[Federal Register Volume 90, Number 242 (Friday, December 19, 2025)]
[Proposed Rules]
[Pages 59402-59408]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2025-23428]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 90, No. 242 / Friday, December 19, 2025 /
Proposed Rules
[[Page 59402]]
NUCLEAR REGULATORY COMMISSION
10 CFR Part 50
[NRC-2024-0045]
RIN 3150-AL06
Incorporation by Reference of Institute of Electrical and
Electronics Engineers Standard 603-2018
AGENCY: Nuclear Regulatory Commission.
ACTION: Proposed rule and draft guidance; request for comment.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) is proposing to
amend its regulations to incorporate by reference the Institute of
Electrical and Electronics Engineers (IEEE) Standard (Std) 603-2018,
``IEEE Standard Criteria for Safety Systems for Nuclear Power
Generating Stations.'' The IEEE Std 603-2018 is the most recent version
of IEEE Std 603 that addresses the power, instrumentation, and control
safety systems for nuclear power reactors. This amendment also
incorporates editorial changes that do not change the technical
information. The NRC plans to hold a public meeting to promote full
understanding of the proposed rule and facilitate public comments.
DATES: Submit comments by February 17, 2026. Comments received after
this date will be considered if it is practical to do so, but the
Commission is able to ensure consideration only for comments received
before this date.
ADDRESSES: You may submit comments by any of the following methods;
however, the NRC encourages electronic comment submission through the
Federal rulemaking website:
Federal Rulemaking Website: Go to https://www.regulations.gov and search for Docket ID NRC-2024-0045. Address
questions about NRC dockets to Helen Chang; telephone: 301-415-3228;
email: [email protected]. For technical questions contact the
individuals listed in the FOR FURTHER INFORMATION CONTACT section of
this document.
Email comments to: [email protected]. If you do
not receive an automatic email reply confirming receipt, then contact
us at 301-415-1677.
Fax comments to: Secretary, U.S. Nuclear Regulatory
Commission at 301-415-1101.
Mail comments to: Secretary, U.S. Nuclear Regulatory
Commission, Washington, DC 20555-0001, ATTN: Rulemakings and
Adjudications Staff.
Hand deliver comments to: 11555 Rockville Pike, Rockville,
Maryland 20852, between 7:30 a.m. and 4:15 p.m. eastern time, Federal
workdays; telephone: 301-415-1677.
You can read a plain language description of this proposed rule at
https://www.regulations.gov/docket/NRC-2024-0045. For additional
direction on obtaining information and submitting comments, see
``Obtaining Information and Submitting Comments'' in the SUPPLEMENTARY
INFORMATION section of this document.
FOR FURTHER INFORMATION CONTACT: Denise Edwards, Office of Nuclear
Material and Safeguards, telephone: 301-415-7204, email:
[email protected], and Gilberto Blas Rodriguez, Office of Nuclear
Reactor Regulation, telephone: 301-287-9260, email:
[email protected]. Both are staff of the U.S. Nuclear
Regulatory Commission, Washington, DC 20555-0001.
SUPPLEMENTARY INFORMATION: This rulemaking is separate from NRC's
comprehensive review and reform of its regulations in accordance with
Executive Order (E.O.) 14300, ``Ordering the Reform of the Nuclear
Regulatory Commission'' (90 FR 22587; May 29, 2025). The rulemakings
associated with that effort will comprehensively reexamine NRC
requirements. While there could be additional revisions as a result of
these future rulemakings, the NRC is moving forward with publication of
this proposed rule at this time because it is an action of high
interest for stakeholders that was in progress before the issuance of
E.O. 14300.
Executive Summary
A. Need for Regulatory Action
The IEEE periodically revises and updates its codes for nuclear
power plants by issuing new editions; this proposed rule is in
accordance with the NRC's practice to incorporate new editions into the
NRC's regulations. This proposed rule allows nuclear power plant
applicants to take advantage of the latest IEEE Std, enhancing
efficiency for applicants and the NRC without affecting safety. The
NRC's use of the IEEE Std is consistent with applicable requirements of
the National Technology Transfer and Advancement Act (NTTAA). See also
Section XII of this document, ``Voluntary Consensus Standards.''
B. Major Provision
The primary effect of this proposed rule is the incorporation by
reference of IEEE Std 603-2018 into title 10 of the Code of Federal
Regulations (10 CFR) 50.55a, ``Codes and standards,'' and to provide
for its use for nuclear power reactors of all types. This proposed rule
also includes a conforming amendment to paragraph (b)(1)(v) of section
50.69, ``Risk-informed categorization and treatment of structures,
systems and components for nuclear power reactors,'' of 10 CFR, which
would extend that provision to allow risk-informed alternatives to
Clauses 5.3 and 5.4 of IEEE 603-2018 for certain systems, structure,
and components.
