In nuclear operations, major events rarely happen without warning. Most often, significant events are preceded by missed signals, routine decisions, or overlooked gaps (deemed insignificant at the time) that compound into these consequential failures. The Institute of Nuclear Power Operations (INPO) Industry Event Report (IER) L2-21-4, Rev. 1, calls attention to the early indicators, focusing particularly on how proficiency shortfalls and gaps in risk recognition can escalate despite formal qualifications and procedural compliance.
The updated guidance reframes how the nuclear industry thinks about reliability, shifting the focus beyond parts quality, procedures, and training completion to include proficiency management in nuclear operations as a key indicator of how people perform in the real world under pressure and in risk-sensitive environments.
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Shifting from Procedures to Proficiency
When INPO first issued IER L2-21-4 in 2021, the focus was on improving preventive maintenance, equipment oversight, and the organization’s response to failure events. In many cases, procedures were followed, and training had been completed, yet events still occurred.
“About one-third of all consequential events are linked to proficiency management shortfalls…This revision of IER 21-4 incorporates tenets of both risk and proficiency to further improve plant reliability.”
– INPO, IER L2-21-4, Rev. 1
The 2025 update responds to a deeper concern that persistent proficiency gaps are clearly linked to recurring risk across nuclear plants and sites. These issues aren’t failures of compliance, but more so, failures of capability under pressure. With this guidance, INPO elevates proficiency management to be as critical to plant reliability as technical systems, maintenance strategy, and procedural controls.
Adding Recommendation 8: Recognize and Mitigate Proficiency Shortfalls
When the original IER 21-4 was released in 2021, the nuclear industry averaged more than 200 Noteworthy-Consequential events per year. Most were tied to equipment degradation, planning flaws, or insufficient oversight. The first seven recommendations addressed these technical and organizational drivers, and over time, those interventions helped reduce the total number of events, but not all events declined.
The 2025 update observes that events linked to risk recognition and workforce proficiency had not improved. Nearly a third of the consequential events still occurring across the nuclear industry were linked to how individuals and teams assess, respond to, or misjudge high-risk operational scenarios, despite being qualified on paper.
This is what led INPO to introduce Recommendation 8: Recognize and Mitigate Proficiency Shortfalls. It formalizes the expectation that proficiency should be managed proactively as a risk variable, not just assumed based on training records alone.
“Direct that managers and supervisors continuously monitor, assess and maintain the proficiency of the workforce, including nuclear professionals at all levels of the organization, vendors, and supplemental workers. Anticipate and manage foundational proficiency shortfalls when individuals transition into new roles in the organization.”
Why Training Completion Isn’t the Same as Proficiency in Nuclear Operations
Many of the events cited in the updated IER occurred even though formal training requirements had been met. Personnel were technically qualified, but still made decisions or errors that contributed to equipment failures, unplanned scrams, or safety actuations.
In these cases, the issue wasn’t a lack of training but a lack of proficiency, or the ability to perform reliably in dynamic, high-pressure environments, which is an important distinction. Training provides exposure to concepts and procedures, but proficiency reflects the ability to apply that knowledge effectively, consistently, and safely in real-world situations, especially when risk is present.
While INPO doesn’t directly define these terms in this way, the report makes it very clear that training alone does not ensure performance under pressure. Two individuals may complete the same training and be qualified, but only one may have the depth of experience to recognize subtle risk indicators, provide effective vendor oversight, or intervene early. In a nuclear plant, these gaps and this risk can have significant consequences.
What INPO’s Recommendation 8 Really Means for Nuclear Energy Organizations
Recommendation 8 instructs organizations to stop assuming that completed training equals proficiency or capability and start actively identifying where proficiency shortfalls exist. It’s not enough to track who is trained or technically qualified. Nuclear organizations need to have visibility and understanding of where proficiency may be lacking across their workforce.
