81_FR_88915 81 FR 88679 - Final Revision to the PAG Manual: Protective Action Guides and Planning Guidance for Radiological Incidents

81 FR 88679 - Final Revision to the PAG Manual: Protective Action Guides and Planning Guidance for Radiological Incidents

ENVIRONMENTAL PROTECTION AGENCY

Federal Register Volume 81, Issue 236 (December 8, 2016)

Page Range88679-88681
FR Document2016-29439

As part of its mission to protect human health and the environment, the U.S. Environmental Protection Agency (EPA) publishes protective action guides to help federal, state, local and tribal emergency response officials make radiation protection decisions during emergencies. The EPA, in coordination with a multi-agency working group within the Federal Radiological Preparedness Coordinating Committee (FRPCC), has made final updates to the 1992 Manual of Protective Action Guides and Protective Actions for Nuclear Incidents, referred to as ``The 1992 PAG Manual'' (EPA 400-R-92-001, May 1992). The updated guidance in the revised PAG Manual: Protective Action Guides and Planning Guidance for Radiological Incidents (``PAG Manual'' hereafter) applies the protective action guides (PAGs) to incidents other than nuclear power plant accidents, updates the radiation dosimetry and dose calculations based on current science and incorporates late phase guidance. The final revisions incorporate input from public comments received in 2013 and include clarifications based on those comments. The Agency plans to finalize drinking water guidance after incorporating public comments on a proposal published in June 2016. The intention is to add it as a section in the Intermediate Phase chapter of the PAG Manual and reissue the PAG Manual once complete. The final revision of the PAG Manual is available at www.regulations.gov.

Federal Register, Volume 81 Issue 236 (Thursday, December 8, 2016)
[Federal Register Volume 81, Number 236 (Thursday, December 8, 2016)]
[Notices]
[Pages 88679-88681]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-29439]



[[Page 88679]]

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ENVIRONMENTAL PROTECTION AGENCY

[EPA-HQ-OAR-2007-0268; FRL-9956-19-OAR]


Final Revision to the PAG Manual: Protective Action Guides and 
Planning Guidance for Radiological Incidents

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice of document availability.

-----------------------------------------------------------------------

SUMMARY: As part of its mission to protect human health and the 
environment, the U.S. Environmental Protection Agency (EPA) publishes 
protective action guides to help federal, state, local and tribal 
emergency response officials make radiation protection decisions during 
emergencies. The EPA, in coordination with a multi-agency working group 
within the Federal Radiological Preparedness Coordinating Committee 
(FRPCC), has made final updates to the 1992 Manual of Protective Action 
Guides and Protective Actions for Nuclear Incidents, referred to as 
``The 1992 PAG Manual'' (EPA 400-R-92-001, May 1992).
    The updated guidance in the revised PAG Manual: Protective Action 
Guides and Planning Guidance for Radiological Incidents (``PAG Manual'' 
hereafter) applies the protective action guides (PAGs) to incidents 
other than nuclear power plant accidents, updates the radiation 
dosimetry and dose calculations based on current science and 
incorporates late phase guidance. The final revisions incorporate input 
from public comments received in 2013 and include clarifications based 
on those comments. The Agency plans to finalize drinking water guidance 
after incorporating public comments on a proposal published in June 
2016. The intention is to add it as a section in the Intermediate Phase 
chapter of the PAG Manual and reissue the PAG Manual once complete. The 
final revision of the PAG Manual is available at www.regulations.gov.

DATES: The PAG Manual is available for use upon publication of this 
Notice in the Federal Register.

FOR FURTHER INFORMATION CONTACT: Sara DeCair, Radiation Protection 
Division, Center for Radiological Emergency Management, Mail Code 
6608T, U.S. Environmental Protection Agency, 1200 Pennsylvania Avenue 
NW., Washington, DC 20460; telephone number: (202) 343-9108; fax 
number: (202) 343-2304; Email: decair.sara@epa.gov.

SUPPLEMENTARY INFORMATION: 

A. How can I get copies of the PAG Manual and supporting information?

    Docket: All documents in the docket are listed in the 
www.regulations.gov index. Although listed in the index, some 
information is not publicly available, e.g., CBI or other information 
whose disclosure is restricted by statute. Certain other material, such 
as copyrighted material, will be publicly available only in hard copy. 
The EPA has established a docket for this action under Docket ID No. 
[EPA-HQ-OAR-2008-0268; FRL-9707-2]. Publicly available docket materials 
are available either electronically through www.regulations.gov or in 
hard copy at the Air and Radiation Docket in the EPA Docket Center, 
(EPA/DC) EPA West, Room 3334, 1301 Constitution Ave. NW., Washington, 
DC 20004. The EPA Docket Center Public Reading Room is open from 8:30 
a.m. to 4:30 p.m., Monday through Friday, excluding legal holidays. The 
telephone number for the Public Reading Room is (202) 566-1744 and the 
telephone number for the Air and Radiation Docket is (202) 566-1742. In 
accordance with EPA regulations at 40 CFR part 2 and in accordance with 
normal EPA docket procedures, if copies of any docket materials are 
requested, a reasonable fee may be charged for photocopying.
    Electronic access: The PAG Manual in electronic form suitable for 
printing, as well as related guidelines and further information, can be 
found on the PAGs Web page at http://www.epa.gov/radiation/protective-action-guides-pags.

