The Canadian Nuclear Safety Commission – highlights of 2020

Ontario wakes up to a false alert

At 7:23 am on Sunday, January 12, 2020, the Province of Ontario erroneously issued an emergency alert for the Pickering Nuclear Generating Station (PNGS). More than 10 million Ontarians received an alert on their mobile devices, or saw in the news or read on social media that a non-radiological alert had been issued for those living within 10 km of the PNGS. Confusion set in as there had been no radiological release to the environment, and residents were instructed to take no action.

While alerting is the responsibility of the province and local municipalities, the CNSC responded quickly that morning, verifying that the alert was in error and then communicating this message via its official channels to the public. Recognizing the need for coordinated support for the surge in communications, the CNSC also activated its Emergency Operations Centre for the first time outside of an exercise since the Fukushima Daiichi accident in 2011.

Lessons learned from an event like this are invaluable. The CNSC undertook its own evaluation and hired a third party to offer further insights. In June 2020, staff presented the findings to the Commission, alongside the Province, with actions complete or planned to enhance emergency preparedness. The organization is more ready than ever.

President Velshi appointed as CSS Chair

On February 25, 2020, the International Atomic Energy Agency (IAEA) announced that CNSC President Rumina Velshi had been appointed as the new Chair of its Commission on Safety Standards (CSS) for a four-year period. The IAEA’s CSS is a standing body responsible for establishing standards relevant to nuclear, radiation, transport and waste safety, and emergency preparedness and response.

Forums like this one provide an important opportunity to consider key safety issues and to discuss how countries can harmonize their work, as well as to share and/or implement bold new approaches. There is an opportunity to bring about change to reflect the new reality that we are in and the tremendous opportunities that lie ahead.

“Nuclear safety is a shared goal for all countries and requires us to work together, particularly when dealing with innovative technologies and associated risks,” stated President Velshi.

“The IAEA greatly values the work of the CSS and I look forward to CNSC President Velshi’s experience and contribution as Chair. Canada’s nuclear regulator is a mature and highly respected regulator whose leadership will make an important contribution to the work of Member States,” said IAEA Director General Rafael Mariano Grossi.

This nomination is testament to the IAEA’s high regard for the CNSC’s leadership and commitment to safety.

Declaration of the global pandemic

On March 11, 2020, the World Health Organization declared COVID-19 a pandemic, pointing to the over 118,000 cases of the coronavirus illness in more than 110 countries and territories around the world and to the sustained risk of further global spread.

On March 15, 2020 the CNSC activated its business continuity plan. All staff were directed to remain home on Monday, March 16 in order to heed guidance from medical officials to help reduce the spread of the virus. Critical staff – including those onsite at power plants – continued to work remotely to ensure effective regulatory oversight. 

As Canada’s nuclear regulator, the CNSC puts the safety of the public, its staff and the environment first. Despite the onset of the COVID-19 pandemic, it remained actively engaged with licensees and continued to monitor the situation at all nuclear facilities to ensure the protection of the public and the environment.

In addition to ensuring the continued safe operation of nuclear power plants, the CNSC’s priority at the start of the pandemic was to provide regulatory activities related to essential services: hospitals, isotope producers, sterilization facilities, and border security.
 
It oversaw the supply of radioisotopes vital to medical treatment and equipment sterilization, and worked to ensure a continued radioisotope supply to medical facilities that required them during the pandemic.

Our new virtual reality

April brought a new normal for the CNSC. Staff continued to work remotely in an effort to protect their health and safety while supporting efforts to flatten the curve in Canada. This meant identifying new and different ways to connect and collaborate with each other as well as with external partners.

On April 3, 2020, the CNSC gathered for its first virtual Town Hall, which enabled staff to connect for the first time since the onset of the pandemic. After weeks of working in relative isolation, CNSC employees from across the country gathered to check in with each other, hear from their leadership and celebrate all they had achieved despite the uncertainty and impacts of the pandemic. The CNSC also established a robust internal communications infrastructure to keep all employees informed of their role during this time, and to offer guidance and updates in support of their physical and mental health.

Despite working remotely, the CNSC continued to be available 24/7 to respond to any emergency, and remained committed to strong and effective regulatory oversight of Canada’s nuclear sector. It maintained effective regulatory oversight during the pandemic through a variety of measures. Inspectors continued to have access to licensed facilities as needed to respond to safety issues, and followed the advice of health officials to practise physical distancing when onsite. The CNSC remained in constant communication with licensees while also being flexible, understanding that licenses would need more time to report on issues that were not safety significant.

All of these efforts and many more ensured that day-to-day work and regulatory oversight were never compromised by the effects of the pandemic.

CNSC celebrates its 20th anniversary

When the Nuclear Safety and Control Act (NSCA) came into force on May 31, 2000, it marked a significant turning point in Canada’s nuclear regulatory history. The CNSC came into existence with new nuclear legislation that had not been significantly updated since its inception in the mid-1940s.

