[Federal Register Volume 80, Number 146 (Thursday, July 30, 2015)]
[Rules and Regulations]
[Pages 45413-45415]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-18630]
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NUCLEAR REGULATORY COMMISSION
10 CFR Part 32
[Docket Nos. PRM-32-8; NRC-2013-0078]
Commercial Distribution of Tritium Markers
AGENCY: Nuclear Regulatory Commission.
ACTION: Petition for rulemaking; denial.
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SUMMARY: The U.S. Nuclear Regulatory Commission (NRC) is denying a
petition for rulemaking (PRM), dated December 2, 2011, which was filed
with the NRC by Motti Slodowitz on behalf of CampCo (the petitioner)
and supplemented with additional information on September 18, 2012. The
petitioner requests the NRC to amend its regulations that govern the
licensing of products containing byproduct material to allow the
commercial distribution of tritium markers for use under an exemption
from licensing requirements. The NRC is denying the petition because
the petitioner fails to demonstrate that a specific exemption is
warranted and that the existing regulatory framework for self-luminous
products is insufficient.
DATES: The docket for the petition for rulemaking, PRM-32-8, is closed
on July 30, 2015.
ADDRESSES: Please refer to Docket ID NRC-2013-0078 when contacting the
NRC about the availability of information regarding this petition. You
can obtain publicly-available documents related to the petition using
any of the following methods:
Federal Rulemaking Web site: Go to http://www.regulations.gov and search on the petition Docket ID NRC-2013-0078.
Address questions about NRC dockets to Carol Gallagher; telephone: 301-
415-3463; email: [email protected]. For technical questions,
contact the individual listed in the FOR FURTHER INFORMATION CONTACT
section of this document.
NRC's Agencywide Documents Access and Management System
(ADAMS): You may obtain publicly-available documents online in the
ADAMS Public Documents collection at http://www.nrc.gov/reading-rm/adams.html. To begin the search, select ``ADAMS Public Documents'' and
then select ``Begin Web-based ADAMS Search.'' For problems with ADAMS,
please contact the NRC's Public Document Room (PDR) reference staff at
1-800-397-4209, (301) 415-4737, or by email to [email protected].
The ADAMS accession number for each document referenced (if it is
available in ADAMS) is provided the first time that it is mentioned in
the SUPPLEMENTARY INFORMATION section.
NRC's PDR: You may examine and purchase copies of public
documents at the NRC's PDR, Room O1-F21, One White Flint North, 11555
Rockville Pike, Rockville, Maryland 20852.
FOR FURTHER INFORMATION CONTACT: Vanessa Cox, Office of Nuclear
Material Safety and Safeguards, U.S. Nuclear Regulatory Commission,
Washington, DC 20555-0001; telephone: 301-415-8342; email:
[email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. The Petition
II. Public Comments on the Petition
III. Discussion
IV. Reasons for Denial
V. Conclusion
I. The Petition
Section 2.802 of Title 10 of the Code of Federal Regulations (10
CFR), ``Petition for rulemaking,'' provides an opportunity for any
interested person to petition the Commission to issue, amend, or
rescind any regulation. The NRC received a petition from Motti
Slodowitz on behalf of CampCo dated December 2, 2011 (ADAMS Accession
No. ML12132A332). The petition requests that the NRC amend certain
regulations concerning exemptions from licensing for products
containing byproduct material to include illumination tritium markers.
On July 5, 2012 (ADAMS Accession No. ML121580046), the NRC
requested supplemental information to further clarify the request. On
September 18, 2012 (ADAMS Accession No. ML13112B010), the petitioner
responded to the NRC's request and submitted supplemental information
clarifying that the petitioner is requesting the NRC to amend paragraph
(b) of 10 CFR 32.22, ``Self-luminous products containing tritium,
krypton-85 or promethium-147: Requirements for license to manufacture,
process, produce, or initially transfer;'' paragraph (c) of 10 CFR
30.19, ``Self-luminous products containing tritium, krypton-85, or
promethium-147;'' and 10 CFR 30.15, ``Certain items containing
byproduct material.'' The petitioner also provided a dose assessment
for the purpose of showing that the tritium markers would result in
acceptably low doses.
