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The article says he'd previously been turned away at the gate, so they knew what level of threat they were dealing with.
Fair, however:
So this sounds like he was inside the perimeter but potentially not within the boundaries of a higher security interior zone, to me. It may not mean that at all, but if it does it might explain (see my comment above) that they weren't authorized to use force under the circumstances.
Again, I recognize this is just speculation on my part, just explaining my thought process.
The restricted area is basically the entire grounds, excepting one parking lot and the front of what looks like an office building.
https://www.nrc.gov/reading-rm/doc-collections/cfr/part020/full-text.html#part020-1003
If you look at it on Google Street view, you can see a "restricted area" sign on the fence right next to the highway.