Nuclear Regulatory Framework: India

Transcription

1 Nuclear Regulatory Framework: India R. Bhattacharya Secretary, Atomic Energy Regulatory Board (AERB) & Director, Information &Technical Services Division, AERB & Director, Industrial Plants Safety Division, AERB Mumbai, India

2 Outline Indian Nuclear Power Programme History of Nuclear Regulation in India Legal Framework Organisational Framework Regulated Installations/Activities Functions Attributes About NSRA Summary 2

3 Three Stage Indian Nuclear Power Programme

4 Agencies Involved Atomic Energy Commission (AEC): Apex body which is responsible for implementation of Government s Policy in all matters concerning Atomic Energy, among its other mandates Department of Atomic Energy (DAE): Mandated to promote the nuclear energy and applications of radiation. Nuclear Power Corporation of India Limited (NPCIL): PHWRs, BWRs and PWRs Bharatiya Nabhikiya Vidyut Nigam (BHAVINI): FBRs 4

5 Evolution of Nuclear Safety Regulation..1/2 Mid fifties: Self regulation (APSARA : 1956) Radioactive material and sources of radiation should be handled in Atomic Energy Establishment, in a manner, which not only ensures that no harm can come to workers in the Establishment or anyone else, but also in an exemplary manner so as to set a standard which other organization in the country may be asked to emulate. - H.J. Bhabha; Directive issued 27 Feb,

6 Evolution of Nuclear Safety Regulation..2/2 Sixties: Safety monitoring and surveillance by designated groups in Bhabha Atomic Research Centre (Health Physics Division; Directorate of Radiation Protection) 1972: DAE Safety Review Committee RAPS-1 Commissioning All DAE Units 1983: Atomic Energy Regulatory Board 6

7 Atomic Energy Regulatory Board Established by Government of India by exercising the powers conferred by Section 27 of the Atomic Energy Act 1962 through a gazette notification. Steps initiated to enhance it legal status through enactment of law. 7

8 Scope To carry out regulatory and safety functions under the Atomic Energy Act. radiation safety in nuclear and radiation facilities industrial safety in DAE units The present scope of AERB s functioning and the organizational structure has evolved over the years since its inception. Presently, an ISO: 9001:2008 certified organisation 8

9 AERB MISSION The mission of AERB is to ensure that the use of ionizing radiation and nuclear energy in India does not cause unacceptable impact on the health of workers, members of the public, and the environment. 9

10 Legal Framework

11 Rules under Atomic Energy Act, 1962 Atomic Energy (Radiation Protection) Rules, 2004 Atomic Energy (Working of Mines, Minerals and Handling of Prescribed Substance) Rules, 1984 Atomic Energy (Safe Disposal of Radioactive Wastes) Rules, 1987 Atomic Energy (Factories) Rules, 1996 Atomic Energy (Control of Irradiation of Food) Rules, 1996 Chairman AERB designated as Competent Authority to enforce these rules 11

12 Other Statutes that empower AERB Environmental Protection Act, 1986 Air (Prevention and Control of Pollution) Act, 1981 Hazardous Wastes (Management and Handling) Rules, 1989 Manufacture, Storage and Import of Hazardous Chemical Rules (1989) 12

13 Organisational Framework

14 14

15 Composition of AERB The Board Chairman, AERB Chairman, SARCOP (ex-officio Member) 4 outside Experts as Members Secretary The Secretariat Seven Technical Divisions One Safety Research Institute Two regional centres Staff Strength - >250 (Scientific & Technical) Technical Support Bhabha Atomic Research Centre (BARC), Indira Gandhi Centre for Atomic Research (IGCAR), Academic Institutions 15

16 AERB s Board Organizational Structure AERB s Secretariat Atomic Energy Commission Board of AERB Chairman, AERB Vice Chairman, AERB (Chairman, SARCOP) Advisory Committees SARCOP SARCAR Chairman, AERB Chairman, SARCOP (ex-officio member) 4 members from outside DAE Secretary Technical Divisions Operating Plants Safety Division (OPSD) Nuclear Projects Safety Division (NPSD) Industrial Plants Safety Division (IPSD) Nuclear Safety Analysis Division (NSAD) Siting and Structural Engineering Division (S&SED) Radiological Safety Division (RSD) Information & Technical Services Division (ITSD) Safety Research Institute, Kalpakkam 9 16

