HomeMy WebLinkAboutPD 10-10
Report to
Executive Committee
PICKERING Report Number: PD 10-10
100 Date: April 12, 2010
From: Neil Carroll
Director Planning & Development
Thomas E. Melymuk
Director, Office of Sustainability
Subject: Pickering Nuclear Generating Station A Power Reactor Operating Licence
Renewal
- City of Pickering Comments for CNSC May 21, 2010 Day Two Hearing
- File: 0-5260-001
Recommendation:
1. That Report PD 10-10 of the Directors, Planning & Development and Office of
Sustainability, concerning Pickering Nuclear Generating Station A Power Reactor
Operating Licence Renewal be received;
2. That Council inform the Canadian Nuclear Safety Commission that it supports the
recommendation to renew the five year power reactor operating licence for
Pickering Nuclear Generation Station A, provided that Ontario Power Generation:
(a) continues its regular effort at keeping the City informed of business at its
Pickering sites through the Pickering Nuclear Generating Station
Community Advisory Council and presentations to City Council; and
(b) initiate formal discussions with the City at the appropriate time during the
next licensing period regarding the impact on the City of the safe shutdown
and decommissioning of the Pickering Nuclear Generation Station; and
3. Further, that Report PD 10-10, and Council's resolution be forwarded to the
Canadian Nuclear Safety Commission, Ontario "Power Generation, and the
Canadian Association of Nuclear Host Communities.
Executive Summary: The power reactor operating licence for Pickering Nuclear
Generating Station A (PNGS-A) expires on June 30, 2010. The City of Pickering has an
opportunity to provide comments to Canadian Nuclear Safety Commission (CNSC) on
the licence renewal application. CNSC staff has conducted an extensive review of
PNGS-A as part of the licence renewal process and have provided favourable ratings
for the facility. CNSC staff are recommending a five year licence for PNGS-A.
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 2 10 1
City staff has reviewed CNSC staff findings and support the recommendation to renew
the licence for five years, providing Ontario Power Generation staff continue to update
the City regularly on its activities, and commence formal discussions with the City
regarding the impact of the shutdown of the plant during the next licensing period.
Financial Implications: Not applicable.
Sustainability Implications: Not applicable.
1.0 Background
The four reactors at the Pickering Nuclear Generation Station A (PNGS-A) went
into service in 1971. In 1997, PNGS-A was placed in shutdown state as part of
what was then Ontario Hydro's nuclear improvement program. In 2003, Unit 4
was returned to operation, and in November 2005, Unit 1 was returned to
operation. Units 2 and 3 remain in a safe shutdown state.
The current PNGS-A operating licence, which the City concurred with, was
issued by the Canadian Nuclear Safety Commission (CNSC) for a five year term
that expires on June 30, 2010. On September 28, 2009, Ontario Power
Generation (OPG) applied for an operating licence renewal for PNGS-A for
another five year period. Supporting materials submitted to CNSC outline OPG's
case for the continued operation of the plant as well as business and safety plans
for the next five years.
2.0 Day One Hearing
In support of their licence renewal request OPG appeared before the CNSC
Tribunal on February 17, 2010, for the Day One Hearing in Ottawa to present its
report on the operations of the PNGS-A during the current licence period. CNSC
staff also appeared before the CNSC Tribunal at the Day One Hearing to present
the findings of their review of the OPG submission. CNSC staff's review
supported OPG's.licence renewal request and recommended a five year licence
for PNGS-A.
A Day Two Hearing is scheduled for May 21, 2010, and will be held at the
Pickering Recreation Complex. Interveners' comments will be heard at this
second hearing. Comments must be filed with CNSC by April 21, 2010.
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 3
102
3.0 The Canadian Nuclear Safety Commission (CNSC)
CNSC was established in 2000 under the Nuclear Safety and Control Act (NSCA)
and reports to Parliament through the Minister of Natural Resources. The
agency was created as a successor to the former Atomic Energy Control Board.
