhalation or 

ingestion of radioactive materials. 

Radioactive materials produced in the operation of 

NPPs include fission products, transuranics, and 

activation products generated by neutron exposure 

of the structural and other materials within and 

immediately around the reactor core. The fission 

products consist of a very large number of different 

kinds of nuclides, almost all of which are initially 

radioactive. The amounts of these fission products 

and their potential for escape from their normal 

places of confinement represent the dominant 

potential for consequences to the public. Radioactive 

fission products exist in a variety of physical and 

chemical forms of varied volatility. Virtually 

all activation products and transuranic elements 

exist as non-volatile solids. The characteristics 

of these materials show quite clearly that the 

potential for releases to the environment decreases 

dramatically in this order: (a) gaseous materials, 
NUREG-0654/FEMA-REP-1, Rev. 2 7

SECTION I: Introduction

(b) volatile solids, and (c) non-volatile solids. For 

this reason, guidance for source terms representing 

a hypothetical fission product release from an NPP 

emphasizes the development of plans relating to the 

release of noble gases and/or volatiles. However, 

consideration of particulate materials, should 

not be completely neglected. For example, the 

capability to determine the presence or absence of 

particulate radionuclides will be needed to identify 

requirements for additional resources. 

Continuing Assessment of the Planning 

Basis for Radiological Emergency 

Preparedness

Accident phenomena and offsite consequences 

of severe reactor incidents have been the subject 

of considerable research over the last several 

decades resulting in more detailed, integrated, 

and realistic studies. The NRC State-of-the-Art 

Reactor Consequence Analyses (SOARCA) research 

developed best estimates of the offsite radiological 

health consequences for potential severe reactor 

incidents. By applying modern analytic tools 

and techniques, the SOARCA project evaluated 

NPP improvements and changes not reflected 

in earlier studies, including improvements in 

training, emergency procedures, mitigation efforts, 

offsite emergency response, and security-related 

improvements. The SOARCA analyses show 

that EP programs, implemented as planned and 

practiced, reduce the risk of health consequences 

among the public during a severe reactor incident.
8 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

D. COORDINATED GOVERNMENT EMERGENCY 

PLANNING

The concept of radiological emergency planning 

emphasizes a coordinated response process 

involving several levels of government – Federal, 

state, local, and tribal – located (wholly or partially) 

within the plume and/or ingestion exposure pathway 

EPZs. For the purposes of this document, it is not 

necessary to outline the varied governmental and 

jurisdictional structures that exist throughout the 

United States, nor is it necessary to describe in detail 

the varied emergency planning and preparedness 

mechanisms that can be developed among these 

governmental entities. 

Integrated Guidance and Criteria

NRC and FEMA have created and integrated 

guidance in this document intended for use by state, 

local, and tribal governments, applicants/licensees, 

and licensee OROs to guide their integrated 

radiological emergency planning activities. 

An integrated approach to the development of 

radiological emergency plans is the most effective 

way to protect the health and safety of the public. 

NRC and FEMA recognize that applicants/licensees 

and state, local, and tribal government emergency 

plans should not be developed independently. If 

a radiological incident occurs, the public is best 

protected when efforts by all response organizations 

are fully integrated. Each organization involved 

must have a clear understanding of the role it will 

play in the response to a radiological incident, 

and the associated level of preparedness to build 

and sustain. This understanding is best achieved 

through integrated plan development and evaluation. 

Each organization must have a clear recognition 

of its portion of the overall shared responsibility 

for safeguarding public health and safety. This 

integrated guidance also allows each organization 

to understand the capabilities, responsibilities, and 

obligations of the other organizations.

This integrated guidance provides staff the basis 

to conduct a thorough review and analysis of 

each organization’s plan and to understand the 

relationship of all plans in the integrated effort.

Additional information regarding integrating and 

synchronizing efforts across various levels of 

government can be found in CPG 101, “Developing 

and Maintaining Emergency Operations Plans.”
NUREG-0654/FEMA-REP-1, Rev. 2 9

SECTION I: Introduction

E. FORM AND CONTENT OF PLANS

This guidance does not specify a format for 

emergency plans, but it is important that the 

evaluation criteria are addressed fully and clearly, 

as outlined in Section II of this document. The plans 

should address what is to be done in an emergency, 

how and when it is to be done, and by whom. 

The NPS contains a number of concepts that may 

assist applicants/licensees and state, local, and tribal 

government agencies with their planning. CPG 

101 provides guidance for developing emergency 

plans and promotes understanding of risk-informed 

planning and preparedness. CPG 201, “Threat 

and Hazard Identification and Risk Assessment 

(THIRA) and Stakeholder Preparedness Review 

(SPR) Guide,” provides communities with additional 

guidance for conducting a risk assessment and 

presents the basic steps of the process. Together, 

these two CPGs provide a risk-informed basis for 

the offsite planning effort, as well as encourage the 

engagement of the whole community to address 

risks that might impact a jurisdiction and allow, 

when applicable, for the radiological emergency plan 

to be integrated with all-hazards plans.

The Nuclear/Radiological Incident Annex (NRIA) 

to the Response and Recovery Federal Interagency 

Operational Plans (FIOPs) identifies the Federal 

response capability inventory, which includes 

nuclear/radiological-specific assets, resources, 

and teams that may be available for OROs. OROs 

are encouraged to incorporate Federal assets that 

may be used in state, local, and tribal government 

emergency plans. Details of Federal roles, 

responsibilities, and assets are provided in the 

National Planning Frameworks and the FIOPs, as 

well as individual agency plans and manuals.

NPP licensees have a primary responsibility for 

planning and implementing emergency response 

measures within owner controlled areas (OCAs). 

These emergency response measures include 

mitigative actions at the NPP site and protective 

measures and aid for individuals within the OCA. 

In the long-term, licensees and OROs are responsible 

for recovery from any radiological incident and 

return to affected areas. Emergency plans should 

identify the organizations responsible for recovery 

actions, which would include a combination of 

Federal and private entities.
10 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

F. TRIBAL GOVERNMENTS

A historic relationship exists between the Federal 

Government and tribal governments. FEMA 

acknowledges the inherent sovereignty of Indian 

and Alaska Native tribal governments. Indian and 

Alaska Native tribal governments are not political 

subdivisions of states, but are recognized by the 

United States as distinct sovereign entities. Each 

tribal government establishes its own priorities and 

goals for the welfare of its membership. FEMA 

encourages cooperation and partnership between and 

among Federal, state, local, and tribal governments 

and public and private entities.8

8 See Executive Order 13175 of November 6, 2000, Consultation and Coordination with Indian Tribal Governments (65 Fed. Reg. 67249, 

Nov. 9, 2000); Presidential Memorandum on Tribal Consultation of Novermber 5, 2009 (74 Fed. Reg. 57881, Nov. 9, 2009); FEMA Tribal 

Policy (December 27, 2016); and FEMA Tribal Consultation Policy (July 3, 2019).

NRC interaction with tribal governments is 

addressed in 10 CFR 61.71, “State and Tribal 

government consultation,” which states: “Upon 

request of a State or tribal governing body, the 

Director shall make available Commission staff 

to discuss with representatives of the State or 

tribal governing body information submitted by 

the applicant, applicable Commission regulations, 

licensing procedures, potential schedules, and the 

type and scope of State activities in the license 

review permitted by law. In addition, staff shall 

be made available to consult and cooperate with 

the State or tribal governing body in developing 

proposals for participation in the license review.”
NUREG-0654/FEMA-REP-1, Rev. 2 11

SECTION I: Introduction

G. CRITERIA FOR EMERGENCY PLANNING IN AN 

EARLY SITE PERMIT APPLICATION

Emergency Planning Provisions of 

the Rule 

The NRC promulgated 10 CFR Part 52 to govern 

the issuance of ESPs, standard design certifications, 

combined licenses (COLs), standard design approvals, 

and manufacturing licenses for NPPs. Part A of 

the rule sets out the requirements and procedures 

applicable to NRC issuance of ESPs for approval of a 

site or sites for one or more NPPs separate from the 

filing of an application for a construction permit or 

COL for such a facility. Subpart A includes provisions 

for addressing emergency planning issues before any 

construction permit or COL proceeding.

After meeting the mandatory requirement of 10 CFR 

52.17(b)(1), the applicant may also exercise one of 

the two following options:

9 Assessments of offsite plans may be based on the state and local and/or tribal government plans submitted to FEMA under 44 CFR Part 350.

10 Ibid.

 Option 1: Propose major features of the 

emergency plans, such as the exact sizes of 

the EPZs, for review and approval by NRC, in 

consultation with FEMA,9

 in the absence of 

complete and integrated emergency plans. Major 

features are defined in 10 CFR 52.1(a).

 Option 2: Propose complete and integrated 

plans for review and approval by the NRC, in 

consultation with FEMA,10 in accordance with 

the applicable provisions of 10 CFR 50.47 or 

propose acceptable alternatives meeting the 

intent of the planning standards.

For the mandatory requirement and Option 1, 

the application must include a description of 

contacts and arrangements made with Federal, 

state, local, and tribal governmental agencies with 

emergency planning responsibilities. Under Option 

2, the applicant shall make good faith efforts to 

obtain certifications from the same government 

agencies that: (1) the proposed emergency plans 

are practicable; (2) these agencies are committed 

to participating in any further development of the 

plans, including any required field demonstrations; 

and (3) that these agencies are committed to 

executing their responsibilities under the plans in the 

event of an emergency. The application must contain 

any certifications that have been obtained. If these 

contracts, arrangements, or certifications cannot be 

obtained, the application must contain information, 

including a utility plan as specified in 10 CFR 

50.47(c)(1), sufficient to show that the proposed 

plans provide reasonable assurance that adequate 

protective measures will be taken in the event of a 

radiological emergency at the NPP site. 

Subpart B of 10 CFR Part 52 addresses the 

requirements and procedures applicable to standard 

design certifications. Emergency planning 

requirements under Subpart B are limited primarily 

to the specification of an onsite Technical Support 

Center (TSC) and an onsite Operations Support 

Center (OSC) within the design bases of the standard 

NPP design. Subpart C of the rule addresses the 

requirements and procedures applicable to the 

issuance of a COL for an NPP. Under Subpart C, the 

application must contain emergency plans that meet 

the emergency planning standards of 10 CFR 50.47, 

as well as the requirements of Appendix E to 10 CFR 

Part 50. The application may also propose acceptable 

alternatives meeting the intent of the planning 

standards, and thus provide reasonable assurance 

that adequate protective measures can and will be 

taken in the event of a radiological emergency at the 

NPP site. If the application for a COL references an 

ESP, the application may incorporate by reference 

emergency plans, or major features of emergency 

plans, approved in conjunction with the issuance of 

the permit.

Identification of Physical Characteristics

The ESP application must identify physical 

characteristics unique to the proposed NPP site, 

such as egress limitations from the area surrounding 

the site that could pose a significant impediment 
12 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION I: Introduction

to the development of emergency plans. An ESP 

applicant may identify such unique physical 

characteristics by performing a preliminary analysis 

of the time required to evacuate various sectors and 

distances within the plume exposure pathway EPZ 

for transient and permanent populations, noting 

major impediments to the evacuation or other 

protective actions.

The evacuation time estimate (ETE) analysis is 

an emergency planning tool that can be used to 

assess, in an organized and systematic fashion, 

the feasibility of developing emergency plans for 

an NPP site. The process for developing an ETE 

analysis, including specific guidance for ESP and 

COL applicants, is provided in NUREG/CR-7002, 

“Criteria for Development of Evacuation Time 

Estimate Studies.” Such an ETE analysis serves 

to demonstrate if any physical characteristics or 

combination of physical characteristics of the 

site, egress limitations in particular, could pose 

impediments to the development of emergency 

plans. It is important to note that the value of the 

ETE analysis is in the methodology required to 

perform the analysis rather than in the calculated 

ETE times. While lower ETEs may reflect favorable 

site characteristics from an emergency planning 

standpoint, there is no minimum required evacuation 

time in the regulations that a licensee or an applicant 

has to meet. Accordingly, the ETE analysis should 

not focus on the numerical time estimates, but on the 

site factors that are considered to be impediments to 

emergency planning and preparedness. Any major 

difficulties for an evacuation or the taking of other 

protective actions, such as sheltering in the plume 

exposure pathway EPZ, should be discussed.

Major Features of Emergency Plans 

Emergency Planning Zones (EPZs)

An ESP applicant that chooses the option of proposing 

major features of the emergency plans (i.e., applicant, 

state, local, and tribal government plans) should give 

special emphasis to the exact sizes of the EPZs. The 

exact size and configuration of the EPZs surrounding 

a particular NPP should be determined in relation to 

local emergency response needs and capabilities as 

they are affected by such conditions as demography, 

topography, land characteristics, access routes, and 

jurisdictional boundaries [10 CFR 50.47(c)(2)]. Plume 

exposure pathway EPZ boundaries that run through 

the middle of schools or hospitals, or that arbitrarily 

carve out small portions of governmental jurisdictions 

should be avoided [CLI 89-12, 26 NRC 383 (1987)]. 

Planning Standards and Evaluation Criteria 

An ESP application that includes major features 

of emergency plans will be evaluated against the 

emergency planning standards and evaluation 

criteria in Section II of this document. The 

evaluation criteria for each of the planning standards 

should be fully addressed. If the applicant cannot or 

chooses not to address any of the evaluation criteria 

associated with a particular planning standard, the 

resolution of those evaluation criteria should be 

addressed in the ESP application (e.g., stating that 

the missing evaluation criteria will be addressed at 

the COL application stage). While the regulations do 

not address the use of inspections, tests, analyses, 

and acceptance criteria (ITAAC) for emergency 

planning for the ESP major features option, the 

inclusion of a limited set of EP ITAAC in the 

application, associated with evaluation criteria that 

are not addressed, is not prohibited. The guidance 

in NUREG-0800, “Standard Review Plan for the 

Review of Safety Analysis Reports for Nuclear 

Power Plants: LWR Edition,” Section 14.3.10, 

including generic EP ITAAC Table 14.3.10-1, may 

be used by the applicant to identify a limited set of 

possible EP ITAAC that may be appropriate for an 

ESP major features application. 