The petitioner requests that the NRC amend 10 CFR 32.22(b) to
include an additional requirement stating that an applicant cannot be
denied a device registration or distribution license if it
[[Page 45414]]
has adequately demonstrated that the criteria in applicable regulations
have been met. The petitioner contends that the statement in 10 CFR
32.22(b), that ``the Commission may deny an application for a specific
license if the end uses of the product cannot be reasonably foreseen,''
is a subjective statement without specific criteria and that it is
unfair to deny applications based upon subjective statements where the
criteria are not codified in the regulations. The petitioner references
a Memorandum on Scientific Integrity issued by President Obama on March
9, 2009, which states that ``[s]cience and the scientific process must
inform and guide decisions of [the] Administration on a wide range of
issues, including improvement of public health.'' The petitioner notes
that the NRC has previously denied approval of products because end
uses of the products could not reasonably be foreseen. The petitioner
also states that the term ``frivolous use,'' as used in the NRC's
policy statement on consumer products (30 FR 3462; March 16, 1965,
proposed revision 76 FR 63957; October 14, 2011) and in the NRC's
guidance for materials licenses (NUREG-1556, Volume 3, Revision 1,
``Consolidated Guidance About Materials Licenses: Applications for
Sealed Source and Device Evaluation and Registration'' (ADAMS Accession
No. ML041340618)), is not clearly defined and that there are no
detailed criteria used to make determinations. The petitioner asserts
that the potential misuse of a tritium marker as a toy should not
result in the product being banned outright.
The petitioner requests that the NRC also amend 10 CFR 30.19(c) to
add that tritium markers used to label equipment are not considered to
be toys or adornments and shall not be sold as such.
The petitioner also requests that the NRC amend 10 CFR 30.15 to add
a specific exemption for tritium markers with a maximum activity of 25
millicuries (925 mBq) of tritium. The petitioner believes an exemption
is warranted because of the usefulness of the tritium markers and the
low dose potential. The petitioner states that the markers would not be
a frivolous use of radioactive material, and that ``the potential
radiation doses to members of the public under normal use and accident
conditions...are within regulatory limits.'' The petitioner also states
that the markers are sold in other countries and have practical benefit
such as helping military personnel recover lost items, helping first
responders locate tagged equipment at night, assisting hunters in
finding lost items, and helping lost campers find their tents.
II. Public Comments on the Petition
The notice of receipt published in the Federal Register (78 FR
41720; July 11, 2013), invited interested persons to submit comments.
The comment period closed on September 24, 2013. The NRC received one
public comment opposing the petition. The commenter states:
An interest in record keeping in the known supply of tritium
should be recognized since tritium may, in some cases, be the only
useful tracer for a smuggled weapon. An unrecorded presence of
legitimately obtained tritium may lead to too many false positives
during a crisis.
Although the NRC is denying the petition, the NRC disagrees with
the commenter that the presence of tritium in approved consumer
products would negatively affect law enforcement efforts to track
illegal weapons.
III. Discussion
The NRC regulates consumer products containing byproduct material
without imposing regulatory controls on the consumer-user. Those who
manufacture or distribute products containing byproduct material,
including consumer products, must have a license issued under 10 CFR
part 32. Exemptions for users of products containing byproduct material
appear in 10 CFR part 30. These exemptions are either product-specific
or class exemptions.
A class exemption covers a class of products, for which a person
who wishes to manufacture or distribute a specific product within that
class may submit a license application. An applicant must provide
safety information about the product and demonstrate that the product
meets a number of safety criteria. Exemption of a product under a class
exemption is dependent on approval under the applicable regulations for
the distributor.