Table of Contents
I. Obtaining Information and Submitting Comments
A. Obtaining Information
B. Submitting Comments
II. Background
III. Discussion
A. IEEE 603-2018
B. Discussion of Clause 5.16 Regarding CCF and Existing
Commission Policy
C. Protection Systems and Safety Systems
IV. Section-by-Section Analysis
V. Regulatory Flexibility Certification
VI. Regulatory Analysis
VII. Backfitting and Issue Finality
VIII. Plain Writing
IX. Environmental Assessment and Proposed Finding of No Significant
Environmental Impact
X. Paperwork Reduction Act
XI. Executive Orders
A. Executive Order 12866: Regulatory Planning and Review (as
Amended by Executive Order 14215, Ensuring Accountability for All
Agencies)
B. Executive Order 14154: Unleashing American Energy
C. Executive Order 14192: Unleashing Prosperity Through
Deregulation
D. Executive Order 14270: Zero-Based Regulatory Budgeting To
Unleash American Energy
[[Page 59403]]
XII. Voluntary Consensus Standards
XIII. Incorporation by Reference--Reasonable Availability to
Interested Parties
XIV. Availability of Guidance
XV. Public Meeting
XVI. Availability of Documents
I. Obtaining Information and Submitting Comments
A. Obtaining Information
Please refer to Docket ID NRC-2024-0045 when contacting the NRC
about the availability of information for this action. You may obtain
publicly available information related to this action by any of the
following methods:
Federal Rulemaking Website: Go to https://www.regulations.gov and search for Docket ID NRC-2024-0045.
NRC's Agencywide Documents Access and Management System
(ADAMS): You may obtain publicly available documents online in the
ADAMS Public Documents collection at https://www.nrc.gov/reading-rm/adams.html. To begin the search, select ``Begin ADAMS Search.'' For
problems with ADAMS, please contact the NRC's Public Document Room
(PDR) reference staff at 1-800-397-4209, at 301-415-4737, or by email
to [email protected]. For the convenience of the reader,
instructions about obtaining materials referenced in this document are
provided in the ``Availability of Documents'' section.
NRC's PDR: The PDR, where you may examine and order copies
of publicly available documents, is open by appointment. To make an
appointment to visit the PDR, please send an email to
[email protected] or call 1-800-397-4209 or 301-415-4737, between
8:00 a.m. and 4:00 p.m. eastern time, Monday through Friday, except
Federal holidays.
Technical Library: The Technical Library, which is located
at Two White Flint North, 11545 Rockville Pike, Rockville, Maryland
20852, is open by appointment only. Interested parties may make
appointments to examine documents by contacting the NRC Technical
Library by email at [email protected] between 8:00 a.m. and 4:00
p.m., eastern time, Monday through Friday, except Federal holidays.
B. Submitting Comments
The NRC encourages electronic comment submission through the
Federal rulemaking website (https://www.regulations.gov). Please
include Docket ID NRC-2024-0045 in your comment submission.
The NRC cautions you not to include identifying or contact
information that you do not want to be publicly disclosed in your
comment submission. The NRC will post all comment submissions at
https://www.regulations.gov as well as enter the comment submissions
into ADAMS. The NRC does not routinely edit comment submissions to
remove identifying or contact information.
If you are requesting or aggregating comments from other persons
for submission to the NRC, then you should inform those persons not to
include identifying or contact information that they do not want to be
publicly disclosed in their comment submission. Your request should
state that the NRC does not routinely edit comment submissions to
remove such information before making the comment submissions available
to the public or entering the comment into ADAMS.
II. Background
It has been the NRC's practice to establish requirements for the
protection systems and safety systems in nuclear power plants by
incorporating by reference certain standards published by the IEEE into
10 CFR 50.55a, ``Codes and standards.''
Paragraph 50.55a(h)(2), ``Protection systems,'' currently requires
that the protection systems in nuclear power plants with construction
permits issued after January 1, 1971, but before May 13, 1999, meet the
requirements stated in either IEEE Std 279, ``Criteria for Protection
Systems for Nuclear Power Generating Stations,'' or with the
requirements in IEEE Std 603-1991, ``IEEE Criteria for Safety Systems
for Nuclear Power Generating Stations,'' including the correction sheet
dated January 30, 1995. For nuclear power plants with construction
permits issued before January 1, 1971, 10 CFR 50.55a(h)(2) requires
that protection systems must be consistent with their licensing basis
or meet the requirements of IEEE Std 603-1991 including the correction
sheet dated January 30, 1995.
Paragraph 50.55a(h)(3), ``Safety systems,'' currently requires that
applications filed on or after May 13, 1999, for construction permits
and operating licenses under 10 CFR part 50, as well as standard design
approvals, standard design certifications, and combined licenses under
10 CFR part 52, meet the requirements for safety systems stated in IEEE
Std 603-1991 including the correction sheet dated January 30, 1995.
The IEEE superseded the previous standards with IEEE Std 603-2018.
This proposed rule would update the NRC's regulations to incorporate by
reference and specify the requirements for using this latest version of
IEEE Std 603 on the basis of license date, construction permit date,
and type of protection system or safety system modification. This
proposed rule would apply to (1) reactor design applications for a
license, construction permit, design approval, or design certification,
and (2) applications for license amendments for nuclear power plants.
The NRC is proposing to make the final rule effective 30 days after its
publication in the Federal Register.
This proposed rule would incorporate voluntary consensus standard
IEEE Std 603-2018 into the NRC's regulations to establish functional
and design requirements for power, instrumentation, and control safety
systems for nuclear power plants. This action would be consistent with
the provisions of the NTTAA, which encourage Federal regulatory
agencies to consider adopting voluntary consensus standards as an
alternative to agency development of government-unique standards.
The NRC staff held two public meetings on IEEE Std 2018 before this
rulemaking was initiated: one on September 14, 2023, and one on
September 19, 2024. The NRC appreciates the feedback received through
these public meetings, which contributed to the development of this
proposed rule.
