Federal Provincial Territorial Radiation Protection Committee (FPTRPC)

Three Year Business Plan 2009 – 2011

"To advance the development and harmonization of practices and standards for radiation protection within Federal, Provincial and Territorial jurisdictions, and to communicate these to the people of Canada"

Table of Contents

• Executive Summary
• Introduction
• Background
• Terms Of Reference
• Reporting and Accountability
• Environmental Scan
• Business Overview
• Business Activities
• Accomplishments
• Appendix I
  • Provincial and Territorial Members
  • Federal Members
  • Observers
• Appendix II
  • Sub-Committees & Working Groups

Executive Summary

This Business Plan presents an overview of the work of Canada's Federal Provincial Territorial Radiation Protection Committee (FPTRPC), focusing in particular on those activities to be undertaken during the three fiscal years commencing April 1, 2010. The work of the FPTRPC is assisted through several Sub-committees and Working Groups, supported by the efforts and resources brought to the table by the FPTRPC membership representatives and by other organizations (governmental and non-governmental). In recognizing that in some jurisdictions the resources for radiation protection within government are limited or non-existent, the FPTRPC strives to support radiation protection activities within these jurisdictions.

The purpose of the Plan is to document and communicate the key business activities of the FPTRPC, resulting primarily from deliberations at its annual meetings held in October each year. Using a "rolling 3-year" approach, the Plan is updated annually. It reports progress achieved in the previous year and documents the agreed actions to be carried out over the next three years. It captures the short term and intermediate term business activities of the FPTRPC. This information is to be shared with a wide range of stakeholders, including key regulatory agencies across the various jurisdictions and for others with responsibilities in the field of radiation protection.

The role of the FPTRPC is to serve as the primary governmental forum to develop, promote, coordinate and harmonize the standards and practices for radiation protection within federal, provincial and territorial jurisdictions within Canada, while recognizing the distinct responsibilities that each jurisdiction has in this field. The aim is directed towards benefiting organizations, whether in the public or private sector, and individuals, as workers, patients or as members of the public, who are affected by the actions of the regulatory, advisory and service agencies within their jurisdiction. Key strategies include the development of national standards, guidelines, codes of practice and model regulations.

The FPTRPC is also active in the promotion of, support for, involvement in and review of research initiatives of relevance to its mandate. It plays a coordinating role in the organizing and hosting of technical forums and workshops for the purpose of consulting with knowledgeable experts and for seeking input and feedback from stakeholders on major radiation protection initiatives and proposals affecting Canadians. It develops information resources and position statements; and liaises with national and international radiation protection organizations.

Introduction

This document (the Plan) presents the third, three-year business plan developed by the FPTRPC. It covers the period commencing April 1, 2010 through March 31, 2012. The content is based on deliberations up to and including those at the Committee's annual meetings held in Ottawa each year during the month of October. The Committee will use this Plan to report on progress in its business initiatives during the past year and to record its directions for the coming three years. A summary of recent accomplishments is also included in this plan.

The Plan represents the principal business document of the FPTRPC. Other detailed transaction records, comprising Committee meeting minutes as well as reports and notes prepared by Sub-committees and Working Groups, are available as separate documents. The Plan outlines the major goals and objectives of the FPTRPC and describes the reporting and accountability relationships. It provides information for use by other Federal Provincial Territorial Committees and Councils, and by professional organizations concerned with the broader areas of environmental, occupational and public health and safety in Canada.

A brief history of the FPTRPC is provided in the Background section, summarizing its formation, business to date, as well the activities of its predecessor organization (the Federal Provincial Sub-committee on Radiation Surveillance). To orient readers, the Terms of Reference of the FPTRPC are given as part of the Background. The Plan includes a brief Environmental Scan, reflecting current domestic and international circumstances within which the FPTRPC conducts its business. A summary of the principal business initiatives is given. Detailed work activities of the Committee, its Sub-committees and Working Groups, are provided together with a list of the work priorities. Other business items referred to include such matters as international liaison and Canadian representation on international bodies. Appendices are provided which detail the composition of and representation on the FPTRPC and its Sub-committees and Working Groups.

