Technically, if the core and fuel remained intact, then yes NERVA would be safe for a small payload if NERVA was a single stage, but it would probably be launched at a remote location.
As I recall, NERVA was planned as a second stage on something like a SATURN V booster.
The NERVA/ROVER programs were an outgrowth of the nuclear rocket propulsion for ICBMs. The original thermonuclear weapons systems were heavy, and the chemical rockets of the time could not deliver them 6-10K miles, so a nuclear rocket was considered the solution. During the development period in the 50's and into the 60's, the weapons designers successfully reduced the size of the thermonuclear warheads such that improved chemical rockets (e.g. Atlas) could deliver them the desired distance.