17 Regulated Installations/Activities

18 Facilities Regulated by AERB NPP vs Radiation facilities NPPs Average radioactivity inventory of several billions of curies. Irradiators several hundred kci Gamma chamber many kci Industrial radiography Few hundred Ci X-rays Atomic Energy Regulatory Board, INDIA

19 Nuclear & Radiation Installations under AERB s Purview Atomic Minerals Directorate for Exploration and Research (AMD) Uranium Corporation of India Limited (UCIL) Nuclear Fuel Complex (NFC) Indian Rare Earths Limited (IREL) Heavy Water Plants (HWP) Nuclear Medicine Centres (Diagnostic and Therapy) ~170 Industrial Radiography Installations ~ 600 Radio Therapy Installations ~ 300 Institutions using Nucleonic Gauges ~1700 Diagnostic X-Ray Machines ~ 50,000 Gamma Radiation Processing Facilities ~ 15 Indira Gandhi Centre for Atomic Research (IGCAR) Raja Ramanna Centre for Advanced Technology (RRCAT) Variable Energy Cyclotron Centre (VECC) Fuel Cycle Facilities Radiation Facilities R & D Institutes 19

20 N u c l e a r P o w e r P l a n t s Operating NPPs: 20 ( 2 BWRs, 18 PHWRs) Research Reactors: 2 ( FBTR & KAMINI) NP Projects : 7 ( 2 VVERs, 4 PHWRs, 1 PFBR) 20

21 NPPs in operation in India NPPS Capacity Total Output BWRs 2 x 160 TAPS-1&2 320 MWe PHWRs 1 x 100 RAPS MWe 1 x 200 RAPS MWe 14 x 220 (MAPS-1&2, NAPS-1&2, KAPS 1&2, Kaiga- 1,2,3&4, RAPS 3,4,5&6) 3080 Mwe 2 x 540 TAPS-3&4 1080Mwe Total 20 Units 4780 MWe 21

22 NPPs under Construction/Commissioning Kundankulam 1 & 2 (1000 MW, VVER) Unit 1 under commissioning Unit 2 nearing completion Prototype Fast Breeder Reactor (500 MW, PFBR) in advanced state of construction at Kalpakkam Kakrapar 3 & 4 & Rajasthan 7 & 8 (700 MW, PHWR) Construction started 22

23 NPPs Under Planning Government accorded in principle approval for setting up 20 new NPPs (10 PHWR-700 MW and 10 LWRs of 1000 MW or above) Siting evaluation in progress Kudankulam (Tamil Nadu) : 4 x 1000 MW, VVER Jaitapur (Maharashtra) : 6 x 1650 MW, EPR New sites identified for PHWRs 700 MW Kumharia, Haryana :4 Units Bargi, Madhya Pradesh :2 Units -LWRs 1000 MW & above Chhayamithi Virdi, Gujrat West coast Kovvada, Andhra Pradesh East coast Haripur, West Bengal East coast 23

24 Kudankulam Atomic Power Project (Units -1,2) VVER, 2X1000 MW Unit-1 is undergoing Commissioning. Construction of Unit -2 is nearly complete. 24

25 Prototype Fast Breeder Reactor (500 MW, PFBR) Kalpakkam Erection of Safety Vessel Primary pipe with Grid Plate Roof Slab: Fabrication Erection of Main Vessel Secondary Sodium Pump Steam Generator Primary Sodium Pump Prototype Fast Breeder Reactor (500 MW) is in advanced stage of construction 25

26 Kakrapar Atomic Power Project (Units -3,4) PHWR, 2X700 MW Clearance for first pour of concrete issued by AERB in November 2010 and construction is in progress. 26

27 Rajasthan Atomic Power Project (Units -7,8) PHWR, 2X700 MW Clearance for first pour of concrete issued in July 2011, construction in progress. 27

28 Functions of AERB

29 A. Regulating Safety AERB regulates the safety of nuclear /radiation facilities in India by : specifying the requirements to be met through a system of codes and guides (~140 documents) granting consent or license for setting up the facility or running it, after ensuring that it complies with the requirements set out in codes and guides. While the prime responsibility for ensuring safety of a NPP is that of licensee, AERB ensures that the licensee is performing its responsibilities adequately. 29

