U.S. NUCLEAR REGULATORY COMMISSION November 1975

REGULATORY GUIDEOFFICE OF STANDARDS DEVELOPMENT

REGULATORY GUIDE 1.101

EMERGENCY PLANNING FOR NUCLEAR POWER PLANTS

A. INTRODUCTION create a high order of preparedness and ensure anorderly and timely decision-making process at times of

Section 50.34, "Contents of Applications; Technical stress, as well as the availability of necessary equipment.* Information." of I0 CFR Part 50, "Licensing of supplies, and services.

Production and Utilization Facilities," requires thateach application for a license to operate a facility A iptt.. o planning forAn imlportant element of emergency`,:'p.lanning furinclude in a Final Safety Analysis Report (FSAR), along nuflear uwe ..... is t.. "m -with other information, thc applicant's plans for coping lrepare to cope with a ier" bya ti6onrum of potentialpin, ... prpr tocp wtv v c"rY• ,b4•ctmofpoeniawith emergencies. including the itemns specified in consequences. Federal $tHIeý1`"aIdW5'Vagencics, as wellAppendix E, "Emergency Plans for Production and as the licensee, have r ..l,'-ýes to play in both. t.eUtilization Facilities," to 10 CFR Part 50. Appendix E planning and the. iinle•entationh of emergency preorefers to a document entitled "Guide to the Preparation paredness procedif''s 'redcrfl interagenc y responsibili-of Emergency Plans for Production and Utilization ties for nuclear'lniAzc-t 'pInning were set fortli by theFacilities,"' which wa', developed to help applicants Of.c o, re. , r edness i a F.D. RA. R.G-•~~~~f ic . . ... U/'fOt,•..eKy teparedness in a FDR=U.AL. REGt.-establish adequate plans for coping with emergencies. 0STI ." F o I 36 us .January 24 .S" ST Knol; " 3a F,..I 2356) publishled January 24, 1973J.This regulatory guide provides more complete guidance To 9iii '- e "I•-t these respn are diecedto

* indeveloping emergency plans for nuclear power plants. .r ,,ard ~et"Od nation of efforts to provide assistance toIt describes a miethod acceptable to the NRC staff for r -01oc,' gove n i ip n.. Thire-.. ... . , " • a .W..',"Am• t coal governm ents in their planning. Th iscomplying with the Commission's regulations with - ased on the recognition that State and localgard to adequate content of emergency plans for nuel~t..,,- .,,..

.rtctne p f go nments have the necessary authority to implementpower plants, primarily in the FSAR stage n•:,mergency measures in their jurisdictions. Although

B '. DISCUSSION ',, 'ederal agencies can and will respond to emergencies"., arising from nuclear power plant activities if necessary,

The Commission's interest in cergen jian g is :;uch response should be regarded primarily as supportivefocused primarilyions intuaet ions teamergyn .'-r may of, and not as a substitute for, responsible action byfocused primarily on situations that may c ay licensees and State and local governments.

threaten to cause radiological hazards affecting thehealth and safety of workers' ie public or resulting indamage to property. Em nc I ns should be directed In the preparation or an emergency plan for a specifictoward mitigating the con ni of emergencies and nuclear power plant, the applicant should be guided byshould provide r ' le rance that appropriate the following criteria to clarify the scope, content, andmeasures can an, will talk to protect health and purpose of the document that describes the plan.safety and p;•en ,mag o property in the event of anemergency thd.oj u not practicable to develop a I. Although considered a part or the Final Safetycompletely iiled plan encompassing every conceiv- Analysis Report, the plan should be prepared as aable type of ,gency situation, advance planning can separate document.

ICopies may be obtained by request to the U.S. NuclearRcgulatory Commission, Washington, D.C. 20555, Attention: 2. The plan should be an expression of the overallDirector, Office of Nuclear Rcaclor Regulation. "concept of operation" that describes the essential

USNRC REGULATORY GUIDES Comments should be sent to the Secretary of the Commission. U S Nuclear

Rngulatoty Guides are issued to describe and minke available to the P Regular'e Commisson. Washington. DC. 205%. Attention. OockSteng and

methods acceptable to the NRC stalf of imptlernrtling specific Stce Section.

Comamnssion's tequaltolt. to delineate techntiques used be the stall in evalu "he guides ate issued in the following ten broad divisionsatInq specil.c problenms a postulated accidents. at to provide guidance to appl,cant" Regulatory Guides are not substitute% for regulations. and co,,opliance I Powet Reactors 6 Productswith them is oit required Methnds and sotutions difterent from those %et out in 2 Research and Test Reactors 7 Transporitatonthe guides wilt be a,c.eplthltt if they provide a basis tor the Indinga requisite to .3. Fuels and Matetials Factlities B. Occupational Healththe~tsunefat, ton.tintidlit!OfA(Permit Of license by the Commnission.. . 4. Environiental and Siting 9 Antitust Review

Comn.rnt% and %uqqentiaon lot improveaie.,lt It1 these guides ate encouraged r, Materials and Plant Protection 10 Generalat alt times. ad guides wlt rlr ,evised. an aptpropriate. to accommodate cam.Imenit and to fellect new Inte- rn•itlo,, or elpaetir.nr. However. cmrnments an Copies of published guides may be obtained by written request indicating thethis guide, it ,ectved w-tlri ..t.. ut two ntnnths After its issuance. will be par divisions dr.%tred to the U.S Nuclear Regulatoty Comnmlision, Washinglon. D C.ltcularlt usetul it, ewdluahiJ the on..d rot an eatly rr•vision 20555, Attention Ditectot. Otlice of Standards Development.

elements of advance planning that have been consideredand the provisions that have been made to cope with

emergency situations. The plan should incorporate infor-mation about the emergency response roles of support-ing organizations and agencies. That information shouldbe sufficient tO enable a determination of the interfaceand coordination required among the supporting groupsand between them and the licensee.

3. Details that can reasonably be expected t, changefroml time to time, e.g., names and telephone numbers.specific items of equipment and supplies, inventory lists,and step-by-step procedures or checklists that may bealtered as a result of experience or test exercises, shouldnot be incorporated into the plan.