III. Discussion
A. IEEE 603-2018
The NRC proposes to update 10 CFR 50.55a to incorporate by
reference IEEE Std 603-2018. When applying IEEE Std 603-2018, the first
sentence within Clause 5.16, ``Common-cause failure,'' captures the
only regulatory requirement of Clause 5.16, that the safety system
design and development shall address common-cause failures (CCFs) that
create a potential to degrade or defeat the safety system function.
IEEE Std 603-2018 references several industry codes and standards
that are not proposed for incorporation by reference in this
rulemaking. These referenced standards are not mandatory NRC
requirements, and if a referenced standard has been endorsed in a
regulatory guide, the standard constitutes a method acceptable to the
NRC for meeting a regulatory requirement.
This proposed rule also includes a conforming amendment to
paragraph (b)(1)(v) of 10 CFR 50.69, ``Risk-informed categorization and
treatment of structures, systems and components for nuclear power
reactors,'' which would extend that provision to allow risk-informed
alternatives to Clauses 5.3
[[Page 59404]]
and 5.4 of IEEE 603-2018 for certain systems, structure, and
components.
B. Discussion of Clause 5.16 Regarding CCF and Existing Commission
Policy
IEEE Std 603-2018 includes Clause 5.16, which provides criteria for
evaluating the potential for safety system CCF. As this Clause 5.16
does not exist in IEEE Std 603-1991, it is not in the currently
incorporated by reference version. In the 2018 version, Clause 5.16
applies to any source of vulnerability to CCF.
The first sentence in Clause 5.16 states that--the safety system
design and development shall address CCFs that create a potential to
degrade or defeat the safety system function. This statement is
consistent with the NRC's position on CCF, which is why it is proposed
to be included as part of this proposed rule. The Commission's policy
on addressing CCF is found in Staff Requirements Memorandum (SRM)-SECY-
22-0076, ``Expansion of Current Policy on Potential Common-Cause
Failures in Digital Instrumentation and Control Systems,'' dated August
10, 2022. As noted in the Commission's policy, before a nuclear
generating station safety system is considered ready for implementation
at the facility, developers must demonstrate that vulnerabilities to
CCF have been adequately identified and addressed.
The NRC staff considers the remainder of Clause 5.16 of IEEE Std
603-2018 as guidance on how CCF could be addressed. The methods
included in Clause 5.16 may be acceptable for licensees or applicants
to address CCF as part of their overall defense-in-depth and diversity
(D3) analyses, in appropriate circumstances; however, the list is not
comprehensive and does not include flexibilities the Commission
recently directed the NRC staff to incorporate into its licensing
reviews. In its direction to the NRC staff in SRM-SECY-22-0076, the
Commission approved expanded acceptance of risk-informed approaches in
performing the defense-in-depth and diversity assessment and in
determining the adequacy of design techniques, prevention measures, and
mitigation measures, other than diversity, to address a postulated
digital instrumentation and controls CCF. This policy provides
additional flexibility in addressing CCFs beyond the methods described
in Clause 5.16. Therefore, licensees or applicants may use the methods
described in Clause 5.16 and other methods referenced in Draft
Regulatory Guide (DG) DG-1251, Revision 1, ``Guidance for the Power,
Instrumentation, and Control Portions of Safety Systems for Nuclear
Power Plants,'' in their overall D3 analyses. The NRC staff guidance
for evaluation of defense in depth and diversity to address CCF is
found in NUREG-0800, ``Standard Review Plan,'' Chapter 7, Branch
Technical Position 7-19 (BTP 7-19), Revision 9, ``Guidance for
Evaluation of Defense in Depth and Diversity to Address Common-Cause
Failure Due to Latent Design Defects in Digital Instrumentation and
Control Systems,'' and the Design Review Guide, ``Design Review Guide
(DRG): Instrumentation and Controls for Non-Light-Water Reactor (Non-
LWR) Reviews,'' as applicable. Further, regarding the last paragraph in
Clause 5.16, the NRC staff agrees that if a determination concludes
that the consequences of a CCF are low or a determination concludes
that the CCF has a very low likelihood of occurrence, then that
conclusion could be credited in a plant-specific analysis toward
justification of the proposed safety system design in a risk-informed
approach. However, a risk-informed approach requires that risk insights
are considered together with other factors to establish requirements
that better focus licensee and regulatory attention on design and
operational issues commensurate with their importance to public health
and safety, consistent with SRM-SECY-98-144, ``Risk-informed and
Performance Based Regulation,'' and SRM-SECY-22-0076. Finally, the NRC
staff agrees that each identified source of CCF should be evaluated on
a case-by-case basis.
Therefore, the NRC proposes to update 10 CFR 50.55a to incorporate
by reference IEEE Std 603-2018. When applying IEEE Std 603-2018, the
first sentence within Clause 5.16, ``Common-cause failure,'' captures
the only regulatory requirement of Clause 5.16, that the safety system
design and development shall address CCF that create a potential to
degrade or defeat the safety system function.