Complete and Integrated Plans 

An ESP application that includes complete and 

integrated emergency plans will be evaluated 

against the emergency planning standards and 

evaluation criteria in Section II of this document. 

The application must also include any proposed EP 

ITAAC information required under 10 CFR 52.17(b)

(3). The guidance in NUREG-0800, Section 14.3.10, 

including generic EP ITAAC Table 14.3.10-1, may be 

used by the applicant to identify a set of possible EP 

ITAAC that may be appropriate for an ESP complete 

and integrated emergency plan application.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 13

SECTION II: Planning Standards and 

Evaluation Criteria

INTRODUCTION

Section II of NUREG-0654/FEMA-REP-1 contains evaluation criteria for each planning standard of 10 CFR 

50.47(b) and 44 CFR 350.5(a) that provide specific guidance for developing radiological emergency plans. The 

colored boxes to the left of each evaluation criterion’s text indicate applicability, which has been divided into 

four categories that represent (1) NRC applicants/licensees and organizations at the (2) state, (3) local, and 

(4) tribal government levels. When a box is colored in and labeled, it indicates that the corresponding 

evaluation criterion may be applicable to organizations in that category. Although a category box may 

be highlighted for a certain evaluation criterion, there can be exceptions or variations to the actual 

implementation within emergency plans. This may mean that not all evaluation criteria marked for “State” 

responsibility will be addressed within the state’s emergency plan. This is particularly true for jurisdictions 

within home rule states, where some evaluation criteria may be more appropriately addressed in a local 

jurisdiction’s plan. Users of this document may reference the more specific guidance found in the current 

edition of the FEMA REP Program Manual and various NRC guidance documents listed in Section III: 

Resources for further details and clarification.
SECTION II: Planning Standards and Evaluation Criteria

14 NUREG-0654/FEMA-REP-1, Rev. 2 

A: ASSIGNMENT OF RESPONSIBILITY

Primary responsibilities for emergency response by the nuclear facility licensee and by State and local 

organizations within the EPZs have been assigned, the emergency responsibilities of the various supporting 

organization have been specifically established, and each principal response organization has staff to respond 

and to augment its initial response on a continuous basis. 

Regulatory References: 10 CFR 50.47(b)(1); 44 CFR 350.5(a)(1) 

Number & 

Applicability Evaluation Criteria

A.1

Local

Licensee State

Tribal

The Federal, state, local, and tribal governments, licensee, and other private sector 

organizations that comprise the overall response for the EPZs are identified.

A.1.a

Local

Licensee State

Tribal

The organizations having an operational role specify their concept of operations and 

relationship to the total effort.

A.1.b

Local

Licensee State

Tribal

Each organization’s emergency plan illustrates these interrelationships in a block diagram.

A.1.c

Local

Licensee State

Tribal

Each organization identifies the individual, by title/position, who will be in charge of the 

emergency response.

A.2

Local

State

Tribal

References to the applicable acts, codes, or statutes that provide the legal basis for emergency 

response-related authorities, including those that delegate responsibility and authority to state, 

local, and tribal governments are included. Each emergency plan indicates who may declare a 

“State of Emergency” and the powers that ensue. 

A.3

Local

Licensee State

Tribal

Each organization specifies the key individual(s), by title/position, responsible for the following 

functions, as applicable to that organization: command and control, alert and notification, 

communications, public information, accident assessment, public health and sanitation, social 

services, fire and rescue, traffic control, emergency medical services, law enforcement, 

transportation, protective response (including authority to request Federal assistance and to 

initiate other protective actions), and radiological exposure control.

A.4

Local

Licensee State

Tribal

Written agreements with the support organizations having an emergency response role within 

the EPZs are referenced. The agreements describe the concept of operations, emergency 

response measures to be provided, mutually acceptable criteria for their implementation, and 

arrangements for exchange of information. 

A.5

Local

Licensee State

Tribal

Each principal response organization is capable of continuous operations for a protracted 

period. The principal response organization specifies the individual, by title/position, who is 

responsible for ensuring continuity of resources (technical, administrative, and material).
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 15

B: EMERGENCY RESPONSE ORGANIZATION

On-shift facility licensee responsibilities for emergency response are unambiguously defined, adequate 

staffing to provide initial facility accident response in key functional areas is maintained at all times, timely 

augmentation of response capabilities is available, and the interfaces among various onsite response activities 

and offsite support and response activities are specified. 

Regulatory References: 10 CFR 50.47(b)(2); 44 CFR 350.5(a)(2); 10 CFR Part 50, Appendix E, Sec. IV.A

Number & 

Applicability Evaluation Criteria

B.1

Licensee The emergency plan specifies how the requirements of 10 CFR 50.47(b)(2) and the applicable 

sections of Appendix E to 10 CFR Part 50 are met.

B.1.a

Licensee

The site-specific emergency response organization (ERO) is developed. Note that while other 

site programs, such as operations, fire response, rescue and first aid, and security, may be 

controlled via other licensing documents, it is only when these personnel are assigned EP 

functions that they become part of this regulatory standard. Consideration is given to ensure 

that EP functions are not assigned to individuals who may have difficulties performing their 

EP function(s) simultaneously with their other assigned (non-EP) duties. Appendix E to 10 CFR 

Part 50 requires licensees to perform an on-shift staffing analysis to ensure on-shift staff can 

support the EP functions assigned, as well as other assigned duties.

B.2

Licensee

An individual is designated as the on-shift emergency coordinator (individual title may vary) 

who has the authority and responsibility to immediately and unilaterally initiate any emergency 

response measures, including approving protective action recommendations (PARs) to be 

disseminated to authorities responsible for implementing offsite emergency response measures.

 B.2.a

Licensee The functional responsibilities assigned to the ERO are established and the responsibilities that 

may not be delegated to other members of the ERO are clearly specified in the emergency plan.

B.3

Licensee

A table is developed depicting the site-specific on-shift staffing plan, as well as the ERO 

staffing augmentation plan. Table B-1, “Emergency Response Organization (ERO) Staffing and 

Augmentation Plan,” provides a model for licensees to consider.

B.4

Licensee

The interfaces between and among the licensee functional areas of emergency activity, local 

services support, and state, local, and tribal government organizations are identified. The 

information includes all licensee emergency response facilities. A block diagram is preferred 

for ease of use, but not required.

B.5

Licensee The external organizations, including contractors, that may be requested to provide technical 

assistance to and augmentation of the ERO, as applicable, are specified.
SECTION II: Planning Standards and Evaluation Criteria

16 NUREG-0654/FEMA-REP-1, Rev. 2 

Table B-1: Emergency Response Organization (ERO) Staffing and Augmentation Plan

NOTES

i. The minimum number of personnel assigned 

EP functions for on-shift and augmented 

response (henceforth called the ERO staffing 

plan) is dependent on specific licensee 

requirements and is as approved by the 

NRC for the site-specific emergency plan. 

Augmented response provides (1) relief to the 

on-shift staff of EP functions (if necessary) 

and (2) provides support staff for effective 

emergency plan implementation.

ii. This table lists the EP functions needed to 

implement the typical emergency plan. It is 

intended to provide a model for applicants 

and licensees to consider in the development 

of their site-specific emergency plan. The 

minimum ERO staffing plan of a specific 

licensee should be described.

iii. The minimum ERO staffing plan is that which 

is required to effectively implement the sitespecific emergency plan (i.e., the emergency 

plan cannot be effectively implemented without 

this staff). The emergency plan should only 

describe the minimum ERO staffing plan, 

while supporting implementing procedures 

can describe any additional staff response 

desired by the licensee, as this additional staff 

is not critical to effective emergency plan 

implementation. The augmentation times listed 

are intended to provide a model for applicants 

and licensees to consider in the development of 

their site-specific emergency plan.

iv. The titles of the positions are as defined in the 

site-specific emergency plan.

v. The locations of these positions are intended 

to provide a model for applicants and licensees 

to consider in the development of their sitespecific emergency plan. Licensees may 

choose to have these positions, or functions, 

at other facilities and/or activated at different 

emergency classification levels (ECLs).

vi. Many of these EP functions may be assigned 

as collateral duties; however, the licensee is 

required to evaluate if the addition of collateral 

duties would preclude the performance of EP 

functions regardless of the other (non-EP) 

duties assigned to an individual responder.

vii. The development of an ERO staffing plan 

should use a performance-based approach to 

the degree practicable. The licensee will need 

to demonstrate that the listed EP functions are 

constantly maintained. Once developed, and 

approved by the NRC, changes to the minimum 

ERO staffing plan are evaluated and controlled 

in accordance with 10 CFR 50.54(q).

viii. The number of operations staff, security force 

staff, or fire brigade staff on-shift is controlled 

by the site-specific Technical Specifications or 

other licensing documents.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 17

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Command and Control

• Provide overall ERO 

command and control, 

until relieved.

• Approve emergency 

action level (EAL) and/or 

PAR classifications, until 

relieved.

• Authorize personnel dose 

extensions, until relieved.

Operations Shift 

Manager

(1) Emergency 

Coordinator Not applicable (1) Emergency Director

Communications

• Communicate EAL and 

PAR classifications to 

OROs, including the 

NRC, until relieved.

Communicator1

(2) Communicators 

(TSC) 

One communicator 

for the NRC and one 

communicator for 

OROs.

As needed.

One communicator 

staffed for NRC 

communications if 

needed.

(1) Communicator

Radiation Protection

• Provide qualified 

radiation protection 

coverage for responders 

accessing potentially 

unknown radiological 

environments during 

emergency conditions.

• Provide in-plant surveys.

• Control dosimetry and 

radiologically controlled 

area access.

Radiation 

Protection 

Personnel4

(3) Additional 

Radiation Protection 

Technicians 

[In addition to 

personnel on-shift]

(OSC) 

(3) Additional 

Radiation Protection 

Technicians

[In addition to 

personnel on-shift 

and those responding 

within 60 min.]

(OSC) 

Not applicable
SECTION II: Planning Standards and Evaluation Criteria

18 NUREG-0654/FEMA-REP-1, Rev. 2 

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Supervision of Radiation 

Protection Staff and Site 

Radiation Protection

• Evaluate and assess plant 

and offsite radiological 

data in the development 

of onsite protective 

actions and offsite PARs, 

until relieved.

• Recommend onsite 

protective actions and 

offsite PARs to the 

applicable decisionmaker, until relieved.

• Direct all radiation 

protection activities, 

including field 

monitoring team (FMT) 

direction, until relieved.

• Provide relevant 

information to applicable 

communicators who are 

communicating offsite 

PARs to OROs, until 

relieved.

Operations Shift 

Manager

(1) Site Radiation 

Protection Coordinator 

(SRPC) (TSC)

Not applicable

(1) Radiation 

Protection Manager 

(EOF)

Dose Assessments/

Projections

• Perform dose 

assessments/projections 

and provide input to 

applicable PAR decisionmaker, until relieved.

Dose Assessment/

Projection Staff 1

(1) Dose Assessment/

Projection Staff (TSC) Not applicable

(1) Dose 

Assessment/

Projection Staff 

(EOF)
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 19

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Emergency Classifications

• Evaluate plant 

conditions and 

recommend emergency 

classifications, until 

relieved.

Emergency 

Classification 

Advisor1

(1) Emergency 

Classification Advisor 

(TSC)

Licensees should 

consider having 

a liaison between 

Operations (Control 

Room) and the TSC to 

perform this function.

Not applicable Not applicable

Engineering

• Provide engineering 

coverage related to the 

specific discipline of the 

assigned engineer, until 

relieved.

Core/Thermal 

Hydraulics 

Engineer1

• Evaluate reactor 

conditions.

TSC Engineering 

Staff

• (1) Electrical/

Instrumentation 

and Control (I&C): 

Provide engineering 

coverage for the 

ERO related to 

electrical or I&C 

equipment.

• (1) Mechanical: 

Provide engineering 

coverage for 

the ERO related 

to mechanical 

equipment.

• (1) Core/Thermal 

Hydraulics: Evaluate 

reactor conditions.

As needed Not applicable
SECTION II: Planning Standards and Evaluation Criteria

20 NUREG-0654/FEMA-REP-1, Rev. 2 

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Security

Security staffing 

per the site-specific 

security plan.

(1) Security Liaison 

(TSC) 

• Coordinate securityrelated activities 

and information 

with the Emergency 

Coordinator.

Not applicable Not applicable

Repair Team Activities Not applicable

Maintenance 

Personnel (OSC) 

(1 electrician, 

1 mechanic)

• (1) Electrician: 

Provide electrical 

support for 

emergency core 

cooling system 

(ECCS) equipment, 

event mitigation, and 

equipment repair.

• (1) Mechanic: Provide 

mechanical support 

for ECCS equipment, 

event mitigation, and 

equipment repair.

Maintenance 

Personnel (OSC)

• (1) I&C Technician: 

Provide assistance 

with logic 

manipulation, 

support for event 

mitigation and 

equipment repair, 

and support 

of digital I&C 

if applicable. 

Additional I&C staff 

may be called out if 

needed.

• Electricians – 

As needed.

• Mechanics – 

As needed.

Not applicable
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 21

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Supervision of Repair 

Team Activities Not applicable

(1) Lead OSC 

Supervisor

• Supervise OSC 

activities as directed 

by the Emergency 

Coordinator.

OSC Supervisors

• (1) Electrical: 

Supervise OSC 

activities related 

to electrical 

equipment.

• (1) Mechanical: 

Supervise OSC 

activities related 

to mechanical 

equipment.

• (1) I&C: Supervise 

OSC activities 

related to I&C 

equipment. May 

be combined 

with Electrical 

Supervisor.

• (1) Radiation 

Protection: 

Supervise OSC 

activities related to 

radiation protection.

Not applicable
SECTION II: Planning Standards and Evaluation Criteria

22 NUREG-0654/FEMA-REP-1, Rev. 2 

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Field Monitoring Teams 

(FMTs) Not applicable

Onsite FMT

• (1) Qualified 

individual to assess 

the protected area 

for radiation and 

contamination and 

provide input to the 

SRPC. Responsible 

for radiation 

protection coverage 

for the FMT as 

directed by SRPC 

(TSC) or Radiation 

Protection Manager 

(EOF).

