Emergency Management Nuclear Power Generation

Transcription

1 STAFF REPORT ACTION REQUIRED EX14.9 Emergency Management Nuclear Power Generation Date: March 31, 2016 To: From: Wards: Reference Number: Executive Committee Deputy City Manager, Cluster B All P:2016\Cluster B\OEM\EX16001 SUMMARY This report provides information about the Government of Ontario's process for reviewing the Provincial Nuclear Emergency Response Plan. It also comments on The status of the Darlington Nuclear Generating Station licence renewal and any issues relating to emergency response discussed during the renewal process Toronto's emergency response protocols for nuclear risks and international best practices for both the Darlington and Pickering Nuclear Generating Stations, and The appropriateness of the current 10 kilometre primary response zone for distribution of potassium iodide pills and whether it should be expanded given the 50 kilometres evacuation zones of other jurisdictions. The report supports using an evidence-based approach when contributing to the Government of Ontario's review of nuclear response plans during public consultations, which are planned for The report was prepared in consultation with the Medical Officer of Health. RECOMMENDATIONS The Deputy City Manager, Cluster B, recommends: 1. Executive Committee receive this report for information. Staff report for action on Emergency Management Nuclear Power Generation 1

2 Financial Impact There are no financial impacts resulting from this report. The Deputy City Manager & Chief Financial Officer has reviewed this report and agrees with the financial impact information. DECISION HISTORY On December 1, 2015, Executive Committee adopted EX10.37 Darlington Nuclear Generating Station Licence Renewal, Toronto's Emergency Response, and International Best Practices. The Committee requested the City Manager, in consultation with the Medical Officer of Health and the Office of Emergency Management to report to the Executive Committee by March 2016 on: 1. The status of the Darlington Nuclear Generating Station licence renewal and any issues relating to emergency response discussed during the renewal process 2. Toronto's emergency response protocols for nuclear risks and international best practices for both the Darlington and Pickering Nuclear Generating Stations, and 3. The appropriateness of the current 10 kilometre primary response zone for distribution of potassium iodide pills and whether it should be expanded given the 50 kilometres evacuation zones of other jurisdictions. ISSUE BACKGROUND Darlington and Pickering Nuclear Generation Stations Ontario Power Generation operates two nuclear generating stations in the Greater Toronto Area: Darlington and Pickering. It receives approval to operate the stations from the Canadian Nuclear Safety Commission. On December 23, 2015, Ontario Power Generation received permission to continue operating Darlington Generating Station until November 30, Ontario Power Generation has also announced it will be seeking to extend the license for Pickering Generation Station to The Pickering license is currently scheduled to expire in 2020 and would require approval from the Ontario Energy Board and the Canadian Nuclear Safety Commission before any extension is granted. Pickering Nuclear Generation Station is approximately 5 kilometres from the eastern borders of the City of Toronto. The portion of the City of Toronto that is east of Morningside Drive is within 10 kilometres and has a population of approximately 63,000. This area encompasses all of Ward 44 Scarborough East and a portion of Ward 42 Scarborough Rouge River. The remaining portions of the City of Toronto fall within 50 kilometres of the Pickering nuclear facility as shown in Attachment 1. Staff report for action on Emergency Management Nuclear Power Generation 2