C. Protection Systems and Safety Systems
The NRC's understanding of ``protection systems'' and ``safety
systems'' as used in 10 CFR 50.55a(h) remains the same as described in
the 1999 rulemaking to incorporate IEEE Std 603-1991 by reference into
10 CFR 50.55a (64 FR 17944; April 13, 1999). Currently, 10 CFR
50.55a(h) specifies that ``protection systems'' for plants with
construction permits issued after January 1, 1971, but before May 13,
1999, must meet the requirements in IEEE Std 279-1968, ``Proposed IEEE
Criteria for Nuclear Power Plant Protection Systems,'' or the
requirements in IEEE Std 279-1971, ``Criteria for Protection Systems
for Nuclear Power Generating Stations,'' or the requirements in IEEE
Std 603-1991, ``Criteria for Safety Systems for Nuclear Power
Generating Stations, and the correction sheet dated January 30, 1995.
IEEE Std 279-1971 states that a ``protection system'' encompasses all
electric and mechanical devices and circuitry (from sensors to
actuation device input terminals) involved in generating those signals
associated with the protective function. These signals include those
that actuate reactor trip and that, in the event of a serious reactor
accident, actuate engineered safety features, such as containment
isolation, core spray, safety injection, pressure reduction, and air
cleaning. In turn, ``protective function'' is defined in IEEE Std 279-
1971 as the sensing of one or more variables associated with a
particular generating station condition, signal processing, and the
initiation and completion of the protective action at values of the
variables established in the design bases.
IEEE Std 603-2018 uses the term ``safety systems'' rather than
``protection systems'' to define its scope. A ``safety system'' is
defined in IEEE Std 603-2018 as a system that is relied upon to remain
functional during and following design basis events to assure one of
the following: (a) The integrity of the reactor coolant pressure
boundary, (b) the capability to shut down the reactor and maintain it
in a safe shutdown condition, or (c) the capability to prevent or
mitigate the consequences of accidents that could result in potential
offsite exposures comparable to regulatory guidelines. A ``safety
function'' is defined in IEEE Std 603-2018 as one of the processes or
conditions (for example, emergency negative reactivity insertion, post-
accident heat removal, emergency core cooling, post-accident
radioactivity removal, and containment isolation) essential to maintain
plant parameters within acceptable limits established for a design
basis event.
The NRC recognizes that ``protection systems'' are a subset of
``safety systems.'' Safety system is a broad-based and all-encompassing
term, embracing the protection system in addition to other electrical
systems. Thus, the term ``protection system'' is not synonymous with
the term ``safety system.'' This proposed rule would not change the
scope of the systems covered in the final safety analysis report for
currently operating nuclear power plants.
[[Page 59405]]
IV. Section-by-Section Analysis
The following paragraphs describe the specific changes proposed by
this rulemaking.
Section 50.55a Codes and Standards
This proposed rule would revise paragraphs (a) and paragraphs
(h)(2) and (h)(3) to include the IEEE standard 603-2018 and revise
introductory text to paragraph (h) to align for readability.
Section 50.69 Risk-Informed Categorization and Treatment of Structures,
Systems and Components for Nuclear Power Reactors
This proposed rule would revise paragraph (b)(v) to extend that
provision to allow risk-informed alternatives to Clauses 5.3 and 5.4 of
IEEE 603-2018 for certain systems, structure, and components.
Appendix E to 10 CFR Part 50--Emergency Planning and Preparedness for
Production and Utilization Facilities
This proposed rule would correct the title, from ``Protection
Systems'' to ``Protection and safety systems,'' referenced in footnote
7 of appendix E to 10 CFR part 50.
V. Regulatory Flexibility Certification
As required by the Regulatory Flexibility Act of 1980, 5 U.S.C.
605(b), the NRC certifies that this rule, if adopted, will not have a
significant economic impact on a substantial number of small entities.
This proposed rule affects only the licensing and operation of nuclear
power plants. The companies that own these plants do not fall within
the scope of the definition of ``small entities'' set forth in the
Regulatory Flexibility Act or the size standards established by the NRC
(10 CFR 2.810).
VI. Regulatory Analysis
The NRC has prepared a draft regulatory analysis on this proposed
regulation. The analysis examines the costs and benefits of the
alternatives considered by the NRC. The NRC requests public comment on
the draft regulatory analysis. The regulatory analysis is available as
indicated in the ``Availability of Documents'' section of this
document. Comments on the draft analysis may be submitted to the NRC as
indicated under the ADDRESSES caption of this document.
VII. Backfitting and Issue Finality
The NRC's Backfit Rule in 10 CFR 50.109 states that the NRC shall
require the backfitting of a facility only when it finds the action to
be justified under specific standards stated in the rule. Section
50.109(a)(1) defines backfitting as the modification of or addition to
systems, structures, components, or design of a facility; the design
approval or manufacturing license for a facility; or the procedures or
organization required to design, construct, or operate a facility. Any
of these modifications or additions may result from a new or amended
provision in the NRC's rules or the imposition of a regulatory position
interpreting the NRC's rules that is either new or different from a
previously applicable NRC position after issuance of the construction
permit or the operating license or the design approval.
This rulemaking proposes to incorporate by reference the IEEE 603-
2018. This proposed rule would not change requirements for existing
licensees or applicants. If existing licensees or applicants request
changes to their power and instrumentation control systems, this
proposed rule would allow them to voluntarily comply with IEEE Std 603-
2018 instead of other existing requirements. The proposed rule would
require applicants and holders of new construction permits, new
operating licenses, new final design certifications, and new combined
licenses to meet IEEE Std 603-2018 after the effective date of the
rule. However, changes in requirements for new applicants or licensees
do not constitute backfitting. Therefore, this proposed rule, if
finalized, would not constitute ``backfitting'' as defined in 10 CFR
50.109(a)(1).