Section 30.19 is a class exemption for the receipt, possession,
use, transfer, ownership, or acquisition of self-luminous products
containing certain radionuclides, including tritium. This exemption
does not apply to persons who manufacture, process, produce, or
initially transfer such products for sale or distribution. Paragraph
(c) in 10 CFR 30.19 states that the exemption for products containing
tritium, krypton-85, or promethium-147 does not apply to products
primarily for frivolous purposes or in toys or adornments. Those who
wish to intially transfer for sale or distribution self-luminous
products covered by the 10 CFR 30.19 class exemption must first apply
for and receive a specific license under 10 CFR 32.22 and must have the
product registered under 10 CFR 32.210. Applicants for licenses under
10 CFR 32.22 must also demonstrate that the product is designed and
manufactured in accordance with the safety criteria in 10 CFR 32.23.
Paragraph 32.22(b) further indicates that the Commission may deny an
application for a specific license if the end uses of the product
cannot be reasonably foreseen.
Section 30.15 provides a list of product-specific exemptions for
certain products containing byproduct material, subject to certain
limits including specific radionuclide quantity limits. The receipt,
possession, use, transfer, ownership, and acquisition of these
products, which includes self-luminous timepieces, hands, and dials,
are exempt from licensing requirements. Persons wishing to apply or
incorporate byproduct material into these products or initially
transfer them for sale or distribution must apply for a specific
license under 10 CFR 32.14. Unlike products covered by the 10 CFR 30.19
class exemption, specific products listed in 10 CFR 30.15 do not need
to be registered under 10 CFR 32.210 in order for one to obtain a
specific license for distribution.
The NRC's Consumer Product Policy Statement (CPPS or policy) (79 FR
2907; January 16, 2014) provides the Commission's policy with respect
to approval of the use of byproduct, source, and special nuclear
material in products intended for use by the general public (consumer
products) without the imposition of regulatory controls on the
consumer-user. The revision of the consumer product policy statement
was finalized after the petition was filed.
Petitioner's Requests
Request 1
The petitioner requests that the NRC amend 10 CFR 32.22(b) to
include a statement that an applicant cannot be denied a device
registration or distribution license if it has adequately demonstrated
that the criteria in the applicable regulations have been met.
Response to Petitioner's Request 1
Paragraph 32.22(b) allows the NRC to exercise its judgment in
denying a license application when the end use of a product cannot be
reasonably foreseen. The requested amendment would affect all future
applications for a license under this section and would limit the NRC's
ability to deny an applicant based on whether a practice (in this case,
the distribution of certain products for use by the general public)
[[Page 45415]]
is justified. Furthermore, this suggested revision would make 10 CFR
32.22(b) internally inconsistent and essentially would nullify it.
Such a revision would be inconsistent with the NRC's CPPS, revised
in January 2014. In response to a public comment that discussed the
ability to foresee the end uses of products, the Commission explicitly
stated the importance of evaluating products ``on a case-by-case
basis,'' listing a number of considerations such as likely doses, the
probability and severity of accidents and misuse, and the benefits to
be obtained from the product, noting that these cannot be reasonably
evaluated if the ultimate uses of the product are not known (79 FR
2910). The Commission addressed the importance of this particular
regulatory criterion that allows the denial of a distribution license
for a product whose end uses cannot be reasonably foreseen, stating
``[s]elf-luminous products in particular have a wide range of potential
applications and might easily be widely used for purposes other than
those originally intended if not clearly designed for a specific use.
This criterion also ensures that the uses . . . of radioactive material
in products are justified.'' Id. Therefore, it is important for the NRC
to be able to exercise its judgment in denying a license application
when the end use of a product cannot be reasonably foreseen.
Request 2
The petitioner requests that the NRC amend 10 CFR 30.19(c) to add
that tritium markers used to label equipment are not considered to be
toys or adornments and shall not be sold as such.