Background

The FPTRPC was created in 1993, as a result of the termination of its predecessor - the Federal Provincial Sub-committee on Radiation Surveillance (FPSRS). The FPSRS was a Sub-committee of the Federal Provincial Committee on Environmental and Occupational Health, which in turn reported to the Council of Deputy Ministers of Health. The FPSRS operated for a period of some ten years, until a restructuring took place in the early 1990s by the federal government to reduce the number of Committees, Sub-committees and Working Groups.

The members of the FPSRS had recognized that the meetings were very beneficial for the coordination and development of radiation protection programs across Canada and for addressing issues of national importance. International incidents such as the Chernobyl nuclear accident and domestic issues, such as the concern for radon gas in homes and other buildings, hi-lighted the importance of coordinating the limited resources nationally to address these matters. Therefore a proposal was made by the membership to reform the FPSRS as an independent Committee (FPTRPC) which would have its reporting relationship through the member jurisdiction departments that were to be represented on the new Committee. Formal support for the Committee was requested of and received from each of the jurisdictions of the former FPSPS. The Territories were also invited to participate, even though they had no identified radiation protections departments. The costs for holding an annual meeting would be shared amongst the members. The FPTRPC held its first formal meeting in October 1993.

Since that time, the FPTRPC has held regular annual meetings, has developed its Terms of Reference (see next page) and established a number of Sub-committees and Working Groups to address the detailed technical aspects of the Committee's work. A list of the major achievements to date is provided in this Plan. The FPTRPC continues to liaise with the Federal-Provincial Committee on Environmental and Occupational Health, concerning matters of mutual interest (e.g. drinking water quality guidelines). Expansion of the FPTRPC is a key initiative to achieving effective representation of appropriate federal government agencies. In 1999 the Department of National Defence formally joined the FPTRPC to become the third federal organization, along with the Canadian Nuclear Safety Commission and Health Canada. Communication with other domestic organizations and with international bodies is actively being pursued. In particular the Canadian radiation protection community has been informed of its work through articles published in the bulletins of the Canadian Radiation Protection Association and the Canadian Organization of Medical Physicists.

Terms of Reference

Mission

To advance the development and harmonization of practices and standards for radiation protection within Federal, Provincial and Territorial jurisdictions.

Mandate

An intergovernmental Committee established to support Federal, Provincial and Territorial radiation protection agencies in their respective mandates by:

1. providing a national focus for government radiation protection agencies;
2. promoting the harmonization of radiation health and safety programs;
3. identifying emerging issues in radiation protection and recommending actions to the appropriate jurisdictions;
4. developing and harmonizing radiation protection standards, guidelines and input for legislation;
5. providing a forum for representatives of the provinces and territories, the Canadian Nuclear Safety Commission, Department of National Defence, Health Canada and other federal departments/agencies;
6. considering requests from other governmental committees and agencies concerned with health, safety and environmental issues and liasing regularly with such committees and agencies.

To fulfill its mandate, the Committee may establish subcommittees and working groups.

Membership

The Committee shall consist of one delegate from the Canadian Nuclear Safety Commission, one delegate from the Department of National Defence, one delegate from Health Canada and one delegate from each Province or Territory, with the exception that Ontario may have two delegates, representing the Ministries of Labour and Health & Long-Term Care. The delegates should be those individuals directly responsible for radiation protection within their respective jurisdictions. The Chair may also invite observers and resource personnel to attend meetings as necessary.

Sponsors

The Committee operates under the auspices of the Canadian Nuclear Safety Commission, Health Canada and the Provinces and Territories. In this partnership, the Canadian Nuclear Safety Commission and Health Canada fund travel expenses, while the Provinces and Territories assume responsibility for accommodation and meals.

Reporting

Delegates are responsible for reporting on the transactions of the Committee to their respective jurisdictions.

Meeting Frequency

There will be at least one annual face-to-face meeting, normally held in Ottawa. The meeting will include at least one session chaired by the Canadian Nuclear Safety Commission, one by Health Canada and a session for the Provincial/Territorial delegates.

Role of Delegates

All delegates should come prepared to represent their respective governments and constituents, and be responsible for keeping their governments informed of decisions made. Delegates must also be prepared to contribute time, effort and resources to any subcommittees, working groups or review groups that the Committee may establish.

