Licensing Nuclear Power Plants

in CanadaEnsuring Safe and

Environmentally Acceptable Operations

Nuclear Power the ultimate Energy Source

It’s been around a long time

Nuclear power closer to homeNeeds to be licensed

The LLicensing Process

• Licensing a Nuclear Power Plant is a two step Process– Step 1 – The Environmental Assessment

Process• This step evaluates the proposed project : whether

or not the project can be built, operated and decommissioned in an environmentally safe andpublically acceptably manner

– Step 2 – The Proponent licensing Process • This step evaluates the capability of the licensee to

build, operate and decommission the “project” in an environmentally safe and publically acceptably manner

Bruce Nuclear Power Station

The Environmental Assessment Process

• This step is designed to assess and evaluate the environmental and social aspects of the proposed project

• Nuclear Power Plants are “designated projects” under CEAA and must undergo a comprehensive Environmental Assessment involving extensive studies, environmental and safety analyses and public input and hearings.

• The CEAA requires a specific process be followed

The CEAA Process

• A very public and transparent assessment process following a number of stepsStep 1 - Project Registration and Evaluation

1) The “proponent” registers the “Proposed Project”with CEAA. Posted on the internet.

2) CEAA advises all government agencies that may have a licensing/ permitting or funding role and they determine whether they will be responsible parties and participate in the EA process

The CEAA Process

Step 2 - Project Scoping• A new Nuclear Power Reactor would likely move

directly into a “panel” review EA process. • The Minister of Environment would appoint the Panel

and set its terms of reference for the EA• The Panel and the responsible agencies (CNSC and

others) will visit the site, hold community meetings to evaluate local concerns.

• Based on this a Scoping Document prepared outlining areas to be assessed in the Environmental Assessment

The Panel

Public Hearing Process

The Environmental Assessment Natural Environment

• Surficial and bedrock geology• Seismic characteristics • Groundwater chemistry and flow systems• Surface water systems and biology• Terrestrial systems and biology • Atmospheric meteorology and climate• Expected rates of change over life of

project

The “Natural Environment”

The Environmental AssessmentSocioeconomic Baseline

• Local population centers and size• Employment statistics and levels of training,

skills and income levels• Baseline health and general welfare of local

populations• Unique cultural features of the area• Aboriginal land claims and traditional

knowledge• Archaeological sites and potential for additional

ones • Local concerns about the proposed project

The Environmental AssessmentProject Description

• Physical location of the project and associated infrastructure (roads , power lines, water , sewage etc.) ‏

• Pre-feasibility engineering level description of all of the proposed project and infrastructure elements

• Description of all routine releases and under accident or upset conditions

• Required workforce for all project phases (construction, operation, and decommissioning)

• Conceptual decommissioning plan

The Environmental Assessment Analysis Justification

• Based upon the nature of the social and natural environment the project is to fit into a justification of the specific issues (scenarios) to be analysed must be made based on:– An initial screening of all interactions to

evaluate those of potential “material concern”(that could potentially cause adverse effects) ‏

– Issues of expressed “public concern”

The Environmental Assessment Quantitative Analysis Process

• Overlay and Quantitative Analysis of the Interaction of the Project with the Environment – Effects of the physical footprint – Effects of releases (radiological, chemical ,physical) ‏

• routine and accidental – Effects of changing employment and income– Effect on ecosystem and public and worker health and

well being– Effects of Environmental variables ( climate change,

earthquakes, floods etc) on the Project– Cumulative effects of the project with other

developments

EA Analytical Assessment ProcessProject Context and Scope

Project DescriptionSocial and Physical

Determine and justifyfactors for Assessment

Formulate and runAnalytical models

Interpret ResultsSignificantEnvironmentalEffects Likely ?

Significant Residual Environmental EffectsFollowing mitigation

Panel and MinisterialReview process

Acceptance Rejection

no Mitigate Effectsyes

Assessing the Significance of IMPACTS

Environmental AssessmentPotential Mitigation

• This is an iterative process • If an assessment result is deemed

unacceptable against a range of criteria the project is:– Modified in an attempt to reduce effects to an

acceptable level– Models re-run and data reassessed– New assessment results compared to criteria – Residual effects assessed for acceptability

• Endpoint is when residual Environmental effects deemed acceptable or not

Assessment of Results–Assessment of significance of environmental

effects– Effluents meet all regulated discharge criteria and no

adverse effects predicted– Probability of accidents is acceptably low and risks

acceptable– All worker and public health criteria are met and ALARA – Facility can be successfully decommissioned with

today’s technology – Social effects on local communities deemed acceptable– Effect on the natural environment acceptable– Cumulative effects acceptable – Effects of the Environment on the project acceptable

Environmental Assessment Public Review

• After all issues in the scope addressed and mitigation applied the project, including residual impacts it may cause, go to public review– Environmental Assessment copied, summary translated

and distributed for public review – Series of public hearings on the EA held– Report recommending

• acceptance as submitted• Acceptance with conditions• Rejection

– Submitted to Federal minister of Environment who makes decision on the project.