B. What authority does the EPA have to provide Protective Action 
Guidance?

    The historical and legal basis of the EPA's role in the PAG Manual 
begins with Reorganization Plan No. 3 of 1970, in which the 
Administrator of the EPA assumed functions of the Federal Radiation 
Council (FRC), including the charge to ``. . . advise the President 
with respect to radiation matters, directly or indirectly affecting 
health, including guidance for all federal agencies in the formulation 
of radiation standards and in the establishment and execution of 
programs of cooperation with states.'' (Reorg. Plan No. 3 of 1970, sec. 
2(a)(7), 6(a)(2); Sec.  274.h of the Atomic Energy Act of 1954, as 
amended (AEA), codified at 42 U.S.C. 2021(h)). Recognizing this role, 
the Federal Emergency Management Agency (FEMA) directed the EPA in 
their Radiological Emergency Planning and Preparedness Regulations to 
``establish Protective Action Guides (PAGs) for all aspects of 
radiological emergency planning in coordination with appropriate 
federal agencies.'' (44 CFR 351.22(a)). FEMA also tasked the EPA with 
preparing ``guidance for state and local governments on implementing 
PAGs, including recommendations on protective actions which can be 
taken to mitigate the potential radiation dose to the population.'' (44 
CFR 351.22(b)). All of this information was to ``be presented in the 
Environmental Protection Agency (EPA) `Manual of Protective Action 
Guides and Protective Actions for Nuclear Incidents.' '' (44 CFR 
351.22(b)).
    Additionally, section 2021(h) charged the Administrator with 
performing ``such other functions as the President may assign to him 
[or her] by Executive order.'' Executive Order 12656 states that the 
Administrator shall ``[d]evelop, for national security emergencies, 
guidance on acceptable emergency levels of nuclear radiation. . . .'' 
(Executive Order No. 12656, sec.1601(2)). The EPA's role in PAGs 
development was reaffirmed by the National Response Framework, Nuclear/
Radiological Incident Annex of June 2008.

C. What is the PAG Manual: Protective Action Guides and Planning 
Guidance for Radiological Incidents?

    The PAG Manual provides federal, state and local emergency 
management officials with guidance for responding to radiological 
emergencies. A protective action guide (PAG) is the projected dose to 
an individual from a release of radioactive material at which a 
specific protective action to reduce or avoid that dose is recommended. 
Emergency management officials use PAGs for making decisions regarding 
actions to protect the public from exposure to radiation during an 
emergency. Such actions include, but are not limited to, evacuation, 
shelter-in-place, temporary relocation, and food restrictions.
    Development of the PAGs was based on the following essential 
principles, which also apply to the selection of any protective action 
during an incident--
     Prevent acute effects,
     Balance protection with other important factors and ensure 
that actions result in more benefit than harm,
     Reduce risk of chronic effects.
    The PAG Manual is not a legally binding regulation or standard and 
does not supersede any environmental laws. This guidance does not 
address or impact site cleanups occurring under other statutory 
authorities such as the EPA's Superfund program, the Nuclear Regulatory 
Commission's (NRC) decommissioning program, or other federal or state 
cleanup programs. As indicated by the use of non-mandatory

[[Page 88680]]

language such as ``may,'' ``should'' and ``can,'' the PAG Manual only 
provides recommendations and does not confer any legal rights or impose 
any legally binding requirements upon any member of the public, states 
or any federal agency. Rather, the PAG Manual recommends projected 
radiation doses at which specific actions may be warranted in order to 
reduce or avoid that dose. The PAG Manual is designed to provide 
flexibility to be more or less restrictive as deemed appropriate by 
decision makers based on the unique characteristics of the incident and 
the local situation.

