[Federal Register Volume 69, Number 128 (Tuesday, July 6, 2004)]
[Notices]
[Pages 40681-40687]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-15172]


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NUCLEAR REGULATORY COMMISSION


Regulatory Guide; Issuance, Availability

    The U.S. Nuclear Regulatory Commission (NRC) has issued a revision 
to a guide in its Regulatory Guide Series. This series has been 
developed to describe and make available to the public such information 
as methods acceptable to the NRC staff for implementing specific parts 
of the NRC's regulations, techniques used by the staff in its review of 
applications for permits and licenses, and data needed by the NRC staff 
in its review of applications for permits and licenses.
    The NRC has issued Revision 1 to Regulatory Guide 3.69, ``Topical 
Guidelines for the Licensing Support Network,'' which provides guidance 
acceptable to NRC Staff regarding the scope of documentary material 
that should be identified in or made available via the Licensing 
Support Network (LSN). The original version of this regulatory guide 
was published on September 19, 1996 (61 FR 49363). The LSN is an 
electronic information system that makes relevant documentary material 
available (via the Internet at http://www.lsnnet.gov) to parties, 
potential parties, and interested governmental participants in the 
adjudicatory proceeding on an application for a license to receive and 
possess high-level radioactive waste at a geologic repository 
operations area. The LSN facilitates document discovery similar to that 
available in NRC licensing proceedings. A proposed draft revision 1 of 
Regulatory Guide 3.69 (DG-3022) was made available for comment on July 
2, 2002 (67 FR 44478). The proposed revision modified the topical 
guidelines to be consistent with the license application content 
specified in 10 CFR Part 63, ``Disposal of High-Level Radioactive 
Wastes in a Geologic Repository at Yucca Mountain, Nevada,'' (66 FR 
55732, November 2, 2001), the structure of proposed Revision 2 of the 
``Yucca Mountain Review Plan,'' NUREG-1804, published for comment on 
March 29, 2002 (67 FR 15257), the topics in the U.S. Department of 
Energy's ``Final Environmental Impact Statement for a Geologic 
Repository for the Disposal of Spent Nuclear Fuel and High-Level 
Radioactive Waste at Yucca Mountain, Nye County, Nevada,'' dated 
February 2002, and the topics in Draft NUREG-1748, ``Environmental 
Review Guidance for Licensing Actions Associated with NMSS Programs,'' 
dated August 2001. The comment period for proposed Revision 1 of 
Regulatory Guide 3.69 (DG-3022) closed September 30, 2002.
    This revision also reflects modifications made in response to 
comments and a recently issued change to 10 CFR 2.1005, which excludes 
``Correspondence between a potential party, interested governmental 
participant, or party and the Congress of the United States'' from 
documentary material to be identified in or made available via the LSN. 
See ``Licensing Proceeding for a High-Level Radioactive Waste Geologic 
Repository; Licensing Support Network, Submissions to the

[[Page 40682]]

Electronic Docket,'' 69 FR 32836 (June 14, 2004). Minor editorial 
changes were also made.
    Comments and suggestions in connection with items for inclusion in 
guides currently being developed or improvements in all published 
guides are encouraged at any time. Written comments may be submitted to 
the Rules and Directives Branch, Division of Administrative Services, 
Office of Administration, U.S. Nuclear Regulatory Commission, 
Washington DC 20555. Questions on the content of this guide may be 
directed to Mr. Jeffrey A. Ciocco, (301) 415-6391, e-mail [email protected].
    Regulatory guides are available for inspection or downloading at 
the NRC's Web site at www.nrc.gov under Regulatory Guides and in NRC's 
Electronic Reading Room (ADAMS System) at the same site. Single copies 
of regulatory guides may be obtained free of charge by writing the 
Reproduction and Distribution Services Section, U.S. Nuclear Regulatory 
Commission, Washington, DC 20555-001, or by fax to (301) 415-2289, or 
by e-mail to [email protected]. Issued guides may also be purchased 
from the National Technical Information Service (NTIS) on a standing 
order basis. Details on this service may be obtained by writing NTIS at 
5285 Port Royal Road, Springfield, VA 22161; telephone 1-800-553-6847; 
http://www.ntis.gov. A copy of the Yucca Mountain Review Plan, NUREG-
1804, Revision 2, Final Report, is also available for inspection, and 
copying for a fee, in NRC's Public Document Room, One White Flint 
North, Public File Area, O-1F21, 11555 Rockville Pike, Rockville, 
Maryland. Regulatory guides are not copyrighted, and Commission 
approval is not required to reproduce them.
    In preparing Revision 1 of Regulatory Guide 3.69, ``Topical 
Guidelines for the Licensing Support Network,'' NRC Staff reviewed and 
considered all the comments received during the public comment period 
from eight commenters:

Commenters

    (1) A.S. Hunjan, India.
    (2) Board of County Commissioners, Lincoln County, Nevada, 
(submitted on behalf of Lincoln County and the City of Caliente).
    (3) Eureka County, Nevada.
    (4) Nuclear Energy Institute.
    (5) Exelon Generation, Warrenville, Illinois.
    (6) State of Nevada.
    (7) CP&L and Florida Power, Raleigh, North Carolina.
    (8) U.S. Department of Energy.