There are moments in the CNSC’s 20-year history that have very clearly influenced the organization and how it operates today. It has responded swiftly to world events, as well events closer to home, which have enabled it to improve regulations for security and safety, improve emergency operations and planning and modernize its regulatory framework. The organization has been equally proactive in identifying and implementing changes to communicate more transparently, and it invites participation in Commission proceedings.

The past 20 years have been as eventful for the CNSC as any period since Canada’s nuclear regulatory regime began in 1946. Celebrating its 20th anniversary in the midst of the COVID‑19 pandemic is yet another milestone in a storied history. The pandemic has required a demonstration of agility in order to continue to regulate effectively in circumstances that prevent working face to face every day. The CNSC has proven to have this agility, and is also thriving because of it.

The CNSC’s approach to regulatory oversight during the pandemic is an excellent example of this. On May 13, CNSC Executive Vice-President and Chief Regulatory Operations Officer Ramzi Jammal authorized the removal of the fourth and final regulatory hold point for the Darlington Nuclear Generating Station in southern Ontario. The removal allowed OPG’s Darlington Unit 2 to return to operation after its refurbishment. This final authorization permitted Darlington Unit 2 to increase power beyond 35% of full power. CNSC staff confirmed that the requirements for the removal of the fourth and final regulatory hold point had been completed safely and successfully, in accordance with the Darlington nuclear power reactor operating licence. While this had to be managed differently in a remote work environment, the oversight and work continued allowing the project to move forward successfully.

The Commission in the time of COVID-19

Before the pandemic, Commission proceedings were always held in person in Ottawa or in affected communities.

The June meeting covered a great deal, with presentations on 5 regulatory documents, the results of the 2019 Integrated Regulatory Review Service (IRRS) mission to Canada, the findings of the 2019 Emergency Preparedness Review (EPREV) mission and Canada’s action plan to strengthen nuclear emergency response plans.

The 5 draft regulatory documents submitted for approval formalize requirements and guidance related to waste and decommissioning activities. The results of the IRRS and EPREV missions concluded that Canada has a strong effective regulatory framework as well as a well-developed and mature preparedness system in place to respond to a nuclear emergency.

The IAEA team of experts viewed the Canadian EPREV mission as a model of excellence for other member states, from its self-assessment to its organization, through to execution. In June 2020, the Canadian Nuclear Society awarded the Canadian team that hosted the EPREV mission with the John S. Hewitt Team Achievement Award, in recognition of its effort and success.

Beryllium resampling in Peterborough

The CNSC held a public hearing from March 2 to 6, 2020 to consider an application from BWXT Nuclear Energy Canada Inc. (BWXT) to renew its Class IB fuel facility operating licence for a period of 10 years. BWXT operates two separate facilities under its current licence – one in Toronto, Ontario, and one in Peterborough, Ontario. During the hearing, the Commission considered the information about beryllium emissions from BWXT’s facility and decided it needed additional data before making a licensing decision.  

In July 2020, the CNSC resampled beryllium levels in Peterborough. The analysis measured the quantity of beryllium in the soil at locations both close to and distant from the BWXT facility to verify the safety of the public and environment. The environmental sampling was conducted using strict COVID-19 precautions to minimize risk to employees and the public.

The soil samples were analyzed at the CNSC lab, and results indicated no significant increasing trend of beryllium soil concentrations in Peterborough.
Results also showed no risk to the environmental or human health at the Prince of Wales Public School, as all concentrations of beryllium in soil were consistent with natural levels present in the environment.

Continued consultation and engagement

Consultation with the public, licensees and interested organizations is an important part of the CNSC’s process to develop many of the regulatory tools within its regulatory framework. The CNSC welcomes public input on discussion papers and draft documents and on proposed new regulations or amendments to regulations. It also has a duty to consult and, where appropriate, to accommodate Indigenous groups. This duty to consult is an important part of the CNSC’s activities, including those for licensing and for making decisions on environmental reviews.

The CNSC has taken a flexible approach to its continued consultation, using a number of tools to virtually engage with Indigenous groups. Since March 2020, the CNSC has held over 100 virtual meetings with Indigenous groups in order to meet and collaborate on a wide range of topics and projects.

In August 2020, the CNSC also launched a new e-consultation platform aimed at making it easier for the public, industry and Indigenous communities to participate in the regulatory process. According to public opinion research we conducted this year, more than 80% of Canadians want to be involved in nuclear-related decisions in their communities. This new Web-based tool takes a modernized approach to consultations, providing everyone with the opportunity to see the feedback being provided throughout the consultation process in near-real time for enhanced transparency.

The first process launched on this platform was consultation on CNSC regulatory documents. The new platform allows for a more user-friendly approach, with digital comment submissions and better transparency through live commenting. To date, 3 regulatory documents have been opened for consultation using this new platform.

The CNSC continuously strives to be a trusted regulator, recognized by the public and Indigenous peoples as independent, open and transparent. Its goal is to build long-term positive relationships with all those with an interest in CNSC-regulated facilities and activities, and to be a leader in consultation, engagement and reconciliation.