3 Darlington Nuclear Generation Station is approximately 35 kilometre from the eastern borders of the City of Toronto. As shown in Attachment 2-50 kilometre radius from the Darlington Nuclear Generation Station, a portion of the City of Toronto that is east of Victoria Park Avenue is within 50 kilometres of that facility and has a population of approximately 371,200. Regulation Federal and Provincial Nuclear power generation is regulated by the Federal government. The Canadian Nuclear Safety Commission monitors the safe operation of nuclear power stations for the Federal Government. It enforces compliance with the Nuclear Safety and Control Act and any licences it issues. It issues licenses to Ontario Power Generation to operate nuclear power generating stations and approves emergency response procedures for the generating stations. The Government of Ontario is responsible for regulating emergency response in communities outside nuclear facilities. The Provincial Nuclear Emergency Response Plan is the framework for managing response in Ontario. It is reviewed every four years and is expected to be updated in The City of Toronto is required to have a nuclear plan which is subordinate to the Government of Ontario's plan. The City of Toronto Nuclear Emergency Response Plan is discussed in greater detail later in this report and is provided as Attachment 3 to this report. To coordinate nuclear planning, the Government of Ontario leads a Nuclear Emergency Management Coordinating Committee. City staff participate in these meetings, along with staff representatives from other municipalities that are required to have nuclear emergency plans. Nuclear Planning in Ontario Following the December 1, 2015, City of Toronto Executive Committee meeting, the Ministry of Community Safety and Correctional Services, Office of the Fire Marshal and Emergency Management confirmed that the Canadian Nuclear Safety Commission will model nuclear accident scenarios and provide a suite of accident analyses to the Office of the Fire Marshal and Emergency Management. In preparing the suite of accident analyses for the Office of the Fire Marshal and Emergency Management, the Canadian Nuclear Safety Commission is considering all accident scenarios, including those which could be classified as a major accident by the International Atomic Energy Agency. A major accident classification is the most severe of accident scenarios and would be comparable to a Fukushima Daiichi nuclear accident. Currently the Provincial Nuclear Emergency Response Plan does not contemplate an event on the scale of the nuclear accident at Fukushima. The Office of the Fire Marshal and Emergency Management will use the data and accident analysis developed by the Canadian Nuclear Safety Commission to inform and Staff report for action on Emergency Management Nuclear Power Generation 3

4 to update the Province of Ontario s planning basis and new Provincial Nuclear Emergency Response Plan. The accident modelling will provide the necessary evidence to determine appropriate risk levels, protective measures, response zones, response structure, evacuation zones, contingency provisions, emergency facilities, telecommunications, and response levels for the Provincial Nuclear Emergency Response Plan and the subordinate City of Toronto nuclear plan. Status of Ontario s Provincial Nuclear Emergency Response Plan The Provincial Nuclear Emergency Response Plan is reviewed every four years and is expected to be updated in The Office of the Fire Marshal and Emergency Management has announced that it will conduct public consultations in 2016 on the Province of Ontario s planning basis and new Provincial Nuclear Emergency Response Plan. Although dates have not been scheduled, it is expected that the consultations would take place in Q2 of this year. The City supports an open consultation process, engaging a broad range of stakeholders and consults regularly on policy issues. Staff will encourage an open consultation process at every opportunity. Potassium Iodide Distribution Regulation Radioactive iodine may be released from a nuclear power plant during an onsite emergency or during a nuclear accident. Potassium iodide is effective in reducing the risk of inhalation or ingestion of radioiodine by filling up the thyroid gland with nonradioactive iodine. Potassium iodide does not protect against other types of radiation which are released during a nuclear accident. Potassium iodide pills were distributed in 2015 at the direction of the Canadian Nuclear Safety Commission, which regulates nuclear power generating stations. The Commission required that all homes and businesses within 10 kilometres of a nuclear facility receive a supply of the pills. The part of the City of Toronto that is east of Morningside Drive is within the 10 kilometre zone. Ontario Power Generation is paying for a direct mail-out for all residents and businesses. COMMENTS The Office of Emergency Management was directed to consult with the Medical Officer of Health and report on three aspects of nuclear emergency preparedness: 1. The status of the Darlington Nuclear Generating Station licence renewal and any issues relating to emergency response discussed during the renewal process 2. Toronto's emergency response protocols for nuclear risks and international best practices for both Darlington and Pickering Nuclear Generating Stations, and Staff report for action on Emergency Management Nuclear Power Generation 4