Commenter: A.S. Hunjan, India

    Comment 1. The commenter recommended that the definition of 
``document,'' in the third paragraph of Section A, ``Introduction,'' of 
the regulatory guide, be revised to include optical media, because 
magnetic media are included in this definition.
    Response 1. The definition of ``document'' in the regulatory guide 
is quoted from 10 CFR 2.1001, ``Definitions.'' It is not necessary to 
add optical media to this definition because optical media are 
encompassed by the words ``'or other documentary material, regardless 
of form or characteristic.''
    Comment 2. The commenter recommended that Item 1.1, ``General 
Description,'' under Section C, ``Topical Guidelines,'' include the 
position of the facility with respect to the site.
    Response 2. The topics in Sections C.1 and C.2 of the regulatory 
guide are the subjects listed in the ``Table of Contents,'' of NUREG-
1804, ``Yucca Mountain Review Plan,'' Revision 2, dated July 2003 
(hereafter ``Yucca Mountain Review Plan''), which the NRC Staff would 
use to review an application for a high-level waste repository at Yucca 
Mountain, Nevada, submitted under 10 CFR Part 63. The topical 
guidelines identify a list of general topics for documentary materials 
related to the adjudicatory proceeding on a license application for a 
geologic repository at Yucca Mountain, Nevada. Information on the 
location of facilities for a high-level waste repository is addressed 
in the Yucca Mountain Review Plan and is encompassed by the topics 
listed in Section C of the ``Topical Guidelines.'' Additional detail is 
not necessary.
    Comment 3. The commenter recommended that Item 1.2, ``Proposed 
Schedules for Construction, Receipt, and Emplacement of Waste,'' under 
Section C, ``Topical Guidelines,'' include the basic attributes of the 
spent fuel (such as chemical form, date of removal from reactor, burnup 
at date of removal).
    Response 3. The topics in Sections C.1 and C.2 of the regulatory 
guide are the subjects listed in the ``Table of Contents'' of the Yucca 
Mountain Review Plan, which the NRC Staff would use to review an 
application for a high-level waste repository at Yucca Mountain, 
Nevada. The ``Topical Guidelines'' identify a list of general topics 
for documentary materials relevant to an adjudicatory proceeding on a 
license application for a geologic repository at Yucca Mountain, 
Nevada. Information on the basic attributes of the spent fuel is 
addressed in the Yucca Mountain Review Plan and is encompassed by 
Section C of the ``Topical Guidelines.'' Additional detail is not 
necessary.
    Comment 4. The commenter recommended that Item 1.3, ``Physical 
Protection Plan,'' under Section C, ``Topical Guidelines,'' include the 
design basis threat against which the physical protection plan is to be 
effective.
    Response 4. Sections C.1 and C.2 of the regulatory guide reflects 
the structure of the Yucca Mountain Review Plan, which the NRC staff 
would use to review an application for a high-level waste repository at 
Yucca Mountain, Nevada. The general topics in the ``Topical 
Guidelines'' are not intended to identify all the specific information 
that would be evaluated during an NRC licensing review. Information on 
the physical protection plan is addressed in the Yucca Mountain Review 
Plan, which references 10 CFR 73.51, and is encompassed by Item C.1.3 
of the ``Topical Guidelines.'' Additional detail is not necessary.
    Comment 5. The commenter recommended that Item 2.1.1.2, 
``Description of Structures, Systems, Components, Equipment, and 
Operational Process Activities,'' under Section C, ``Topical 
Guidelines,'' include the facility and individual area layout.
    Response 5. The topics in Sections C.1 and C.2 of the regulatory 
guide are the subjects listed in the ``Table of Contents'' of the Yucca 
Mountain Review Plan, which the NRC Staff would use to review an 
application for a high-level waste repository at Yucca Mountain, 
Nevada. Information on the facility and individual area layout for a 
high-level waste repository is addressed in the Yucca Mountain Review 
Plan and is encompassed by Section C of the ``Topical 
Guidelines.''Additional detail is not necessary.

Commenter: Board of County Commissioners, Lincoln County, Nevada 
(Submitted on Behalf of Lincoln County and the City of Caliente)

    Comment 1. The commenter stated that, without additional detail 
being provided, it is not clear, in the second paragraph of ``Purpose 
of the Regulatory Guide,'' under Section B, ``Discussion,'' how the 
regulatory guide might be used by the Pre-License Application Presiding 
Officer in evaluating petitions for access to the LSN during the pre-
license application phase under 10 CFR 2.1007. The commenter asked 
whether a petition would be evaluated to determine if the petitioner's 
issues were

[[Page 40683]]