• (1) Driver to provide 

transportation.

Offsite FMT A

• (1) Qualified 

individual to assess 

the area(s) outside 

the protected area 

for radiation and 

contamination, 

and for radioactive 

plume tracking, as 

directed by, and 

under the control of, 

the SRPC (TSC) or 

Radiation Protection 

Manager (EOF). 

Responsible for the 

radiation protection 

coverage of the 

FMT as directed 

by SRPC (TSC) or 

Radiation Protection 

Manager (EOF).

• (1) Driver to provide 

transportation.

Offsite FMT B

• (1) Qualified 

individual to assess 

the area(s) outside 

the protected area 

for radiation and 

contamination, 

and for radioactive 

plume tracking, as 

directed by, and 

under the control of, 

the SRPC (TSC) or 

Radiation Protection 

Manager (EOF). 

Responsible for the 

radiation protection 

coverage of the 

FMT as directed 

by SRPC (TSC) or 

Radiation Protection 

Manager (EOF).

• (1) Driver to provide 

transportation.

Not applicable
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 23

Emergency Preparedness 

(EP) Functions On-Shift

Technical Support Center (TSC)/Operations 

Support Center (OSC)

Emergency 

Operations Facility 

(EOF)/

Joint Information 

Center (JIC)/

Joint Information 

System (JIS)

Alert or Greater

Augment w/in 

60 min .1, 2

Alert or Greater

Augment w/in 

90 min .1, 2

Site Area 

Emergency (SAE) 

or Greater

Augment w/in 

60 min .3

Media Information

• Manage and coordinate 

media information 

related to the event.

Not applicable JIC/JIS staff to address 

media inquiries.5 Not applicable

Staff to perform 

JIC/JIS-related 

tasks.

Information Technology 

(IT)6

• If emergency plan 

functions rely on 

computer-based 

equipment, provide 

IT support.

Not applicable Not applicable

 (1) IT Lead (TSC)1

• Qualified individual 

to ensure IT 

equipment is 

operable.

(1) IT Lead 

(EOF/JIC/JIS)1

• Qualified 

individual 

to ensure IT 

equipment is 

operable.

1 Other personnel may be assigned this function if no collateral duties are assigned to an individual that are beyond the capability of that 

individual to perform at any given time. A 10 CFR Part 50, Appendix E on-shift staffing analysis must be performed to support assignment 

of multiple roles to individual responders on-shift. For augmented ERO positions, a performance-based approach is acceptable for 

evaluating whether augmented personnel can adequately perform collateral functions without having competing priorities.

2 Specified TSC/OSC personnel should be capable of performing their required functions within 60 (90) minutes of an Alert or higher EAL 

classification. Emergency response facility activation timing is not the concern; it is whether the facility staff is performing the stated 

function(s) within the time specified.

3 Specified EOF/JIC/JIS personnel should be capable of performing their required functions within 60 minutes of an SAE or higher EAL 

classification. Emergency response facility activation timing is not the concern; it is whether the facility staff is performing the stated 

function(s) within the time specified. Note: For JIC/JIS, licensees should use whatever term is used for the media support function/program/

location as applicable.

4 Two qualified radiation protection personnel for a single unit site or one per unit for a multi-unit site.

5 Does not need to be performed in the TSC/OSC, but needs to be established at this point.

6 IT staff is only required to be described in the emergency plan if critical digital assets are identified per 10 CFR 73.54.
SECTION II: Planning Standards and Evaluation Criteria

24 NUREG-0654/FEMA-REP-1, Rev. 2 

C: EMERGENCY RESPONSE SUPPORT AND RESOURCES

Arrangements for requesting and effectively using assistance resources have been made, arrangements to 

accommodate State and local staff at the licensee’s EOF have been made, and other organizations capable of 

augmenting the planned response have been identified.

Regulatory References: 10 CFR 50.47(b)(3); 44 CFR 350.5(a)(3); 10 CFR Part 50, Appendix E, Sec. IV.A and E

Number & 

Applicability Evaluation Criteria

C.1

Local

Licensee State

Tribal

Emergency response support and resources provided to the licensee’s EOF, as agreed upon, 

are described.

C.2

Local

Licensee State

Tribal

Provisions made for additional emergency response support and resources are described and 

include the following:

C.2.a

Local

Licensee State

Tribal

The individual(s), by title/position, authorized to request emergency response support and 

resources from responding organizations.

C.2.b

Local

Licensee State

Tribal

(1) Each organization from which emergency response support and/or resources may be 

requested, (2) the circumstance(s) in which the emergency response support and/or resources 

would be required, (3) the process for requesting needed emergency response support and/or 

resources, (4) categories of capabilities and/or resources expected to be provided, (5) when the 

expected emergency response support and/or resources would be available once requested, and 

(6) how integration would occur.

C.2.c

Local

Licensee State

Tribal

Coordination of NPP site access and support for external organizations that have agreed to 

provide requested emergency response support and resources.

C.2.d

Agreements between licensees and local agencies for law enforcement, medical and ambulance 

services, fire, hospital support, and other support.

C.3

Local

Licensee State

Tribal

The capability of each principal organization to coordinate with other principal organizations 

leading the incident response is described.

C.4

Local

Licensee State

Tribal

Radiological laboratories, their general capabilities, and expected availability to provide 

radiological monitoring analysis services that can be used in an emergency are described. 

Plans to augment the identified radiological laboratories are described.

Local

Licensee State

Tribal
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 25

Number & 

Applicability Evaluation Criteria

C.5

Licensee Arrangements are described for integrating the licensee’s response with the NRC Headquarters 

and regional incident response centers and, when dispatched, the NRC’s site response team. 

C.5.a

Licensee The activation process for the NRC’s emergency response data system (ERDS) during an 

emergency is described.

C.5.b

Licensee Provisions to continuously maintain open communications lines with the NRC, when requested, 

are described.
SECTION II: Planning Standards and Evaluation Criteria

26 NUREG-0654/FEMA-REP-1, Rev. 2 

D: EMERGENCY CLASSIFICATION SYSTEM

A standard emergency classification and action level scheme, the bases of which include facility system 

and effluent parameters, is in use by the nuclear facility licensee, and State and local response plans call 

for reliance on information provided by facility licensees for determinations of minimum initial offsite 

response measures. 

Regulatory References: 10 CFR 50.47(b)(4); 44 CFR 350.5(a)(4); 10 CFR Part 50, Appendix E, Sec. IV.B and C

Number & 

Applicability Evaluation Criteria

D.1

Licensee

A standard emergency classification and action level scheme is established and maintained. 

The scheme provides detailed EALs for each of the four ECLs in Section IV.C.1 of Appendix E 

to 10 CFR Part 50.

D.1.a

Licensee The EALs are developed using guidance provided or endorsed by the NRC that is applicable to 

the reactor design.

D.1.b

Local

Licensee State

Tribal

The initial emergency classification and action level scheme is discussed and agreed to by the 

licensee and OROs, and approved by the NRC. Thereafter, the scheme is reviewed with OROs 

on an annual basis.

D.2

Licensee

The capability to assess, classify, and declare the emergency condition within 15 minutes 

after the availability of indications to NPP operators that an EAL has been met or exceeded 

is described.

D.3

Licensee A summary of emergency response measures to be taken for each ECL is provided. 

The detailed emergency response measures are described in implementing procedures.

D.4

Local

State

Tribal

Emergency response measures based on the ECL declared by the licensee and applicable offsite 

conditions are described.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 27

E: NOTIFICATION METHODS AND PROCEDURES 

Procedures have been established for notification, by the licensee, of State and local response organizations 

and for notification of emergency personnel by all organizations; the content of initial and follow up messages 

to response organizations and the public has been established; and means to provide early notification and 

clear instruction to the populace within the plume exposure pathway EPZ have been established. 

Regulatory References: 10 CFR 50.47(b)(5); 44 CFR 350.5(a)(5)

Number & 

Applicability Evaluation Criteria

E.1

Local

Licensee State

Tribal

The mutually agreeable process for direct and prompt notification of response organizations, 

aligned with the emergency classification and action level scheme, is described. 

E.1.a

Local

Licensee State

Tribal

Provisions for notification of response organizations are established, including the means for 

verification of messages.

E.1.b

Licensee The capability to notify responsible OROs within 15 minutes and the NRC within 60 minutes 

is described.

E.2

Local

Licensee State

Tribal

The alert and notification systems (ANSs) used to alert and notify the general public within the 

plume exposure pathway EPZ and methods of activation are described. This description includes 

the administrative and physical means, the time required for notifying and providing prompt 

instructions to the public within the plume exposure pathway EPZ, and the organizations or 

titles/positions responsible for activating the system. 

E.3

Local

Licensee State

Tribal

The licensee and state, local, and tribal government organizations establish the contents of the 

initial and follow-up emergency notifications to be sent from the NPP. 

E.4

Local

State

Tribal

Each organization establishes the contents of the initial and follow-up messages to the public 

including, as applicable, instructions for protective actions.

E.5

Local

Licensee State

Tribal

Provisions are made to provide timely supplemental information periodically throughout the 

radiological incident to inform the public.
SECTION II: Planning Standards and Evaluation Criteria

28 NUREG-0654/FEMA-REP-1, Rev. 2 

F: EMERGENCY COMMUNICATIONS 

Provisions exist for prompt communications among principal response organizations to emergency personnel 

and to the public. 

Regulatory References: 10 CFR 50.47(b)(6); 44 CFR 350.5(a)(6)

Number & 

Applicability Evaluation Criteria

F.1

Local

Licensee State

Tribal

Each principal response organization establishes redundant means of communication and 

addresses the following provisions:

F.1.a

Local

Licensee State

Tribal

Continuous capability for notification to, and activation of, the emergency response network, 

including a minimum of two independent communication links.

F.1.b

Local

Licensee State

Tribal

Communication with applicable organizations to include a description of the methods that may 

be used when contacting each organization.

F.1.c

Local

Licensee State

Tribal

Systems for alerting or activating emergency personnel in each response organization.

F.2

Local

Licensee State

Tribal

Systems for coordinated communication methods for applicable fixed and mobile medical 

support facilities are described.

F.3

Local

Licensee State

Tribal

The testing method and periodicity for each communication system used for the functions 

identified in evaluation criteria E.2, F.1, and F.2 are described. 
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 29

G: PUBLIC EDUCATION AND INFORMATION 

Information is made available to the public on a periodic basis on how they will be notified and what their 

initial actions should be in an emergency (e.g., listening to a local broadcast station and remaining indoors), 

the principal points of contact with the news media for dissemination of information during an emergency 

(including the physical location or locations) are established in advance, and procedures for coordinated 

dissemination of information to the public are established.

Regulatory References: 10 CFR 50.47(b)(7); 44 CFR 350.5(a)(7)

Number & 

Applicability Evaluation Criteria

G.1

Local

Licensee State

Tribal

Provisions are made for a coordinated annual dissemination of information to the public within 

the plume exposure pathway EPZ, including transient populations and those with access and 

functional needs, regarding how they will be notified and what actions should be taken. The 

information is disseminated using multiple methods, to include non-English translations per 

current Federal guidance.

G.2

Local

Licensee State

Tribal

Methods, consistent with JIS concepts, are established for coordinating and disseminating 

information to the public and media. Plans include the physical location(s) for interacting with 

the media.

G.3

Local

Licensee State

Tribal

Organizations designate news media points of contact and a spokesperson(s) with access to 

necessary information.

G.3.a

Local

Licensee State

Tribal

Arrangements are made for the timely exchange of information among the designated 

spokespersons representing the entities involved in incident response.

G.4

Local

Licensee State

Tribal

Organizations establish coordinated arrangements for identifying and addressing public 

inquiries and inaccurate information.

G.5

Local

Licensee State

Tribal

Organizations conduct programs to acquaint news media with the emergency plans at 

least annually.
SECTION II: Planning Standards and Evaluation Criteria

30 NUREG-0654/FEMA-REP-1, Rev. 2 

H: EMERGENCY FACILITIES AND EQUIPMENT 

Adequate emergency facilities and equipment to support the emergency response are provided and maintained. 

Regulatory References: 10 CFR 50.47(b)(8); 44 CFR 350.5(a)(8)

Number & 

Applicability Evaluation Criteria

H.1

Licensee A TSC is established, using current Federal guidance, from which NPP conditions are 

evaluated and mitigative actions are developed.

H.2

Licensee An OSC is established, using current Federal guidance, from which repair team activities are 

planned and teams are dispatched to implement actions.

H.3

Licensee

An EOF is established, using current Federal guidance, as the primary base of emergency 

operations for the licensee during a radiological incident. The EOF facilitates the management 

and coordination of the overall emergency response, including the sharing of information with 

Federal, state, local, and tribal government authorities.

H.3.a

Licensee For an EOF that is located more than 25 miles away from the NPP site, provisions are made 

for locating NRC and offsite responders closer to the NPP site.

H.4

Licensee

An alternative facility (or facilities) is established, using currently provided and/or endorsed 

guidance, which would be accessible even if the NPP site is under threat of or experiencing 

hostile action.

H.5

Licensee

A JIC is established, and its location is identified, to coordinate communication from 

Federal, state, local, and tribal government authorities and licensee personnel with the public 

and media. 

H.6

Local

State

Tribal

Each organization establishes an emergency operations center (EOC) for use in directing 

and controlling response functions, and provides for timely EOC activation. For an EOC 

located within the plume exposure pathway EPZ, an alternate EOC, or location outside the 

plume exposure pathway EPZ, is identified to continue response functions in the event of 

an evacuation.

H.7

Licensee

Onsite monitoring systems used to initiate emergency response measures in accordance with 

the emergency classification scheme, as well as those to be used for conducting assessment, 

are identified. Monitoring systems consist of geophysical phenomena monitors, including 

meteorological, hydrologic, and seismic instrumentation; radiation monitors and sampling 

equipment; plant process monitors; and fire, toxic gas, and combustion products detectors.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 31

Number & 

Applicability Evaluation Criteria

H.8

Licensee

Provisions are made to acquire data from offsite monitoring and analysis equipment, including 

data on geophysical phenomena (e.g., meteorological, hydrologic, and seismic monitors) and 

radiological data (e.g., from FMTs, environmental dosimeters, and laboratory analyses).