Through the NSCA, regulations, associated regulatory documents, licences and
licence conditions, CNSC regulates the entire Canadian nuclear cycle and all
aspects of nuclear safety. For licensing matters, the CNSC Tribunal considers
applicant proposals, recommendations of CNSC staff, and stakeholder views
before making its decisions. To promote openness and transparency, licensing
matters for major facilities are considered by the Tribunal through public
hearings.
The CNSC Tribunal has up to seven permanent members appointed by the
Governor in Council and other members may be appointed to serve full or part
time. Tribunal members are independent of all political, governmental, special
interest group or industry influences. The CNSC Tribunal sets regulatory policy
direction for the Canadian nuclear sector, makes legally binding regulations, and
renders licensing decisions for nuclear facilities and uses.
4.0 CNSC Staff Review of Licence Renewal Application
CNSC staff's review of the PNGS-A licence renewal application was conducted
under a recent licence reform. Under the reformed licence format, licence
renewals are evaluated under three primary functional areas: management;
facility and equipment; and core control processes. The reformed licence format
has 14 safety and control areas as well as 20 review topics that cover all of the
licensed activity on site. Each performance area is separately reviewed and
assessed by examining program, implementation and trend factors.
The three functional areas, and their respective safety and control assessment
areas used by CNSC staff are as follows:.
1. Management
1.1 Management System
1.2 Human Performance Management
1.3 Operating Performance
2. Facility and Equipment
2.1 Safety Analysis
2.2 Physical Design
2.3 Fitness for Service
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 4
103
3. Core Control Processes
-3.1' Radiation Protection
3.2 Conventional Health & Safety
3.3 Environmental Protection
3.4 Emergency Management and Response
3.5 Waste Management
3.6 Security
3.7 Safeguards
3.8 Packaging and Transport
Attachment #1 to this Report summarizes the overall performance ratings and
trends for PNGS-A. The ratings and trends are based on the licensee
performance during the current licensing period, which covers the years 2005 to
2009.
4.1 CNSC Staff Findings
CNSC staff's review of the application concluded that the application contained
all of the information prescribed by the regulations. In the oral presentation to the
CNSC Tribunal at the Day One hearing, CNSC staff indicated that the overall
performance at PNGS-A has noticeably improved over the past two years. OPG
met or exceeded the regulatory requirements in all safety and control areas for
both program documentation and implementation and are rated satisfactory.
Areas showing below expectations ratings indicated an improving trend as OPG
is making progress in resolving the issues.
Security information provided in the licence renewal application is protected, and
is not available to the public. It is reviewed and considered separately by CNSC.
In 2007, CNSC directed its staff to initiate an independent assessment of
organization and management at PNGS-A. This assessment was completed in
May 2009. PNGS-A has submitted a corrective action plan to CNSC to correct
identified issues and the plan is currently under review. CNSC has identified the
issues of minimum shift complement, inter-station transfer bus electrical system,
and fish mortality that OPG has committed to address.
4.1.1 Minimum Shift Complement
Minimum shift complement is the number and qualification of workers needed to
successfully respond to all credible events. Currently, the minimum shift
complement is based on an accident of a single unit. CNSC staff has requested
that an assessment of common events is needed to verify the minimum shift
complement. OPG will revise their station's shift complement document and
request a licence amendment to reflect the results of the analysis.
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 5
104
4.1.2 Inter-station Transfer Bus Electrical System
The inter-station transfer bus electrical system provides power from Pickering B
to essential equipment in the event of a main steam line break. In 2007, it was
found that the system did not have the load carrying capacity required and Units
1 and 4 were shut down for several months. Temporary modifications resolved
the under capacity issue later in 2007 and the units were restarted. A permanent
modification has been reviewed and accepted by CNSC staff and it will be
installed during the vacuum building outage scheduled for spring 2010, prior to
the restart of any of the units after that outage. The vacuum building outage,
which occurs once every 10 years, will shut down all six Pickering Nuclear units
in spring 2010.