reflected in the topical content of the LSN.
    Response 1. The second paragraph of Section B of the draft 
Regulatory Guide (DG-3022) contained a misnumbered reference to an 
outdated provision in 10 CFR Part 2, Subpart J, that required 
individuals to petition for access to the system that makes documentary 
material electronically available. That requirement was deleted as part 
of the December 30, 1998 LSN rule (63 FR 71729), which changed from a 
central database, Licensing Support System, to a publicly available, 
web-based system called the LSN. The cited paragraph has been removed 
from Revision 1 of Regulatory Guide 3.69.
    Comment 2. The commenter stated that, in the last paragraph of 
``Use of the Regulatory Guide,'' under Section B, ``Discussion,'' it is 
not clear what the qualifying statement regarding the scope of 
transportation-related information is seeking to limit. The commenter 
recommended inclusion of one or more examples of transportation-related 
information that would be inappropriate for submission to the LSN. The 
commenter also asked how the Commission intends to prevent the 
submission or inclusion of ``non-relevant'' transportation-related 
information if information is not identified as excluded or privileged 
under 10 CFR 2.1005 or 2.1006. The commenter asked whether, for 
example, U.S. Navy waste stored at the Idaho National Engineering and 
Environmental Laboratory would be considered to be from a reactor, from 
an independent spent fuel storage facility, or from a monitored 
retrievable storage facility. The commenter concluded that this 
ambiguity may make consistent adherence to this guidance difficult.
    Response 2. Information regarding the impacts of transporting high-
level waste that could be disposed of at Yucca Mountain, Nevada, is 
analyzed in the DOE Final Environmental Impact Statement, and is 
encompassed by Section C of the ``Topical Guidelines.'' Classified 
information (for example, regarding Naval reactor spent fuel) is 
excluded from LSN documentary material by 10 CFR 2.1005(g).
    The purpose of the ``Topical Guidelines'' is to inform parties, 
potential parties and interested governmental participants regarding 
documentary material to be identified (by bibliographic header only) or 
made available (by image or searchable full text) via the LSN. As the 
NRC indicated when revising the definition of documentary material, 
non-relevant information could affect the responsiveness and usefulness 
of the LSN by cluttering the system with extraneous material (63 FR 
71729, 17130, December 30, 1998). Additional detail in the regulatory 
guide is not necessary.
    Comment 3. The commenter recommended that Item 2.5.7, ``Emergency 
Planning,'' under Section C, ``Topical Guidelines,'' be expanded to 
include emergency planning and implementation, because, beyond 
demonstrating an adequate plan for emergency situations, the applicant 
will need to demonstrate that the plan can be implemented and that it 
has the capability to implement the plan.
    Response 3. The topics in Sections C.1 and C.2 of the regulatory 
guide are the subjects listed in the ``Table of Contents'' of the Yucca 
Mountain Review Plan, which provides guidance for the NRC Staff review 
of an application for a high-level waste repository at Yucca Mountain, 
Nevada. The ``Topical Guidelines'' identify a list of general topics 
for documentary materials relevant to an adjudicatory proceeding on a 
license application for a geologic repository at Yucca Mountain, 
Nevada. Information on emergency planning and implementation for the 
high-level waste repository is addressed in sections of the Yucca 
Mountain Review Plan and is encompassed by the general topics in 
Section C of the ``Topical Guidelines.'' Additional detail is not 
necessary.
    Comment 4. The commenter recommended that the following items be 
added to the list in Appendix A, ``Types of Documents,'' to be included 
in the LSN:
    1. Any U. S. Department of Energy (DOE) draft and final 
environmental impact statement preparation plans;
    2. Any DOE ``Record of Decision'' relating to any DOE final 
environmental impact statement; and
    3. Any as-built drawings and specifications for the exploratory 
studies facility and any related facilities that may be potentially 
converted or modified for use in the permanent geologic repository.
    Response 4. The topics in Section C.3 of the regulatory guide are 
the subjects listed in the ``Table of Contents'' of DOE's ``Final 
Environmental Impact Statement for a Geologic Repository for the 
Disposal of Spent Nuclear Fuel and High-Level Radioactive Waste at 
Yucca Mountain, Nye County, Nevada,'' dated February 2002, which 
evaluated the impacts of a potential high-level waste repository at 
Yucca Mountain, Nevada. Sections C.1 and C.2 are the subjects from the 
table of contents of the Yucca Mountain Review Plan. These general 
topics for documentary materials encompass information relevant to an 
application for a potential repository at Yucca Mountain, Nevada. 
Appendix A, as modified, includes the License Application, published 
draft and final environmental evaluations or assessments, as well as 
published draft, supplemental, and final environmental impact 
statements. Any relevant ``Record of Decision,'' should be identified 
in or made available via the LSN (see 10 CFR 2.1003(b)) as part of the 
environmental impact statement documentation submitted with the license 
application. A ``Record of Decision'' could also be a readily available 
reference. See, for example, DOE's ``Record of Decision on Mode of 
Transportation and Nevada Rail Corridor for the Disposal of Spent 
Nuclear Fuel and High-Level Radioactive Waste at Yucca Mountain, Nye 
County, NV (69 FR 18557, April 8, 2004). Additional detail in the 
regulatory guide is not necessary.
    Comment 5. The commenter encouraged the Commission to maintain the 
listing of ``Information for a Geologic Repository Environmental Impact 
Statement'' in Section C, ``Topical Guidelines,'' and to urge the 
submission of such information.
    Response 5. The regulatory guide still retains the stated 
information.