INPO expects nuclear leaders to:
- Monitor proficiency across roles and teams continuously, not just at initial qualification
- Recognize where gaps are likely to emerge as individuals transition into new roles or are completing high-risk tasks
- Actively mitigate those gaps before they contribute to risk
- Extend these practices to vendors and supplemental workers, not just direct employees of the organization
The initial documentation of one’s qualifications is important, but it’s not a one-and-done activity. INPO calls on all nuclear energy organizations to continuously assess and monitor proficiency levels as a dynamic credential across roles, teams, and for members of the extended workforce. If gaps are identified, organizations must outline clear, auditable steps to address them before they become risks.
"Kahuna has greatly improved the way we deliver our On-the-Job Training (OJT) competencies throughout our operations. By replacing our old paper-based tracking system with a digital platform, we now have access to analytical insights that were previously unavailable to us. The integration with our HRIS system means we no longer need to manually identify new employees or those transitioning into new roles to assign the right content—this process is now automated. Ultimately, Kahuna has made it possible for us to expand OJT across the entire organization in a way that is both cost-effective and user-friendly."
Where Nuclear Proficiency Gaps Hide in Plain Sight
One difficulty with proficiency management is that these gaps aren’t always easy to see until something goes wrong. These gaps don’t always show up in a spreadsheet or audit because the training checkbox may have been checked off. Aside from this example, blind spots can occur for many reasons, including:
Assuming Training Equals Capability
A completed training module doesn’t always reflect operational competence. A worker may pass a course or check off a procedure but still struggle to apply that knowledge effectively under real-world, high-stress conditions, especially when risk factors escalate or systems don’t behave as expected.
Assigning Work Based on Availability
In fast-paced environments, work is often assigned based on who’s available, not necessarily who’s best prepared. Without visibility into who has demonstrated proficiency for a task, teams may unknowingly place staff into roles or situations beyond their current skill depth, increasing the likelihood of error.
Relying on Tribal Knowledge
Experienced employees often carry deep knowledge that isn’t always documented or formally assessed. When that knowledge isn’t visible to leaders or transferable to newer team members, organizations risk losing critical expertise or overestimating bench strength.
Overlooking Transition Risk
Proficiency isn’t a check-the-box activity, and even high performers can struggle when moving into a new role, unit, or system without adequate mentoring or support. Transitions, especially if they entail moving into high-consequence or unfamiliar tasks, can be prime areas where shortfalls and risk emerge if not carefully managed.
Lacking Insight Into Vendor Capability
External workers, including contractors and OEM technicians, may arrive with the proper credentials on paper, but it doesn’t always guarantee they’re familiar with the unique protocols, equipment, or risk environment of the site. Without structured oversight and validation, vendor-related events can become more likely.
Why Traditional Tracking Systems Fall Short for Proficiency Management
Most nuclear organizations already have systems in place to track training, qualifications, and certifications. These tools (e.g., spreadsheets, LMS, siloed qualification logs, etc.) all play an important role in demonstrating compliance and supporting audits, but they tend to capture what’s been completed, not necessarily what has been demonstrated. They may show who has taken a course or passed an assessment, but they rarely reveal an individual’s depth of experience, proficiency progression, or the ability to apply skills and knowledge in real, high-pressure situations.
These systems or processes also struggle to reflect how quickly risk evolves in nuclear operations. Operating experiences change, roles shift, contractors vary, equipment degrades, and vendors rotate in and out, yet the underlying data and processes to assign individuals to work often remain the same. Without a way to continuously connect skills, experience, and role requirements to the specific job and risk factors present in any given situation, organizations may continue to assume proficiency where it hasn’t been validated or miss trends that put plant reliability at risk.
Organizations need a system that can capture the complexity of nuclear skills and competency management requirements with role-based proficiency data that evolves with the workforce and risk landscape.