Quorum

A minimum of seven (7) delegates shall constitute a quorum.

Voting

Decisions, for which a vote is required, shall be determined by a simple majority of delegates present, with each Federal, Provincial and Territorial agency accorded one (1) vote.

Chair

Three co-chairs shall be appointed for each session. The host federal agencies will each appoint one (1) co-chair, and the Provincial/Territorial elected chair will be the other. The Provincial/Territorial chair will be elected by simple majority vote. Appointments will be for a two (2) year term and may be renewed. The co-chairs will be responsible for producing the agenda at least two weeks prior to each meeting. Official documents of the Committee will be signed by the co-chairs.

Secretariate

Secretariat services will be provided to the Committee by the Canadian Nuclear Safety Commission and by Health Canada as required. All records and other documents pertaining to the official proceedings shall be distributed to the delegates by the secretariat. Draft minutes of meetings shall be distributed to all delegates within six (6) weeks after any meeting.

Reporting and Accountability

The work of the FPTRPC covers a broad range of radiation protection matters, concerned with environmental, occupational and public health and safety issues, emergency preparedness etc.

Draft minutes of meetings (normally held in October each year) are prepared and distributed to members within six weeks of the completion of the meetings. Members are obligated to report back in a timely manner to their respective agencies on the business conducted and the decisions reached. Members will undertake tasks additional to those carried out during the meetings, through participating on Sub-committee and Working Groups, in order to support the overall work of the FPTRPC. This entails a commitment of time and resources to help complete the appointed tasks.

The FPTRPC strives to ensure effective communication with other national and international organizations through direct information exchanges and through participation by representatives from FPTRPC member agencies on Committees and Working Groups. In certain cases these interactions are required as result of obligations under international agreements.

Of particular interest to the FPTRPC are the following organizations:

• Canada -
  • Canadian Association of Radiologists
  • Canadian Association of Medical Radiation Technologists
  • Canadian Electrical Association
  • Canadian Nuclear Association
  • Canadian Organization of Medical Physicists
  • Canadian Radiation Protection Association
    
    
• USA -
  • Conference of Radiation Control Program Directors
  • National Council for Radiation Protection and Measurements
    
    
• International-
  • Institute of Electrical and Electronic Engineers
  • International Atomic Energy Agency
  • International Commission on Non-ionizing Radiation Protection
  • International Commission on Radiological Protection
  • International Electro-technical Commission
  • Nuclear Energy Agency of the OECD
  • World Health Organization

Environmental Scan

Radiation protection in Canada is challenged by the complexity of the multiple jurisdictions responsible for different aspects of the radiation protection agenda. The demands of international trade and cooperation can further constrain sovereign activities. Many types of radiation technologies are imported for use in Canada. These may not automatically conform to accepted Canadian standards. Canada is officially bi-lingual, which places requirements on importers of goods to ensure that documentation, operating instructions, health and safety information as well as labels and warning signs are available in both French and English. As a member state of the International Atomic Energy Agency, Canada has obligations concerning international safeguard requirements for controlling access to nuclear materials, along with its domestic requirements for the control of substances associated with the nuclear fuel cycle. Concerns continue regarding the specter of terrorism involving nuclear weapons, the use of "dirty bombs" to disperse radioactivity, or attacks on major nuclear facilities (e.g. reactors).

Responsibility for workplace health and safety is under the jurisdiction of the provinces and territories, typically through their Worker Compensation Boards or Departments of Health or Labour. The exception is where this is explicitly a federal domain, such as in federal departments, agencies and corporations, the armed forces, national research organizations and those industries involved in inter-provincial land transportation, air and maritime services and telecommunications. The Canadian Nuclear Safety Commission is the federal agency responsible for the control of nuclear substances and facilities, as well as the resulting radiation exposure, except within the Canadian armed forces. Naturally occurring radioactive materials (NORM) however are not regulated by the CNSC except when these materials are being transported or imported/exported. NORM remains the responsibility of the provinces and territories, except where this is explicitly in a federal setting. Radiation emitting devices, other than those using nuclear substances, are subject to federal requirements at the point of sale or importation regarding standards for design, construction and functioning. Otherwise, for installation and use the jurisdiction is again provincial or territorial, except for those devices installed and used in federal facilities or in federally regulated industries. The Canada Labour Code prevails in federal jurisdictions, and for radiation protection the standards developed by Health Canada, as specified in its series of radiation protection safety codes, are applicable.