Commenter: Eureka County, Nevada

    Comment 1. The commenter stated that the language of the second 
paragraph of ``Purpose of the Regulatory Guide,'' under Section B, 
``Discussion,'' is unclear and should be clarified. The commenter asked 
whether not following the ``Topical Guidelines'' may be grounds for 
disqualification as a participant and stated that ``access to the LSN'' 
is confusing terminology. The commenter opined that a participant in 
Yucca Mountain licensing hearings must first be certified by the LSN 
Administrator based on the function and conformity of a Web site with 
Commission LSN guidelines rather than on the content of the documents. 
If the intent is to allow the judge to disqualify potential parties 
based on the ``Topical Guidelines,'' the commenter recommended that 
this be clearly stated.
    Response 1. Under 10 CFR 2.1009(b), a responsible official of an 
LSN participant must certify to the Pre-License Application Presiding 
Officer (not the LSN Administrator) that, among other things, 
procedures implementing the requirements to make documentary material 
available (10 CFR 2.1003) have been implemented. As stated in response 
to Comment 1, above, from Lincoln County, the second paragraph of 
Section B pertained to an outdated

[[Page 40684]]

regulation in 10 CFR Part 2, Subpart J, that required individuals to 
petition the Pre-license Application Presiding Officer for access. That 
requirement was deleted in 1998 (63 FR 71729, December 30, 1998) with 
the change from a central database to a publicly available, web-based 
LSN. The cited paragraph has been removed from Revision 1 of Regulatory 
Guide 3.69.
    Comment 2. The commenter noted that the terms ``draft and final 
environmental assessments,'' used in Item 8.1 of Appendix A, ``Types of 
Documents,'' to be included in the LSN are specific terms in the 
National Environmental Policy Act (NEPA). The commenter requested 
clarification as to whether these terms refer only to NEPA-defined 
environmental assessments or more broadly to all environmental reviews. 
If the latter, the commenter suggested using the term ``environmental 
reviews.''
    Response 2. Item 8.1 is now Item 7.1 of Appendix A due to the 
removal of former Item 7, ``Congressional questions and answers,'' 
consistent with the exclusion of Congressional correspondence from LSN 
documentary material, effective July 14, 2004 (69 FR 32836, June 14, 
2004).This item encompasses published environmental documentation 
related to a geologic repository at Yucca Mountain, Nevada. For 
clarity, the category ``draft and final environmental assessments'' has 
been expanded to include draft and final environmental evaluations or 
assessments that are prepared under the National Environmental Policy 
Act (NEPA), 42 U.S.C. 4321 et seq. A new Item 7.7, ``DOE environmental 
report,'' has been added to encompass any DOE environmental report that 
DOE may decide to submit with its license application.
    Comment 3. The commenter noted that Item 8.8 of Appendix A, ``Types 
of Documents To Be Included in the Licensing Support Network,'' refers 
only to DOE's environmental impact statements. The commenter 
recommended revision to allow for environmental impact statements not 
generated by DOE, including those generated by other Federal agencies, 
such as land-use environmental impact statements produced by the U.S. 
Department of Interior, Bureau of Land Management and U.S. Department 
of Defense-generated environmental impact statements that might pertain 
to the topic.
    Response 3. Item 8.8 (now Item 7.9) of Appendix A encompasses any 
published draft or final environmental impact statements related to a 
license application for a geologic repository at Yucca Mountain, 
Nevada. The text of Revision 1 of Regulatory Guide 3.69 has been 
modified accordingly.

Commenter: Nuclear Energy Institute

    Comment 1. The commenter recommended the addition of a clear 
statement of purpose for this guidance, because the currently stated 
purpose ``to provide a list of the topics for which Licensing Support 
Network participants should submit documentary materials;'' is not 
sufficient. The commenter stated that the regulatory guide needs to 
clearly describe at least one method that, if followed by participants 
in the Yucca Mountain licensing process, will meet LSN requirements. 
The commenter also provided several suggested wording changes, 
including those described in the following two comments, to accomplish 
this objective.
    Response 1. The purpose of the regulatory guide is to provide 
guidance on the scope of material that should be identified in or made 
available via the LSN. The regulatory guide contains references to 10 
CFR Part 2, Subpart J, and includes quotes from regulations defining 
documentary material (10 CFR 2.1001), excluded material (10 CFR 2.1005) 
and privileged material (2.1006). The purpose statement in the 
regulatory guide has been modified to clarify that it lists topics of 
documentary material that LSN participants should identify or make 
available via the LSN. Additional detail regarding LSN requirements is 
not necessary.
    Comment 2. The commenter recommended the deletion of the second 
paragraph of ``Purpose of the Regulatory Guide,'' under Section B, 
``Discussion,'' because the currently stated additional use of the 
regulatory guide ``* * * in evaluating petitions for access'' is not 
supported by guidance regarding the identification of relevant types of 
documentary material for inclusion in the LSN. The commenter stated 
that, if the Commission believes that guidance concerning access to the 
LSN is necessary, it should promulgate separate guidance specifically 
focused on that purpose.
    Response 2. As stated in response to Comment 1 above from Lincoln 
County, the second paragraph of Section B addressed an outdated 
regulation in 10 CFR Part 2, Subpart J, that required individuals to 
petition the Pre-license Application Presiding Officer for access. That 
requirement was deleted with the 1998 rule (63 FR 71729, December 30, 
1998) with the change from a central database to a publicly available, 
web-based LSN. The cited paragraph has been removed from Revision 1 of 
Regulatory Guide 3.69.
    Comment 3. The commenter recommended that the last sentence of the 
second paragraph of ``Use of the Regulatory Guide,'' under Section B, 
``Discussion,'' be deleted, because the statement is too broad and 
contradicts the purpose of the guidance. The commenter suggested that 
inclusion in the LSN of other documents related to topics in the Yucca 
Mountain Review Plan and the DOE Yucca Mountain Final Environmental 
Impact Statement defeats the purpose of providing guidance on what 
types of documents relating to these topics should be included.
    Response 3. The last sentence of the second paragraph of ``Use of 
the Regulatory Guide'' indicates that Appendix A lists document types 
to be identified in or made available via the LSN, but is not 
exhaustive. That sentence has been revised to indicate that LSN 
documentary material should include material ``relevant'' to the topics 
listed in Section C of the regulatory guide.
    Comment 4. The commenter recommended restructuring the regulatory 
guide so that it provides specific guidance that will aid participants 
in determining what should (and should not) be included in the LSN. The 
commenter provided specific recommendations for accomplishing this 
restructuring, including reorganizing, relocating, and renaming various 
sections of the regulatory guide.
    Response 4. The structure of the regulatory guide is consistent 
with NRC Staff guidance on the format and content of regulatory guides. 
Additionally, Section C of the regulatory guide reflects both the 
structure and content of the Yucca Mountain Review Plan, DOE's Final 
Environmental Impact Statement, and NUREG-1748, ``Environmental Review 
Guidance for Licensing Actions Associated with NMSS Programs,'' dated 
August 2003. The regulatory guide identifies the scope of documentary 
material to be identified in or made available via the LSN. The 
suggested revisions are not necessary.
    Comment 5. The commenter recommended clarifying the distinction 
between preliminary (or pre-decisional) and final (or post-decisional) 
documentary material. The commenter also recommended providing specific 
guidance for assessing relevance for each type of information because a 
different test of relevance may apply at different points in a 
participant's decision-making process. The commenter provided specific 
suggestions for reorganizing, relocating, and renaming various sections 
of the