4. The plait should not, by itself, be considered aprimary working document to be used during anemergency. Detailed procedures that will ensure timelyand effective implementation of various aspects of theemergency plan should be prepared. These procedures,however, should not be incorporated into iie document.

C. REGULATORY POSITION

I. Each applicant's emergency plan should !icludeprovisions for coping with emergencies, both within theboundary of the plant site and in the environs of thesite. Responsibility for planning and implementing allemergency measures within the site boundaries restswith the licensee. Planning and implementation ofmeasures to cope with plant.related emergencies outsidethe site boundary should be a coordinated effortinvolving the licensee and local, county, State, andFederal agencies having emergency responsibilities. Theemergency plan should describe this coordination, thatis. the arrangements and agreements between thelicensee and these supporting agencies.

2. The scope and content of a nuclear powei plantemergency plan should be substantially equivalent to

that recommended in Annex A to this guide. "Organiza-tion and Content of Emmergency Plans for Nuclear PowerPlants." Provision should be made for an annual reviewof the emlergency plan and for updating and improvingprocedures based on training, drills, and changes onsitcor in the environs.

3. Features and candidate subjects that should beconsidered in the preparation of specific procedures forimplementing the emergency plan are described inAnnex B to this guide. "Implementing Procedures forE-mergency Plans." Implementing procedures should notbe incorporated into the plan and are not required to hesubmi:ted as part of the Final Salety Analysis Report tothe Commission. These procedures should, however, beavailable for review by the Oflfice of Inspection andEnforcement during its prelicensing and routine inspec-tions.

D. IMPLEMENTATION

The purpose of this seclion is to pi'ovide infoimationto applicants and licensees regarding the NRC staff'splans fot utilizing this regulatory guide.

With the exception. of Annex B, this guide reflectscurrent Nuclear Regulatory Comttmissiot practice iLsoutlined in the USNRC Standard Review Plan. Except inthose cases in which the applicant proposes an accept-able alternative metlhod for complying with specifiedportions of the Comnmission's regulations, the methoddescribed in Annex A is being and will continue to beused in the evaluation of Final Safety Analysis Reportsuntil this guide is revised as a result of suggestions fromnthe public or additional staff" review.

Annex B is being published now for comment andreview; it may be revised as a result of suggestions fromthe public or additional staff review.

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ANNEX A

ORGANIZATION AND CONTENT OF EMERGENCY PLANSFOR NUCLEAR POWER PLANTS

I. DEFINITIONS

This section should provide definitions of any terms(hat are unique to the power plant under considerationor are given conrotations that differ from normallyucceptcd usage. Listed below are some terms used in thisguide along with the definitions that should be appliedto these terms when they are used in emergency plans.

I. Assessment actions - those actions taken duringor after an accident which are collectively necessary tomake decisions to implement specific emergency mea-Sures.

2. Corrective actions - those emergency measurestaken to ameliorate or terminate an emergency situationat or near the source of the problem.

3. Protective actions - those ."mergency measurestaken after an uncontrolled release of radioactive mate-rial has occurred for the purpose of preventing orminimizing radiological exposures to persons that wouldbe likely to occur if the actions were not taken.

4. Popula:ion at risk - those persons for whomprotective actions are or would be taken.

5. Affected persons - individuals who have been.radiologically exposed or physically injured as a result ofan accident to a degree requiring special attention, e.g.,decontamination, first aid, or medical services.

6. Recovery actions - those actions taken after theeniergeney to restore the playi .ts nearly as possible to itspreemergency condition.

7. Protective action guides - projected radiologicaldose or dose commitment values to individuals in thegeneral population that warrant protective action follow-ing a release of radioactive material.

8. Emergency action levels - radiological doserates; specific contamination levels of airborne, water-borne, or surface-deposited concentrations of radio-activity; or specific .instrument readings that may beused as thresholds for initiating specific emergencymeasures.

2. SCOPE AND APPLICABILITY

This section of the plan should define the unit,plant, station, or area to which the plan is applicable andpresent a summary of the plan's interrelationships with(I) its implementing procedures, (2) plant operating,radiological control, and industrial security procedures,

(3) other emergency plans of the company (e.g., anoverall corporate plan I, and (4) emergency plans ofother participating agencies, particularly the responsibleState agency or other governmental authority havingemergency planning responsibilitics in the immediateoffsite area.

3. SUMMARY OF EMERGENCY PLAN

This section should describe the key elements ofoverall emergency planning logic, incorporating gradedemergency classifications of increasing severity and theirrelationship to the participating status of onsite andoffsite personnel and agencies.

4. EMERGENCY CONDITIONS

4.1 Classification System

An emergency plan should characterize severalclasses of emergency situations. The system of classifica-tion employed should consist of mutually exclusivegroupings (to avoid ambiguity) but should cover theentire spectrum of possible situations. Succinct verbalrather than numerical or alphabetical classification desig-nations are recommended to give better immediateinformation to personnel as to the scope and characterof the situation.

The plan should describe the limiting scope consid-ered for each identified class of emergency, that is, thearea and/or persons affected by the consequences. Theplan should also describe, for each class, the preliminaryactions to be taken to cope with the situation, theauthority or title of the individual responsible forinitiating these actions, and the organizations andagencies that would be alerted and mobilized.

Specific implementing procedures slhuld be pre-pared for each identified class of emergency (see AnnexB).

An acceptable classification scheme is described inqualitative terms in Sections 4.1.1 through 4.1.5. Thispart of the emergency plan should describe the criteriafor recognizing and declaring each class, includingspecific emergency action levels for the last three classes.

4.1.1 Personnel Emergency

This class involves accidents or occurrencesonsite in which emergency treatment of one or moreindividuals is required. It includes those situations that

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ANNEX A

ORGANIZATION AND CONTENT OF EMERGENCY PLANSFOR NUCLEAR POWER PLANTS

I. DEFINITIONS

This section should provide definitions of any ternisthat arc unique to the power plant under considerationor are given conr.otations that differ from normallyaccepted usage. Listed below are some terms used in thisguide along with the definitions that should be appliedto these lerms when they are used in emergency plans.