VIII. Plain Writing
The Plain Writing Act of 2010 (Pub. L. 111-274) requires Federal
agencies to write documents in a clear, concise, and well-organized
manner. The NRC has written this document to be consistent with the
Plain Writing Act as well as the Presidential Memorandum, ``Plain
Language in Government Writing,'' published June 10, 1998, (63 FR
31885). The NRC requests comment on this document with respect to the
clarity and effectiveness of the language used.
IX. Environmental Assessment and Proposed Finding of No Significant
Environmental Impact
The Commission has determined under the National Environmental
Policy Act of 1969, as amended, and the Commission's regulations in
subpart A of 10 CFR part 51, that this rule, if adopted, would not be a
major Federal action significantly affecting the quality of the human
environment, and therefore an environmental impact statement is not
required.
The proposed rule does not significantly increase the probability
or consequences of accidents, no changes are being made in the types of
effluents that may be released off-site, and there is no significant
increase in public radiation exposure. This proposed rule does not
involve non-radiological plant effluents and has no other environmental
impact. Therefore, no significant non-radiological impacts are
associated with this proposed action.
The determination of this environmental assessment is that there
will be no significant effect on the quality of the human environment
from this action. Public stakeholders should note; however, that
comments on any aspect of this environmental assessment may be
submitted to the NRC as indicated under the ADDRESSES caption.
X. Paperwork Reduction Act
This proposed rule does not contain any new or amended collections
of information subject to the Paperwork Reduction Act of 1995 (44
U.S.C. 3501 et seq.). Existing collections of information were approved
by the Office of Management and Budget (OMB), approval numbers 3150-
0011, 3150-0264, and 3150-0151.
Public Protection Notification
The NRC may not conduct or sponsor, and a person is not required to
respond to a collection of information unless the document requesting
or requiring the collection displays a currently valid OMB control
number.
XI. Executive Orders
The following are Executive orders that are related to this
proposed rule:
A. Executive Order 12866: Regulatory Planning and Review (as Amended by
Executive Order 14215, Ensuring Accountability for All Agencies)
This action is not a significant regulatory action and therefore
was not submitted to the Office of Management and Budget (OMB) for
review.
B. Executive Order 14154: Unleashing American Energy
The NRC has examined this proposed rule and has determined that it
is consistent with the policies and directives outlined in E.O. 14154.
C. Executive Order 14192: Unleashing Prosperity Through Deregulation
This action is a regulatory action as defined by E.O. 14192.
Details on the estimated costs of this proposed rule can be found in
Section VI of this document, ``Regulatory Analysis.''
[[Page 59406]]
D. Executive Order 14270: Zero-Based Regulatory Budgeting To Unleash
American Energy
E.O. 14270, ``Zero-Based Regulatory Budgeting to Unleash American
Energy,'' requires the NRC to insert a conditional sunset date into all
new or amended NRC regulations provided the regulations are (1)
promulgated under the Atomic Energy Act of 1954, as amended (AEA), the
Energy Reorganization Act of 1974, as amended (ERA), or the Nuclear
Waste Policy Act of 1982, as amended (NWPA); (2) not statutorily
required; and (3) not part of the NRC's permitting regime. The NRC
determined that the regulatory changes proposed in this rule are part
of the NRC's regulatory permitting scheme authorized by the AEA.
Therefore, the NRC views this rulemaking to be outside the scope of
Executive Order 14270 and did not insert conditional sunset dates for
the regulatory changes in this proposed rule.
XII. Voluntary Consensus Standards
The National Technology Transfer and Advancement Act of 1995,
Public Law 104-113, requires that Federal agencies use technical
standards that are developed or adopted by voluntary consensus
standards bodies unless using such a standard is inconsistent with
applicable law or is otherwise impractical. In this proposed rule, the
NRC would incorporate the following voluntary consensus standard: IEEE
Std 603-2018, Institute of Electrical and Electronics Engineers,
September 27, 2018. The NRC invites comment on the applicability and
use of other standards.
XIII. Incorporation by Reference--Reasonable Availability to Interested
Parties
The NRC proposes to incorporate by reference the IEEE Std 603-2018.
When applying IEEE Std 603-2018, the first sentence within Clause 5.16,
``Common-cause failure,'' captures the only regulatory requirement of
Clause 5.16, that the safety system design and development shall
address CCFs that create a potential to degrade or defeat the safety
system function. As described in the ``Background'' and ``Discussion''
sections of this document, the material contains standards for
establishing the minimum functional and design criteria for the power,
instrumentation, and control portions of safety systems for nuclear
power generating stations.
The NRC is required by law to obtain approval for incorporation by
reference from the Office of the Federal Register (OFR). The OFR's
requirements for incorporation by reference are set forth in 1 CFR part
51. On November 7, 2014, the OFR adopted changes to its regulations
governing incorporation by reference (79 FR 66267). The OFR regulations
require an agency to include in a proposed rule a discussion of the
ways that the material the agency proposes to incorporate by reference
are reasonably available to interested parties or how it worked to make
the material reasonably available to interested parties. The discussion
in this section complies with the requirement for proposed rules as set
forth in 1 CFR 51.5(a)(1).