[[Page 40685]]

regulatory guide, as well as additional provisions regarding levels of 
authority, levels of formality, and the time frame during which 
preliminary information is relevant to the hearing process.
    Response 5. Traditional uses of the term ``pre-decisional'' and 
``post-decisional'' under NRC and Federal case law would apply in the 
licensing proceeding. In addition, in issuing recent changes to 10 CFR 
Part 2, Subpart J, the NRC indicated that ``reliance'' information 
(i.e., information an LSN participant intends to rely on and/or cite in 
support of its position, or information it possesses or develops that 
is contrary to that position) is difficult to identify prior to the 
filing of contentions in a proceeding. See ``Licensing Proceeding for a 
High-Level Radioactive Waste Geologic Repository; Licensing Support 
Network, Submissions to the Electronic Docket,'' 69 FR 32836, 32843 
(June 14, 2004).
    The regulatory guide provides guidance on the general scope of 
documentary material to be identified in or made available via the LSN. 
The suggested revisions relating to relevance, levels of authority, 
levels of formality, and time frames are not necessary.
    Comment 6. The commenter recommended clarifying that only 
information that has some nexus to the license application need be 
included in the LSN, and that examples be provided to guide 
participants in determining when such a nexus exists.
    Response 6. Revision 1 of Regulatory Guide 3.69 contains the 10 CFR 
2.1001 definition of ``documentary material'' to be identified in or 
made available via the LSN. That definition also includes two 
categories of ``reliance'' information as discussed in the previous 
comment response. No further clarification is necessary.
    Comment 7. The commenter stated that its separate comments on the 
``Yucca Mountain Review Plan'' should also be taken into account when 
making changes to the regulatory guide, including comments that could 
result in a change to the outline of the Yucca Mountain Review Plan. 
The commenter also noted that the outline of the ``Table of Contents'' 
from the Yucca Mountain Review Plan (Sections C.1 and C.2 of the 
``Topical Guidelines'') and the outline from the ``Table of Contents'' 
of the DOE ``Yucca Mountain Environmental Impact Statement'' in Section 
C.3 of the ``Topical Guidelines'' could be replaced with references to 
these two documents to make it easier to update one document without 
the need to revise the others.
    Response 7. Any structural changes made to the Yucca Mountain 
Review Plan in response to public comments have been incorporated in 
Revision 1 of Regulatory Guide 3.69. In the interest of completeness 
and making the regulatory guide easy to use, however, text from the 
table of contents of the ``Yucca Mountain Review Plan'' and the DOE 
Final Environmental Impact Statement has been retained.

Commenter: Exelon Generation, Warrenville, Illinois

    Comment. The commenter stated that it is essential that the 
regulatory guide be as clear and unambiguous as possible in 
establishing the scope and content of the LSN. The commenter provided 
comments to the Nuclear Energy Institute and strongly endorses the 
comments submitted by the Nuclear Energy Institute.
    Response. Section B of the regulatory guide has broad topics to 
encompass information that may bear on a party's position in the 
licensing proceeding or on a license application for a geologic 
repository issues. Additional detail is not necessary.