30 1. Development of Safety Documents...1/4 Approval by Chairman AERB Apex Committee Approval by Chairman AERB Apex Committee Technical & Copy Editing SDDP Working Group 30

31 Types of Documents...2/4 Safety Codes Safety Standards (provide requirements of Regulatory Body) Safety Guides Safety Manuals (provide methodology of fulfilling the requirements given in the Codes/Standards) February 29, 2012 AERB-ASN Meeting 31

32 Safety Documents Issued...3/4 Category of documents No. of safety documents issued Governmental Organization 11 NPPs - Siting 12 NPPs - Operation 21 NPPs - Quality Assurance 10 NPPs - Design 21 Radiation Protection 01 Emergency preparedness 05 Civil & Structural Engineering 12 Radioactive Waste Management 11 Fuel cycle Facilities 05 Radiation Facilities 25 Industrial and Fire Safety 06 Safety Glossary 01 Grand Total

33 Safety Codes related to NPPs...4/4 Safety Code on Regulation of Nuclear and Radiation Facilities, SC/G: 2000 Safety Code on Design of PHWR based NPPs, SC/D Rev.1: 2009 Safety Code on Nuclear Power Plant Operation, SC/O Rev.1: 2008 Safety Code on Quality Assurance in NPPs, SC/QA Rev.1, 2009 Safety Code on Siting, SC/S, Revision in progress 33

34 2. Issue of Consents Licence High hazard facilities/activities Authorisation Registration Graded Approach Approval Low hazard facilities/activities Exemption- from regulatory control 34

35 3. Safety Review...1/3 Governing Document Regulation of Nuclear and Radiation Facilities (AERB-SC-G) Major Consenting Stages Siting Construction (typically up-to three stages) Commissioning (several stages culminating in full power operation) Regular operation Decommissioning 35

36 Consent for Siting AERB Siting requirements Effect of site on plant Effect of plant on site Exclusion zone, Low population & emergency planning area MoEF Requirements Consent from State PCB Air and Water EIA/EMP study Public hearing Seismic considerations Site to be clear of all rejection criteria AERB issues siting consent subject to the clearance from MOEF 36

37 Consent for Construction Consent for construction issued either in single stage or in 3 sub-stages (Option for Utility) Site Excavation First Pour of Concrete Erection of Major Equipment Review Elements PSAR QA Programme Design Basis Reports & supporting documents Operating Experience Feedback from similar plants Nuclear Security Aspects Industrial & Fire Safety 37

38 Licence for Operation Results of Construction and Commissioning Final Safety Analysis Report (FSAR) reflecting as built design Performance of Plant systems during sustained operation at rated power Status and Measures to resolve any outstanding issues Licence for Regular Operation issued for a maximum period of five years. 38

39 Regulation of Operating NPPs 1/5 Safety Monitoring and Review Operational feedback Technical specification Staffing & qualification Design configuration control BSD Ageing management Equipment qualification Radiation Safety Industrial Safety Waste management Emergency preparedness Modification Proposals Licensing of Operators and Management Personnel 39

40 Regulation of Operating NPPs 2/5 AERB issues authorization for operation of NPPs for a period of maximum five years. The renewal of authorization is issued by AERB based on safety reviews as specified under. limited safety review of Application for Renewal of Authorization (ARA) submitted in the prescribed format prior to completion of five years of operation and Comprehensive review of Report on Periodic Safety Review (PSR) submitted prior to completion of ten years of operation. AERB safety guide AERB/SG/O-12 on Renewal of Authorization for operation of NPPs covers these aspects Special Reviews Following major events / developments 40

41 Regulation of Operating NPPs 3/5 PSR Periodic Safety Review (PSR), once in 10 years Thorough safety assessment of plant against current safety standards and practices. Any shortfalls or non-compliance is analyzed and upgrades are carried out, if necessary This ensures constant safety up-gradation of plants at par with current safety standards. Through this process of PSR, the strengths and shortcomings of the NPP against the requirements of current standards are identified. 41