The NRC considers ``interested parties'' to include all potential
NRC stakeholders and not only the individuals and entities regulated or
otherwise subject to the NRC's regulatory oversight. These NRC
stakeholders are not a homogenous group but vary with respect to the
considerations for determining reasonable availability. Therefore, the
NRC distinguishes between different classes of interested parties for
the purposes of determining whether the material is ``reasonably
available.'' The NRC considers the following to be classes of
interested parties in NRC rulemakings with regard to the material to be
incorporated by reference:
Individuals and small entities regulated or otherwise
subject to the NRC's regulatory oversight (this class also includes
applicants and potential applicants for licenses and other NRC
regulatory approvals) and who are subject to the material to be
incorporated by reference by rulemaking. In this context, ``small
entities'' has the same meaning as a ``small entity'' under 10 CFR
2.810.
Large entities otherwise subject to the NRC's regulatory
oversight (this class also includes applicants and potential applicants
for licenses and other NRC regulatory approvals) and who are subject to
the material to be incorporated by reference by rulemaking. In this
context, ``large entities'' are those that do not qualify as a ``small
entity'' under 10 CFR 2.810.
Non-governmental organizations with institutional
interests in the matters regulated by the NRC.
Other Federal agencies, States, local governmental bodies
(within the meaning of 10 CFR 2.315(c)).
Federally-recognized and State-recognized \1\ Indian
Tribes.
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\1\ State-recognized Indian Tribes are not within the scope of
10 CFR 2.351(c). However, for purposes of the NRC's compliance with
1 CFR 51.5, ``interested parties,'' includes a broad set of
stakeholders, including State-recognized Indian Tribes.
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Members of the public (i.e., individual, unaffiliated
members of the public who are not regulated or otherwise subject to the
NRC's regulatory oversight) who may wish to gain access to the material
that the NRC proposes to incorporate by reference by rulemaking in
order to participate in the rulemaking process.
The IEEE 603-2018 Standard may be viewed, by appointment, at the
Technical Library, which is located at Two White Flint, 11545 Rockville
Pike, Rockville, Maryland 20852. You may submit your request to the
Technical Library via email at [email protected] between 8:00
a.m. and 4:00 p.m. eastern time, Monday through Friday, except Federal
holidays. In addition, as described in Section XVI of this document,
documents related to this proposed rule are available online in the
NRC's ADAMS Public Documents collection at https://www.nrc.gov/reading-rm/adams.html.
Interested parties may purchase a copy of the IEEE material at the
IEEE Standards Association website, https://standards.ieee.org/. The
material also is accessible through a third-party subscription service
such as Accuris IHS (15 Inverness Way East, Englewood, CO 80112;
https://store.accuristech.com/publishers/ieee).
The material is available to all interested parties in multiple
ways and in a manner consistent with their interest in this proposed
rule. Therefore, the NRC concludes that the material the NRC proposes
to incorporate by reference in this proposed rule is reasonably
available to all interested parties.
XIV. Availability of Guidance
The NRC is issuing draft guidance in conjunction with this proposed
rule. Draft Regulatory Guide (DG)DG-1251, Revision 1, ``Guidance for
the Power, Instrumentation, and Control Portions of Safety Systems for
Nuclear Power Plants'' (Regulatory Guide 1.153, Revision 2; ADAMS
Accession No. ML25114A021), would provide additional guidance for
implementing the requirements of the rule. DG-1251 is based upon the
discussion in this proposed rule and does not modify the scope of
paragraph 50.55a(h) of 10 CFR part 50. The NRC requests public comment
on the draft regulatory guide. Comments on the draft guidance may be
submitted by the methods provided in Section I, ``Obtaining Information
and Submitting Comments,'' of this document.
[[Page 59407]]
XV. Public Meeting
The NRC will conduct a public meeting on the proposed rule for the
purpose of describing the incorporation by reference of the 2018
version of the IEEE 603 standard. The NRC staff will be available to
answer questions from the public regarding this proposed rule.
The NRC will publish a notice of the location, time, and agenda of
the meeting in the Federal Register, on Regulations.gov, and on the
NRC's public meeting website within at least 10 calendar days before
the meeting. Stakeholders should monitor the NRC's public meeting
website for information about the public meeting at: https://www.nrc.gov/public-involve/public-meetings/index.cfm.
XVI. Availability of Documents
The documents identified in the following table are available to
interested persons through one or more of the following methods, as
indicated.
----------------------------------------------------------------------------------------------------------------
Document ADAMS accession No./ web link/ Federal Register citation
----------------------------------------------------------------------------------------------------------------
Proposed Rule Documents
----------------------------------------------------------------------------------------------------------------
Proposed Rule--Regulatory Analysis for ML24353A321.
Incorporation by Reference of
Institute of Electrical Engineers
Standard 603-2018, November 14, 2025.
Proposed Rule--Unofficial Redline ML24353A325.
Strikeout of the NRC's Proposed Rule:
Incorporation by Reference of
Institute of Electrical Engineers
Standard 603-2018, November 26, 2025.
Draft Regulatory Guide DG-1251, ML25114A021.
Revision 1, ``Guidance for the Power,
Instrumentation, and Control Portions
of Safety Systems for Nuclear Power
Plants,'' December 2025 (Regulatory
Guide 1.153, Revision 2).
----------------------------------------------------------------------------------------------------------------
Related Documents
----------------------------------------------------------------------------------------------------------------
NUREG-0800, ``Standard Review Plan,'' ML24005A077 BTP.