Commenter: State of Nevada

    Comment 1. The commenter stated that several pending actions may 
further define the appropriate topics for LSN documentary material. 
These actions include pending litigation relating to the content of 10 
CFR Part 63, a petition for rulemaking with respect to the content of 
10 CFR Part 63, State of Nevada comments regarding the draft Yucca 
Mountain Review Plan (NUREG-1804), State of Nevada reply comments to 
the DOE comments on the draft Yucca Mountain Review Plan, and 
litigation challenging the content and scope of the final DOE Yucca 
Mountain environmental impact statement. The commenter stated that the 
``Topical Guidelines'' should be expanded to incorporate shortcomings 
specifically addressed by the State of Nevada in each of actions listed 
above regarding the scope of the licensing proceeding. The commenter 
also indicated that five additional comments are made without waiving 
its position in any of the pending actions and with the understanding 
that the draft regulatory guide, as well as 10 CFR Part 63, NUREG-1804, 
or the DOE Final Environmental Impact Statement on Yucca Mountain 
should be expanded or modified to incorporate those subject areas that 
are ultimately deemed meritorious in the pending litigation.
    Response 1. Subsequent to receipt of the comment, the State of 
Nevada petition for NRC rulemaking regarding 10 CFR Part 63 was denied 
(68 FR 9023, February 27, 2003). Federal litigation on 10 CFR Part 63 
and on the DOE Final Environmental Impact Statement is still pending. 
The NRC will make appropriate changes to its regulations or guidance, 
if required, as a result of the outcome of such litigation.
    Comment 2. The commenter stated that the second paragraph of 
``Purpose of the Regulatory Guide,'' under Section B, ``Discussion,'' 
refers to the Pre-License Application Presiding Officer using the 
regulatory guide in evaluating petitions for access to the LSN. The 
commenter recommended deletion of this paragraph because it is not 
relevant to the current LSN rule.
    Response 2. As previously noted in response to other commenters, 
the second paragraph of Section B, ``Discussion,'' of the draft 
regulatory guide, which referred to an outdated regulation, has been 
removed from Revision 1 of Regulatory Guide 3.69.
    Comment 3. The commenter stated that Sections C.1 and C.2 of the 
``Topical Guidelines'' track the ``Table of Contents'' of the draft 
Yucca Mountain Review Plan and stated that this is an acceptable and 
efficient approach. The commenter requested that, when the Yucca 
Mountain Review Plan becomes final, the regulatory guide should be 
reviewed and, if necessary, revised, to remain consistent with that 
guidance document.
    Response 3. Revision 1 of the Regulatory Guide 3.69 is consistent 
with the content of NUREG-1804, ``Yucca Mountain Review Plan,'' 
Revision 2, dated July 2003.
    Comment 4. The commenter noted that Section C.3 of the Regulatory 
Guide tracks the ``Table of Contents'' of the DOE ``Yucca Mountain 
Environmental Impact Statement'' and is consistent with the 
Commission's draft ``Environmental Review Guidance for Licensing 
Actions Associated with NMSS Programs'' (NUREG-1748). The commenter 
stated that this is an acceptable and efficient approach, 
notwithstanding the State of Nevada challenge to certain aspects of the 
legality of the DOE Yucca Mountain environmental impact statement. The 
commenter requested that the regulatory guide be reviewed for 
consistency with NUREG-1748 when NUREG-1748 becomes final.
    Response 4. The environmental topical guidelines in Section C.3 of 
Revision 1 of Regulatory Guide 3.69 are based on the DOE Final 
Environmental Impact Statement and are consistent with the content of 
NUREG-1748, ``Environmental Review Guidance for

[[Page 40686]]

Licensing Actions Associated with NMSS Programs,'' dated August 2003.
    Comment 5. The commenter suggested that the third level headings 
from the ``Table of Contents'' of the DOE Final Environmental Impact 
Statement on Yucca Mountain be added to the first and second levels now 
in the draft revision of the regulatory guide.
    Response 5. Section C.3 of the regulatory guide reflects the 
structure of the ``Environmental Review Guidance for Licensing Actions 
Associated with NMSS Programs'' (NUREG-1748). The ``Topical 
Guidelines'' are not intended to identify all the specific information 
that would be evaluated by NRC Staff during a licensing review. Rather, 
the ``Topical Guidelines'' identify categories of documentary material 
that should be identified in or made available via the LSN and is 
sufficiently detailed to encompass the suggested topics.
    Comment 6. The commenter stated that Item 8.8 of Appendix A, 
``Types of Documents To Be Available Via the Licensing Support 
Network,'' should not be limited to environmental impact statement 
materials developed by DOE, because there are other agency 
environmental impact statements (similar to the environmental 
assessments of Item 8.1) that could be included in the LSN.
    Response 6. Item 8.8 (now Item 7.9) of Appendix A encompasses any 
published draft or final environmental impact statements prepared under 
NEPA. The text of the Revision 1 of Regulatory Guide 3.69 has been 
modified to delete the word ``DOE'' to clarify that all relevant 
environmental documents are encompassed by Section C.3 of the ``Topical 
Guidelines.''

Commenter: CP&L and Florida Power, Raleigh, North Carolina

    Comment 1. The commenter stated that the purpose of the regulatory 
guide should be clearly stated and supported with examples of types of 
documents that should be included in the LSN.
    Response 1. The purpose of the regulatory guide is to provide 
guidance on the scope of documentary material that should be identified 
in or made available via the LSN. Appendix A already provides examples 
of types of documents that are encompassed. No additional detail is 
necessary.
    Comment 2. The commenter stated that the regulatory guide should be 
consistent with the latest revision of the ``Yucca Mountain Review 
Plan'' (NUREG-1804).
    Response 2. Revision 1 of Regulatory Guide 3.69 is consistent with 
the content of NUREG-1804, ``Yucca Mountain Review Plan,'' Revision 2, 
dated July 2003.
    Comment 3. The commenter endorses the comments submitted by the 
Nuclear Energy Institute.
    Response 3. This comment is addresses in the above responses to 
Nuclear Energy Institute comments on the regulatory guide.