42 Regulation of Operating NPPs 4/5 Improvements based on PSR Safety Upgrades Emergency power supplies Common cause failures Fire protection Additional measures for handling deviations / abnormal conditions Cooling water, Dedicated air supply to critical valves, Supplementary control room Seismic re-evaluation and consequent strengthening of SSCs, where necessary Reassessment of flood levels consideration of upstream dam failure for in-land sites Reassessment of Tsunami Hazard at coastal sites Installation of additional DGs at higher elevation 42

43 Regulation of Operating NPPs 5/5 Improvements based on PSR Revision of safety analysis State of the art analytical tools Taking account of current configuration Probabilistic safety assessment Systematic Programmes for Ageing Management and Equipment Qualification 43

44 Safety Review...2/3 BOARD (3 rd Tier) SARCOP/SARCAR/ACPSR (2 nd Tier) Unit Safety Committee/ Safety reviews carried out at multitiered levels: Individual engineers and working groups. Safety Committees Advisory Committees AERB Board Design Safety Committee ( 1 st tier) 44

45 Safety Review...3/3 The committees include experts in all the relevant fields, including process design, control and instrumentation, thermal hydraulics, structural analysis, reactor physics, seismology etc. Higher level committees include outside experts from academia, national R&D institutes and government bodies. 45

46 Current Regulatory Review related to NPPs Safety supervision of 20 operating NPPs Construction / commissioning supervision of 7 NPPs Review of 4 different designs (BWR, PHWRs, FBR & PWR) AERB completed review of a Foreign Design NPP (VVER) Also completed pre-licensing review of AHWR Safety reviews in the backdrop of Fukushima accident 46

47 Seismic Capability Findings..(1/2) - Older NPPs reevaluated and strengthening done. Now Additional systems to be qualified. Eg. Fire water system Flood - Adequate Margins above Design Basis Flood Level (DBFL). - Older NPPs reassessed DBFLs are higher Action required to raise some equipment or have alternate equipment at higher elevation. 47

48 Findings..(2/2) Capability to withstand extended SBO/Loss of heat sink Augmentations Severe Accident Management Identified - Implementation aspects being followed up by AERB Exchange of Information with other Countries (Through VVER Reg. Forum, CANDU Regulatory Forum, IAEA, CNS) 48

49 Areas of Review/Strengthening Reconfirm capability to withstand currently defined site specific external events, and assess margins beyond those. Enhance capability to safely withstand extended SBO/extended loss of heat sink through design provisions. Review and strengthen SAM programme especially those for: Containment integrity for severe accident Hydrogen management and containment venting Monitoring of key parameters Emergency management capability in case of adverse environment (Create Emergency response facility capable of withstanding severe external events) Emergency preparedness in public domain (NDMA). 49

50 AERB had conducted special regulatory inspections of all NPPs in the wake of the accidents at the Fukushima NPP, Japan. Inspections were undertaken with the intent of assessing the capability of the plant against natural calamities of severe nature and survival under multiple failures. Inspections involved walk down of the plant areas to see vulnerability of critical plant equipment during severe natural calamities and capability for dealing with extended station blackout conditions. Examination of contingency plan and emergency operating procedure relevant to this aspect was also done

51 4. Regulatory Inspection...1/3 To verify that licensee complies with national safety requirements and the consenting conditions. Inspections include scheduled and reactive inspections, both announced and unannounced. 51

52 Regulatory Inspection...2/3 Inspections performed in accordance with magnitude and nature of associated hazard (graded approach) Monthly for nuclear projects under construction w.r.t industrial safety Half yearly for operating nuclear power plants Quarterly for nuclear power projects Yearly for high hazard radiation facilities 52

53 Regulatory Inspection...3/3 In general, the following areas are covered during a typical regulatory inspection of an operating NPP. Operation, maintenance and Quality Assurance Program. Adherence to the Technical Specifications for operation. Compliance to various regulatory recommendations. Adequacy of licensed staff at NPPs Performance of safety related systems. Radiation safety and ALARA practices. Emergency Preparedness Industrial Safety 53

54 5. Enforcement Several graded enforcement options are available to AERB such as: An order for satisfactory rectification of the deficiency or deviation detected during inspection; Order to applicant/licensee for improvement (incorporation of additional features/calling for additional mockups/analysis) within a reasonable time frame; Orders to curtail or stop activity; Modification, suspension or revocation of license; and Initiate penal action through Central Govt. for offences under the Act. 54