Chapter 7, Branch Technical Position 7-
19 (BTP 7-19), Revision 9, ``Guidance
for Evaluation of Defense in Depth and
Diversity to Address Common-Cause
Failure Due to Latent Design Defects
in Digital Instrumentation and Control
Systems,'' May 2024.
Public Meeting Summary--Summary of ML24289A230 summary, ML24289A210 package.
September 19, 2024, Public Meeting to
Discuss Proposed Path Forward for
Industry's Use of Institute of
Electrical and Electronics Engineers
Standard (IEEE) 603-2018, Criteria for
Safety Systems, October 17, 2024.
Public Meeting Presentation--Proposed ML24262A141.
Path Forward for Industry's Use of
Institute of Electrical and
Electronics Engineers Standard (IEEE)
603-2018, Criteria for Safety Systems,
September 19, 2024.
SRM-S22-0076-1--Final Revision to ML24005A119 package.
Standard Review Plan Branch Technical
Position 7-19, Guidance for Evaluation
of Defense in Depth and Diversity to
Address Common-Cause Failure Due to
Latent Design Defects in Digital
Instrumentation and Control Systems,
April 25, 2024.
Letter from Nuclear Energy Institute ML23307A127.
(NEI), ``NEI Recommendations for IEEE
603-2018, IEEE Standard Criteria for
Safety Systems for Nuclear Power
Generating Stations, Path Forward,''
November 3, 2023.
Public Meeting Presentation--Proposed ML23240A399.
Path Forward for Industry's Use of
Institute of Electrical and
Electronics Engineers Standard (IEEE)
603-2018, Criteria for Safety Systems,
September 14, 2023.
SRM-SECY-22-0076, Expansion of Current ML23145A176.
Policy on Potential Common-Cause
Failures in Digital Instrumentation
and Control Systems, May 25, 2023.
SECY-22-0076, Expansion of Current ML22164B003.
Policy on Potential Common-Cause
Failures in Digital Instrumentation
and Control Systems, August 10, 2022.
Final Rule--Codes and Standards: IEEE 64 FR 17944.
National Consensus Standard, April 13,
1999.
SRM-SECY-98-144, White Paper on Risk- ML003753601.
informed and Performance Based
Regulation, March 1, 1999.
Final Rule--Incorporation by Reference, 79 FR 66267.
November 7, 2014.
Plain Language in Government Writing, 63 FR 31885.
June 10, 1998.
Design Review Guide (DRG): ML21011A140.
Instrumentation and Controls for Non-
Light-Water Reactor (Non-LWR) Reviews,
February 26, 2021.
Executive Order 12866, ``Regulatory 58 FR 51735.
Planning and Review,'' October 4, 1993.
Executive Order 14154, ``Unleashing 90 FR 8353.
American Energy,'' January 29, 2025.
Executive Order 14192, ``Unleashing 90 FR 9065.
Prosperity Through Deregulation,''
February 6, 2025.
Executive Order 14270, ``Zero-Based 90 FR 15643.
Regulatory Budgeting to Unleash
American Energy,'' April 15, 2025.
----------------------------------------------------------------------------------------------------------------
IEEE Standard
----------------------------------------------------------------------------------------------------------------
Institute of Electrical and Electronics https://standards.ieee.org/.
Engineers (IEEE) Standards
Association, Standard (Std) 603-2018,
``IEEE Standard Criteria for Safety
Systems for Nuclear Power Generating
Stations,'' September 27, 2018.
Accuris Standards Store (Formerly IHS). https://store.accuristech.com/publishers/ieee.
----------------------------------------------------------------------------------------------------------------
The NRC may post materials related to this document, including
public comments, on the Federal rulemaking website at https://www.regulations.gov under Docket ID NRC-2024-0045. In addition, the
Federal rulemaking website allows members of the public to receive
alerts when changes or additions occur in a docket folder. To
subscribe:
[[Page 59408]]
(1) navigate to the docket folder (NRC-2024-0045); (2) click the
``Subscribe'' button; and (3) enter an email address and click on the
``Subscribe'' button.
List of Subjects in 10 CFR Part 50
Administrative practice and procedure, Antitrust, Backfitting,
Classified information, Criminal penalties, Education, Emergency
planning, Fire prevention, Fire protection, Incorporation by reference,
Intergovernmental relations, Nuclear power plants and reactors,
Penalties, Radiation protection, Reactor siting criteria, Reporting and
recordkeeping requirements, Whistleblowing.
For the reasons set out in the preamble and under the authority of
the Atomic Energy Act of 1954, as amended; the Energy Reorganization
Act of 1974, as amended; and 5 U.S.C. 552 and 553, the NRC is proposing
to amend 10 CFR part 50.
PART 50--DOMESTIC LICENSING OF PRODUCTION AND UTILIZATION
FACILITIES
0
1. The authority citation for part 50 continues to read as follows:
Authority: Atomic Energy Act of 1954, secs. 11, 101, 102, 103,
104, 105, 108, 122, 147, 149, 161, 181, 182, 183, 184, 185, 186,
187, 189, 223, 234 (42 U.S.C. 2014, 2131, 2132, 2133, 2134, 2135,
2138, 2152, 2167, 2169, 2201, 2231, 2232, 2233, 2234, 2235, 2236,
2237, 2239, 2273, 2282); Energy Reorganization Act of 1974, secs.