I. Assessment actions - those actions taken duringor after an accident which are collectively necessary toMake decisions to implement specific emergency mea-sures.

2. Corrective actions - those emergency measurestaken to ameliorate or terminate an emergency situationat or near the source of the problem.

3. Protective actions - those ,'mergency measurestaken after an uncontrolled release of radioactive mate-rial has occurred for the purpose of preventing orminimizing radiological exposures to persons that wouldbe likely to occur if the actions were not taken.

4. Popula:ion at risk - those persons for whomprotective actions are or would be taken.

5. Affected persons - individuals who have beenradiologically exposed or physically injured as a result ofan accident to a degree requiring special attention. e.g.,decontainination, first aid, or medical services.

6. Recovery actions - tthose actions taken after theemergency to restore the pla!I i ,s nearly as possible to itspreemergency condition.

7. Protective action guides - projected radiologicaldose or dose commitment values to individuals in thegeneral population that warrant protective action follow-ing a release of radioactive material.

8. Emergency action levels - radiological doserates; specific contamination levels of. airborne, water-borne, or surface.deposited concentrations of radio-activity; or specific instrument readings that may beused as thresholds for initiating specific emergencymeasures.

2. SCOPE AND APPLICABILITY

This section of the plan should define the unit,plant, station, or area to which the plan is applicable andpresent a summary of the plan's interrelationships with(1) its implementing procedures, (2) plant operating,radiological control, and industrial security procedures,

(3) other emergency plans of the company (e.g., anoverall corporate plan), and (4) emergency plans ofother participating agencies, particularly, the responsibleState agency or other governmental authority havingemergency planning responsibilities in the immediateoffsite area.

3. SUMMARY OF EMERGENCY PLAN

This section should describe the key elements ofoverall emergency planning logic, incorporating gradedemergency classifications of increasing severity and theirrelationship to the participating status of onsite andoffsite personnel and agencies.

4. EMERGENCY CONDITIONS

4.1 Classification System

An emergency plan should characterize severalclasses of emergency situations. The system of classifica-tion employed should consist of mutually exclusivegroupings (to avoid ambiguity) but should cover theentire spectrum of possible situations. Succinct verbalrather than numerical or alphabetical classification desig-nations are recommended to give better immediateinformation to personnel as to the scope and characterof the situation.

The plan should describe the limiting scope consid-ered for each identified class of emergency, that is, thearea and/or persons affected by the consequences. Theplan should also describe, for each class, the preliminaryactions to be taken to cope with the situation, theauthority or title of the individual responsible forinitiating these actions, and the organizations andagencies that would be alerted and mobilized.

Specific implementing procedures should be pre-pared for each identified class of emergency (see AnnexB).

An acceptable classification scheme is described inqualitative terms in Sections 4.1.1 through 4.1.5. Thispart of the emergency plan should describe the criteriafor recognizing and declaring each class, includingspecific emergency action levels for the last three classes.

4.1.1 Personnel Emergency

This class involves accidents or occurrencesonsite in which emergency treatment of one or moreindividuals is required. It includes those situations that

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have no potential for escalation to morc severe emer-gency conditions. There may be no effect on thie plant,and immediate operator action to alter plant status isnot necessarily required. A Personnel Emergency doesnot activate the entire emergency organization but mayactivate such teams as thc first aid team. It may alsorequire special local services such as ambulance andmedical.

hmplemcnting procedures for the handling ofthis class of' emergency may also be incorporated in theplant's radiation protection procedures and generalindustrial safety procedures.

Included in this class are injuries that may becomplicated by contamination problems or excessiveradiation exposures t) onsite personnel.

The recognition of this class of emergency isprimarily a judgment matter for plant supervisory ormanagement personnel. Its importance as part of theclassification scheme rests to some extent on its "nega-tive'" information content, viz, that the incident givingrise to the emergency is restricted in its scope ofinvolvement. This section of the plan should designatethe classification criteria and should enumerate discreteaccident situations that could give rise to this class.

4.1.2 Emergency Alert

This class involves specific situations that.canbe recognized as creating a hazard potential that waspreviously nonexistent or latent. The situation has notyet caused damage to the plant or harm to personnel anddoes not, necessarily require an immediate change inplant operating status. Inherently, however, this is asituation in which time is available to take precautionaryand constructive steps to prevent an accident and tomitigate the consequences should it occur. An Emer-gency Alert situation may be brought on by eitherman-made or natural phenomena.

Emergency Alert conditions imply a rapidtransition to a state of readiness by the plant personnel,the possible cessation of certain routine functions oractivities within the plant that are not immediatelyessential, and possible precautionary actions that aspecific situation may require. Examples of situationsthat might be placed in this class are threats to orbreaches of plant security measures such as bomb threatsor civil disturbance, severe natural phenomena in theplant environment such as floods, earthquakes, tsunami,hurricanes, or tornadoes; emergency situations such asfires at adjacent locations; or release of a toxic ornoxious gas in or near the plant. This section of theemergency plan should identify specific candidate situa-tions for Emergency Alerts and the quantitative criteriathat would guide the decision to implement each.

Qualitative criteria should he added for other candidatesituations to guide the decisions of onsite supervisorypersonnel.

4.1.3 Plant (Unit) Emergency

This class includes physical occurrenceswithin the plant requiring full plant staff emergencyorganization response. The initial information and assess-ment indicates that it is very unlikely that an offsitchazard will be created. Hlowever, substantial modifica-tion of plant operating status is a highly probablecorrective action if this has not already taken place bythe actions of automatic protective systems. Although itis judged that the emergency situation can be correctedand controlled by the plant staff. nolification ofcorporate headquarters staff' to put them on an alertstatus is prudent. Notification of appropriate offsiteagencies as to the nature and extent of the incident isalso advisable. Evacuation of the plant is not anticipatedin this class of emergency, although protective evacua-tions or isolations of certain plant areas may benecessary.

Examples of situations that might fall intothis class are those accidents analyzed in the FSAR asevents that are predicted to have no radiological conse-quences offsite. Fires, explosions or explosive gas re-leases, or in-plant flooding conditions may fall into thisclass.