D. How did EPA respond to public comments on the 2013 PAG Manual 
revision?

    The proposed updates to the 1992 PAG Manual, published for public 
comment and interim use in 2013, were developed by a multi-agency 
Subcommittee of the Federal Radiological Preparedness Coordinating 
Committee (FRPCC) and published by the EPA with concurrence from the 
Department of Energy (DOE); the Department of Defense (DoD); the 
Department of Homeland Security (DHS), including the Federal Emergency 
Management Agency (FEMA); the Nuclear Regulatory Commission (NRC); the 
Department of Health and Human Services (HHS), including both the 
Centers for Disease Control (CDC) and the Food and Drug Administration 
(FDA); the U.S. Department of Agriculture (USDA); and the Department of 
Labor (DOL).
    The Agency received about 5,000 comments from members of the 
public, state and local emergency response and health organizations, 
industry associations, and from national and international radiation 
protection organizations. In response to comments received, questions 
raised in comments and issues identified about implementing the updated 
PAG Manual, the EPA made a number of changes to the PAG Manual, as 
described below.
    The EPA received comments and questions on the potassium iodide 
(KI) PAG from state radiation protection agencies and from industry 
organizations. In response, planning considerations were clarified 
regarding the lower FDA KI PAG in combination with deleting the 
thyroid-based evacuation threshold. The EPA added a Table (Table 2.2) 
with more details on the KI PAG; and also worked with the FDA to 
include a simplified approach to implementing this PAG and provided 
reference for the reader to the FDA's published guide. More explanation 
was included regarding the thyroid-based (organ-based) evacuation 
thresholds being deleted. This was done for simplicity and because 
modern dose projection tools now do a much better job of accounting for 
all-pathway exposures.
    The EPA received many comments from PAG technical users suggesting 
terminology improvements and requesting more information about how the 
Federal Radiological Monitoring and Assessment Center (FRMAC)--the 
federal government lead for these calculations during radiological 
emergencies--provides calculation methods and tables of derived levels. 
Additional language is provided on the tables of derived values for 
implementing the PAGs. Specifically, clarifying text on FRMAC methods 
and dose factor terminology was added. Definitions for incident phases 
and several concepts around dose projection were also clarified.
    The Agency received comments from state emergency management and 
radiation protection agencies, as well as federal agencies, requesting 
the inclusion of language from the 1992 PAG Manual Appendices in the 
revised PAG Manual. This text, focusing on the rationale and basis for 
setting early and intermediate phase PAGs, has been added to the 
revised PAG Manual. The 2013 proposal included this information only by 
reference, but the revised PAG Manual will serve the emergency response 
community better by providing a summarized description of the basis for 
setting PAGs directly in the new publication. The 1992 PAG Manual 
Appendices are still available online in a word-searchable format, for 
reference.
    The EPA received limited, but important, comments on the worker 
protection section of the proposed Manual, requesting updates to 
reflect more recent publications on worker safety. These comments were 
considered by the EPA, the Occupational Safety and Health 
Administration and the NRC; changes were made to ensure consistency 
with the latest worker safety guidelines from other agencies.
    Some commenters expressed concern over the removal of the 5 rem 
over 50 years Relocation PAG. Therefore, explanation about the removal 
of that PAG was expanded, adding language to better explain the 
deletion. The decision was made in order to eliminate confusion with 
long-term remediation timeframes and long-term cleanup goals.
    The EPA received a number of comments, largely from environmental 
organizations, expressing concern about whether the PAGs are safe 
enough, and whether children and sensitive subpopulations are 
considered adequately. There is an abundant conservatism built into the 
derivation of the PAGs, and into the assumptions used to generate 
derived response levels, to ensure that the PAGs are appropriate 
emergency guides for all members of the public, including sensitive 
subpopulations. The Agency provided additional explanation in the 
revised Manual about the basis for the PAGs and how PAG levels are set. 
A discussion of the conservatism that has been built into the early and 
intermediate phase PAGs was also added to the Manual.
    Some commenters expressed concerns that PAGs would weaken 
environmental standards and regulations. Environmental regulations or 
standards are legal limits designed to prevent health effects from 
everyday exposure to low levels of radiation over long periods. The PAG 
levels are guidance for emergency situations; they do not supplant any 
standards or regulations, nor do they affect the stringency or 
enforcement of any standards or regulations. The PAG levels are 
intended to be used only in an emergency when radiation levels have 
already exceeded environmental standards and could be high enough to 
cause health effects unless protective actions are taken. The PAG 
levels trigger public safety measures to minimize or avoid radiation 
exposures during an emergency.
    The EPA also received some comments suggesting that the U.S. should 
rely solely on existing environmental standards and that PAGs are not 
needed. PAG levels do not replace environmental standards, and 
environmental standards do not fulfill the role of the PAGs. PAGs are 
used only during emergency situations when radiation levels are already 
exceeding environmental standards and could become high enough to cause 
adverse health effects unless protective action is taken. During a 
radiological emergency, the PAGs are designed to prevent adverse health 
effects by triggering public safety measures--protective actions, such 
as evacuation--and minimizing unnecessary exposures. The PAGs are set 
at a level where the health risk from radiation exposure that could be 
avoided with protective action outweighs the risk associated with 
taking the safety measures, e.g., traffic accidents, trips and falls or 
anxiety associated with dislocation or the separation of family 
members.
    Finally, the EPA received comments requesting edits to clarify, 
reword or reorder language in the PAG Manual. Based on those comments, 
a number of

[[Page 88681]]

editorial changes were made to improve both the clarity and readability 
of the Manual.