Commenter: U.S. Department of Energy

    Comment 1. The commenter recommended that the term ``potentially'' 
be deleted from the last sentence of the first paragraph of Section A, 
``Introduction,'' which states that the LSN is being designed and 
implemented to provide for the entry of and access to potentially 
relevant licensing information. The commenter stated that, although 
this term was used previously in conjunction with the LSN, it is not 
used in the current 10 CFR 2.1001 definition of documentary material.
    Response 1. The phrase ``potentially relevant licensing 
information'' has been replaced with the phrase ``relevant documentary 
material,'' consistent with changes made to 10 CFR 2.1001 in 1998, when 
the Commission adopted the current definition of ``documentary 
material.'' In issuing that rulemaking, it was noted that the term 
``documentary material'' defines the body of material that will be 
important for and relevant to the licensing proceeding. See 63 FR 
71729, 71730 (December 30, 1998).
    Comment 2. The commenter recommended that the first sentence of the 
first paragraph of ``Use of the Regulatory Guide'' under Section B, 
``Discussion,'' be modified to add the term ``draft'' before the 
reference to the ``Yucca Mountain Review Plan'' (NUREG-1804) to more 
accurately represent the current status of the ``Yucca Mountain Review 
Plan.''
    Response 2. Revision 1 of Regulatory Guide 3.69 is consistent with 
the content of NUREG-1804, ``Yucca Mountain Review Plan,'' dated July 
2003, which was issued after this comment was received.
    Comment 3. The commenter recommended that the third sentence of the 
second paragraph of ``Use of the Regulatory Guide,'' under Section B, 
``Discussion,'' be modified, for clarity and consistency, to read: 
``Types of documents not included in Appendix A should also be included 
in the LSN if they are relevant to a topic in Section C of this 
regulatory guide.''
    Response 3. The suggested word changes were made to the third 
sentence of the second paragraph of ``Use of the Regulatory Guide'' 
under Section B, ``Discussion,'' to clarify the scope of LSN 
documentary material. The regulatory guide was also modified to reflect 
that under 10 CFR 2.1003 documentary material is either identified (by 
bibliographic header information only) or made available (in image or 
searchable full text) via the LSN.
    Comment 4. The commenter noted that the last paragraph of ``Use of 
the Regulatory Guide,'' under Section B, ``Discussion,'' addresses 
information to be included for a geologic repository environmental 
impact statement, and that the last sentence states that ``* * * [o]nly 
information on transportation of high-level waste from a reactor, from 
an independent spent fuel storage facility, or from a monitored 
retrievable storage facility to a repository should be included under 
the transportation topical guideline.'' The commenter stated that it is 
not clear from this statement what information is meant to be included 
in the LSN. The commenter requests further clarification of this 
statement and guidance from the Commission on the type of information 
to be included in the LSN regarding transportation of high-level waste 
and spent nuclear fuel to a repository at Yucca Mountain, Nevada. The 
commenter further stated that such clarification would be useful, 
particularly with respect to interpreting the guidance in Item C.3.6 of 
the ``Topical Guidelines,'' which identifies environmental impacts from 
transportation as a topic of information to be included in the LSN.
    Response 4. Section C of the regulatory guide reflects the 
structure of the Yucca Mountain Review Plan, the DOE Final 
Environmental Impact Statement, and NUREG-1748, ``Environmental Review 
Guidance for Licensing Actions Associated with NMSS Programs.'' These 
documents and the regulations in 10 CFR Parts 51 and 63 indicate the 
scope of transportation information encompassed by the various 
``Topical Guidelines.'' Consequently, the last sentence of the last 
paragraph of ``Use of the Regulatory Guide,'' under Section B, 
``Discussion,'' has been deleted from Revision 1 of Regulatory Guide 
3.69.
    Comment 5. The commenter noted that Sections C.1 and C.2 of the 
``Topical Guidelines,'' appear to mirror the ``Table of Contents'' of 
the draft ``Yucca Mountain Review Plan'' and the draft ``Yucca Mountain 
Review Plan,'' and that Section B, ``Discussion,'' states that the 
``Topical Guidelines'' have been kept broad and at a fairly high level 
of detail. The commenter recommended that the more detailed 
subcategories (e.g., 2.1.1.5.1 and 2.2.1.3.1) of Section

[[Page 40687]]