Activation levels for declaring Plant Emergen-cies should be based on the recognition of an immediateneed to implement in-plant emergency measures toprotect or provide aid to affected persons in the plant orto mitigate the consequences of damage to plantequipment, coupled with a positive observation that (I)effluent and other radiological monitors do not indicatethe possibility of a Site Emergency and (2) there is noapparent breach of any fuel cladding, primary systemboundary, or containment. This section should describethe alarm conditions or combinations of alarm condi-tions and the emergency action levels for initiating aPlant Emergency.

4.1.4 Site (Station) Emergency

This class involves an uncontrolled relcase ofradioactive materials into the air, water, or ground to anextent that initial information and assessment indicateprotective actions offsite may be desirable. Mobilizationand readiness of offsite emeigency organizations isprudent. Protective actions are likely to include evacua-tion of plant areas other than control rooms andemergency stations and should include the evacuation ofconstruction personnel when additional units are underconstruction on the same site. Assessment actions willinclude monitoring of the environment.

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IJ

MEM

Situations likely to fall into this class includethose accidents analyzed in the FSAR that are predictedto have small to moderate releases at the exclusionradius. It should be anticipated that Site Emergencieswould not normally be preceded by a Plant Emergency,although the possibility of this evolution should not beexcluded.

Emergency action levels for declaring a SiteEmergency should be defined in terms of instrumentreadings or alarms in the control room, includingindications from effluent monitors. To avoid false alarmsor to minimize their frequency of occurrence, the levelsmay be defined so as to require corroborating evidencefrom two independent sources that provide input to thecontrol room. Site Emergencies should also be declaredon the basis of evidence of apparent breaches in fuelcladding, primary system bound4Wl,':, or containment.The bases and criteria used to divf= the instrumentalarm levels should be described. Suitable criteria wouldbe protective action guide values at a security fence,exclusion area, or site boundary, and the bases wouldshow how the effluent monitor readings relate to suchvalues. Federal agency guidance' 2 is available to assistin the selection of acceptable protective action guides.

4.1.5 General Emergency

This is an occurrence characterized by conse-quences lequiring that protective actions be taken inoffsite areas as a matter of prudence or necessity.Evacuation of the site may also be necessary underextreme circumstances.

Action levels for declaring the General Emer-gency case should be defined. The action levels shouldrecognize bo.li short-term and long-term hazards. Theselection of action levels for the former should be guidedby direct radiation hazards and inhalation hazards thatmay be presented by the passage of a cloud ofradioactive material released from the plant. The selec-tion of action levels for the long-term hazards should beguided by contamination hazards that could result fromfallout or deposition of radioactive materials releasedfrom the plant.

Protective actions should be planned andimplemented at the prescribed action levels. Actionlevels for severe short-term situations requiring rapidimplementation of protective actions should be definedin terms of readily available information such as readingsof effluent monitors or other onsite monitor indications.Implementation of protective actions may also be basedon confirmatory measurements taken in the field to theextent it can be shown that field measurements can be

"Background Material for the Development of Radiation Pro-tection Standards," Federal Radiation Council, Report No. 5,July 1964, and Report No. 7, May 1965.

2"Emergency Response Protective Action Guides-AirborneReleases from Fixed Nuclear Facilities," Office of RadiationPrograms, U.S. Environmental Protection Agency, January1975.

taken and evaluated rapidly enough to permit adequatetime for the protective actions to be accomplished. Ineither event, the bases and criteria used to define theaction levels should be described in the plan.

4.2 Spectrum of Postulated Accidents

Accident analysis scclions of Safety Analysis Re-ports are primarily concerned with the dcsign responsesof a plant to postulated malfunctions or equipmentfailure and include estimates of the radiological conse-quences of discrete accidents. By contrast, emergencyplanning is concerned with individual and organizationalresponses to the continuum of potential accident situa-tions, including those discrete accidents that have beenhypothesi7ied. This section of the emergency plan shouldshow that each postulated accident is encompassedwithin the emergency characterization classes and shouldprovide a summary analysis of their implications foremergency planning. Implications to be consideredshould :-'Jiude:

I. Instrumentation capability for prompt detectionand continued assessment, including functional applica-bility, range, response time, locations of sensing andreadout elements (including alarms), and backup orredundant capability;

2. Manpower requirements for assessment, includ-ing recordkeeping; for corrective actions- for protectiveactions, including communications requirements; and foraid to affected persons; and

3. The timing of and the time required for theimplementation of each emergency measure that may bebrought into play.

S. ORGANIZATIONAL CONTROL OF EMERGEN-CIESStarting with the normal operating organization as a

base, this section of the plan should describe theemergency organization that would be activated on thesite and its augmentation and extension offsitc. Authori-ties and responsibilities of key individuals and groupsshould be delineated. The communication links estab-lished for notifying, alerting, and mobilizing emergencypersonnel should be identified.

5.1 Normal Plant Organization

Both day and night shift staffs (crews) should bedescribed, indicating clearly who is in the immediateonsite position of responsibility for the plant or station(normally a shift supervisor) and his authority andresponsibility for declaring an emergency.

5.2 Onsite Emergency Organization

This section should describe the mobilization billetsof plant staff personnel for controlling each class ofemergency for both day and night shift situations.

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5.2.1 Direction and Coordination

The' position title of utat person who isdesignated to take charge of onsite emergency controlmeasures should be clearly identified. A specific line ofsuccession for this authority should also be given. A

policy statement describing the scope of authority andresponsibility vested in that role by the company(applicant) should be included. Functional responsibili-ties assigned to this individual should be described andshould include a summary of those preliminary assess-ment procedures that would be followed to prescribe orguide his decision to classify and declare an emergency.

5.2.2 Plant Staff Emergency Assignments

The plan should specify the iunctional areasof emergency activity to which members of the plantstaff are assigned, including an indication of how theassignments are made for both day and night shifts andfor plant staff members both onsite and away from thesite. Functional areas should include:

1.. Plant systems operations,

2. Radiological survey and monitoring,

3. Firefighting,

4. Rescue operations,

5. First aid,

6. Decontamination,

7. Security of plant and access control,

8. Repair and damage control,

9. Personnel accountability,

10. Recordkeeping,

11. Communications.

5.3 Augmentation of Onsite Emergency Organization

This section should describe two categories ofoffsite support assistance to the plant staff emergencyorganization. These can be either directed, authorized,or requested by the company management to performspecial emergency assistance functions.