• Following completion of EA License application can begin

Environmental AssessmentSummary

• The Environmental Assessment provides– An overview of the project at a prefeasibility

conceptual level– Engineering details not required but demonstration

of availability of engineering, social and environmental mitigation to achieve performance required

– The EA circumscribes the “environmental envelope” in which it is deemed that the project can be socially and technically safely constructed, operated and decommissioned

Issuing the Licenses

The License Submission Process

• Canadian Nuclear Safety Commission is the agency responsible for licensing of nuclear facilities in Canada.

• Require a number of licenses to be issued over the life of the project– A site preparation license– A construction license – An operating license (reissued every 3-5 years) ‏– A decommissioning license – A waste nuclear substance possession license (reissued)– A site abandonment license

• As long as there are radioactive materials on the site above a threshold level the site must remain under CNSC license

Site Preparation License

• Before any site development work can begin a license must be issued. The first license application must demonstrate :– Using detailed engineering documentation that the

project can be developed, constructed, operated and decommissioned within the environmental effects envelope approved during the EA process.

– The proponent has the management, safety and security systems and financial ability to ensure that the project can be carried out from start to finish in a safe manner.

Site Preparation License

Licensing DocumentationFollows a Tiered Structure

Facility licensing manual

Safety Packages Engineering Packages

SafetyElements

ManagementElements

Detailed Engineering Packages Describing workto be undertaken

Licensing DocumentationSafety ElementsSafety Assessment

Health and Environment

Preliminary Decommissioning

Plan

Management Systems

Radiation safety

Environmental Safety

Conventional safety Action Levels

TQMHumanFactors Engineering

Emergency Management

PublicInformation

Security and Safeguards

Licensing Application

• The licensing application must include for each of these major areas:– Policies that govern the management and

application of the programs– Management and operating procedures in

these areas– Qualifications of staff working in all areas and

their reporting responsibilities– Ongoing training programs for all positions– Reference to all of the detailed procedures – Provision for updates and change

Licensing Application• Once application documentation prepared it is

submitted to the CNSC for review• Commission Member Document (CMD) is

prepared by CNSC staff making a series of recommendations on issuing the license to the Commission

• A “two day” public hearing is then scheduled for license – This lasts over a period of 6 months to allow time for

adequate public review and comment• Commission then issues a decision on whether

the license should be granted or not and if granted any conditions that should be attached to the license

The License

• Licenses that are granted usually contain conditions that:– Provide for “checkpoints” during the licensed

activities – CNSC staff must inspect progress, – evaluate the performance of the licensee– and allow the project to proceed or stop work until

performance meets standards of the license– Require the licensee to carry out and report on

EA “follow-up” programs and adapt the project as necessary

Subsequent LicensesConstruction

• A separate license must be issued for construction

• The public process is the same with the licensee updating the safety assessment and documentation as required

• If issued the construction license would also likely have conditions

• Following construction, a state of the environment report based on EA follow up programs would be required comparing predicted effects with measured effects for the construction phase

• Annual reports on health and safety are required thereafter

Construction License

Subsequent LicensesOperation

• The operational license would be renewed every 3-5 years

• During renewal environmental health and safety is reviewed

• State of the Environment reports must be submitted

• If there are changes the safety assessment must be updated

• Updates to the safety procedures, management programs and engineering must be approved by CNSC

Operational License

Decommissioning License

• A decommissioning Environmental assessment must be completed before a decommissioning license can be issued

• This is a public process• Following acceptance of the decommissioning

EA a decommissioning license can be applied for

• A similar licensing procedure must be followed

Decommissioning License

Waste Nuclear Substance Possession License

• Decommissioning may require highly radioactive components to remain on site for several decades to allow for decay

• This material must be licensed to ensure it poses no unacceptable risk and is safe and secure until removed to a permanent management facility.

• This license will also be renewed every 5-10 years pending satisfactory performance.

Abandonment License• At some time in the future when activity had

decayed such that reactor components can be safely moved to a permanent site the site may be totally cleaned

• If this is done and residual radiation levels are reduced to a point where they pose no significant residual risk an abandonment license may be applied for

• Upon issuance of an abandonment license the site may be released for alternate uses

Abandonment License