5 3. The appropriateness of the current 10 kilometre primary response zone for distribution of potassium iodide pills and whether it should be expanded given the 50 kilometres evacuation zones of other jurisdictions. 1. Status of License Renewal and Emergency Response Issues License Renewal On December 23, 2015 the Canadian Nuclear Safety Commission announced its decision to renew Darlington's Nuclear Power Reactor Operating Licence from January 1, 2016 until November 30, A copy of the Summary Record of Proceedings and Decision issued by the Canadian Nuclear Safety Commission is provided in Attachment 4. Emergency Response Issues During the Darlington licensing renewal, the Canadian Nuclear Safety Commission heard from Ontario Power Generation and Canadian Nuclear Safety Commission staff. It also received 238 oral and written submissions from the public. There were a number of submissions at the public hearings which focused on the need for a review of emergency response requirements such as planning zones, evacuation zones, and pre-distribution of potassium iodide pills that are based on a major accident scenario like that in Japan in In addition there were a number of submissions which requested the Government of Ontario conduct a public consultation process during any plan review period and that the entire process be transparent. The Government of Ontario has agreed to conduct public consultation in The Office of Emergency Management is encouraged by the commitment to conduct public consultation and major accident modelling as it helps establish an evidence planning basis and response plans. The Office of Emergency Management will work with the City Manager's office to provide formal comments and feedback to the Province of Ontario during the public consultation process. 2. Toronto's Emergency Response Protocols and International Best Practices Toronto's Emergency Response Protocols The City of Toronto is required to maintain a Nuclear Emergency Response Plan, along with other municipalities in proximity to nuclear facilities. The Government of Ontario's Regulation dictate a number of requirements, including the planning basis, emergency response structures and functions, operational responsibilities of municipal and provincial stakeholders, response levels, planning zones, traffic control, Staff report for action on Emergency Management Nuclear Power Generation 5

6 emergency information, public direction, and declaration and termination of an emergency. The City's plan must support the Government of Ontario's plan. The City's current Nuclear Emergency Response Plan conforms to the specifications provided by the Government of Ontario. The Government of Ontario provides data, planning zones, sectors and population information, which the City must use. The City's nuclear emergency response must also: have a plan, structure, organization and procedures to manage an emergency have procedures to o activate a local emergency o follow direction in a provincially declare emergency o notify internal and external contacts o alert the public o provide information to the public o provide precautionary and protective measures to o evacuate residents from the primary zone (including traffic control planning) o receive and care for evacuees, service animals and pets o monitor and decontaminate evacuees o implement thyroid blocking provide a nuclear public education program participate in training and exercises ensure the necessary resources are in place to implement the response The Government of Ontario reviews the City of Toronto nuclear program to assess its conformity with the provincial requirements. The Government of Ontario identified that the City plan was compliant but there were two program issues: alerting the public and evacuation. To satisfy the public alerting requirement, the Toronto Emergency Management Program Committee approved an autodialing system to notify the public which is currently being implemented in cooperation with the Region of Durham. The Government of Ontario identified the need to coordinate evacuation plans between jurisdictions. The Ministry of Transportation has established a Nuclear Emergency Evacuation Sub-Committee to enhance the consistency and coordination of nuclear radiological evacuation planning activities in Ontario. Membership includes representation from municipalities, including the City of Toronto, public transit, including the Toronto Transit Commission, and police. With the Sub-Committee in place, the City will be able to align its evacuation plan with provincial requirements. In all other respects, the City's program conforms to provincial requirements. When the Government of Ontario completes its review of the Provincial Nuclear Emergency Response Plan, the City will update its plan and program to conform. The Office of Staff report for action on Emergency Management Nuclear Power Generation 6

7 Emergency Management anticipates the Government of Ontario to complete its review and issue the new regulations in Q4 of International Best Practices The Office of Emergency Management reviewed nuclear emergency management programs in the following jurisdictions; Belgium, Finland, France, Germany, Slovenia, Sweden, Switzerland, United Kingdom and the United States. These countries were selected because they had multiple nuclear facilities and were in close proximity to highly concentrated populations. In conducting the international review, the Office of Emergency Management concentrated primarily on issues that stakeholders brought forward during the Darlington Nuclear Generation Station renewal process relating to emergency response. In particular, the Office of Emergency Management focused on public consultation, planning zones, evacuation zones, use of protective measures and criteria used to evaluate risk. Public Consultation No jurisdiction states that public consultation is required, however during the course of this review it was apparent that stakeholders were communicated and consulted with at various stages of their countries review process. Use of Planning Zones The planning zones are geographical areas around a nuclear generating facilities. All of the jurisdictions studied use planning zones but there is no common standard. Planning distances and the number of zones vary among jurisdictions. The planning zones appear to be based on local conditions and the geographic dispersal of radiation, which impact the potential for exposure and the level of risk. Other considerations include population density, transportation routes, prevailing winds, and physical geography. The Ontario Provincial Nuclear Response Plan has three planning zones (3 km, 10, and 50 km), which are within the range of international practices. The process to revise zones in Ontario would need to take account evidence-based research which examines the degree of risk, local conditions and geographic dispersal. The provincial hearings will provide the opportunity for input on these matters. Evacuation Zones Most of the jurisdictions have predetermined evacuation zones, but there is no consistency between distances and plans. Evacuation plans for populations typically include several scenarios to reflect variables such as time of day, season, weather conditions and population demographics (general, transient, schools, hospitals, long term care facilities, etc.). The Heads of the European Radiological Protection Competent Staff report for action on Emergency Management Nuclear Power Generation 7