5.3.1 Licensee Headquarters Support

Headquarters management, administrative,and technical personnel should be prepared to augmentthe plant staff, both in emergency planning and in theperformance of certain functions required to cope with

an; emergency. The following special functions areconsidered appropriate for headquarters support andshould be incorporated in the overall plan, althoughcompany policy and organizational features may dictatevariations in modes of assigning responsibilities for thesefunctions among headquarters personnel, plant staffpersonnel, and outside support organizations:

I. Environs monitoring,

2. Logistics support for emergency person-nel, e.g., transportation, temporary quarters, food andwater, sanitary facilities in the field, and special equip.ment and supplies procurement,

3. Technical support for planning and

reentry/recovery operations,

4. Notification of governmental authorities,and

5. Public relations and information release,coordinated with governmental authorities, includingsteps taken to inform visitors to the plant, site, orinformation center and occupants in the environs of thesite how the emergency plans provide for notification tothem and how they can expect to be advised what to do.

The emergency organization status of sup.porting headquarters personnel should be specified,relative particularly to the person directing the plantemergency organization.

In some instances, companies may provide forcertain emergency supporting services to their plants bycontracts with private organizations. Where this is thecase, the nature and scope of the support services shouldbe characterized here. (The Commission may find itnecessary to request evidence of the qualifications ofsuch contractors.) Specific services by contractorsshould be identified at the appropriate places in theemergency plan.

5.3.2 Local Services Support

This section should identify the extension ofthe organizational capability for handling emergencies tobe provided by ambulance, medical, hospital, fire, andpolice organizations. Evidence of the arrangements andagreements reached with such organizations should beincluded in an appendix. This section should containreferences to that appendix and to thio parts of the planin which the functions of these *,rganizations aredescribed.

5.4 Coordination with Participating Agencies

This section should identify the principal Stateagency (designated state authority) and other govern-mental agencies (local, county, State, and Federal)

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having planning or action responsibilities for emergen-cies, particularly for radiological emergencies, in the areain which the plant is located. If the boundary linecbetween two political chtilies, e.g., counties or states,passes within the low-population zone or within appioxi-mately fciir miles of the site, agencies from bothgovernmental entities should bc included. Subsectionsfor each such agency should include:

I. The identity of the agency.

2. A summary of tlhe written agreement wiltl theagency that clearly defines the authority and icsponsi-bility of the agency for emergency preparedness plan-ning and for emergency response, particularly in relationto those of" the licensee and to those of other agencies.Copies of such agreements should be included in anappendix, along with a copy or summary of relevantparts of that agency's "minergency plan.

3. Activation uf the agency function. includingtitles and alternates for both ends of the communicationlinks, and primary and alternative means of communica-lion.

4. The designation and location of the EmergencyOperations Center of each agency.

5. Support of the agency function that may beprovided by the company emergency organization,which may include (a) information on plant status,monitoring results, dose predictions, (b) recommenda-tions or requests for specific actions, and (c) logisticssupport.

Typical agencies to be included here are lawenforcement agencies not included above (e.g., StatePolice/Highway Patrol), departments of health or envi-ronmental protection, civil defense or emergency/disaster control agencies, and the Regional CoordinatingOffices of USERDA's Radiological Assistance Program.

6. EMERGENCY MEASURES

Specific emergency measures should be identified inthis section and related to action levels or criteria thatspecify when the measures are to be implemented. Theyshould be organized with respect to each emergencyclassification. Preplanned action levels and criteriashould be designed to assist and guide, or in some casesspecify, the decision-making functions.

The planning represented by this section should leadto more detailed emergency procedures and assignmentsfor executing tasks by appropriate members of the totalemergency organization. Emergency measures begin withthe activation of an emergency class and its associatedemergency organization. The additional measures maybe organized into assessment actions, corrective actions,protective actions, and aid to affected persons.

6.1 Activation of Emergency Organization

The emergency conditions classified in Section 4.1involve the alerting or activation of progressively largersegments of the total emergency organization. Thissection should describe how the necessary communica-lion steps are taken to alert or activate emergencypersonnel under each class of emergency. including, in.particular, action levels for oolification of offsite agen-cies.

6.2 Assessment Actions

FEffective co•rditiatiion and direction of all elementsof the emergency organization require continuing assess-ment throughout the duration of art emergency situa-lion. Assessinent functions should be incorporated inexplicit p,,)cedures for each emergency classification.They should be identified in this section and mayinclude the following:

1. Surveillance of control room instruments andemergency control center, radiological and nmctcorolomri-cal monitors.

2. Surveillance of containment integrity.

3. in.plant radiological surveys.

4. Site and site boundary surveys.

5. Environs surveys and monitoring.

a. Plume and other effluent surveillance forshort-term assessment. Planning should consider type of'data sought- instrument and equipment requirements:Iransportation facilities for monitoring team (e.g.. air-craft, boats, other vehicles): methods and accuracy ofplume location: and potential use of fixed offsitemonitoring facilities.

b. Contamination surveillance. Planning shouldconsider the tinting, frequency, and types of samples tohe collected, such as soil, vegetation, food, milk, andwater supplies, and potential locations for reconcenira-lion, e.g., in air intake filters.

6. Data reporting, reduction, and analysis.

7. Interviewing of evacuees or other witnesses ofthe accident.

8. Notification of assessment results for modifica-

tion of emergency measures in progress, if necessary.

6.3 Corrective Actions

Many emergency situations involve actions that canbe taken to correct or mitigate the situation at or nearthe source of the problem. This section should identify

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those actions, e.g., fire control,. repair, and damagecontrol, that would be implemented when necessary..Emergency exposure criteria for personnel undertakingcorrective actions should be included.

d. The means and the time required tonotify the persons involved and their expected response.These should include:

(1) Adjacent businesses, propertyowners, and tenants,6.4 Protective Actions

This section should describe the nat:-j'e of protectiveactions that the plan contemplates, the emergencyaction. levels, the area involved, and the means ofnotification to the population at risk. Protective actionsto be taken offsite by other agencies should be dc-scribed.