55 B. Safety Analysis & Research Promotion of R&D Carries out safety research studies of regulatory interests Funds safety related research projects in various academic institutions 55

56 C. Human Resource...1/2 Scientific and Technical staff in AERB Present staff strength ~ 250 (Additionally 50 Administrative Staff) Further expansion planned in the 12 th five-year plan. Technical support Bhabha Atomic Research Centre, Mumbai Indira Gandhi Centre for Atomic Research, Kalpakkam Academic Institutions/ Government Organisations Retired Experts Additional expertise available 170 retired experts 200 experts from R&D Organizations and Universities Serve in various Committees 56

57 Human Resource...2/2 Training Orientation course after recruitment Training at NPPs Refresher courses Modes of recruitment Through training schools of BARC, IGCAR, NPCIL and NFC Through open advertisement Through lateral transfers 57

58 D. International Cooperation IAEA CNS Participation in IRS/ INES CSS & Other safety standards committees Technical meetings, CRPs etc. CANDU Sr. Regulators Group VVER Regulators Forum Regulatory Bodies Bilateral arrangements NRC, USA ROSTEKHNADZOR, Russian Federation ASN, France TSOs IRSN France NEA CSNI,CNRA their WGs and TGs, MDEP 58

59 E. Public Information - AERB Website - Annual Reports on website - Newsletter - All regulatory requirements on website - Press Releases - Awareness Programmes - Discussion meets with stakeholders 59

60 F. Other Functions Safety Promotion Activities Awards for Industrial Safety, fire Safety and Green site development Annual Safety and Occupational Health Professionals Meet Workshops, Seminars, Conferences Physical Protection and Security Notification of nuclear accident under Civil Liability for Nuclear Damage Act,

61 Attributes of Regulatory Body

62 Independence AERB is functionally independent of DAE AERB s reporting to AEC (which is high-level policy making body), consists of presentation of Annual Report and Budget proposals. AERB has total autonomy in regulatory decision-making Effective independence can be gauged from the large number of enforcement actions taken by AERB NSRA Bill is aimed at further strengthening of legal status and independence of Regulatory Body. Effective regulation requires technical competence and high standards of professionalism. 62

63 Openness / Public Information - AERB Website - Annual Reports on website - Newsletter - All regulatory requirements on website - Press Releases - Awareness Programmes - Discussion meets with stakeholders o Public Involvement - Ensure all relevant safety concerns are taken on board - Gain public confidence / trust - Need for balance between transparency and protection of sensitive information 63

64 Regulatory Challenges Public acceptance Public involvement in regulatory review Continued support of Technical Support Organizations Development of Technology Independent Criteria Re-assessment of multi unit sites Severe Accident Management Guidelines 64

65 Proposed NSRA..1/3 To substantiate the legal status of AERB, it has been decided to establish an autonomous and independent regulatory authority under the proposed The Nuclear Safety Regulatory Authority of India Bill,

66 AERB NSRA (2/3) S.No. AERB NSRA 1 Set up in 1983 by an executive order under the Atomic Energy Act, Reports / responsible to AEC Statutory status to be established by the Act of Parliament Will not be reporting to AEC. Autonomous in exercise of its powers and function under the Act. Annual Report to be submitted to the Parliament. February 18, 2012 Nuclear Law Association Annual Conference, New Delhi 66

67 AERB NSRA (3/3) S.No. AERB NSRA 3 AEC reviews AERB reports Authority to devise and implement policies. Broad based Council will oversee and review the policies. 4 Appointment of Chairman based on the recommendation of a Search Committee and on approval of the AEC. Members are appointed on recommendation of the Chairman, AERB and with approval of the AEC. Chairperson and members shall be appointed on the recommendation of the Search Committees constituted by the Council. 5. Appellate Authority - AEC Appellate Authority will be constituted by the Council February 18, 2012 Nuclear Law Association Annual Conference, New Delhi 67

68 Summary AERB in existence for over 28 years (set up in 1983) Over the years it has developed world class infrastructure in terms of regulations, technical expertise and sound practices. Technical support from BARC, IGCAR, IITs etc. Improvements are ongoing : especially in regulation of radiation sources Proposal to strengthen legal status of AERB NSRA Will continue to insist and ensure that all nuclear facilities in India (indigenous or imported) will follow the highest safety standards in design and operation. 68

69 Thank you 69