H.9

Local

Licensee State

Tribal

Organizations directly responsible for offsite radiological monitoring provide for radiological 

monitoring equipment. This includes equipment that is located or stored near the NPP site, as 

well as additional equipment that may be brought to the site.

H.10

Licensee

Instrumentation is provided to obtain current meteorological information. Additional 

provisions are made to obtain representative meteorological information from other sources 

as needed by the NPP’s radiological assessment models for site-specific characterization of 

plume dispersion and transport. Meteorological information is provided to the control room, 

TSC, EOF (or backup EOF), and NRC (via ERDS).

H.11

Local

Licensee State

Tribal

Provisions are made to ensure that emergency equipment and supplies are tested, maintained, 

and available in sufficient quantities, to include reserves and replacements, when needed. 

This includes:

H.11.a

Local

Licensee State

Tribal

Identification of the organization(s) responsible for the testing and maintenance of 

emergency equipment.

H.11.b

Local

State

Tribal

Calibration and operational checks of emergency equipment per national standards or the 

manufacturer’s instructions, whichever is more frequent.

H.12

Local

Licensee State

Tribal

Emergency kits are identified by general category. Contents and quantity of each emergency 

kit are specified in the emergency plan or other document(s) referenced in the emergency 

plan.

H.13

Local

Licensee State

Tribal

Each organization identifies the location(s) for the receipt and analysis of field monitoring 

data and coordination of sample media, and identifies the organization(s) responsible for 

assessing radiological data.
SECTION II: Planning Standards and Evaluation Criteria

32 NUREG-0654/FEMA-REP-1, Rev. 2 

I: ACCIDENT ASSESSMENT 

Adequate methods, systems, and equipment for assessing and monitoring actual or potential offsite 

consequences of a radiological emergency condition are in use. 

Regulatory References: 10 CFR 50.47(b)(9); 44 CFR 350.5(a)(9)

Number & 

Applicability Evaluation Criteria

I.1

Licensee

Capabilities for performing radiological assessment for all reactor core and spent fuel pool 

sources, individually and collectively, including response to events occurring simultaneously at 

all units on the NPP site, are described. These capabilities include: 

I.1.a

Licensee

Methods for determining the magnitude and isotopic composition of an ongoing release of 

radioactive material through waterborne or airborne release pathways, or estimating these 

parameters for a potential release.

I.1.b

Licensee

A radiological assessment model for airborne releases that provides estimates of offsite 

radiation exposures and contamination levels using a dispersion model that is representative of 

the plant release points, topographical features, and meteorological regimes at the NPP site.

I.1.c

Licensee A capability to coordinate and implement in-field radiological assessments by FMTs and 

provisions to assess the data obtained.

I.2

Local

State

Tribal

Methods for assessing contamination of drinking water through liquid release pathways or 

deposition of airborne materials for NPP sites located on or near bodies of water from which 

public drinking water is drawn.

I.3

Licensee

The capability and responsibility for monitoring the following parameters, which provide input 

to radiological assessments during an emergency, are described:

1. Status of reactor fuel (e.g., no fuel damage, technical specification activity, clad failure,

core melt).

2. Status of containment integrity.

3. Leakage of radioactive material from plant systems, structures, and components.

4. Status of engineered safety features used to mitigate the release of radioactive material to

the environment (e.g., filters, containment spray, etc.).

5. Onset and duration of an actual release of radioactive material to the environment, or

estimating these parameters for a potential release.

I.4

Licensee The methods and responsibility for determining the source term present in reactor coolant, 

containment atmosphere, and spent fuel pool area atmosphere are described.

I.4.a

Licensee

The contingency arrangements to obtain and analyze highly radioactive samples from the 

reactor coolant system, containment atmosphere and sump, and spent fuel pool storage area 

are described.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 33

Number & 

Applicability Evaluation Criteria

I.5

Local

Licensee State

Tribal

The organizations responsible for FMT activities, and necessary resources, are identified.

I.6

Local

Licensee State

Tribal

Each organization, where appropriate, provides methods, equipment, and expertise to make 

timely assessments of the actual or potential magnitude and locations of any radiological 

hazards through liquid or gaseous release pathways, including development of post-plume 

PARs for comparison to current Federal guidance. 

I.7

Local

Licensee State

Tribal

The capability to detect and measure radioiodine concentrations in air in the plume exposure 

pathway EPZ as low as 10-7 μCi/cc (microcuries per cubic centimeter) under field conditions 

is described. The sample collection process takes into account the sample flow rate, collection 

efficiency of the sample media used to collect the sample, duration of the sample, counter 

efficiency, and background radiation, including interference from the presence of noble gases. 

I.8

Local

Licensee State

Tribal

A means is established for relating the various measured parameters (e.g., exposure rates, 

contamination levels, and air activity levels) to dose or dose rates. Provisions are made for 

estimating integrated dose from the projected and actual dose rates and for comparing these 

estimates with current Federal guidance. In addition, provisions are established to validate dose 

projections with field data and compare projections with other organizations also calculating 

dose projections. The detailed provisions are described in implementing procedures.

I.9

Local

Licensee State

Tribal

Arrangements to locate and track the airborne radioactive plume are made using available 

resources, which includes Federal, state, local, and tribal governments, and/or licensee 

resources. Provisions are made to characterize the plume including taking peak plume 

measurements. Identification of the plume, includes determining a measurement that is high 

enough to be reasonably above background radiation readings and sufficient enough to indicate 

submersion within the plume.

I.10

Local

Licensee State

Tribal

Organizations directly responsible for radiological monitoring, analysis, and dose projections 

describe the capability for coordinating monitoring efforts, tracking and trending data, and 

sharing analytical results with other organizations performing radiological assessment functions.
SECTION II: Planning Standards and Evaluation Criteria

34 NUREG-0654/FEMA-REP-1, Rev. 2 

J: PROTECTIVE RESPONSE 

A range of protective actions has been developed for the plume exposure pathway EPZ for emergency workers 

and the public. In developing this range of actions, consideration has been given to evacuation, sheltering, 

and, as a supplement to these, the prophylactic use of potassium iodide (KI), as appropriate. ETEs have been 

developed by applicants and licensees. Licensees shall update the ETEs on a periodic basis. Guidelines for the 

choice of protective actions during an emergency, consistent with Federal guidance, are developed and in place, 

and protective actions for the ingestion exposure pathway EPZ appropriate to the locale have been developed. 

Regulatory References: 10 CFR 50.47(b)(10); 44 CFR 350.5(a)(10)

Number & 

Applicability Evaluation Criteria

J.1

Licensee

The means and time required to alert, notify, and provide a range of protective actions for 

onsite individuals and individuals who may be in areas controlled by the licensee (including 

members of the public) during a radiological incident are described.

J.1.a

Licensee Provisions are made for evacuation of onsite non-essential personnel at an SAE or General 

Emergency (GE).

J.2

Local

Licensee State

Tribal

Provisions are made and coordinated with appropriate offsite entities for evacuation routes 

and transportation for onsite individuals to a suitable offsite location. Selection of location 

considers the potential for inclement weather, high traffic density, and potential radiological 

conditions. Alternate location(s) and route(s) are identified.

J.3

Licensee Provisions for radiological monitoring and decontamination, if necessary, of personnel 

evacuated from the NPP site are described.

J.4

Licensee

The capability to account for all individuals inside the NPP Protected Area following 

declaration of an SAE or GE is described. The names of missing individuals are ascertained 

within 30 minutes following the emergency declaration and accountability is maintained for the 

duration of the incident. This capability includes provisions for prompt accountability following 

events that may preclude completion within 30 minutes (e.g., hostile action).

J.5

Licensee Provisions are made for personal radiological protection for individuals arriving or remaining 

onsite during the incident.

J.6

Local

Licensee State

Tribal

The basis and methodology are established for the development of PARs for the responsible 

OROs, including evacuation, sheltering, and, if appropriate, radioprotective drug use, for the 

plume exposure pathway EPZ. Current Federal guidance is used.

J.7

Local

Licensee State

Tribal

A site-specific protective action strategy or decision-making process, informed by the ETE 

study, is coordinated between the licensee and OROs. Current Federal guidance is used.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 35

Number & 

Applicability Evaluation Criteria

J.8

Local

Licensee State

Tribal

The latest ETEs are:

J.8.a

Licensee Incorporated either by reference or in their entirety into the emergency plan.

J.8.b

Local

State

Tribal

Incorporated either by reference or as a summary of the latest ETE analysis into the 

emergency plan.

J.9

Local

Licensee State

Tribal

PARs are provided, in a timely manner, directly to the designated ORO(s) responsible for 

making protective action decisions (PADs) within the plume exposure pathway EPZ. 

J.10

Local

Licensee State

Tribal

Plans include maps, charts, or other information that demonstrate the following for the plume 

exposure pathway EPZ:

J.10.a

Local

Licensee State

Tribal

Evacuation routes, evacuation areas, reception centers in host areas, and shelter areas.

J.10.b

Local

Licensee State

Tribal

Population distribution around the NPP site by evacuation areas.

J.11

Local

State

Tribal

A capability for implementing protective actions based on current Federal guidance is 

established. The process ensures coordinated implementation of PADs with all appropriate 

jurisdictions. The process for implementing protective actions for the plume exposure pathway 

EPZ is described and includes the following:

J.11.a

Local

State

Tribal

Means for identifying and protecting residents who would have difficulty in implementing 

protective actions without assistance. This includes those with access and functional needs, 

transportation-dependent residents, those in special facilities, and those in correctional facilities. 

These means include notification, support, and assistance in implementing protective actions 

where appropriate.

J.11.b

Local

State

Tribal

The decision-making methodologies for use of radioprotective drugs and the provisions 

for administration to the general public, emergency workers, and institutionalized persons 

within the plume exposure pathway EPZ. This includes the means of determining quantities, 

maintaining and managing supplies, communicating recommendations, and distributing.
SECTION II: Planning Standards and Evaluation Criteria

36 NUREG-0654/FEMA-REP-1, Rev. 2 

Number & 

Applicability Evaluation Criteria

J.11.c

Local

State

Tribal

Means of evacuation informed by the updated ETEs. The evacuation routes and transportation 

resources to be utilized are described and include projected traffic capacities of evacuation 

routes and implementation of traffic control schemes during evacuation.

J.11.d

Local

State

Tribal

The locations of pre-identified reception centers beyond the boundaries of the plume exposure 

pathway EPZ, organizations responsible for managing reception centers, arrangements for 

handling service animals and pets, and provisions for radiological monitoring/decontamination.

J.11.e

Local

State

Tribal

Means for the initial and ongoing control of access to evacuated areas and organizational 

responsibilities for such control, including identifying pre-selected control points.

J.11.f

Local

State

Tribal

Identification of and means for dealing with potential impediments to the use of evacuation 

routes (e.g., seasonal impassability of roads) and contingency measures. The resources available 

to clear impediments and responsibility for re-routing traffic, as necessary, are described.

J.11.g

Local

State

Tribal

Identification of and means to implement precautionary protective actions (e.g., actions taken at 

an SAE).

J.12

Local

State

Tribal

Protective actions to be used for the ingestion exposure pathway EPZ are specified, including 

the methods for protecting the public from consumption of contaminated foodstuffs, and are 

based on current Federal guidance. 

J.13

Local

State

Tribal

The means for registering, monitoring, and decontaminating evacuees, service animals, pets, 

vehicles, and possessions at reception centers in host areas are described. The personnel and 

equipment available are capable of monitoring 20 percent of the plume exposure pathway EPZ 

population, including transients, assigned to each facility within a 12-hour period.

J.14

Local

State

Tribal

General plans for the removal or continued exclusion of individuals from restricted areas are 

developed. Relocation plans include:

J.14.a

Local

State

Tribal

Process for implementing current Federal guidance for relocation.

J.14.b

Local

State

Tribal

Means to identify and determine the boundaries of relocation areas, including a buffer zone.

J.14.c

Local

State

Tribal

Prioritization of relocation based on projected dose to an individual and the timeframe for 

relocation.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 37

Number & 

Applicability Evaluation Criteria

J.14.d

Local

State

Tribal

Control of access to and egress from relocation areas and security provisions for evacuated areas.

J.14.e

Local

State

Tribal

Contamination control during relocation.

J.14.f

Local

State

Tribal

Means for coordinating and providing assistance during relocation.
SECTION II: Planning Standards and Evaluation Criteria

38 NUREG-0654/FEMA-REP-1, Rev. 2 

K: RADIOLOGICAL EXPOSURE CONTROL 

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

The means for controlling radiological exposures shall include exposure guidelines consistent with EPA 

Emergency Worker and Lifesaving Activity Protective Action Guides. 

Regulatory References: 10 CFR 50.47(b)(11); 44 CFR 350.5(a)(11)

Number & 

Applicability Evaluation Criteria

K.1

Licensee The radiation protection controls for emergency workers to be implemented during 

emergencies are described. These controls address the following aspects:

K.1.a

Licensee Onsite emergency exposure guidelines for emergency workers consistent with their assigned 

duties and current Federal guidance and the conditions under which the guidelines apply.

K.1.b

Licensee

The capability to evaluate emergency worker dose (i.e., the sum of the effective dose equivalent 

and the committed effective dose equivalent) at the time of exposure when direct measurement 

is not feasible.

K.1.c

Licensee The capability to monitor and assess the radiation doses received by emergency workers for the 

duration of the incident.

K.1.d

Licensee The capability to implement onsite contamination control measures.

K.1.e

Licensee The capability to decontaminate emergency workers, equipment, and vehicles.

K.1.f

Licensee

Appropriate radiation protection briefings for repair teams that are being dispatched into the 

plant and FMTs being sent onsite and offsite, the scope of which is consistent with the expected 

risk to the team.

K.1.g

Licensee The process for NPP site access and dosimetry issuance to personnel from OROs arriving to 

assist with the onsite response. 
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 39

Number & 

Applicability Evaluation Criteria

K.2

Local

Licensee State

Tribal

Individual(s) who can authorize personnel to receive radiation doses in excess of the 

occupational dose limits in accordance with the minimum standards set forth in 10 CFR Part 

20 or 29 CFR 1910.1096, as applicable to the organization, are identified by title/position. Such 

authorizations are documented.