6.4.1 Protective Cover, Evacuation, Personnel Ac-countability

The emergency plan should provide fortimely relocation of persons to prevent or minimizeexposure to radioactivity. The following items should beincluded:

1. Plant Site

a. Action criteria.

b. The means and the time required tonotify persons involved. These should include:

(2) Nearby schools or recreationalfacilities,

(3) General public in the environs.

6.4.2 Use of Protective Equipment and Supplies

Additional protective actions that should beconsidered in emergency planning include measures forminimizing the effects of radiological exposures orcontamination problems by the distribution of specialequipment or supplies. Measures that should be consid-ered include:

I. Individual respiratory protection.

2. Use of protective clothing.

3. Use of radioprotective drugs, e.g., indi-vidual thyroid protection.

For each measure that might be used, adescription should be given of:

1. Criteria for issuance,

2. Locations of items, and

3. Means of distribution to onsite and offsite

assignments,(1) Employees not having emergency

(2) Working and nonworking visitors,

(3) Contractor and construction per-sonnel. persons.

c. Control of public access areas on orpassing through the site or within the exclusion area.

d. Evacuation routes, transportation ofpersonnel, and reassembly areas, including alternativesfor inclement weather and high traffic density.

e. Missing persons check.

f. Radiological monitoring of evacuees.

6.4.3 Contamination Control Measures

Provisions should be made for preventing orminimizing exposure to radioactive materials. Control ofin-plant contamination should be described in specificradiological protection procedures and need not berepeated here. Measures for the protection of offsitepersons and onsite persons outside of fenced securityareas should include:

9. Offsite Areas 1. Isolation or quarantine and area accesscontrol.

a. Action criteria, including inclementweather alternatives.

organization.b. Responsibilities of company emergency

c. Agency responsibilities.

2. Control of the distribution of affectedcommercial agricultural products.

3. Control of public water supplies.

4. Means for providing advisory informationregarding the use of potentially affected home food andwater supplies.

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5. Criteria fur permitting return to normaluse.

Action levels and responsibility for executionof each mcasure contemplated should be described.

6.S Aid to Affected Personnel

This section of the emergency plan should describemeasures thai will be used to provide necessary assist-ancc to persons injured or exposed to radioactivity. Thefollowing mat lers should bc included:

6.5.1 Emergency Personnel Exposure Criteria

This should specify exposure limits for entryor reentry to areas to remove injured persons and limitsfor emergency personnel who may provide first aid,decontamination, ambulance, or medical treatment serv.ices to injured persons. An individual or authorityshould be designated it) autlhorize or approve theacceptancc of emergency radiation exposure for life-saving purpo,:es.

6.5.2 Decontamination and First Aid

Capabilities for dccontaminating personnelfor their own protection and to prevent or minimizefuirther spread of contamination should be included.along with a brief description of first aid training andcapabilities of appropriate members of the emergencyorganization.

6.5.3 Medical Transportation

Arrangements for transporting injured person-nel, who may also be radiologically contaminated, tomedical treatment facilities should be specified.

6.5.4 Medical Treatment

Arrangements made for local and backuphospital atid medical services and the capability for theevaluation of radiation exposure and uptake should bedescribed.

For both hospital and medical services, theplan should incorporate assurance not only that therequired services are available, but also that personsproviding them are prepared and qualified to handleradiological emergencies. Written agreements with re-spect to arrangements made by the applicant, whichshould be included in the appendix. would facilitate thisdetermination.

7. EMERGENCY FACILITIES AND EQUIPMENT

This section of the emergency plan should identify,describe briefly, and give the locations of the items

identified below. Where appropriate, references may bemade to applicable. sections of the Safety AnalysisReport for additional oetail.

7.1 Emergency Control Centers

This should include the principal and, if providedfor, alternative onsite locations from which effectiveemergency control direction is given, One alternativeoffsite location under the jurisdiction of the applicantshould also be de:cribed. Their locations should berelated to the reactors, prevailing wind direction, andevacuation routes.

7.2 Communications Systems

This should give brief descriptions of both oisiteand offsitc communications systems, including redun-dant power sources that would be required to performvital functions in transmitting and receiving informationthroughout the course of an emergency.

7.3 Assessment Facilities

Many of the emergency measures described inSection 6 wiil depend on the availability of monitori;iginstruments and laboratory facilities. This section shouldlist monitoring systems that are to be used to initiateemergency measures, as well as those to be used forcontinuing assessment. The listing should be organized asfollows:

7.3.1 Onsite Systems and Equipment

1. Natural phenomena monitors, e.g.. mete-orological, hydrologic, seismic.

2. Radiological monitors, e.g.. process. area.emergency, effluent, and portable monitors and sam-pling equipment.

3. Nonradiological monitors, e.g., reactorcoolant system pressure and temperature. containmentpressure and temperature, liquid levels, flow rates, statusor lineup of equipment components.

4. Fire detection devices.

7.3.2 Facilities and Equipment for Offsite Monitor-

ing

I. Natural phenomena monitors.

2. Radiological monitors.

3. Laboratory facilities, fixed and mobile.

I0 1.101-9

7.4 Protective Facilities . 8.1.2 Drills

• Specific facilities that are intended to serve aprotective function should bedcscribed with emphasison those features of each facility that ensure its

"j adequacy with respect to capacity for accommodatingthe number of. persons expected and with respect toshielding, ventilation, and inventory of supplies. Suchfacilities might include fallout shelters or similar areasand reassembly points. If design details have beenprovided elsewhere in the Safety Analysis Report, only abrief summary need be given here, along with a referenceto the detailed information.

7.5 First Aid and Medical Facilities

A summary description of onsite facilities should beprovided. (Offsite medical facilities should be describedin the appendix, along with the agreements providing fortheir use.)

* 8. MAINTAINING EMERGENCY PREPAREDNESS

This section of the plan should describe the meansto be employed to ensure that the plan will continuc tobe effective throughout the lifetime of the nuclearfacility.