Challenge Under INPO’s Updated IER
Digital Proficiency Management Advantage
Formal training is treated as proof of readiness, despite clear performance shortfalls in real-world conditions
Distinguishes between training and demonstrated capability, ensuring proficiency reflects actual readiness, not just completion
Proficiency shortfalls are hidden in siloed systems, assumptions, or informal practices
Provides role-based visibility into proficiency status across the workforce, including gaps, expirations, and unmet requirements
Transition risk is underestimated as individuals move into new or more complex roles
Flags transitions and recommends reassessments, ensuring workers are upskilled and ready for evolving responsibilities
Vendor and supplemental workforce proficiency is inconsistently tracked or validated
Applies the same skill validation process to third-party workers, enabling pre-task verification and mobile credentialing
Operating experience (OE) reveals skill gaps, but there’s no way to act on that insight
Connects OE findings to roles and initiates reassessment or targeted training to close gaps and reduce repeat risk
Proficiency is only checked reactively after audits or events
Makes proficiency management continuous and proactive, with built-in alerts and workflows to mitigate risk before it escalates
Making Proficiency Management in Nuclear Operations Possible With Kahuna
Kahuna’s skills and competency management platform helps nuclear organizations align with the expectations outlined in IER L2-21-4, Rev. 1, not by replacing existing programs, but by strengthening them. Kahuna provides a more robust, dynamic system for nuclear organizations to monitor, assess, and maintain workforce proficiency and capability across roles, teams, and vendors to support greater operational and plant reliability.
See and Respond to Proficiency Gaps Before They Become Incidents
Kahuna not only flags missing skills, but it also helps you route the next step: a reassessment, targeted OJT, refresher training, or a mentorship with someone qualified to guide. The platform tracks the entire process, so you can track how a shortfall was closed and proficiency was restored.
Strengthen Operational Risk Reviews
Kahuna ties validated skills to operational risk by mapping workforce capability to specific, high-consequence tasks. Leaders can confidently assign preventive maintenance and other critical work only to those with current, demonstrated proficiency. When incidents occur, Kahuna makes it easy to trace issues back to skill deficiencies and initiate targeted upskilling so lessons learned don’t get lost or repeated.
Improve Oversight of Vendors and Supplemental Workers
Kahuna makes it simple to apply the same rigor to third-party workers that’s expected of internal teams. Contractor and supplemental worker qualifications can be validated and tracked just like any other role. Before work begins, leaders can verify that external personnel meet task-specific requirements. In the field, mobile credentialing gives supervisors quick access to skill records, enabling real-time verification and reducing the risk of oversight lapses.
Ensure Training and Assessments Drive Real Capability
To make training meaningful, Kahuna enforces who can assess what, ensuring evaluations are conducted by qualified personnel and aligned with operational complexity. The platform supports multiple assessment types, from formal demonstrations to hands-on evaluations and structured mentor reviews. Leaders can see who’s approved to evaluate each skill, who’s in line to become a mentor, and how well training translates into actual proficiency on the job.
Link Operating Experience to Skills Management
Kahuna turns operating experience into action by connecting OE insights directly to workforce capabilities. If an incident, audit, or design change highlights a knowledge gap, Kahuna can update role expectations, prompt reassessments, and trigger targeted upskilling. This ensures teams stay aligned with evolving plant conditions and that improvements in process are matched with improvements in performance.
Connect Skills, Competencies, and Demonstrated Proficiency with Kahuna
INPO’s updated Industry Event Report highlights that proficiency, not just training or qualification, has a direct impact on plant reliability and safety. When teams can’t see where real proficiency exists or where it’s lacking, risk goes unmanaged, and small misses can escalate to major events.
Kahuna helps nuclear organizations move beyond check-the-box compliance to actively managing and monitoring proficiency and risk. By connecting skills, competencies, and demonstrated proficiency, Kahuna gives leaders data-driven insights to assign the right people to the right work and the tool to close proficiency gaps before they become incidents, ensuring reliability and safety throughout the organization.