E. What is the timeframe for implementation of this PAG Manual?

    Emergency management and radiation protection organizations that 
use the PAGs in their emergency plans are encouraged to incorporate 
this updated guidance as soon as possible. This may entail training, as 
well as updating plans and procedures. Outreach and technical training 
will be conducted by the EPA, the FRMAC and interagency partners on the 
PAG Subcommittee.
    The Federal Emergency Management Agency (FEMA) expects certain 
organizations associated with nuclear power plant operations to use the 
PAG Manual in developing their emergency management plans. The FEMA 
plans to begin using the new PAG Manual during their evaluation of 
offsite response organizations around nuclear power facilities twelve 
months after the publication of this Notice in the Federal Register.
    For further information and related guidelines, see the PAGs Web 
page: http://www.epa.gov/radiation/protective-action-guides-pags.

    Dated: December 1, 2016.
Gina McCarthy,
Administrator.
[FR Doc. 2016-29439 Filed 12-7-16; 8:45 am]
 BILLING CODE 6560-50-P



                                                                           Federal Register / Vol. 81, No. 236 / Thursday, December 8, 2016 / Notices                                           88679

                                                ENVIRONMENTAL PROTECTION                                A. How can I get copies of the PAG                    appropriate federal agencies.’’ (44 CFR
                                                AGENCY                                                  Manual and supporting information?                    351.22(a)). FEMA also tasked the EPA
                                                                                                          Docket: All documents in the docket                 with preparing ‘‘guidance for state and
                                                [EPA–HQ–OAR–2007–0268; FRL–9956–19–                     are listed in the www.regulations.gov                 local governments on implementing
                                                OAR]                                                    index. Although listed in the index,                  PAGs, including recommendations on
                                                                                                        some information is not publicly                      protective actions which can be taken to
                                                Final Revision to the PAG Manual:                                                                             mitigate the potential radiation dose to
                                                                                                        available, e.g., CBI or other information
                                                Protective Action Guides and Planning                                                                         the population.’’ (44 CFR 351.22(b)). All
                                                                                                        whose disclosure is restricted by statute.
                                                Guidance for Radiological Incidents                                                                           of this information was to ‘‘be presented
                                                                                                        Certain other material, such as
                                                                                                                                                              in the Environmental Protection Agency
                                                AGENCY: Environmental Protection                        copyrighted material, will be publicly
                                                                                                                                                              (EPA) ‘Manual of Protective Action
                                                Agency (EPA).                                           available only in hard copy. The EPA
                                                                                                                                                              Guides and Protective Actions for
                                                ACTION: Notice of document availability.                has established a docket for this action
                                                                                                                                                              Nuclear Incidents.’ ’’ (44 CFR 351.22(b)).
                                                                                                        under Docket ID No. [EPA–HQ–OAR–                         Additionally, section 2021(h) charged
                                                SUMMARY:    As part of its mission to                   2008–0268; FRL–9707–2]. Publicly                      the Administrator with performing
                                                protect human health and the                            available docket materials are available              ‘‘such other functions as the President
                                                environment, the U.S. Environmental                     either electronically through                         may assign to him [or her] by Executive
                                                Protection Agency (EPA) publishes                       www.regulations.gov or in hard copy at                order.’’ Executive Order 12656 states
                                                protective action guides to help federal,               the Air and Radiation Docket in the EPA               that the Administrator shall ‘‘[d]evelop,
                                                state, local and tribal emergency                       Docket Center, (EPA/DC) EPA West,                     for national security emergencies,
                                                response officials make radiation                       Room 3334, 1301 Constitution Ave.                     guidance on acceptable emergency
                                                protection decisions during                             NW., Washington, DC 20004. The EPA                    levels of nuclear radiation. . . .’’
                                                emergencies. The EPA, in coordination                   Docket Center Public Reading Room is                  (Executive Order No. 12656,
                                                with a multi-agency working group                       open from 8:30 a.m. to 4:30 p.m.,                     sec.1601(2)). The EPA’s role in PAGs
                                                within the Federal Radiological                         Monday through Friday, excluding legal                development was reaffirmed by the