K.2.a

Licensee The process for allowing onsite volunteers to receive radiation exposures in the course of 

carrying out lifesaving and other emergency activities is described. 

K.2.b

Local

State

Tribal

The process for authorizing emergency workers to incur exposures that may result in doses in 

excess of the current Federal guidance is described.

K.3

Local

State

Tribal

The capability to determine the doses received by emergency workers involved in any 

commercial NPP radiological incident is described. Each organization makes provisions for 

distribution of direct-reading dosimeters (DRDs) and permanent record dosimeters (PRDs).

K.3.a

Local

State

Tribal

Provisions to ensure that DRDs are read at designated intervals and dose records are 

maintained for emergency workers are described. 

K.4

Local

State

Tribal

Action levels for determining the need for decontamination are specified and the means for 

radiological decontamination are established for emergency workers and the general public, as 

well as equipment, vehicles, and personal possessions. The means for disposal of contaminated 

waste created by decontamination efforts are also established.
SECTION II: Planning Standards and Evaluation Criteria

40 NUREG-0654/FEMA-REP-1, Rev. 2 

L: MEDICAL AND PUBLIC HEALTH SUPPORT 

Arrangements are made for medical services for contaminated injured individuals.

Regulatory References: 10 CFR 50.47(b)(12); 44 CFR 350.5(a)(12)

Number & 

Applicability Evaluation Criteria

L.1

Local

State

Tribal

Arrangements are established with primary and backup hospitals (one hospital is located 

outside the plume exposure pathway EPZ) and medical services. These facilities have the 

capability for evaluation of radiation exposure and uptake. The persons providing these 

services are adequately trained and prepared to handle contaminated, injured emergency 

workers and members of the general public. 

L.2

Licensee

Arrangements for the medical treatment of contaminated, injured onsite personnel and those 

onsite personnel who have received significant radiation exposures and/or significant uptakes 

of radioactive material are described. These arrangements include the following components:

L.2.a

Licensee An onsite first aid capability with adequate medical equipment and supplies.

L.2.b

Licensee Primary and backup offsite medical facilities.

L.2.c

Licensee

Radiological controls capability, including the isolation of contamination, assessment of 

contamination levels, radiation exposure monitoring for medical facility staff, collection of 

contaminated waste, and decontamination of treatment areas.

L.2.d

Licensee Provisions to evaluate for radiological contamination either prior to transport to a medical 

facility or after arrival.

L.2.e

Licensee Contact information for facilities capable of treating overexposure to radioactive material.

L.3

Local

State

Tribal

Supplemental lists are developed that indicate the location of the closest public, private, and 

military hospitals and other emergency medical facilities within the state or contiguous states 

considered capable of providing medical support for any contaminated, injured individual.

L.4

Local

Licensee State

Tribal

Each organization arranges for the transportation of contaminated, injured individuals and the 

means to control contamination while transporting victims of radiological incidents to medical 

support facilities and the decontamination of transport vehicle following use.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 41

M: RECOVERY, REENTRY, AND POST-ACCIDENT 

OPERATIONS 

General plans for recovery and reentry are developed.

Regulatory References: 10 CFR 50.47(b)(13); 44 CFR 350.5(a)(13)

Number & 

Applicability Evaluation Criteria

M.1

Local

Licensee State

Tribal

General recovery, reentry, and return plans for radiological incidents are developed, as 

appropriate. These plans address reoccupancy, as appropriate. The plans should include:

M.1.a

Licensee Provisions for allowing reentry into areas controlled by the licensee. Reentry planning includes 

evaluation of the controls necessary for reentry under post-incident conditions.

M.1.b

Local

State

Tribal

Provisions for reentry into restricted areas, including exposure and contamination control, 

as appropriate. A method for coordinating and implementing decisions regarding temporary 

reentry into restricted areas is addressed.

M.2

Licensee

Individuals who will comprise the licensee’s recovery organization are identified by title/

position. The recovery organization includes technical personnel with responsibilities to 

develop, evaluate, and direct recovery and reentry operations.

M.3

Licensee The process for initiating recovery actions is described and includes the criteria for 

terminating the emergency.

M.4

Local

State

Tribal

The process for initiating recovery actions is described and includes provisions to ensure 

continuity during transfer of responsibility between phases. The chain of command is 

established.

M.5

Local

State

Tribal

The framework for relaxing protective actions and allowing for return are described. 

Prioritization is given to restoring access to vital services and facilities.

M.6

Local

State

Tribal

The organization(s) responsible for developing and implementing cleanup operations offsite 

is identified.
SECTION II: Planning Standards and Evaluation Criteria

42 NUREG-0654/FEMA-REP-1, Rev. 2 

Number & 

Applicability Evaluation Criteria

M.7

Local

Licensee State

Tribal

Provisions for developing and modifying sampling plans are established. Provisions for 

laboratory analysis of samples are included in the plan.

M.8

Local

State

Tribal

A method for periodically conducting radiological assessments of public exposure is established.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 43

N: EXERCISES AND DRILLS 

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

periodic drills are (will be) conducted to develop and maintain key skills, and deficiencies identified as a 

result of exercises or drills are (will be) corrected.

Regulatory References: 10 CFR 50.47(b)(14); 44 CFR 350.5(a)(14)

Number & 

Applicability Evaluation Criteria

N.1

Local

Licensee State

Tribal

Exercises and drills are conducted, observed, and critiqued/evaluated as set forth in NRC and 

FEMA regulations and guidance.

N.1.a

Local

Licensee State

Tribal

The process to critique/evaluate exercises and drills is described.

N.1.b

Local

Licensee State

Tribal

The process used to track findings and associated corrective actions identified by drill and 

exercise critiques/evaluations, including their assignment and completion, is described.

N.1.c

Licensee A drill or exercise starts between 6:00 p.m. and 4:00 a.m. at least once every eight-year 

exercise cycle.

N.1.d

Licensee A drill or exercise is unannounced at least once every eight-year exercise cycle.

N.2

Local

Licensee State

Tribal

Exercises are designed to enable the response organizations’ demonstration of the key skills 

and capabilities necessary to implement the emergency plan. The following two types of 

exercises are conducted at the frequency noted:

N.2.a

Local

Licensee State

Tribal

Plume Exposure Pathway Exercises. Plume exposure pathway exercises are conducted 

biennially. These exercises include mobilization of licensee and state, local, and tribal 

government personnel and resources and implementation of emergency plans to demonstrate 

response capabilities within the plume exposure pathway EPZ.

N.2.b

Local

State

Tribal

Ingestion Exposure Pathway Exercises. Ingestion exposure pathway exercises are conducted 

at least once every eight years. These exercises include mobilization of state, local, and tribal 

government personnel and resources and implementation of emergency plans to demonstrate 

response capabilities to a release of radioactive materials requiring post-plume phase protective 

actions within the ingestion exposure pathway EPZ.

N.3

Local

Licensee State

Tribal

Exercise Scenario Elements. During each eight-year exercise cycle, biennial, evaluated 

exercise scenario content is varied to provide the opportunity to demonstrate the key skills and 

capabilities necessary to respond to the following scenario elements:
SECTION II: Planning Standards and Evaluation Criteria

44 NUREG-0654/FEMA-REP-1, Rev. 2 

Number & 

Applicability Evaluation Criteria

N.3.a

Local

Licensee State

Tribal

Hostile Action-Based (HAB). Hostile action directed at the NPP site. This scenario element 

may be combined with either a radiological release scenario or a no/minimal radiological 

release scenario, but a no/minimal radiological release scenario should not be included in 

consecutive HAB exercises at an NPP site.

N.3.b

Local

Licensee State

Tribal

Rapid Escalation. An initial classification of, or rapid escalation to, an SAE or GE.

N.3.c

Local

Licensee State

Tribal

No/Minimal Release of Radioactive Materials. No release or an unplanned minimal release 

of radioactive material which does not require public protective actions. This scenario element 

is used only once during each eight-year exercise cycle.

N.3.c.1

Local

Licensee State

Tribal

The licensee is required to demonstrate the ability to respond to a no/minimal radiological 

release scenario. State, local, and tribal government response organizations have the option, 

and are encouraged, to participate jointly in this demonstration. If the offsite organizations 

elect not to participate in the licensee’s required minimal or no release exercise, the OROs will 

still be obligated to meet the exercise requirements as specified in 44 CFR 350.9.

N.3.c.2

Local

Licensee State

Tribal

When planning for a joint no/minimal radiological release exercise, affected state, local, and 

tribal government jurisdictions, the licensee, and FEMA will identify offsite capabilities that 

may still need to be evaluated and agree upon appropriate alternative evaluation methods to 

satisfy FEMA’s biennial criteria requirements. Alternative evaluation methods that could be 

considered during the extent of play negotiations include expansion of the exercise scenario, 

out of sequence activities, plan reviews, staff assistance visits, or other means as described in 

FEMA guidance.

N.3.d

Resource Integration. Integration of offsite resources with onsite response.

N.3.e

10 CFR 50 .54(hh)(2) Strategies. Demonstration of the use of equipment, procedures, and 

strategies developed in compliance with 10 CFR 50.54(hh)(2).

N.4

Local

Licensee State

Tribal

Drills are designed to enable an organization’s demonstration and maintenance of key skills 

and capabilities necessary to fulfill functional roles. Drills include, but are not limited to, the 

following at their noted frequencies:

N.4.a

Licensee

Emergency Medical Drills. Emergency medical drills are conducted annually. These drills 

involve a simulated, contaminated individual and contain provisions for participation by 

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

N.4.b

Local

State

Tribal

Medical Services Drills. Medical services drills are conducted annually at each medical 

facility designated in the emergency plan. These drills involve a simulated, contaminated 

emergency worker and/or member of the general public and contain provisions for participation 

by support services agencies (i.e., ambulance and offsite medical treatment facility).

Local

Licensee State

Tribal

Licensee
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 45

Number & 

Applicability Evaluation Criteria

N.4.c

Local

State

Tribal

Laboratory Drills. Laboratory drills are conducted biennially at each laboratory designated in 

the emergency plan. These drills involve demonstration of handling, documenting, provisions 

for record keeping, and analyzing air, soil, and food samples, as well as quality control and 

quality assurance processes. These drills also involve an assessment of the laboratory’s 

capacity to handle daily and weekly samples and the volume of samples that can be processed 

daily or weekly.

N.4.d

Local

Licensee State

Tribal

Environmental Monitoring Drills. Environmental monitoring drills are conducted annually. 

These drills include direct radiation measurements in the environment, collection and analysis 

of all sample media (e.g., water, vegetation, soil, and air), and provisions for record keeping.

N.4.e

Local

State

Tribal

Ingestion Pathway and Post-Plume Phase Drills. Ingestion pathway and post-plume phase 

drills are conducted biennially. These drills involve sample plan development, analysis of lab 

results from samples, assessment of the impact on food and agricultural products, protective 

decisions for relocation, and food/crop embargos.

N.4.f

Local

Licensee State

Tribal

Communications Drills. Communications amongst and between emergency response 

organizations, including those at the state, local, and Federal level, the FMTs, and nuclear 

facility within both the plume and ingestion exposure pathway EPZs, are tested at the 

frequencies determined in evaluation criterion F.3. Communications drills include the aspect 

of understanding the content of messages and can be done in conjunction with the testing 

described in evaluation criterion F.3.

N.4.g

Licensee

Post-Accident Sampling Drills. Post-accident sampling drills are conducted annually. These 

drills address capabilities including analysis of liquid and containment atmosphere samples 

with simulated elevated radiation levels. This criterion is not applicable if the NPP unit(s) does 

(do) not have licensing basis requirements for post-accident sampling.

N.4.h

Licensee Off-Hours Report-In Drills. Off-hours report-in drills are conducted biennially and are 

unannounced.

N.4.i

Licensee

Off-Hours Call-In Drills. Off-hours call-in drills are conducted quarterly, such that each ERO 

member’s normally expected response time is assessed at least biennially based on call-in drill 

responses or an alternate means for determining response time. Some drills are unannounced. 

N.4.j

Licensee

Onsite Personnel Protective Action Drills. Onsite personnel protective action drills are 

conducted during every eight-year exercise cycle. These drills demonstrate the NPP site’s ability 

to implement and coordinate protective actions for onsite personnel during hostile action.

N.4.k

Licensee

Aircraft Threat/Attack Response Drills. Aircraft threat/attack response drills are conducted 

during every eight-year exercise cycle. These drills demonstrate the use of procedures and 

protective measures developed for responding to hostile action involving an aircraft threat 

or attack.
SECTION II: Planning Standards and Evaluation Criteria

46 NUREG-0654/FEMA-REP-1, Rev. 2 

O: RADIOLOGICAL EMERGENCY RESPONSE TRAINING 

Radiological emergency response training is provided to those who may be called on to assist in an emergency. 

Regulatory References: 10 CFR 50.47(b)(15); 44 CFR 350.5(a)(15)

Number & 

Applicability Evaluation Criteria

O.1

Local

Licensee State

Tribal

Each organization ensures the training of emergency responders and other appropriate 

individuals with an operational role described in the emergency plan. Initial training and at 

least annual retraining are provided. 

O.1.a

Licensee Site-specific emergency response training is developed and conducted for those offsite 

organizations that may be called upon to provide onsite assistance in the event of an emergency. 

O.2

Licensee

The ERO training program consists of learning objectives that are used to develop and 

maintain key skills. This includes a systematic analysis of jobs and tasks to be performed from 

which learning objectives are derived.

O.2.a

Licensee The ERO training program is reviewed at least annually and revised as necessary. 

O.2.b

Licensee Training sessions that provide performance opportunities to develop, maintain, or demonstrate 

key skills are critiqued in order to identify weak or deficient areas that need correction.
SECTION II: Planning Standards and Evaluation Criteria

NUREG-0654/FEMA-REP-1, Rev. 2 47

P: RESPONSIBILITY FOR THE PLANNING EFFORT: 

DEVELOPMENT, PERIODIC REVIEW, AND 

DISTRIBUTION OF EMERGENCY PLANS 

Responsibilities for plan development and review and for distribution of emergency plans are established, and 

planners are properly trained.