Being apart has not stopped the CNSC’s pledge to inclusivity

September marked 6 months of remote work for the CNSC as the global pandemic continued with cases surging in parts of Canada. “Unprecedented” is a word often used to describe 2020, applying not only to the public health crisis but also to the awakening with respect to issues of racism, diversity and inclusion. The events of the year have accelerated conversations on diversity, equity and inclusion, which affect everyone – at work and at home.

The CNSC is proud to be an inclusive workplace and is committed to building a skilled workforce that is reflective of Canadian society. Its diverse employee networks are critical to building a healthy and respectful work environment where different viewpoints spur innovation and benefit the organization as a whole.

The CNSC continued to have important and necessary conversations about racism and other forms of discrimination in 2020. These conversations are vital to ensuring a better understanding of the issues and the part that everyone must play in making a positive change. These conversations are also critical to advancing the CNSC’s commitment to providing an inclusive, respectful and safe workplace, and they benefit everyone individually as well as organizationally.

September offered a number of opportunities to continue these important conversations as well as to foster change. On September 29, 2020, the CNSC joined like-minded regulators for the inaugural meeting of the IGC Impact Group on Gender Equality in Nuclear Regulatory Agencies. This Impact Group brings together a community of nuclear regulators and organizations committed to working on gender issues in their institutions and countries.

Harmonization and collaboration in preparation for new and emerging technologies

The CNSC has a long history of bilateral cooperation with many nuclear and nuclear embarking countries around the world. In recent years, there has been growing interest in new advanced reactor concepts, both in Canada and internationally. The CNSC has taken a leadership role in advocating for international collaboration and harmonization, as it becomes ready to regulate innovative nuclear technologies like small modular reactors.

In October, the CNSC and the UK Office for Nuclear Regulation (ONR) signed two agreements to explore further collaboration and to more effectively regulate an ever-changing nuclear sector. The two agreements are built on years of collaboration in nuclear safety and security and were signed during a virtual ceremony by CNSC President Rumina Velshi and ONR Chief Nuclear Inspector Mark Foy on October 8, 2020.

The memorandum of understanding (MOU) provides a framework for enhanced collaboration, allowing for opportunities to share information and experience between the CNSC and ONR. The memorandum of cooperation, which was established to supplement and strengthen the existing MOU, will provide a framework for sharing information, expertise and best practices to support more efficient technical reviews of small modular reactors and advanced nuclear technologies. It also allows more effective communication between the two regulators.

The CNSC has therefore made it a top priority to adopt a modern approach to nuclear regulation, and it continues to focus on readiness to regulate new and emerging technologies. Collaborative agreements allow the CNSC to leverage the experience and expertise of other regulators when conducting technical reviews of these emerging technologies and novel designs for small modular reactors.

Protecting people and the environment is what we do 

In November, CNSC regulatory oversight continued with the first virtual public Commission hearing, as well as the publication of updates to the Radiation Protection Regulations.

The Commission held a hearing regarding the application from Canadian Nuclear Laboratories (CNL) to amend its waste facility decommissioning licence for the Douglas Point Waste Facility (DPWF). The DPWF is the site of the former 200-MW Douglas Point power reactor and is located on the Bruce Power site in Tiverton, Ontario. It was permanently shut down in 1984 and has been in Phase 2 of decommissioning (storage with surveillance) since 1988. CNL requested a licence amendment to authorize Phase 3 of the decommissioning project, which would include the active decommissioning and demolition of remaining facilities. The hearing was webcast live on November 25 and 26, with Commission members, the licensee, intervenors and CNSC staff participating virtually.

In November, the CNSC also published updates to the Radiation Protection Regulations that enhance protections for nuclear sector workers. The updates take into account the current science on radiation protection, as well as international standards and recommendations from the International Atomic Energy Agency and the International Commission on Radiological Protection. The changes also integrate 20 years of experience since first publishing the regulations, and stakeholder feedback from extensive public consultation, outreach sessions and webinars.

The new regulations include accommodations for workers who are breastfeeding, and a lower annual limit for radiation doses to the lens of the eye.

Preparing for the future of work at the CNSC

The final milestone of 2020 suitably concludes an unconventional year, while also setting the CNSC up for the future.

In December, the organization co-hosted its first virtual conference. This 5-day international, multi-sector workshop focused on how to safely regulate innovative and disruptive technologies. Coincidentally, December also marked nine months of disruption caused by the pandemic and having to adapt to remote work, virtual Commission proceedings and virtual conferences. The CNSC has adjusted to a new normal and is now making it a priority to prepare for the next normal. This year has tested the CNSC, requiring both quick thinking and flexibility in order to innovate and adopt new ways of working. This agility has enabled the organization to successfully carry out its mandate undeterred. It is clear that working remotely has not impacted the CNSC’s role as the regulator.

As the organization looks to 2021, preparations are underway for the next normal. This includes revisiting how day-to-day work is conducted, including the continued modernization of Commission proceedings, leveraging virtual conferences and meetings and moving away from an office-centric environment. Physical workspaces are being reassessed and modified to support the future of work at the CNSC, one that continues to support staff in their work while accommodating the new public health realities that have resulted from the COVID-19 pandemic.