C of the ``Topical Guidelines'' be deleted for consistency with the 
more general categories in the document. The commenter stated that 
deleting many of the subcategories would not detract from the scope of 
the topics to be included in the Licensing Support Network, because the 
regulatory guide makes clear that ``* * * the user should consider each 
topic to be inclusive rather than exclusive with regard to documents 
germane to that topic. * * *'' The commenter also stated that 
maintaining the ``Topical Guidelines'' at a high level of detail 
provides flexibility to all parties or potential parties to the 
proceeding to include documents in a broad sense, and not to be 
constrained by detailed subtopics that may change in the final ``Yucca 
Mountain Review Plan.''
    Response 5. Section C of the regulatory guide reflects the 
structure of Revision 2 of the ``Yucca Mountain Review Plan,'' dated 
July 2003. Detailed subcategories such as 2.1.1.5.1 and 2.2.1.3.1 refer 
to 10 CFR Part 63 requirements, are consistent with the level of detail 
in other areas, and provide explanatory information useful to the 
reader. The suggested deletion is not necessary.
    Comment 6. The commenter stated that Section C.3 of the ``Topical 
Guidelines'' appears to mirror the ``Table of Contents'' of the DOE 
Yucca Mountain environmental impact statement, including several 
subcategories of information. The commenter recommended that many of 
the subcategories could be deleted without impacting the scope or 
topics of documentary material to be included in the LSN.
    Response 6. Section C.3 of the regulatory guide provides a listing 
of environmental impact statement topics. This is consistent with the 
level of detail in Sections C.1 and C.2, which are based on the Yucca 
Mountain Review Plan, and other areas of the regulatory guide. The 
subcategories provided useful information and no deletion is necessary.
    Comment 7. The commenter recommended that the regulatory guide 
explicitly state whether Item 1 of Appendix A, ``Types of Documents To 
Be Included in the Licensing Support Network,'' when read together with 
the 10 CFR 2.1001 definition of documentary material, should be 
interpreted to mean that the requirement to include circulated drafts 
in the LSN applies only to circulated drafts related to technical 
reports and analyses.
    Response 7. Item 1 of Appendix A paraphrases the definition of 
documentary material in 10 CFR 2.1001, which requires, in part, 
availability of all reports or studies, and all related ``circulated 
drafts,'' relevant to both the license application and the Topical 
Guidelines in Regulatory Guide 3.69. No further clarification is 
necessary.
    Comment 8. The commenter stated that several other items in 
Appendix A, ``Types of Documents To Be Included in the Licensing 
Support Network,'' could be clarified, in addition to the item 
described in comment 7 above. Specifically, the commenter noted that 
Items 8.12 and 8.13 indicate that public and agency comments on 
documents and responses to comments are to be included in the LSN. The 
commenter stated that it interprets these items to be specific to those 
public and agency comments received by DOE in response to a DOE request 
for comments (e.g., comments on the draft Yucca Mountain environmental 
impact statement or the Secretary of Energy's consideration of site 
recommendation). In addition, the commenter noted that Items 8.16 and 
8.17 indicate that DOE project-decision schedules and program-
management documents are to be included in the LSN. The commenter 
suggested that further clarification is appropriate to help identify 
documents covered by these categories.
    Response 8. Items 8.12 and 8.13 (now Items 7.13 and 7.14) 
encompasses public comments by agencies, including by the DOE, that are 
relevant to the licensing of a repository at Yucca Mountain or bear on 
a party's position in the proceeding. The DOE, as the developer of a 
potential Yucca Mountain repository, is required by section 114(e) of 
the Nuclear Waste Policy Act, as amended, 42 U.S.C. 10134(e), to 
prepare a project decision schedule and is in the best position to 
identify documents encompassed by Items 8.16 and 8.17 (now Items 7.17 
and 7.18). Further clarification is not necessary.
    Comment 9. The commenter recommended that the term ``relevant'' be 
clarified in the regulatory guide, because it is used in the 10 CFR 
2.1001 definition of documentary material and its clarification would 
be beneficial to all parties. Because it is the general practice of the 
Commission to follow the Federal Rules of Civil Procedure, the 
commenter recommended that the term be interpreted in light of Rule 26 
of the Federal Rules of Civil Procedure and case law interpreting it.
    Response 9. The term ``relevant'' does not need clarification in 
the regulatory guide. The regulatory guide includes the 10 CFR 2.1001 
definition that was promulgated in 1998 (see 63 FR 71729, 71736-71737, 
December 30, 1998). The NRC has previously indicated that relevance is 
defined in terms of whether documentary material (1) has any possible 
bearing on a party's supporting information or a party's position in a 
proceeding or (2) is a report or study that has a bearing on the 
license application and any of the Topical Guidelines in Regulatory 
Guide 3.69. See 66 FR 29453, 29460 n.3. (May 31, 2001).
    Comment 10. The commenter requested additional guidance on how 
potentially sensitive documents are to be handled in the LSN, because 
10 CFR 2.790 and 10 CFR 2.1003(a)(4)(iii) do not cover all potentially 
sensitive information, such as sensitive homeland security information.
    Response 10. Subsequent to receipt of this comment, the NRC revised 
10 CFR Part 2 (69 FR 2182, January 14, 2004), and 10 CFR 2.790 is now 
10 CFR 2.390. The purpose of the regulatory guide is to identify the 
scope of documentary that should be identified in or made available via 
the LSN. The regulatory guide also indicates that certain documents may 
be excluded or withheld from disclosure under 10 CFR 2.1003, 2.1005, 
and 2.1006. Under 10 CFR 2.1003(a)(4) documents withheld from 
disclosure are to be identified by a LSN bibliographic header only (for 
example, safeguards, privileged, or confidential financial 
information). No additional guidance is necessary. (5 U.S.C. 552(a))

    Dated at Rockville, MD this 23rd day of June, 2004.

    For the Nuclear Regulatory Commission.
John W. Craig,
Deputy Director, Office of Nuclear Regulatory Research.
[FR Doc. 04-15172 Filed 7-2-04; 8:45 am]
BILLING CODE 7590-01-P