Regulatory References: 10 CFR 50.47(b)(16); 44 CFR 350.5(a)(16)

Number & 

Applicability Evaluation Criteria

P.1

Local

Licensee State

Tribal

The training program, including initial training and periodic retraining, of individuals 

responsible for the planning effort is described.

P.2

Local

Licensee State

Tribal

The individual with the overall authority and responsibility for radiological emergency 

planning is identified by title/position.

P.3

Local

Licensee State

Tribal

The individual(s) with the responsibility for the development, maintenance, review, updating, 

and distribution of emergency plans, as well as the coordination of these plans with other 

response organizations, is identified by title/position.

P.4

Local

Licensee State

Tribal

The process for reviewing annually, and updating as necessary, the emergency plan, 

implementing procedures, maps, charts, and agreements is described. The process includes 

a method for recording changes made to the documents and, when appropriate, how those 

changes are retained.

P.5

Local

Licensee State

Tribal

Provisions for distributing the emergency plan and implementing procedures to all 

organizations and appropriate individuals with responsibility for implementation of the 

plan/procedures are described.

P.6

Local

Licensee State

Tribal

A listing of annexes, appendices, and supporting plans and their originating agency is included 

in the emergency plan.

P.7

Local

Licensee State

Tribal

An appendix containing a listing by title of the procedures required to maintain and implement 

the emergency plan is included. The listing includes the section(s) of the emergency plan to be 

implemented by each procedure.

P.8

Local

Licensee State

Tribal

A table of contents and a cross-reference index to each of the NUREG-0654/FEMA-REP-1, 

Rev. 2 evaluation criteria are included. The evaluation criteria that do not apply are identified.
SECTION II: Planning Standards and Evaluation Criteria

48 NUREG-0654/FEMA-REP-1, Rev. 2 

Number & 

Applicability Evaluation Criteria

P.9

Licensee Provisions for addressing the requirements of 10 CFR 50.54(t) are described.

P.10

Local

Licensee State

Tribal

The administrative process for the periodic review and updating of contact information 

identified in the emergency plan and implementing procedures is described.

P.11

Licensee The process for entering EP program-related issues that could reduce the effectiveness of the 

emergency plan into the site-wide corrective action program is described.

P.12

Licensee The process to evaluate changes in plant configuration for their impact on the effectiveness of 

the emergency plan is described.
NUREG-0654/FEMA-REP-1, Rev. 2 49

SECTION III: Resources

SECTION III: Resources

AUTHORITIES AND REFERENCES

FEMA-Specific Legislative Authorities

 NRC Authorization Acts of 1980 (Pub. L. No. 96-295), 1982–1983 (Pub. L. No. 97-415), and 1984–1985 

(Pub. L. No. 98-553).

 Robert T. Stafford Disaster Relief and Emergency Assistance Act, Pub. L. No. 93-288 (1974) (codified as 

amended at 42 U.S.C. §§ 5121-5207).

 Homeland Security Act of 2002, Pub. L. No. 107-296 (2002) (codified as amended at 6 U.S.C. § 101 et seq.).

 Security and Accountability for Every Port Act of 2006, Pub. L. No. 109-347 (2006).

 U.S. Department of Veterans Affairs and U.S. Department of Housing and Urban Development, and 

Independent Agencies Appropriations for 1999, Pub. L. No. 105-276 (1999).

 Post-Katrina Emergency Management Reform Act of 2006, Pub. L. No. 109-295, §§ 641-654 (2006) 

(codified as amended at 6 U.S.C. §§ 741-754).

 Reorganization Plan No. 3 of 1978. 

NRC-Specific Legislative Authorities

 Atomic Energy Act of 1954, as amended (Public Law 83-703).

 Energy Reorganization Act of 1974, as amended (Public Law 93-438).

 Reorganization Plan No. 1 of 1980.

 Energy Policy Act of 2005 (Public Law 109-58).

 NRC Authorization Acts of 1980 (Public Law 96-295), 1982–1983 (Public Law 97-415), and 1984–1985 

(Public Law 98-553).

Executive Orders/Presidential Directives and Documents

 Executive Order 12127, as amended.

 Executive Order 12148, as amended.

 Executive Order 12241, as amended.

 Executive Order 12657, as amended.

 Executive Order 13175.

 Homeland Security Presidential Directive 5, “Management of Domestic Incidents” (HSPD-5) 

(February 28, 2003). 

 Presidential Policy Directive 8, “National Preparedness” (PPD-8) (March 30, 2011). 

 President Jimmy Carter’s Remarks Announcing Actions in Response to the Kemeny Commission Report 

(December 7, 1979).

 Presidential Memorandum on Tribal Consultation of November 5, 2009 (74 Fed. Reg. 57881, Nov. 9, 

2009).
50 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Code of Federal Regulations

 NRC’s regulations in Title 10, Chapter I, Parts 20, 50 and 52 of the CFR.

 FEMA’s regulations in Title 44, Chapter I, Parts 350–354 of the CFR.

 10 CFR 61.71, “State and Tribal government consultation.”

 10 CFR 73.54, “Protection of digital computer and communication systems and networks.”

 29 CFR 1910.1096, “Ionizing radiation.”

NRC Documents 

 Management Directive 8.4, “Management of Backfitting, Forward Fitting, Issue Finality, and Information 

Requests,” September 2019, ADAMS Accession No. ML18093B087.

 NSIR/DPR-ISG-01, “Interim Staff Guidance Emergency Planning for Nuclear Power Plants,” 

November 2011, ADAMS Accession No. ML113010523.

 NUREG-75/014, “Reactor Safety Study – An Assessment of Accident Risks in U.S. Commercial Nuclear 

Power Plants,” (WASH-1400), October 1975, (App III, IV) ADAMS Accession No. ML070610293, 

(App V) ML070530533, (App VI) ML070600389, (App VII-X) ML070600376. 

 NUREG-0396, EPA 520/1-78-016, “Planning Basis for the Development of State and Local Government 

Radiological Emergency Response Plans in Support of Light Water Nuclear Power Plants,” December 1978, 

ADAMS Accession No. ML051390356. 

 NUREG-0800, “Standard Review Plan for the Review of Safety Analysis Reports for Nuclear Power 

Plants,” Chapter 13.3, “Emergency Planning,” Revision 3, March 2007, ADAMS Accession No. 

ML063410307. 

 NUREG-1150, “Severe Accident Risks: An Assessment for Five U.S. Nuclear Power Plants,” 1990, 

(Vols. 1, 2, 3, and Appendices), ADAMS Accession No. ML040140729.

 NUREG-1301, “Offsite Dose Calculation Manual Guidance: Standard Radiological Effluent Controls for 

Pressurized Water Reactors,” April 1991, ADAMS Accession No. ML091050061.

 NUREG-1302, “Offsite Dose Calculation Manual Guidance: Standard Radiological Effluent Controls for 

Boiling Water Reactors,” April 1991, ADAMS Accession No. ML091050059.

 NUREG-1409, “Backfitting Guidelines,” July 1990, ADAMS Accession No. ML032230247. 

 NUREG-1935, “State-of-the-Art Reactor Consequence Analyses (SOARCA) Report,” November 2012, 

ADAMS Accession No. ML12332A057 (Part 1) and ML12332A058 (Part 2).

 NUREG-1953, “Confirmatory Thermal-Hydraulic Analysis to Support Specific Success Criteria in the 

Standardized Plant Analysis Risk Models – Surry and Peach Bottom,” May 2011, ADAMS Accession 

No. ML11256A023.

 NUREG/CR-7002, “Criteria for Development of Evacuation Time Estimate Studies,” Revision 0, 

November 2011, ADAMS Accession No. ML113010515. 

 NUREG/CR-7032, “Developing an Emergency Risk Communication (ERC)/Joint Information Center (JIC) 

Plan for a Radiological Emergency,” Revision 0, February 2011, ADAMS Accession No. ML110490119. 

 NUREG/CR-7033, “Guidance on Developing Effective Radiological Risk Communication Messages: 

Effective Message Mapping and Risk Communication with the Public in Nuclear Plant Emergency 

Planning Zones,” Revision 0, February 2011, ADAMS Accession No. ML110490120.

 Regulatory Guide 1.101, “Emergency Response Planning and Preparedness for Nuclear Power Reactors,” 

Various Revisions, (Revision 3) ADAMS Accession No. ML003740302, (Revision 4) ML032020276, 

(Revision 5) ML050730286. 
NUREG-0654/FEMA-REP-1, Rev. 2 51

SECTION III: Resources

 Regulatory Guide 1.219, “Guidance on Making Changes to Emergency Response Plans for Nuclear Power 

Reactors,” Revision 0, November 2011, ADAMS Accession No. ML102510626. 

 SECY-03-0165, “Evaluation of Nuclear Power Reactor Emergency Preparedness Planning Basis Adequacy 

in the Post-9/11 Threat Environment,” September 22, 2003, ADAMS Accession No. ML031960020 (not 

publicly available). 

 SECY-06-0200, “Results of the Review of Emergency Preparedness Regulations and Guidance,” 

September 20, 2006, ADAMS Accession No. ML061910707. 

 SECY-08-0024, “Delegation of Commission Authority to Staff to Approve or Deny Emergency Plan 

Changes That Represent a Decrease in Effectiveness,” February 25, 2008, ADAMS Accession No. 

ML072900547.

 Staff Requirements Memorandum – SECY-08-0024, “Delegation of Commission Authority to Staff to 

Approve or Deny Emergency Plan Changes That Represent a Decrease in Effectiveness,” May 19, 2008, 

ADAMS Accession No. ML081400510. 

 SECY-12-0095, “Tier 3 Program Plans and 6-Month Update in Response to Lessons Learned from 

Japan’s March 11, 2011, Great Tohoku Earthquake and Subsequent Tsunami,” July 13, 2012, ADAMS 

Accession No. ML12208A208 (redacted). 

 “Planning Basis for Emergency Responses to Nuclear Power Plant Accidents,” (44 FR 61123, 

October 23, 1979).

 Commission Decision Regarding the Long Island Lighting Company (Shoreham Nuclear Power Station, 

Unit 1), CLI-87-12, 26 NRC 383 (1987).

DHS/FEMA Documents

 FEMA Publication 1 (Pub 1), April 2016.

 FEMA REP Program Manual, current edition.

 FEMA Tribal Policy (FP 305-111-1), December 27, 2016.

 FEMA Tribal Consultation Policy (FP 101-002-02), July 3, 2019.

 National Preparedness System (NPS), November 2011.

 National Preparedness Goal, second edition, September 2015.

 Comprehensive Preparedness Guide (CPG) 101, “Developing and Maintaining Emergency Operations 

Plans,” Version 2.0, November 2010.

 Comprehensive Preparedness Guide (CPG) 201, “Threat and Hazard Identification and Risk Assessment 

(THIRA) and Stakeholder Preparedness Review (SPR) Guide,” third edition, May 2018.

 National Incident Management System (NIMS), third edition, October 2017.

 Homeland Security Exercise and Evaluation Program (HSEEP), April 2013. 

 National Response Framework (NRF), third edition, June 2016. 

 National Response Framework (NRF), Emergency Support Function (ESF) #15 – External Affairs Annex, 

June 2016. 

 National Response Framework (NRF), Public Affairs Support Annex, May 2013. 

 Nuclear/Radiological Incident Annex (NRIA) to the Response and Recovery Federal Interagency 

Operational Plans (FIOPs), October 2016. 

 National Response Framework (NRF), Mass Evacuation Incident Annex, June 2008. 

 National Disaster Recovery Framework (NDRF), second edition, June 2016.
52 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Joint NRC/FEMA Documents

 FEMA/NRC Memorandum of Understanding (MOU), December 7, 2015 (81 FR 15755, March 24, 2016), 

ADAMS Accession No. ML15344A371.

 NUREG-0654/FEMA-REP-1, Rev. 1, “Criteria for Preparation and Evaluation of Radiological Emergency 

Response Plans and Preparedness in Support of Nuclear Power Plants,” November 1980, ADAMS 

Accession No. ML040420012.

 NUREG-0654/FEMA-REP-1, Rev. 1, Addenda, “Criteria for Preparation and Evaluation of Radiological 

Emergency Response Plans and Preparedness in Support of Nuclear Power Plants,” March 2002, ADAMS 

Accession No. ML021050240.

 NUREG-0654/FEMA-REP-1, Rev. 1, Supplement 1, “Criteria for Preparation and Evaluation of 

Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants – Criteria 

for Utility Offsite Planning and Preparedness,” Final Report, September 1988, ADAMS Accession No. 

ML083180169.

 NUREG-0654/FEMA-REP-1, Rev. 1, Supplement 2, “Criteria for Preparation and Evaluation of 

Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants – Criteria 

for Emergency Planning in an Early Site Permit Application,” Draft Report for Comment, April 1996, 

ADAMS Accession No. ML050130188.

 NUREG-0654/FEMA-REP-1, Rev. 1, Supplement 3, “Criteria for Preparation and Evaluation of 

Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants – 

Guidance for Protective Action Strategies,” October 2011, ADAMS Accession No. ML113010596.

 NUREG-0654/FEMA-REP-1, Rev. 1, Supplement 4, “Criteria for Preparation and Evaluation of 

Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants – 

Criteria for National Preparedness Initiative Integration, Exercise Enhancement, and Backup Alert and 

Notification Systems,” October 2011.

Other Federal Agency Guidance

 EPA-400/R-17/001, “PAG Manual: Protective Action Guides and Planning Guidance for Radiological 

Incidents,” January 2017.

 EPA-400-R-92-001, “Manual of Protective Action Guides and Protective Actions for Nuclear Incidents,” 

May 1992.
NUREG-0654/FEMA-REP-1, Rev. 2 53

SECTION III: Resources

GLOSSARY

This Glossary serves as a practical and easy-to-use guide for terminology utilized within this document. The 

terms within this Glossary represent jointly agreed-upon definitions that may be used as a resource within the 

context of this document.

Access and functional needs: individual 

circumstances requiring assistance, accommodation, 

or modification for mobility, communication, 

transportation, safety, health maintenance, etc., due 

to any situation that limits an individual’s ability to 

take action in an emergency.