                                                Preparedness Coordinating Committee                     holidays. The telephone number for the                National Response Framework,
                                                (FRPCC), has made final updates to the                  Public Reading Room is (202) 566–1744                 Nuclear/Radiological Incident Annex of
                                                1992 Manual of Protective Action                        and the telephone number for the Air                  June 2008.
                                                Guides and Protective Actions for                       and Radiation Docket is (202) 566–1742.
                                                Nuclear Incidents, referred to as ‘‘The                 In accordance with EPA regulations at                 C. What is the PAG Manual: Protective
                                                1992 PAG Manual’’ (EPA 400–R–92–                        40 CFR part 2 and in accordance with                  Action Guides and Planning Guidance
                                                001, May 1992).                                         normal EPA docket procedures, if                      for Radiological Incidents?
                                                   The updated guidance in the revised                  copies of any docket materials are                      The PAG Manual provides federal,
                                                PAG Manual: Protective Action Guides                    requested, a reasonable fee may be                    state and local emergency management
                                                and Planning Guidance for Radiological                  charged for photocopying.                             officials with guidance for responding to
                                                Incidents (‘‘PAG Manual’’ hereafter)                       Electronic access: The PAG Manual in               radiological emergencies. A protective
                                                applies the protective action guides                    electronic form suitable for printing, as             action guide (PAG) is the projected dose
                                                (PAGs) to incidents other than nuclear                  well as related guidelines and further                to an individual from a release of
                                                power plant accidents, updates the                      information, can be found on the PAGs                 radioactive material at which a specific
                                                radiation dosimetry and dose                            Web page at http://www.epa.gov/                       protective action to reduce or avoid that
                                                calculations based on current science                   radiation/protective-action-guides-pags.              dose is recommended. Emergency
                                                and incorporates late phase guidance.                   B. What authority does the EPA have to                management officials use PAGs for
                                                The final revisions incorporate input                   provide Protective Action Guidance?                   making decisions regarding actions to
                                                from public comments received in 2013                                                                         protect the public from exposure to
                                                and include clarifications based on                       The historical and legal basis of the               radiation during an emergency. Such
                                                those comments. The Agency plans to                     EPA’s role in the PAG Manual begins                   actions include, but are not limited to,
                                                finalize drinking water guidance after                  with Reorganization Plan No. 3 of 1970,               evacuation, shelter-in-place, temporary
                                                incorporating public comments on a                      in which the Administrator of the EPA                 relocation, and food restrictions.
                                                proposal published in June 2016. The                    assumed functions of the Federal                        Development of the PAGs was based
                                                intention is to add it as a section in the              Radiation Council (FRC), including the                on the following essential principles,
                                                Intermediate Phase chapter of the PAG                   charge to ‘‘. . . advise the President                which also apply to the selection of any
                                                Manual and reissue the PAG Manual                       with respect to radiation matters,                    protective action during an incident—
                                                once complete. The final revision of the                directly or indirectly affecting health,                • Prevent acute effects,
                                                PAG Manual is available at                              including guidance for all federal                      • Balance protection with other
                                                www.regulations.gov.                                    agencies in the formulation of radiation              important factors and ensure that
                                                                                                        standards and in the establishment and                actions result in more benefit than
                                                DATES: The PAG Manual is available for                  execution of programs of cooperation                  harm,
                                                use upon publication of this Notice in                  with states.’’ (Reorg. Plan No. 3 of 1970,              • Reduce risk of chronic effects.
                                                the Federal Register.                                   sec. 2(a)(7), 6(a)(2); § 274.h of the                   The PAG Manual is not a legally
                                                FOR FURTHER INFORMATION CONTACT: Sara                   Atomic Energy Act of 1954, as amended                 binding regulation or standard and does
                                                DeCair, Radiation Protection Division,                  (AEA), codified at 42 U.S.C. 2021(h)).                not supersede any environmental laws.
                                                Center for Radiological Emergency                       Recognizing this role, the Federal                    This guidance does not address or
sradovich on DSK3GMQ082PROD with NOTICES