8.1 Organizational Preparedness

8.1.1 Training

This should include a description of periodictraining programs to be given to all categories ofemergency personnel. Specialized training for the follow-ing categories should be included:

I. Directors or coordinators of the plantemergency. organization.

2. Personnel responsible for accident assess-ment, including control room shift personnel.

3. Radiological monitoring teams.

Periodic (at least annual) announced drillsshould be incorporated in the emergency plan. Theseshould be preplanncd simulations of accidents to test theadequacy of tinting and content of specific implement-ing procedures and to test cmergency equipment. Ar--angem...1ts should be made for critiques of the drills.Coordinating drills should be held with participatingagencies at least annually; as a mininimum, the communi-cations links and notificafion procedures with thoseagencies should be tested. An initial coordinated drillwith participating agencies should be planned andcarried out prior to fuel loading of the first unit at'anysite.

8.2 Review and Updating of the Plan and Procedures

Provision should be made for aai annual review oftile emergency plan and for updating and improvingprocedures to incorporate results of training and drillsand to account for changes onsite or in the environs.Means for maintaining all coordinate elements of thetotal emergency organization informed of revisions tothe plan or relevant procedures should be described.

8.3 Emergency Equipment and Supplies

The operational readiness of all items of emergencyequipment and supplies should be ensured. The plansand schedules for performing maintenance, surveillancetesting, and inventory on emergency equipment andsupplies should be described.

9. RECOVERY

This section should describe general plans, includingapplicable criteria, for restoring the plant as nearly asmay be possible to its preemergcncy status.

10. APPENDIX

The appendix should include the following items:

1. Copies of agency agreement letters and copiesor summaries of interfacing emergency plans.

2. Plots of calculated time.distance.dose for themost serious design basis accident. as called for in thelatest revision of Regulatory Guide 1.70, "StandardFormat and Content of Safety Analysis Reports forNuclear Power Plants."

3. Listings, by title, of written procedures thatimplement the plan.

4. Listings, by general category, of emergency kits,protective equipment, and supplies that are stored and

4. Fire control and repair and damage con.trol teams.

5. First aid and rescue team members.

6. Local services personnel.

7. Medical support personnel.

8. Licensee's headquarters support personnel.

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maintained for emergency purposes. A detailed catalogof individual items should not be included in the plan.The written procedures themselves and a detailedcatalog of protective equipment and supplies should be

available at the plant site for inspection at any time by arepresentative of the Commission's Office of Inspectionand Enforcement.

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ANNEX B

IMPLEMENTING PROCEDURES FOR EMERGENCY PLANS

. This annex provides guidance regarding the prepation and content of procedures that implement temergency plan.

1. CONTENT AND FORMAT OF PROCEDURES

This section describes desirable features that shotbe incorporated, where appropriate, into individtimplementing procedures.

1.1 Organization and Responsibilities

Wherever appropriate, each procedure shotspecify the individual or organizational element havithe authority and responsibility for performing specicritical tasks covered by the procedure.

1.2 Action Levels

Emergency action levels and protective actiiguides should be specified in procedures, along with temcrgency actions or protective actions required and tindividuals or organizational units responsible for thiimplementation.

1.3 Actions by Support Agencies

The specific actions to be performed by supptgroups should .be identified in the procedures dealiwith their activities. If the emergency actions performby these groups require coordination with other ements of the emergency organization, the particulars arequirements of this coordination should be specifiedthe controlling procedure.

1.4 Procedure Format

A rigid format for implementing procedures is nsuggested in this guide. An acceptable format shotdisplay the action steps so the user of the procedure cclearly understand his duties. The format of procedu!that specify immediate actions to be taken has specsignificance because the user needs brief and expliinstructions that can be followed easily and quickly.

1.4.1 Title and Purpose

Eacth procedure should have a title thatdescriptive of its purpose. The purpose of the procedtshould be stated separately, however, if the title is rsufficiently descriptive.

1.4.2 Conditions and Prerequisites

Each procedure should specify the prereqsites and conditions that should exist before the spe

ra- fled actions or operations are performed. These shouldhe be in the form of action levels or protective action

guides.

1.4.3 Actions and Limitations

ild Procedures should present the requiredjal actions in a succinct and concise manner and in

step-by-step order and logical sequence. The instructionsshould be sufficiently detailed for a qualified individualto perform the required actions without supervision butneed not provide a completely detailed description of

ild the actions, methods, or processes.ngfic If the user is given the latitude to exercise

judgment in implementing specific actions or parts ofthe procedure, guidelines should be provided in theprocedure to aid the user in making decisions.

on 1.4.4 Cautions and Precautionshehe Important steps or precautions should beeir noted or highlighted within the procedure.

1.4.5 References

When procedural steps require other func-)rt tions or jobs to be performed, the controlling procedureng should contain the reference to other applicable proce-ed dures.le-nd 1.4.6 Signoff Sheets and Checklistsin

Complex or lengthy controlling proceduresshould have provisions for signoff sheets or checklists todocument the fact that required actions havy been takenor have been completed. Examples include notification

iot call lists and personnel accountability checks.mid

anres 2. SCOPE OF IMPLEMENTING PROCEDURESialcit

2.1 Immediate Action Procedures

There should be a separate procedure for eachidentified class of emergency to specify and implement

is the preplanned response actions required for that emer-ire gency condition. Each procedure should (I) clearlylot identify the action level, the protective action guide, or

the conditions for declaring the emergency condition,(2) list the individuals and elements of the emergencyorganization that are to be notified and mobilized, and(3) specify the emergency actions that are to be taken

ui- by designated individuals and elements of the emergency'ci- organization.

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2.2 Emergency Action Procedures

The following sections list subjects that should becovered by written procedures. The titles (f specificprocedures, as well as their contents, may vary amonglicensees, but the actions or subjects described belowshould be covered within the group of procedures thatimplement the emergency plan.

2.2.1 Notifications

Call lists to alert and mobilize the emergencyorganization and. supporting agencies should be specifiedfor each identified class of emergency. If call lists are nottoo lengthy or complex, they should be incorporatedinto the immediate action procedure.