4.1.3 Cooling Water Intake
During the Pickering B Refurbishment Feasibility Study Environmental
Assessment, CNSC staff concluded that the fish mortality at the cooling water
intake was not acceptable. This issue was also identified by the Department of
Fisheries and Oceans. CNSC requested OPG to implement interim and
permanent mitigation measures by 2012. A barrier net surrounding the water
intake was installed in October 2009 as an interim measure and a monitoring
program has been implemented. Monitoring results will be submitted in
July 2011. Final mitigation measures will be proposed once the effectiveness of
the barrier is determined.
4.1.4 CNSC Conclusions and Recommendations
Following the review of OPG's submission, CNSC staff concluded that:
• the overall performance of PNGS-A during the current licensing period is
rated as satisfactory;
• OPG's application for PNGS-A's licence renewal meets all requirements of
the Nuclear Safety and Control Act and its related regulations, and
• an environmental assessment under the Canadian Environmental
Assessment Act is not required for this licence renewal.
CNSC staff has recommended that CNSC renew PNGS-A's operating licence for
a period of five years, until June 30, 2015.
5.0 Discussion
5.1 Public Alerting System
At previous CNSC hearings, questions have been asked on the status of the
public alerting system for the three kilometre zone around the nuclear station.
Since the last hearing, some progress has been made with respect to this issue,
but the matter is not yet fully resolved. As Council is aware, following testing of
the existing four installed sirens, the Region has advised the City that six
additional sirens are necessary to meet the requirements of the Provincial
Nuclear Emergency Plan.
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 6
105
In January of this year, Council Resolution #03/10 directed staff to have further
discussions with the Region to obtain additional information on the number-of
additional sirens and siren locations and report back to Council. To this end, staff
have initiated discussions with the Region, and have engaged a peer review
consultant (Aercoustics Engineering Limited) to review the Region's work. The
peer review work is ongoing, and Council will be advised of the results of that
review through a separate report, once the peer review work is completed.
5.2 Announced Shutdown and Decommissioning of PNGS
On February 16, 2010, OPG announced that it will proceed with amid-life
refurbishment of the Darlington Nuclear Generating Station. Construction is to
start in 2016 and the investment of $300 million is to ensure the continued safe
and reliable performance of the PNGS for approximately 10 years.
Subsequently, the longer term decommissioning process of PNGS will begin.
Also on February 16, 2010, Pat McNeil, Senior Vice President, Generation
Development, OPG, appeared before Council. In response to questions about
the impacts on the City of the safe shut down and decommissioning, Mr. McNeil
stated that OPG is committed to transparency in communications and consulting
with the City and the broader community on potential impacts of the decision to
continue operating PNGS for another 10 years before starting a safe storage
project followed eventually by decommissioning.
5.3 Conclusion
City staff has reviewed the CNSC staff findings and support the recommendation
to renew the five year power reactor operating licence for PNGS-A, provided that
OPG continues its regular effort at keeping the City informed of business at its
Pickering sites through the Pickering Nuclear Generating Station Community
Advisory Council and presentations to City Council, and that it initiate formal
discussions with the City regarding the impact on the City of the safe shutdown
and decommissioning of the PNGS during the next licensing period.
On May 21, 2010, OPG and CNSC staff along with public interveners will appear
before the Commission at the Day Two Hearing for the licence renewal. It is
recommended that Report PD 10-10 and the related Council resolution be
provided as input to the Commission in advance of that meeting. The City also
has the option of attending the Day Two Hearing in Pickering to supplement this
written submission with a verbal presentation to the Commission.
Attachment:
1. Overall Station Performance - Safety and Control Areas for PNGS-A, excerpt
from CNSC staff February 17, 2010 presentation to the Public Hearing Day One.
Report PD 10-10 April 12, 2010
Subject: Pickering Nuclear Generating Station A Licence Renewal Page 7
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Prepared By: Approved/Endorsed By:
Deborah W lie, M ~olicy, P, RPP Neil C I P, R P P
Senior Planner - Director, Planning & Development
Catherine Rose, MCIP, P Thomas E. M lymu CAP, RP
Manager, Policy Director, Office of ustainability
DW:jf
Copy: Chief Administrative Officer
Recommended for the consideration
of Pickering City C " ncil
T mks J. ti nn, D R MM III
hief Admir ve Officer
107
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