                                                Management, Mail Code 6608T, U.S.                       Emergency Management Agency                           impact site cleanups occurring under
                                                Environmental Protection Agency, 1200                   (FEMA) directed the EPA in their                      other statutory authorities such as the
                                                Pennsylvania Avenue NW., Washington,                    Radiological Emergency Planning and                   EPA’s Superfund program, the Nuclear
                                                DC 20460; telephone number: (202)                       Preparedness Regulations to ‘‘establish               Regulatory Commission’s (NRC)
                                                343–9108; fax number: (202) 343–2304;                   Protective Action Guides (PAGs) for all               decommissioning program, or other
                                                Email: decair.sara@epa.gov.                             aspects of radiological emergency                     federal or state cleanup programs. As
                                                SUPPLEMENTARY INFORMATION:                              planning in coordination with                         indicated by the use of non-mandatory


                                           VerDate Sep<11>2014   17:28 Dec 07, 2016   Jkt 241001   PO 00000   Frm 00023   Fmt 4703   Sfmt 4703   E:\FR\FM\08DEN1.SGM   08DEN1


                                                88680                      Federal Register / Vol. 81, No. 236 / Thursday, December 8, 2016 / Notices

                                                language such as ‘‘may,’’ ‘‘should’’ and                (organ-based) evacuation thresholds                   subpopulations are considered
                                                ‘‘can,’’ the PAG Manual only provides                   being deleted. This was done for                      adequately. There is an abundant
                                                recommendations and does not confer                     simplicity and because modern dose                    conservatism built into the derivation of
                                                any legal rights or impose any legally                  projection tools now do a much better                 the PAGs, and into the assumptions
                                                binding requirements upon any member                    job of accounting for all-pathway                     used to generate derived response
                                                of the public, states or any federal                    exposures.                                            levels, to ensure that the PAGs are
                                                agency. Rather, the PAG Manual                             The EPA received many comments                     appropriate emergency guides for all
                                                recommends projected radiation doses                    from PAG technical users suggesting                   members of the public, including
                                                at which specific actions may be                        terminology improvements and                          sensitive subpopulations. The Agency
                                                warranted in order to reduce or avoid                   requesting more information about how                 provided additional explanation in the
                                                that dose. The PAG Manual is designed                   the Federal Radiological Monitoring and               revised Manual about the basis for the
                                                to provide flexibility to be more or less               Assessment Center (FRMAC)—the                         PAGs and how PAG levels are set. A
                                                restrictive as deemed appropriate by                    federal government lead for these                     discussion of the conservatism that has
                                                decision makers based on the unique                     calculations during radiological                      been built into the early and
                                                characteristics of the incident and the                 emergencies—provides calculation                      intermediate phase PAGs was also
                                                local situation.                                        methods and tables of derived levels.                 added to the Manual.
                                                                                                        Additional language is provided on the                   Some commenters expressed concerns
                                                D. How did EPA respond to public                        tables of derived values for                          that PAGs would weaken environmental
                                                comments on the 2013 PAG Manual                         implementing the PAGs. Specifically,                  standards and regulations.
                                                revision?                                               clarifying text on FRMAC methods and                  Environmental regulations or standards
                                                  The proposed updates to the 1992                      dose factor terminology was added.                    are legal limits designed to prevent
                                                PAG Manual, published for public                        Definitions for incident phases and                   health effects from everyday exposure to
                                                comment and interim use in 2013, were                   several concepts around dose projection               low levels of radiation over long
                                                developed by a multi-agency                             were also clarified.                                  periods. The PAG levels are guidance
                                                Subcommittee of the Federal                                The Agency received comments from                  for emergency situations; they do not
                                                Radiological Preparedness Coordinating                  state emergency management and                        supplant any standards or regulations,
                                                Committee (FRPCC) and published by                      radiation protection agencies, as well as             nor do they affect the stringency or
                                                the EPA with concurrence from the                       federal agencies, requesting the                      enforcement of any standards or
                                                Department of Energy (DOE); the                         inclusion of language from the 1992                   regulations. The PAG levels are
                                                Department of Defense (DoD); the                        PAG Manual Appendices in the revised                  intended to be used only in an
                                                Department of Homeland Security                         PAG Manual. This text, focusing on the                emergency when radiation levels have