8 Authorities (HERCA), whose mandate is to examine cross-border coordination for all types of possible accident scenarios including the one in Fukushima, recommends an evacuation planning zone for European communities of between 5-20 kilometres. The evacuation planning zone in the Provincial Nuclear Emergency Response Plan is currently set at 10 kilometres. Use of Protective Measures All of the surveyed nuclear preparedness programs contain three complementary protective measures: sheltering, iodine thyroid blocking and evacuation. The City of Toronto Nuclear Emergency Response Plan and the Provincial Nuclear Emergency Response Plan include these measures. The Government of Ontario indicates the use of protective measures will be included in the review of the provincial nuclear emergency response plan. Please note that the pre-distribution of potassium iodine is discussed in the final section of this report. Criteria used to Evaluate Risk All of the plans use exposure to ionizing radiation as the criteria for evaluating risk. There is an internationally recognized measure, millisieverts per year. The HERCA- WENRA document recommends various protective measures (i.e. sheltering, potassium iodine pills, evacuation) when exposure is between millisieverts. The current Provincial Nuclear Emergency Response Plan has a 100 millisieverts level to trigger implementing the ingestion of potassium iodine pills. This has been reduced to 50 milliseverts to align with provincial, federal and international guidance. The 50 millisieverts level is also the same as Belgium, France, Finland, Sweden and the United States. Germany, Switzerland and the United Kingdom use 100 millisieverts as the trigger to implement the ingestion of potassium iodine pills. 3. Potassium Iodide Pill Distribution To explore the appropriateness of the 10 kilometre zone, the Office of Emergency Management reviewed potassium iodide pill distribution policies and programs in other jurisdictions. Table 3 provides an overview of the jurisdictions that were reviewed and it is categorized into three areas; Canada, United States and International. These jurisdictions were selected because they are all required to develop and implement a predistribution strategy for potassium iodide pills. Staff report for action on Emergency Management Nuclear Power Generation 8

9 Table 3: Jurisdictional Review of Potassium Iodide Policies and Programs Canada United States International Toronto, New Brunswick Arizona, California, Connecticut, Delaware, Florida, Illinois, Maryland, Massachusetts, Michigan, Minnesota, New Hampshire, New Jersey, New York, North Carolina, Ohio, Pennsylvania, South Carolina, Tennessee, Vermont, Virginia, West Virginia and Wisconsin Belgium, Finland, France, Germany, Slovenia, Sweden, Switzerland and United Kingdom Toronto The Office of Emergency Management leads the pre-distribution strategy to schools, emergency services facilities, City of Toronto owned or occupied facilities, and the Toronto Zoo. All the above mentioned have appropriate quantities. The Office of Emergency Management followed a three-phased approach to distribute potassium iodide to residents and business. The first phase centred on public outreach, the second phase included a direct mailing of the 90,000 potassium iodide packages and the final phase was the launch of the preparetobesafe.ca website. This website allows residents and businesses within 50 km of the Pickering and Darlington Generating stations to order potassium iodide pills and have it directly sent to their homes or business. At the time of this report, 11,071 orders from Toronto residents and business within the 50 km radius have been placed. These numbers are in addition to the 90,000 packages already distributed during Phase 2. Ontario Power Generation funds the potassium iodide distribution program. New Brunswick In New Brunswick, potassium iodide pills were delivered directly to approximately 3750 residents and businesses who reside within 20 kilometres of the nuclear facility. Outside the 20 kilometre zone potassium iodide pills are stored in 11 facilities and residents and businesses who wish to possess them can go to those locations and acquire them. United States Potassium iodide pills are available to residents and businesses located within 16 kilometres of a nuclear facility. There is no direct mail out of pills to residents in the 16 kilometre zone and there is no consistent approach to the pre-distribution of potassium iodide pills in the United States. Staff report for action on Emergency Management Nuclear Power Generation 9