2.2.2 Radiological Surveys

Procedures should specify the methods, andpreplanned locations if feasible, for emergency radio-logical surveys in the plant and in the environs of theplant. The rocedures should include or refer to require-ments for 'oviding collected data and information tothe individual or organizational element responsible foremergency assessment functions.

2.2.3 Personnel Monitoring and Decontamination

The procedures should require monitoring ofindividuals leaving restricted areas or other areas knownor suspected to be contaminated. The procedures shouldspecify contamination levels that require decontamina-tion actions. They should also include or refer todecontamination procedures for various types and levelsof radioactive contamination.

2.2.4 Evacuation of Oasite Areas

Procedures for evacuation should include theaction levels that require evacuation of specified areas,buildings, and the site. Primary and secondary evacua-tion routes and assembly areas should be designated.These procedures should be related to or refer to thoseprocedures for personnel accountability and personnelmonitoring.

2.2.5 Personnel Accountability

A method of personnel accountability shouldbe specified in procedures to ensure that, at all times, allindividuals within the site confines and areas andbuildings within the site are warned of imminent threatsor hazardous conditions and evacuated from affectedareas if required.

The procedures should designate individualshaving the responsibility of accounting for persons

within areas and buildings within the site. The proce-dures should contain appropriate checksheets and sign-offs and should provide for reporting of information tothe central authority in charge of the emergencyresponse actions.

2.2.6 Asse.,sment Actions

Procedures should describe the system forgathering information and data on which to basedecisions to escalate or deescalate emergency responseactions. They should identify the types and sources ofinformation available such as control room radiologicaland meteorological instruments and radiation and con-tamination levels as defined by in-plant, site boundary,and onsite and offsitr. surveys The procedures shouldspecify action levels, protective action guides, and otherguidelines as a basis for decisions to initiate emergencymeasures and actions or to terminate or otherwisemodify emergency actions in progress. The proceduresshould assign responsibilities for gathering and usingassessment data and information.

2.2.7 First Aid and Medical Care

The procedures that specify the methodsand instructions for receiving, transporting, handling,and: providing medical treatment of injured personsshould specifically include the prezautions and specialhandling required for contaminated paticnts. The proce-dures should cover separately the provisions for, and useof, medical treatment facilities in both onsite and offsiteareas.

2.2.8 Firefighting

The procedures should cover precautions forfighting fires involving radioactive materials and forsituations where firefighters may otherwise be exposedto radiation. They should cover the responsibilities andcapabilities of both' in-house and offsite firefigh!ingteams and equipment. They should include specificinstructions for monitoring the exposure to radiation ofoffsite personnel involved in firefighting.

2.2.9 Reentry

Procedures and guidelines should be devel-oped for reentry to previously evacuated areas for thepurposes of saving lives, search and rescue of missing andinjured persons, or manipulation, repair, or recovery ofcritical equipment or systems. Specific guidelines shouldbe included in these procedures for maximum emer-gency radiation exposures for reentry and rescue person-nel. The procedures should designate the individual orauthority having the responsibility for approving thevoluntary acceptance of emergency exposures.

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2.2.10 Plant Security 2.3.3 Equipment and Instrumentation

The normal plant security proceduwes shouldpowidC f'o security and access control during emergencyco il d ior ls.

2.2.1 Recovery

Actioln lovels .autd guidClines should be devel-op.d I'M restoring operations and propierty as nearly aspossible to their preenmergency status. The less complextpcr:ations such as personnel enlergencics and emergencyal-ius should require only brief recovery action proce-dures. The more complex emergency operations, how-ever I(site .and geoeral emergencies I'or eample). willgene.rally require !urrvspondingly conmphlex recovery:ictions. It is not practicable to plan detailed recoveryactL ionS for all conceivable situations, but proceduresthat include at least the initial planning considerationsfOr recovering. repairing, de,:ontaininating. etc. poten-tiaily affIected portions of the facility should be devel-

During recovery operations, personnel cx-posures to radiation should be maintained within 10C(FR Part 20 limits.

2.3 Supplemental Procedures

This section lists subjects for procedures thatsupplement those covering emergency resl'onse actions.rhc specific titles and contents may vary, but thedescribed subjects should be covered in the licensee'sproccedural system.

2.3.1 Communications

Procedures should be available for activating,operating. testing, and maintaining the emergency com-

umnlications svsye ins.

2.3.2 Documentation and Records

Procedures should include requirements foriecording the implementation and completion or termi-nation of emergency response actions, logging assess-nenl data, reports of personnel accountability, and

maintenance of required ;ecords and log.

Operating instructions for equipment andins!rumentation should be prepared and stored with theequipment. Procedures should include inventory lists ofkits, equmipment, and ittstrumnents and provisions ftorperiodic inventory, inspection, calibration, and nainlten-arict.

2.3.4 Training

The training program for thec cnergencyorganization should be documented in the form ofschedules and lesson plans or lesson outlines. Theprogram should include training for licensee employeesand for offsite organizations and personnel who are toprovide support in the emergency response.

2.3.5 Tests and Drills

Procedures should provide for practice drillsto test the state of preparedness of the emergencyorganization. The procedures should include guidancefor the development oft detailed scenarios to test bothspecific procedures and implementation of the majoraspects of the emergency plan. The scenarios should bepreplanned simulations of emergency situations, aridthey should be approved by plant management afterthey have been reviewed for scope and adequacy.

The procedures should consider t(le utility oftesting on both an announced and unannounced basis.They should require the use of an observer staff duringtie conduct of test drills and should contain provisionsfor appropriate checklists or critique sheets to be usedby the observer staff.

The procedur6s for practice drills shouldinclude coordinatiun with offsite support organizations.Communications drills with support organizations aresufficient to test the licensee's notification procedures.

3. REVIEW AND APPROVAL OF PROCEDURES

The procedural system used by licensees shouldcontain written rules and instructions- governing thewriting, revising, and updating of implementing proce-dures. The instructions should specify the methods to beused to ensure that procedures, revisions, and changesare reviewed for adequacy, approved for use, anddistributed to user organizations and individuals havingthe responsibility for implementing the procedures.

@1

S1.101-14