                                                (DHS), including the Federal Emergency                  rationale and basis for setting early and             already exceeded environmental
                                                Management Agency (FEMA); the                           intermediate phase PAGs, has been                     standards and could be high enough to
                                                Nuclear Regulatory Commission (NRC);                    added to the revised PAG Manual. The                  cause health effects unless protective
                                                the Department of Health and Human                      2013 proposal included this information               actions are taken. The PAG levels trigger
                                                Services (HHS), including both the                      only by reference, but the revised PAG                public safety measures to minimize or
                                                Centers for Disease Control (CDC) and                   Manual will serve the emergency                       avoid radiation exposures during an
                                                the Food and Drug Administration                        response community better by providing                emergency.
                                                (FDA); the U.S. Department of                           a summarized description of the basis                    The EPA also received some
                                                Agriculture (USDA); and the                             for setting PAGs directly in the new                  comments suggesting that the U.S.
                                                Department of Labor (DOL).                              publication. The 1992 PAG Manual                      should rely solely on existing
                                                  The Agency received about 5,000                       Appendices are still available online in              environmental standards and that PAGs
                                                comments from members of the public,                    a word-searchable format, for reference.              are not needed. PAG levels do not
                                                state and local emergency response and                     The EPA received limited, but                      replace environmental standards, and
                                                health organizations, industry                          important, comments on the worker                     environmental standards do not fulfill
                                                associations, and from national and                     protection section of the proposed                    the role of the PAGs. PAGs are used
                                                international radiation protection                      Manual, requesting updates to reflect                 only during emergency situations when
                                                organizations. In response to comments                  more recent publications on worker                    radiation levels are already exceeding
                                                received, questions raised in comments                  safety. These comments were                           environmental standards and could
                                                and issues identified about                             considered by the EPA, the                            become high enough to cause adverse
                                                implementing the updated PAG Manual,                    Occupational Safety and Health                        health effects unless protective action is
                                                the EPA made a number of changes to                     Administration and the NRC; changes                   taken. During a radiological emergency,
                                                the PAG Manual, as described below.                     were made to ensure consistency with                  the PAGs are designed to prevent
                                                  The EPA received comments and                         the latest worker safety guidelines from              adverse health effects by triggering
                                                questions on the potassium iodide (KI)                  other agencies.                                       public safety measures—protective
                                                PAG from state radiation protection                        Some commenters expressed concern                  actions, such as evacuation—and
                                                agencies and from industry                              over the removal of the 5 rem over 50                 minimizing unnecessary exposures. The
                                                organizations. In response, planning                    years Relocation PAG. Therefore,                      PAGs are set at a level where the health
                                                considerations were clarified regarding                 explanation about the removal of that                 risk from radiation exposure that could
                                                the lower FDA KI PAG in combination                     PAG was expanded, adding language to                  be avoided with protective action
                                                with deleting the thyroid-based                         better explain the deletion. The decision             outweighs the risk associated with
                                                evacuation threshold. The EPA added a
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                                                                                                        was made in order to eliminate                        taking the safety measures, e.g., traffic
                                                Table (Table 2.2) with more details on                  confusion with long-term remediation                  accidents, trips and falls or anxiety
                                                the KI PAG; and also worked with the                    timeframes and long-term cleanup goals.               associated with dislocation or the
                                                FDA to include a simplified approach to                    The EPA received a number of                       separation of family members.
                                                implementing this PAG and provided                      comments, largely from environmental                     Finally, the EPA received comments
                                                reference for the reader to the FDA’s                   organizations, expressing concern about               requesting edits to clarify, reword or
                                                published guide. More explanation was                   whether the PAGs are safe enough, and                 reorder language in the PAG Manual.
                                                included regarding the thyroid-based                    whether children and sensitive                        Based on those comments, a number of