Response to Petitioner's Request 2
The requested amendment stating that the tritium markers ``shall
not be sold'' as toys or adornments would not further control whether
these products can be distributed as such. Additionally, there is no
need to expressly designate products that are or are not ``toys or
adornments'' for purposes of 10 CFR 30.19(c) because NRC staff can
apply the normal dictionary definition of such terms to individual
products on a case-by-case basis. Paragraph 30.19(c) also addresses
self-luminous products generally, which makes references to specific
products inappropriate. Moreover, including a reference to tritium
markers used for labeling purposes would prejudge the product as
covered by the exemption, contrary to the intent of the regulatory
framework and the CPPS, which stresses the importance of case-by-case
determinations.
Request 3
The petitioner requests that the NRC amend 10 CFR 30.15 to add a
specific exemption for tritium markers with a maximum activity of 25
millicuries (925 mBq) of tritium.
Response to Petitioner's Request 3
The NRC is choosing not to include a new specific exemption for
these tritium markers at this time, consistent with the guiding
principles within the CPPS. The exempt products in 10 CFR 30.15, such
as timepiece hands or dials containing specified quantities of
byproduct material including tritium, or marine compasses containing
tritium, are designed for specific uses. As previously indicated, the
Commission has stated that ``[s]elf-luminous products in particular
have a wide range of potential applications and might easily be widely
used for purposes other than those originally intended if not clearly
designed for a specific use'' (79 FR 2910). Based on the small size
(1.8 cm long by 0.8 cm diameter by 0.2 cm thick) and the design of the
tritium markers, the tritium markers have potential uses beyond those
intended by the petitioner, including as decorations on zipper pulls on
clothing or as jewelry. The lack of a clear design for a specific use
creates greater potential for unintended uses (such as the ones
specifically excluded from the exemption in 10 CFR 30.19), which
outweighs the product's beneficial uses. Because of the potential for
widespread use, careful consideration of justification of practice is
important.
Also, the size and glow-in-the-dark nature of the tritium markers
would appeal to and be accessible to children. Creating a new specific
exemption for these tritium markers would be inconsistent with the
CPPS, in particular, paragraph four (79 FR 2912), which requires that
products subject to mishandling, especially by children, require an
unusual degree of safety and utility. This criterion is unchanged from
the original 1965 version of the policy. The tritium markers do not
meet this criterion as they do not provide an unusual degree of
utility. The unique benefits as compared to other alternatives are
relatively limited. For example, the uses of the tritium markers
asserted by the petitioner can be achieved by other products on the
market, such as battery-powered products. While the use of tritium
presents a particular benefit by staying illuminated continuously
without having to be turned on when needed, the amount of light created
using the 25 mCi of tritium suggested for the new exemption is limited.
Also, self-luminous products containing tritium light sources
incorporated into products with clear end uses can provide some of the
same benefits.
The petitioner stated that the tritium markers are sold in other
countries. The discussion in the CPPS recognizes that it is unavoidable
that there will be some differences made in judgments concerning
justification of practice. Generally, international standards, such as
the International Atomic Energy Agency's ``Radiation Protection and
Safety of Radiation Sources: International Basic Safety Standards,''
suggest that this product should not be exempted. However, individual
countries' regulatory bodies make their own judgments.
IV. Reasons for Denial
The NRC is denying the petition because the petitioner fails to
demonstrate that a specific exemption is warranted or that the existing
regulatory framework for self-luminous products is inappropriate. The
tritium markers do not meet the regulatory criteria for the use of
self-luminous products under an exemption from licensing. In addition,
the self-luminous product class exemption was set up to eliminate the
need to evaluate numerous PRMs for a wide variety of self-luminous
products and the need to conduct a separate rulemaking to add
individual exemptions for each acceptable one. This provision is needed
to ensure that the use of radioactive material in a product is
justified.
V. Conclusion
For the reasons cited in this document, the NRC is denying PRM-32-
8. The petition fails to present any significant new information or
arguments that would warrant the requested amendments.
Dated at Rockville, Maryland, this 22nd day of July, 2015.
For the Nuclear Regulatory Commission.
Annette L. Vietti-Cook,
Secretary of the Commission.
[FR Doc. 2015-18630 Filed 7-29-15; 8:45 am]
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