201, 202, 206, 211 (42 U.S.C. 5841, 5842, 5846, 5851); Nuclear Waste
Policy Act of 1982, sec. 306 (42 U.S.C. 10226); National
Environmental Policy Act of 1969 (42 U.S.C. 4332); 44 U.S.C. 3504
note; Sec. 109, Pub. L. 96-295, 94 Stat. 783.
0
2. In Sec. 50.55a:
0
a. In paragraph (a)(2), add paragraph (v);
0
b. Revise introductory text to paragraph (h) and paragraphs (h)(2) and
(3);
The revision and addition read as follows:
Sec. 50.55a Codes and standards.
* * * * *
(v) IEEE standard 603-2018. (IEEE Std 603-2018), ``Standard
Criteria for Safety Systems for Nuclear Power Generating Stations''
(Approval date: September 27, 2018), referenced in paragraphs (h)(2)
and (h)(3) of this section. All other standards that are referenced in
IEEE Std 603-2018 are not approved for incorporation by reference.
* * * * *
(h) Protection and safety systems. Protection and safety systems of
nuclear power reactors of all types must meet the requirements
specified in this paragraph. Each combined license for a utilization
facility is subject to the following conditions. * * *
(2) * * *
(i) For nuclear power plants with construction permits issued after
January 1, 1971, but before May 13, 1999, protection systems must meet
the requirements in IEEE Std 279-1968, ``Proposed IEEE Criteria for
Nuclear Power Plant Protection Systems,'' or the requirements in IEEE
Std 279-1971, ``Criteria for Protection Systems for Nuclear Power
Generating Stations,'' or the requirements in IEEE Std 603-1991,
``Criteria for Safety Systems for Nuclear Power Generating Stations,''
and the correction sheet dated January 30, 1995, or the requirements in
IEEE Std 603-2018, ``Criteria for Safety Systems for Nuclear Power
Generating Stations.'' When applying IEEE Std 603-2018, the first
sentence within Clause 5.16, ``Common-cause failure,'' captures the
only regulatory requirement of Clause 5.16, that the safety system
design and development shall address common-cause failures (CCFs) that
create a potential to degrade or defeat the safety system function.
(ii) For nuclear power plants with construction permits issued
before January 1, 1971, protection systems must be consistent with
their licensing basis or may meet the requirements of IEEE Std 603-1991
and the correction sheet dated January 30, 1995, or the requirements in
IEEE Std 603-2018, dated September 27, 2018. When applying IEEE Std
603-2018, Clause 5.16, ``Common-cause failure,'' the first sentence
within Clause 5.16, ``Common-cause failure,'' captures the only
regulatory requirement of Clause 5.16, that the safety system design
and development shall address CCFs that create a potential to degrade
or defeat the safety system function.
(3) Safety systems.
(i) Applications filed on or after May 13, 1999, but before [DATE
30 DAYS AFTER DATE OF PUBLICATION OF THE FINAL RULE IN THE FEDERAL
REGISTER], for construction permits and operating licenses under this
part, and for design approvals, design certifications, and combined
licenses under part 52 of this chapter, must meet the requirements for
safety systems in IEEE Std 603-1991 and the correction sheet dated
January 30, 1995, or the requirements in IEEE Std 603-2018. When
applying IEEE Std 603-2018, the first sentence within Clause 5.16,
``Common-cause failure,'' captures the only regulatory requirement of
Clause 5.16, that the safety system design and development shall
address CCFs that create a potential to degrade or defeat the safety
system function.
(ii) Applications filed on or after [DATE 30 DAYS AFTER DATE OF
PUBLICATION OF THE FINAL RULE IN THE FEDERAL REGISTER], for
construction permits and operating licenses under this part, and for
design approvals, design certifications, and combined licenses under
part 52 of this chapter, must meet the requirements for safety systems
in IEEE Std 603-2018, dated September 27, 2018. When applying IEEE Std
603-2018, the first sentence within Clause 5.16, ``Common-cause
failure,'' captures the only regulatory requirement of Clause 5.16,
that the safety system design and development shall address CCFs that
create a potential to degrade or defeat the safety system function.
* * * * *
0
3. In Sec. 50.69, revise paragraph (b)(1)(v) to read as follows:
Sec. 50.69 Risk-informed categorization and treatment of structures,
systems and components for nuclear power reactors.
* * * * *
(b) * * *
(1) * * *
(v) The inservice testing requirements in 10 CFR 50.55a(f); the
inservice inspection, and repair and replacement (with the exception of
fracture toughness), requirements for ASME Class 2 and Class 3 SSCs in
10 CFR 50.55a(g); and the electrical component quality and
qualification requirements in Sections 4.3 and 4.4 of IEEE 279, Clauses
5.3 and 5.4 of IEEE 603-1991, and Clauses 5.3 and 5.4 of IEEE 603-2018
as incorporated by reference in 10 CFR 50.55a(h).
* * * * *
0
4. In appendix E to 10 CFR part 50, revise footnote 7 in appendix E to
read as follows:
Appendix E to 10 CFR Part 50
* * * * *
VI. * * *
1. * * *
2. * * *
a. * * *
\[7]\ See 10 CFR 50.55a(h), Protection and safety systems.
* * * * *
Dated: December 1, 2025.
For the Nuclear Regulatory Commission.
Michael King,
Acting Executive Director for Operations.
[FR Doc. 2025-23428 Filed 12-18-25; 8:45 am]
BILLING CODE 7590-01-P