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                                                                           Federal Register / Vol. 81, No. 236 / Thursday, December 8, 2016 / Notices                                                  88681

                                                editorial changes were made to improve                  FOR FURTHER INFORMATION CONTACT:                      DATE AND TIME:   The regular meeting of
                                                both the clarity and readability of the                 Amina Pollard, Office of Wetlands,                    the Board will be held at the offices of
                                                Manual.                                                 Oceans and Watersheds, Office of                      the Farm Credit Administration in
                                                                                                        Water, Washington DC. Phone: 202–                     McLean, Virginia, on December 8, 2016,
                                                E. What is the timeframe for
                                                                                                        566–2360; email: pollard.amina@                       from 9:00 a.m. until such time as the
                                                implementation of this PAG Manual?
                                                                                                        epa.gov.                                              Board concludes its business.
                                                   Emergency management and radiation                   SUPPLEMENTARY INFORMATION:                            FOR FURTHER INFORMATION CONTACT: Dale
                                                protection organizations that use the                                                                         L. Aultman, Secretary to the Farm
                                                PAGs in their emergency plans are                       I. General Information                                Credit Administration Board, (703) 883–
                                                encouraged to incorporate this updated                     The National Lakes Assessment 2012:                4009, TTY (703) 883–4056.
                                                guidance as soon as possible. This may                  A Collaborative Survey of Lakes in the                ADDRESSES: Farm Credit
                                                entail training, as well as updating plans              United States is the second report                    Administration, 1501 Farm Credit Drive,
                                                and procedures. Outreach and technical                  assessing the condition of the nation’s               McLean, Virginia 22102–5090. Submit
                                                training will be conducted by the EPA,                  lakes. The NLA is one of a series of                  attendance requests via email to
                                                the FRMAC and interagency partners on                   National Aquatic Resource Surveys, a                  VisitorRequest@FCA.gov. See
                                                the PAG Subcommittee.                                   national-scale monitoring program                     SUPPLEMENTARY INFORMATION for further
                                                   The Federal Emergency Management                     designed to produce statistically-valid               information about attendance requests.
                                                Agency (FEMA) expects certain                           assessments that answer critical                      SUPPLEMENTARY INFORMATION: Parts of
                                                organizations associated with nuclear                   questions about the condition of waters               this meeting of the Board will be open
                                                power plant operations to use the PAG                   in the United States. The key goals of                to the public (limited space available),
                                                Manual in developing their emergency                    the NLA report are to describe the                    and parts will be closed to the public.
                                                management plans. The FEMA plans to                     ecological and recreational condition of              Please send an email to VisitorRequest@
                                                begin using the new PAG Manual                          the nation’s lakes, how those conditions              FCA.gov at least 24 hours before the
                                                during their evaluation of offsite                      are changing, and the key stressors                   meeting. In your email include: Name,
                                                response organizations around nuclear                   affecting those waters. Using a statistical           postal address, entity you are
                                                power facilities twelve months after the                survey design, 1,038 sites were selected              representing (if applicable), and
                                                publication of this Notice in the Federal               at random to represent the condition of               telephone number. You will receive an
                                                Register.                                               the larger population of lakes across the             email confirmation from us. Please be
                                                   For further information and related                  lower 48 states including natural lakes               prepared to show a photo identification
                                                guidelines, see the PAGs Web page:                      and manmade reservoirs.                               when you arrive. If you need assistance
                                                http://www.epa.gov/radiation/                              The NLA finds that 40% of the                      for accessibility reasons, or if you have
                                                protective-action-guides-pags.                          nation’s lakes have excessive levels of               any questions, contact Dale L. Aultman,
                                                  Dated: December 1, 2016.                              phosphorus. Compared to other                         Secretary to the Farm Credit
                                                Gina McCarthy,                                          measures, nutrient pollution is the most              Administration Board, at (703) 883–
                                                Administrator.                                          widespread stressor in the NLA and can                4009. The matters to be considered at
                                                                                                        contribute to algal blooms and affect                 the meeting are:
                                                [FR Doc. 2016–29439 Filed 12–7–16; 8:45 am]
                                                                                                        recreational opportunities in lakes.
                                                BILLING CODE 6560–50–P                                                                                        Open Session
                                                                                                        Using a new biological measure, the
                                                                                                        NLA finds that 31% of lakes have                      A. Approval of Minutes
                                                ENVIRONMENTAL PROTECTION                                degraded benthic macroinvertebrate
                                                                                                        communities. The report has undergone                 • November 10, 2016
                                                AGENCY
                                                                                                        peer, state/tribal and EPA review.                    B. Reports
                                                [FRL–9956–29–OW]                                        A. How can I get copies of the NLA 2012               • Quarterly Report on Economic
                                                                                                        and other related information?                          Conditions and FCS Conditions
                                                National Lakes Assessment 2012 Final                      You may view and download the final                 • Semiannual Report on Office of
                                                Report                                                  report from EPA’s Web site at http://                   Examination Operations
                                                AGENCY: Environmental Protection                        www.epa.gov/national-aquatic-resource-                Closed Session *
                                                Agency (EPA).                                           surveys/nla.
                                                                                                                                                              • Office of Examination Quarterly
                                                ACTION: Notice of availability.                           Dated: December 2, 2016.                              Report
                                                                                                        Joel Beauvais,
                                                SUMMARY:   This notice announces the                                                                            Dated: December 6, 2016.
                                                                                                        Deputy Assistant Administrator, Office of
                                                availability of the Environmental                                                                             Dale L. Aultman,
                                                                                                        Water.
                                                Protection Agency’s (EPA) final report                                                                        Secretary, Farm Credit Administration Board.
                                                                                                        [FR Doc. 2016–29440 Filed 12–7–16; 8:45 am]
                                                on the National Lakes Assessment 2012.                  BILLING CODE 6560–50–P
                                                                                                                                                              [FR Doc. 2016–29491 Filed 12–6–16; 11:15 am]
                                                The NLA describes the results of the                                                                          BILLING CODE 6705–01–P
                                                nationwide probabilistic survey that
                                                was conducted in the summer of 2012
                                                                                                        FARM CREDIT ADMINISTRATION
                                                by EPA and its state, tribal, and federal                                                                     FEDERAL MARITIME COMMISSION
                                                partners. The NLA report includes                       Farm Credit Administration Board;
                                                information on how the survey was                                                                             Performance Review Board;
sradovich on DSK3GMQ082PROD with NOTICES




                                                                                                        Sunshine Act; Regular Meeting
                                                implemented, what the findings are on                                                                         Establishment of Members
                                                a national scale, and future actions and                AGENCY:  Farm Credit Administration.
                                                challenges. The NLA Web site also                                                                             AGENCY:   Federal Maritime Commission.
                                                                                                        SUMMARY:  Notice is hereby given,
                                                includes findings at the ecoregional                    pursuant to the Government in the                     ACTION:   Notice.
                                                scale and allows users to explore                       Sunshine Act, of the regular meeting of
                                                additional results using a new                          the Farm Credit Administration Board                    * Session Closed-Exempt pursuant to 5 U.S.C.
                                                interactive dashboard.                                  (Board).                                              Section 552b(c)(8) and (9).



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Document Created: 2016-12-08 00:27:07
Document Modified: 2016-12-08 00:27:07
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionNotice of document availability.
DatesThe PAG Manual is available for use upon publication of this Notice in the Federal Register.
ContactSara DeCair, Radiation Protection Division, Center for Radiological Emergency Management, Mail Code 6608T, U.S. Environmental Protection Agency, 1200 Pennsylvania Avenue NW., Washington, DC 20460; telephone number: (202) 343-9108; fax number: (202) 343-2304; Email: [email protected]
FR Citation81 FR 88679 

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