At the provincial and territorial levels, radiation protection is administered either through designated radiation protection programs or as part of the broader duties of occupational health and safety officers from the Workers Compensation Board or similar organization. For the provinces, radiation protection programs are based in various ministries or agencies. Some of the programs have regulatory authorities, while for others their functions are restricted to advisory and service roles and supporting the regulatory programs of other environmental, occupational and public health bodies. A full listing of the member organizations and their representatives on the FPTRPC is given in Appendix 1. One key area of responsibility for the provinces and territories is the delivery of healthcare, which is a major user of medical x-ray equipment. Protection of patients is a trade off in the optimization of exposure to achieve an acceptable level of diagnostic information. The introduction of computerized imaging modalities is leading to larger doses to the population. The advent of digital imaging requires renewed attention on the means for controlling exposures. Protection of healthcare workers is important as this group accounts for the largest number of occupationally exposed persons, at around 70% of all persons currently monitored routinely for occupational radiation exposure in Canada.

Business Overview

The work of the FPTRPC can be conveniently categorized under the following twelve headings:

• Diagnostic Radiology - medical x-ray practices, reference doses, new technology (digital), mammography & other standards, radiological exposure trends
• Dose Limits and Worker Issues - harmonization of limits (workers; general public; pregnant worker);  worker suspension, return to work, injury claims and compensation
• Dosimetry Services and Dose Records - approval of commercial services, wearing of dosimeters, changes to doses records, accessing the National Dose Registry
• FPTRPC Administration - membership/representation, terms of reference, work plans, meetings, minutes & reports, sub-committees and working groups, communication/liaison
• Standards and Guidelines - International standards (ICRP, IAEA, ICNIRP, WHO), national guidelines (e.g. drinking water, radon in homes), other agencies (DND, HRDC)
• Naturally Occurring Radioactive Materials - jurisdiction, national NORM guidelines, identification, regulatory controls, waste management, worker protection, transportation,
• Non-ionizing Radiation - sunlamps and sun awareness, lasers, microwave and RF devices, cell phones and towers, radio transmitters, VDTs, 60Hz- ELF, ultrasound items
• Nuclear Medicine and Radiotherapy - quality assurance, patient doses, accident reporting
• Nuclear Emergency Preparedness - preparedness/response planning, intervention levels and protective action guidelines, support services (environmental, laboratory & human testing)
• Radiation Emitting Devices - legislation, Safety Codes, development/updating process
• Radiation Safety and Control Issues - legislation, licensing, inspections, evaluations
• Resources in Canada - government programs/ staffing, private services, advisory bodies, instrumentation & equipment, calibration/testing laboratories, research/education programs

These categories provide a broad description of the range of issues that the FPTRPC deals with in the course of its business deliberations. Specific items under consideration are given in the following Business Activities listing, with their assignment to a sub-committee or working group.

Business Activities

The FPTRPC meets annually to discuss emerging issues in radiation protection, review the progress of working groups over the past year, and to set priorities for the coming year. The meetings are held over 4 days and include training sessions, reports from a number of working groups, and presentations from the members, their organization or by external non-government organizations. This article summarizes some of the highlights of general interest from the most recent annual meeting, held in November 2011 in Ottawa.

Working Groups Subcommittes Work Assignments: 2011-2012

a. Business Plan Working Group

The tasks of the Working Group are as follows:

1. Revise the Business Plan as required to ensure it meets the needs of members regarding scope, content, suitability and completeness
2. Identify priority items that the FPTRPC should focus on and develop a method for prioritizing its business on an on-going basis
3. Update the Business Plan following the annual meetings of the FPTRPC

b. Canadian Naturally Occurring Radioactivity Material Working Group

The current tasks of the Working Group are as follows:

1. Prepare a draft revision of the Canadian NORM Guidelines and distribute to the Working Group and the FPTRPC for final comments and adoption. The revisions shall incorporate the revised Canadian Action Levels for Radon and address consistency with the amended Packaging and Transport of Nuclear Substances Regulations (PTNSR).
2. Work with the Joint Document Working Group to develop Guidelines for the Transportation of Naturally Occurring Radioactive Materials (NORM) that are consistent with the Canadian NORM Guidelines and the PTNSR.

c. Canadian Medical Dose Working Group

1. Develop terms of reference

d. Communications Working Group

1. Translate and post Business Plan updates on the FPTRPC website
2. Ensure that the information on the FPTRPC website, including hyperlinks, is current
3. Prepare a summary of the annual FPTRPC meetings for distribution to external stakeholders
4. Provide an overview of the web activity for the FPTRPC website (Health Canada)

e. Electromagnetic Field Working Group

Currently under review.

f. Joint Documents Working Group

The tasks of the Working Group are as follows:

1. Submit Terms of Reference for review and approval by co-chairs of the FPTRPC and the FPTRPC members;
2. Review documents dealing with radiation protection.
3. Solicit or otherwise identify documents:
   1. of potential interest to federal, provincial and territorial jurisdictions
   2. where federal, provincial and territorial input may be desirable, and
   3. where the opportunity for federal, provincial and territorial input may exist.
4. Prioritize the production of these potential joint federal provincial territorial documents.
5. Make recommendations to the FPTRPCfor the production ofjoint federal provincial territorial national standards, guidelines, and codes of practice, to ensure that FPTRPC input and concerns are addressed. 
6. Identify whether additional members or other technical expertise are required to complete the mandate.
7. Carry out related tasks as requested, by agreement with the co-chairs or as instructed by the FPTRPC in order to meet the mandate of the Working Group.

g. Mammography Working Group

The tasks of the Working Group are as follows:

1. Work with Health Canada to develop new Safety Code for mammography.
2. Maintain and review information about QA/QC in Canada
3. Work with partners such the Canadian Association of Radiologists and the Canadian College of Physicists in Medicine to develop a QA/QC strategy.

h. Medical X-ray Utilization Working Group

The tasks of the Working Group are as follows:

1. Participation in the pan Canadian Radiation Exposure Monitoring (REM) project led by NRC and close collaboration with radiologists and all disciplines involved in diagnostic imaging towards Canadian Association of Radiologists (CAR) establishing guidelines for appropriate use of diagnostic imaging.
2. The REM project aims to establish a database of medical exposure values populated form Radiological Information Systems (RIS) and other electronic records of exposures.
3. An update of CAR’s work on development of guidelines is provided to FPTRPC.

i. Provincial Radiation Dosimetry Review Subcommittee

Currently under review.

j. Radiation Standards Working Group

Currently under review.

k. Radon Guidelines Implementation Working Group

Currently under review.

l. Survey Instrument Working Group

Inactive

Key: Member Jurisdictions:

CEA

Canadian Electricity Association

CNSC

Canadian Nuclear Safety Commission

DND

Department of National Defence

HC

Health Canada

IC

Industry Canada

ONH

Ontario Ministry of Health and Long-term Care

QC

Quebec

Accomplishments

A number of accomplishments have been achieved by the FPTRPC, notably the preparation of major information documents and supporting the development of documents by other organizations. The following list of items is provided to highlight the major areas of work completed during the past six years and those items that are in progress:

Joint FPTRPC Documents and Position Statements

1. S-260: Making Changes to Dose-related Information Filed with the National Dose Registry (Canadian Nuclear Safety Commission).
2. G-129: Keeping Radiation Exposures and Doses "As Low As Reasonably Achievable - ALARA" (Canadian Nuclear Safety Commission).
3. Guidelines for Canadian Drinking Water Quality - Radiological Characteristics; 2004 draft update completed and submitted to the Federal-Provincial-Territorial Committee on Drinking Water.
4. Guidelines for Interventions in Nuclear Emergencies (Health Canada) -
   November 2003.
5. Canadian Mammography Quality Guidelines (Health Canada) 2002.
6. Canadian Guidelines for the Restriction of Radioactively Contaminated
   Food and Water Following a Nuclear Emergency (Health Canada) 2001.

Appendix I

• Provincial and Territorial Members
• Federal Members
• Observers

Appendix II

• Sub-Committees & Working Groups