Alert: an ECL indicating that events are in progress 

or have occurred which involve an actual or potential 

substantial degradation of the level of safety of the 

plant or a security event that involves probable life 

threatening risk to site personnel or damage to site 

equipment because of hostile action. Any releases 

are expected to be limited to small fractions of the 

EPA PAG exposure levels.

Alert and notification: the process of providing a 

warning signal to the public at risk, indicating the 

need to seek additional information regarding an 

emergency event in progress (alert), followed by 

informing the public about the nature of the event 

and any protective actions (notification). 

Alert and notification system (ANS): the system 

used to alert and notify the public, including the 

physical means (equipment and methods) and 

administrative means (organizational responsibility 

and interaction of responsible organizations for alert 

and notification).

Annual: every calendar year, except in cases relevant 

to 10 CFR 50.54(t) where annual means 365 days.

Applicant: an entity that has applied for an NPP 

construction permit/operating license under 10 CFR 

Part 50 or 10 CFR Part 52. 

Biennial: every two calendar years.

Buffer zone: an area adjacent to a restricted area 

where residents may temporarily re-enter, but for 

which protective measures are recommended to 

minimize exposure to radiation. The buffer zone 

serves as an area in which response and recovery 

efforts are staged and coordinated, and provides an 

area to conduct decontamination efforts to prevent 

the spread of contamination to unrestricted areas. 

Combined license (COL): a combined construction 

permit and operating license with conditions for a 

nuclear power facility issued under Subpart C of 

10 CFR Part 52.

Command and control: management of emergency 

response functions within a particular context (e.g., 

an EOC) through leadership and use of authority.

Commercial nuclear power plant (NPP): a facility 

licensed by the NRC to use a nuclear reactor to 

produce electricity. 

Committed effective dose equivalent: the sum of 

the products of the weighting factors applicable to 

each of the body organs or tissues that are irradiated 

and the committed dose equivalent to these organs 

or tissues.

Concept of operations: delineation of an 

organization’s roles and responsibilities and how 

the organization will function to accomplish those 

responsibilities. 

Containment: a physical structure surrounding 

a reactor that is designed to prevent or control the 

release of radioactive material.

Contamination: undesirable radioactive material 

(with a potentially harmful effect) that is either 

airborne or deposited in (or on the surface of) 

structures, objects, soil, water, or living organisms 

(people, animals, or plants) in a concentration that 

may harm people, equipment, or the environment.

Continuous: action carried out without stopping or 

interruption.

Control room: the area in an NPP from which most 

of the plant power production and emergency safety 

equipment can be operated remotely.

Corrective action: a concrete, actionable step 

that is intended to resolve EP program gaps and 

shortcomings experienced in drills, exercises, or 

actual events.
54 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Curie (Ci): a unit used to measure the intensity 

of radioactivity in a sample of material, equal to 

37 billion (3.7 x 1010) disintegrations per second. 

Decontamination: a process used to reduce, remove, 

or neutralize radiological, chemical, or biological 

contamination to reduce the risk of exposure. 

Direct-reading dosimeter (DRD): a small ionization 

detection instrument that indicates radiation exposure 

directly and can be read in real time by the user. Also 

referred to as a “pocket dosimeter.”

Dose rate: the radiation dose delivered per unit of 

time, measured for example in rem per hour. 

Dosimeter: a small portable instrument (such as 

a film badge, thermoluminescent dosimeter, or 

electronic dosimeter) used to measure and record the 

total accumulated personal dose of ionizing radiation. 

Dosimetry: the theory and application of the 

principles and techniques involved in measuring and 

recording doses of ionizing radiation.

Drill: a coordinated, supervised activity usually 

employed to validate a specific operation or 

function in a single agency or organization. Drills 

are commonly used to provide training on new 

equipment, develop or validate new policies or 

procedures, or practice and maintain current skills.

Early site permit (ESP): a permit through which 

the NRC addresses site safety, environmental 

protection, and EP issues, in order to approve one 

or more proposed sites for a nuclear power facility, 

independent of a specific nuclear plant design or an 

application for a construction permit or COL. An 

ESP is valid for 10 to 20 years, but can be renewed 

for an additional 10 to 20 years.

Emergency action level (EAL): a pre-determined, 

site-specific, observable threshold for an initiating 

condition that, when met or exceeded, places the 

plant in a given ECL.

Emergency classification level (ECL): one of a 

set of names or titles established by the NRC for 

grouping off-normal events or conditions according 

to potential or actual effects or consequences and 

resulting onsite and offsite response actions. The 

four ECLs used for commercial NPPs, in ascending 

order of severity, are: Notification of Unusual Event 

(NOUE), Alert, SAE, and GE. 

Emergency operations center (EOC): a facility 

that is the primary base of emergency operations for 

an ORO in a radiological incident.

Emergency operations facility (EOF): a support 

facility for the management of overall licensee 

emergency response (including coordination with 

Federal, state, local, and tribal government officials), 

coordination of radiological and environmental 

assessments, and determination of recommended 

public protective actions.

Emergency planning zone (EPZ): as defined in 10 

CFR 50.47(c)(2) (45 FR 55409, August 19, 1980) and 

44 CFR 350.7(b) (48 FR 44338, September 28, 1983).

Emergency Response Data System (ERDS): a 

direct near real-time electronic data link between 

the licensee’s onsite computer system and the NRC 

Operations Center that provides for the automated 

transmission of a limited data set of selected plant 

parameters.

Emergency response network: generic term used 

to refer to communications systems, including 

hardwired and wireless telephone networks, 

broadcast and cable television, radios, mobile radios, 

satellite systems, and increasingly the Internet. 

Emergency response organization (ERO):

the personnel assigned to perform tasks and 

activities associated with implementation of 

a licensee’s emergency plan for coping with 

radiological incidents.

Emergency worker (offsite): individual who has 

an essential mission to protect the health and safety 

of the public who could be exposed to ionizing 

radiation from the plume or from its deposition. 

Emergency workers may or may not be individuals 

normally exposed to ionizing radiation as a part 

of their occupations. Ultimately, state and local 

authorities designate what categories of workers 

are classified as emergency workers. Emergency 

workers may include law enforcement personnel, 

radiation monitoring personnel, firefighters, health 

services personnel, emergency operations center 

personnel, and animal care specialists.
NUREG-0654/FEMA-REP-1, Rev. 2 55

SECTION III: Resources

Environmental Protection Agency (EPA): the 

mission of the EPA is to protect human health 

and the environment. The EPA is responsible for 

coordinating Federal environmental response and 

cleanup for nuclear/radiological incidents. 

Evacuation time estimate (ETE): a calculation of 

the time it would take to evacuate the public within 

the plume exposure pathway EPZ under emergency 

conditions.

Exclusion area: the area surrounding the reactor 

where the licensee has the authority to determine 

all activities, including exclusion or removal of 

personnel and property. 

Exercise: an instrument to train for, assess, practice, 

and improve performance in prevention, protection, 

mitigation, response, and recovery capabilities. 

Exercises can be used for testing and validating 

policies, plans, procedures, training, equipment, 

and interagency agreements; clarifying and training 

personnel in roles and responsibilities; improving 

interagency coordination and communications; 

improving individual performance; identifying 

gaps in resources; and identifying opportunities for 

improvement.

Exposure rate: the rate of charge production 

from ionizing radiation per unit mass of air (e.g., 

the amount of gamma radiation that an individual 

would be exposed to in one hour as measured in air), 

commonly expressed in roentgens per hour (R/h) or 

milliroentgens per hour (mR/h).

Federal Emergency Management Agency 

(FEMA): the agency responsible for establishing 

Federal policies for and coordinating emergency 

planning, management, mitigation, and assistance 

functions of executive agencies. FEMA assists 

state, local, and tribal government agencies in 

their emergency planning. Its primary role is one 

of coordinating Federal, state, local, and tribal 

governments and volunteer response actions. FEMA 

is part of DHS.

Federal organization: an agency or department of the 

U.S. Federal Government, or its component(s), having 

a role in emergency planning and preparedness.

Field monitoring team (FMT): a group used to 

detect and monitor radiation in the environment (e.g., 

measure radiation levels in the air, water, vegetation, 

soil, etc.).

General Emergency (GE): an ECL indicating 

that events are in progress or have occurred 

which involve actual or imminent substantial core 

degradation or melting with potential for loss of 

containment integrity or hostile action that results 

in an actual loss of physical control of the facility. 

Releases can be reasonably expected to exceed 

EPA PAG exposure levels offsite for more than the 

immediate site area. 

Hostile action: an act directed toward an NPP or 

its personnel that includes the use of violent force to 

destroy equipment, take hostages, and/or intimidate 

the licensee to achieve an end. This includes attack 

by air, land, or water using guns, explosives, 

projectiles, vehicles, or other devices used to deliver 

destructive force.

Implementing procedure: instructions that provide 

a detailed description, often including checklists, of 

the operations that are to be conducted by either a 

specific group of individuals or a designated position. 

Ingestion exposure pathway: the principal exposure 

from this pathway would be from ingestion of 

contaminated water or foods. The duration of 

potential exposure could range in length from hours 

to months to even years.

Ingestion exposure pathway emergency 

planning zone: a geographic area, approximately 

50 miles in radius, including and surrounding a 

commercial NPP, within which the health and 

safety of the general public could be adversely 

affected through the ingestion of water or food 

that has been contaminated through exposure 

to radiation, primarily from the deposition of 

radioisotopes after a radiological incident.

Initiating condition: a plant state or situation that 

indicates a radiological emergency, or event(s) that 

could lead to a radiological emergency, has occurred.
56 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Institutionalized individual: a person who 

resides in an institution, such as a nursing home or 

correctional facility, who may need to depend on 

others for assistance with taking protective actions. 

An institutionalized individual may or may not have 

access and functional needs.

Joint information center (JIC): a location that 

facilitates operation of the JIS, where personnel 

with public information responsibilities perform 

critical emergency information functions, crisis 

communications, and public affairs functions.

Joint information system (JIS): a structured 

approach to organizing, integrating, and delivering 

information which ensures that timely, accurate, 

accessible, and consistent messages can be delivered 

across multiple jurisdictions and/or disciplines to 

the media, nongovernmental organizations, and the 

private sector. Critical supporting elements of the 

JIS include the plans, protocols, procedures, and 

structures used to provide public information.

Key skill: a capability necessary for implementing 

emergency response functions to protect public 

health and safety. For applicants/licensees, a listing 

of ERO key skills is provided in NSIR/DPR-ISG-01.

KI (potassium iodide): see potassium iodide.

Licensee: the utility or organization that has received 

from the NRC (1) a license to construct or operate a 

commercial NPP, (2) an ESP for a commercial NPP, 

(3) a combined license for a commercial NPP, or 

(4) any other NRC license that is now or may become 

subject to requirements for radiological emergency 

planning and preparedness activities.

Licensee ORO: an organization that develops plans 

for and would implement offsite emergency response 

activities and functions because state, local, and/

or tribal government organizations have declined to 

participate in the REP Program. More information 

can be found in regulation under 10 CFR 50.47(c) 

and 44 CFR 352.

Local organization: a municipal, county, or 

regional government agency or office having 

a role in radiological emergency planning and 

preparedness, as defined in radiological emergency 

response plans.

Memorandum of understanding (MOU): a 

document that details the respective authorities and 

responsibilities of the signatory organizations for 

specified radiological emergency response planning, 

preparedness, or response.

Microcurie (μCi): one millionth part of a curie 

(see curie).

National Incident Management System (NIMS):

a systematic, proactive approach to guide all levels 

of government, nongovernmental organizations, and 

the private sector to work together to prevent, protect 

against, mitigate, respond to, and recover from the 

effects of incidents. NIMS provides stakeholders 

across the whole community with the shared 

vocabulary, systems, and processes to successfully 

deliver the capabilities described in the NPS. NIMS 

provides a consistent foundation for dealing with 

all incidents, ranging from daily occurrences to 

incidents requiring a coordinated Federal response. 

National Preparedness Goal: doctrine describing 

what it means for the whole community to be 

prepared for the types of incidents that pose the 

greatest threat to the security of the Nation, including 

acts of terrorism and emergencies and disasters, 

regardless of cause. The goal itself is: “A secure and 

resilient Nation with the capabilities required across 

the whole community to prevent, protect against, 

mitigate, respond to, and recover from the threats and 

hazards that pose the greatest risk.”

National Preparedness System (NPS): an 

organized process to achieve the National 

Preparedness Goal of a secure and resilient Nation.

National Response Framework (NRF): the 

guiding principles, roles, and structures that enable 

all domestic incident response partners to prepare 

for and provide a unified national response to 

disasters and emergencies. It describes how the 

Federal government, states, tribal governments, 

communities, and private sector work together to 

coordinate a national response. The framework 

builds upon the scalable, flexible, and adaptable 

concepts identified in NIMS, which provides a 

template for managing incidents.
NUREG-0654/FEMA-REP-1, Rev. 2 57

SECTION III: Resources

Non-participating organization: an ORO 

that is not involved in emergency planning and 

preparedness for incidents at a commercial NPP. 

Notification of Unusual Event (NOUE): an 

ECL indicating that events are in progress or have 

occurred which indicate a potential degradation 

of the level of safety of the plant or indicate a 

security threat to facility protection. No releases of 

radioactive material requiring offsite response or 

monitoring are expected unless further degradation 

of safety systems occurs. This term is sometimes 

shortened to Unusual Event (UE) or other similar 

site-specific terminology. The terms Notification 

of Unusual Event, and Unusual Event, are used 

interchangeably.

NRC site team: NRC regional personnel who may 

be activated for onsite assessment and face-to-face 

coordination with licensee, state, local, and tribal 

governments, and Federal responders. 

Nuclear Regulatory Commission (NRC): the 

Federal agency that regulates commercial NPPs 

and other uses of nuclear materials, such as in 

nuclear medicine, through licensing, inspection, 

and enforcement of its requirements.