10 International The pre-distribution distances and strategies varied in the countries examined. The United Kingdom does not pre-distribute potassium iodide pills to the public. Finland only pre-distributes potassium iodide pills to 5 kilometres. Belgium distributes between 5 and 10 kilometres. France directly mails to those within 10 kilometres of 19 nuclear power stations. Slovenia pre-distributes to 10 kilometres and Sweden to 15 kilometres but the Office of Emergency was unable to determine their method of distribution for those two countries. In Germany, iodine tablets are distributed to all households within 10km. Recently Germany recommended extending pre-distribution of potassium iodide pills to 100 kilometres but has yet to implement. A 100 kilometre zone would take into consideration the multiple nuclear facilities, overlapping planning zones and close proximity to facilities in other countries. Switzerland pre-distributes by mail to 50 kilometres. The Office of Emergency Management observed that a 50 km zone takes into consideration multiple nuclear facilities planning zones that overlap inside Switzerland and the close proximately to two nuclear facilities in France. Appropriateness of the 10 kilometre Pre-Distribution Zone The scan of jurisdictions completed for this report highlights the range of practices for potassium iodide distribution in comparison to what the City of Toronto is currently doing. The Office of Emergency Management could not find any evidence that linked the distances between potassium iodide pre-distribution and evacuation planning zones. Therefore, the Office of Emergency Management believes that the current potassium iodide distribution strategy for the nuclear facility does not need to be expanded at this stage. The City of Toronto's pre-distribution model is: One of the only ones that offers direct mail request; Easily assessable via the web: Tied into a call centre (311) if the resident/businesses have questions or do not want to go to the website, and Continues to be one of the few that offers it free of charge to anyone who wishes to possess it up to 50 kilometres from a nuclear facility. The Office of Emergency Management continues to monitor and document the changes to the policies and programs for pre-distribution of potassium iodine pills to better inform our participation in the consultation session to be conducted by the Province of Ontario in A broader review of evidence is required to commit to expanding the potassium iodine pre-distribution zone and evacuation zones. The Province of Ontario is conducting consultations on the provincial nuclear emergency plan, and review of the planning basis Staff report for action on Emergency Management Nuclear Power Generation 10

11 which could result in a change of regulations for the pre-distribution of potassium iodine in the City of Toronto. If regulations change, the Office of Emergency Management would make the necessary adjustments to conform to Provincial direction. Conclusion The City of Toronto welcomes the Government of Ontario's decision to model to a major accident scenario and hold public consultations as part of its process to update its planning basis and plan. From the scan of plans in other jurisdictions, there appears to be no consensus on the planning and evacuation zones or on the pre-distribution of potassium iodide, which are key components of nuclear response plans. At this stage, the Office of Emergency Management concludes that our current potassium iodide pill distribution strategy is appropriate compared to that of other jurisdictions. A thorough review of the available evidence is needed to establish policies that are appropriate for the Ontario context. The Government of Ontario, as custodian of the nuclear emergency plan, is in the best position to carry out this research. When completed, the City will make changes to its plan in conformance with revisions made by the Government of Ontario. CONTACT Loretta Chandler, Director Office of Emergency Management lchandl@toronto.ca SIGNATURE John Livey, Deputy City Manager ATTACHMENTS Kilometre Radius for Pickering Generating Station Kilometre Radius for Darlington Generating Station 3. Toronto Nuclear Emergency Response Plan 4. Summary Record of Proceedings and Decision Regarding Application to Renew the Power Reactor Operating Licence for the Darlington Nuclear Generating Station. Staff report for action on Emergency Management Nuclear Power Generation 11