NUREG-series publication: nonsensitive 

information related to the NRC’s mission that 

does not contain regulatory requirements and 

is published in a formal agency series to ensure 

the “dissemination to the public of scientific and 

technical information relating to atomic energy...” 

as mandated by the Atomic Energy Act of 1954, 

as amended. Each publication bears an agency 

designator (NUREG number and sometimes a 

revision number).

Offsite: outside the boundaries of the OCA. 

Offsite response organization (ORO): any state, 

local, or tribal governmental organization; private 

or voluntary organization; or licensee ORO formed 

when state, local, and/or tribal governments choose 

not to participate in the REP Program; that is 

responsible for carrying out emergency response 

functions during a radiological emergency.

Onsite: the OCA of a commercial NPP. 

Operations support center (OSC): a licensee 

onsite emergency response facility that provides 

for maintenance and other support personnel to 

gather as a ready resource to support emergency 

response actions.

Owner controlled area (OCA): all areas contiguous 

to the commercial NPP that are owned or leased 

by the licensee (or by any of its associated business 

units) over which the licensee exercises control. The 

OCA is usually larger than, and encompasses, the 

exclusion area.

Permanent record dosimeter (PRD): a device 

designed to be worn by a single individual for 

the assessment of radiation dose from external 

sources of radiation and evaluated by a processor 

accredited by the National Voluntary Laboratory 

Accreditation Program or other accreditation 

program in accordance with the American National 

Standards Institute, Standard N13.11-2009, “Personal 

Dosimetry Performance - Criteria for Testing”. Film 

badges, thermoluminescent dosimeters (TLDs), 

and optically stimulated luminescence dosimeters 

(OSLDs) are examples of PRDs. 

Pet: a domesticated animal, such as a dog, cat, bird, 

rabbit, rodent, or turtle that is traditionally kept in 

the home for pleasure rather than for commercial 

purposes, can travel in commercial carriers, and can 

be housed in temporary facilities. Household pets do 

not include reptiles (except turtles), amphibians, fish, 

insects/arachnids, farm animals (including horses), 

and animals kept for racing purposes.

Plan: as used within this document, may refer 

to REP plans, response plans, emergency plans, 

emergency response plans, emergency operations 

plans, and all-hazards plans as they relate to 

radiological emergency response and preparedness 

in support of NPPs.

Planning standard: an emergency planning 

element or attribute that must be met in onsite 

and offsite emergency plans and preparedness 

programs. The planning standards are found in 

NRC regulations at 10 CFR 50.47 and FEMA 

regulations at 44 CFR 350.5. 
58 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Plume exposure pathway: a term describing the 

means by which whole body radiation exposure 

occurs as a result of immersion in a gaseous 

release of radioactive material. The principal 

exposure sources from this pathway are: (a) whole 

body external exposure to gamma radiation from 

the plume and from deposited materials, and (b) 

inhalation exposure from the passing radioactive 

plume. The duration of principal potential exposures 

could range in length from 30 minutes to days. 

Plume exposure pathway emergency planning 

zone: a geographic area, approximately 10 miles 

in radius, including and surrounding a commercial 

NPP within which the health and safety of the 

general public could be adversely affected by direct 

whole body external exposure to gamma radiation 

from the plume and from deposited materials, 

as well as inhalation exposure from the passing 

radioactive plume during a radiological incident.

Post-plume phase: the period that includes response 

activities (such as limiting exposure from ingestion 

of contaminated food and water, relocation, reentry, 

and return) occurring after a radiological release has 

been terminated. 

Potassium iodide (KI): a prophylactic compound 

containing a stable (i.e., non-radioactive) form of 

iodine that can be used effectively to block the 

uptake of radioactive iodine by the thyroid gland in 

a human being.

Precautionary protective actions: any preventive 

or emergency protective actions implemented without 

the verification of radionuclide measurements by 

field monitoring or laboratory analysis.

Principal organization: the nuclear utility 

(licensee) and any Federal, state, local, and tribal 

government agency, department, or executive office 

having a major or lead role in emergency planning 

and preparedness. 

Private sector organization: an industry group 

or entity, volunteer group, quasi-governmental 

body, etc. having a role in emergency planning and 

preparedness. 

Procedures: an organization’s documented 

implementing instructions for managing its internal 

response to emergencies and coordinating its 

external response with other organizations. The term 

“procedures” as used in this document, includes 

implementing procedures, standard operating 

procedures, administrative procedures, maintenance 

procedures, and testing procedures.

Projected dose: the prediction of the dose that a 

population or individual could receive. 

Protected area: the NPP area under continuous 

access monitoring and control by the licensee, 

and armed protection as described in the site 

security plan.

Protective action: an action taken to avoid or reduce 

projected dose. See also Protective measure.

Protective action decision (PAD): measures 

taken in anticipation of, or in response to, a release 

of radioactive material to the environment. The 

purpose of PADs is to provide dose savings by 

avoiding or minimizing the radiation exposure 

received by individuals, thereby minimizing the 

health risks resulting from radiation exposure. 

Sheltering and evacuation are the two PADs most 

often relied upon for limiting the direct exposure 

of the general public within the plume exposure 

pathway EPZ. Preventive and emergency PADs are 

two categories of PADs relied upon for limiting 

exposure from contaminated food and water in the 

ingestion exposure pathway EPZ.

Protective action guide (PAG): a projected dose to 

an individual in the general population that warrants 

the implementation of protective action. 

Protective action recommendation (PAR): an 

advisement from an NPP licensee to state, local, and/

or tribal government officials, or from state officials 

to other offsite officials, concerning emergency 

response measures that should be taken to protect 

the public from exposure to radiation.

Protective measure: an action taken in the event of 

a radiological emergency at, or related to, an NPP to 

protect the public from exposure to radiation. 
NUREG-0654/FEMA-REP-1, Rev. 2 59

SECTION III: Resources

Public information: information provided to the 

general public on a periodic basis concerning what 

they should know about radiation and how to respond 

to a radiological emergency. This would include topics 

such as educational information about radiation, who 

to contact for additional information, and what their 

actions should be in an actual emergency.

Radiation protection: the protection of people from 

the effects of exposure to ionizing radiation, and the 

means for achieving this.

Radioisotope: an unstable form of an element that 

decays or disintegrates spontaneously, emitting 

radiation. Approximately 5000 natural and artificial 

radioisotopes have been identified.

Radiological Emergency Preparedness (REP) 

exercise: an event involving organizational 

responses to a simulated commercial NPP incident 

with radiological consequences. The purpose of an 

exercise is to test the integrated capabilities of onsite 

and OROs to implement emergency functions set 

forth in their radiological emergency response 

plans/procedures. 

Radiological Emergency Preparedness (REP) 

Program: refers to both FEMA and NRC 

programs that administer EP for commercial NPPs 

and surrounding areas and encompasses the plans, 

training, exercises, and resources necessary to 

prepare emergency response personnel to rapidly 

identify, evaluate, and respond to radiological 

emergencies.

Radioprotective drug: a chemical compound or 

substance serving to protect or aid in protecting 

against the injurious effects of radiation.

Reasonable assurance: a determination that NRC 

licensee or applicant onsite plans and state, local, 

and tribal government and utility offsite plans and 

preparedness are adequate to protect public health 

and safety in the emergency planning areas of a 

commercial NPP. 

Reception/Relocation center: a pre-designated 

facility located outside the plume exposure pathway 

EPZ (at a minimum distance of 15 miles from the 

NPP) at which the evacuated public can register, 

receive radiation monitoring and decontamination, 

receive assistance in contacting others, receive 

directions to congregate care centers, reunite 

with others, and receive general information. It 

generally refers to a facility where monitoring, 

decontamination, and registration of evacuees 

are conducted. A reception/relocation center is 

also referred to as a registration center or public 

registration and decontamination center. 

Recovery: the process of reducing radiation exposure 

rates and concentrations of radioactive material 

in the environment to acceptable levels for return 

by the general public for unconditional occupancy 

or use after the emergency phase of a radiological 

emergency. More broadly, recovery is accomplished 

through the timely restoration, strengthening, and 

revitalization of infrastructure, housing, and a 

sustainable economy, as well as the health, social, 

cultural, historic, and environmental fabric of 

communities affected by a catastrophic incident.

Re-entry: workers or members of the public going 

into relocation or radiological contaminated areas on 

a temporary basis under controlled conditions.

Regional Assistance Committee (RAC): a group 

of representatives from a number of Federal agencies 

that have agreed to assist the FEMA Region in 

providing technical assistance to OROs and to 

evaluate radiological emergency response plans/

procedures and exercises on the basis of their special 

authorities, missions, and expertise.

Relocation: the removal or continued exclusion of 

people (households) from contaminated areas to 

avoid chronic radiation exposure.

Relocation center: see Reception/Relocation center. 

Reoccupancy: the return of households and 

communities to relocation areas during the cleanup 

process, at radiation levels acceptable to the 

community.

Restricted area: any area to which access is 

controlled for the protection of individuals from 

exposure to radiation and radioactive materials.

Return: permanent resettlement in evacuation 

or relocation areas with no restrictions, based 

on acceptable environmental and public health 

conditions.
60 NUREG-0654/FEMA-REP-1, Rev. 2 

SECTION III: Resources

Service animal: any dog that is individually trained 

to do work or perform tasks for the benefit of an 

individual with a disability, including a physical, 

sensory, psychiatric, intellectual, or other mental 

disability. Other species of animals, whether wild 

or domestic, trained or untrained, are not service 

animals for the purposes of this definition. The work 

or tasks performed by a service animal must be 

directly related to the handler ́s disability. Examples 

of work or tasks include, but are not limited to, 

assisting individuals who are blind or have low 

vision with navigation and other tasks, alerting 

individuals who are deaf or hard of hearing to the 

presence of people or sounds, providing non-violent 

protection or rescue work, pulling a wheelchair, 

assisting an individual during a seizure, alerting 

individuals to the presence of allergens, retrieving 

items such as medicine or the telephone, providing 

physical support and assistance with balance and 

stability to individuals with mobility disabilities, and 

helping persons with psychiatric and neurological 

disabilities by preventing or interrupting impulsive 

or destructive behaviors. The crime deterrent 

effects of an animal ́s presence and the provision 

of emotional support, well-being, comfort, or 

companionship do not constitute work or tasks for 

the purposes of this definition.

Site Area Emergency (SAE): an ECL indicating 

that events are in progress or have occurred which 

involve an actual or likely major failure of plant 

functions needed for protection of the public or 

hostile action that results in intentional damage 

or malicious acts; (1) toward site personnel or 

equipment that could lead to the likely failure of or; 

(2) prevents effective access to equipment needed 

for the protection of the public. Any releases are not 

expected to result in exposure levels which exceed 

EPA PAG exposure levels beyond the site boundary. 

Site boundary: the line beyond which the land 

or property is not owned, leased, or otherwise 

controlled by the licensee.

Spent fuel pool: a structure that provides onsite 

storage for spent nuclear fuel. These pools are robust 

constructions made of reinforced concrete several 

feet thick, with steel liners. The water is typically 

about 40 feet deep, and serves both to shield the 

radiation and cool the fuel rods.

State of emergency: a situation of national danger 

or disaster in which a government suspends normal 

constitutional procedures in order to regain control.

State organization: the state government agency or 

office having the principal or lead role in emergency 

planning and preparedness. This includes any state 

or commonwealth of the United States, the District 

of Columbia, the Commonwealth of Puerto Rico, 

the Virgin Islands, Guam, American Samoa, the 

Commonwealth of the Northern Mariana Islands, 

and any possession of the United States.

Support organization: any organization, such as 

an agency, department, office, or local jurisdiction, 

having a supportive role to the principal or lead 

organization(s) in emergency planning and 

preparedness. 

Technical support center (TSC): an onsite facility 

that provides plant management and technical 

support to the reactor operating personnel located in 

the control room during emergency conditions.

Threat and Hazard Identification and Risk 

Assessment (THIRA): a comprehensive guide 

to identifying and addressing risks and impacts 

through the whole community approach; this is a 

joint effort between Federal, state, local, and tribal 

governments, and territorial organizations.

Timely (timely manner): performing appropriate 

actions with a sense of urgency and without 

undue delay.

Transient person: a person who does not 

permanently reside in the plume exposure pathway 

EPZ, but may be present during an emergency.

Tribal government: a Federally-recognized 

American Indian and Alaska Native tribal 

government. A listing of Federally-recognized 

Indian tribal entities can be found in the Tribal 

Directory maintained on the U.S. Department of the 

Interior, Indian Affairs’ webpage (www.bia.gov).
Technical 

NUREG-0654 Rev. 2

December

NUREG-0654/FEMA-REP-1, Revision 2 "Criteria for Preparation and Evaluation of

Radiological Emergency Response Plans and Preparedness in Support of Nuclear

Power Plants”

2019

Leads: Bill Eberst, Don Tailleart, Jonathan Fiske, Robert Kahler

Significant review and writing contributions were made by multiple teams of NRC and

FEMA headquarters and regional staff.

Division of Preparedness and Response, Office of Nuclear Security and Incident Response, U.S. Nuclear Regulatory

Commission... In cooperation with: Technological Hazards Division, Federal Emergency Management Agency

Same

NUREG-0654/FEMA-REP-1 provides guidance on the 16 Planning Standards referenced in the NRC's regulations in section 50.47 of

title 10 of the Code of Federal Regulations, and in FEMA's regulations at 44 CFR 350.5. Both agencies use these Planning

Standards to evaluate the adequacy of emergency plans and preparedness of commercial nuclear power plant owners and operators,

and state, local, and tribal governments located near commercial nuclear power plant sites.

This revision consolidates the four supplementary documents and one addendum that were issued subsequent to Revision 1, and

provides updates and additional guidance reflective of over 35 years of improvements and lessons learned in the radiological

emergency preparedness community.

NUREG-0654 FEMA-REP-1 Rev. 2 Revision 2 Radiological Emergency Plan Planning Preparedness

Development Shift Staffing FEMA Evaluation Criteria Planning Standards
Printed

on recycled

paper

Federal Recycling Program

United States

Nuclear Regulatory Commission

NUREG-0654/FEMA-REP-1, Rev. 2

December 2019
Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and

 Preparedness in Support of Nuclear Power Plants Revision 2, Final

NUREG-0654/FEMA-REP-1 December 2019