The Creation Of A Canadian Institute Concerned With Radiation Safety In The Uranium Mining Industry

INTRODUCTION The enquiry of the Royal Commission on Health and Safety of Workers in Mines of 1976, known as the Ham Commission after its chairman, Dr. J. Ham , now president of the University of Toronto, was one of the activities surrounding the upturn in the fortunes of the Canadian uranium industry and its markets in the mid-seventies. Although the regulation and licensing of Canada's ten major mine/mill facilities employing six thousand or more uranium mines is a federal concern under the Atomic Energy Control Act, this Commission, which paid particular attention to health and safety in uranium mines, was appointed by the Province of Ontario. Further provincial enquiries in British Columbia, Saskatchewan and Newfoundland have been aimed at quantifying, reducing or eliminating the environmental and health impact of uranium production. This work has created a mosaic of provincial regulation in what is essentially a field of federal jurisdiction. Various organizations of the federal government related to its regulatory function in the uranium industry are outlined in Figure 1 showing the matrices of regulatory, advisory and research activities associated with the exploitation of Canadian uranium resources. A more detailed examination [ ] of the governmental (federal and provincial) activities, commissions, etc., in the Canadian uranium industry indicates a definite parallelism of effort, if not of scale between the two levels of government in the execution of their roles in occupational and environmental health and safety and is presented here to explain the complex stage onto which the Canadian Institute for Radiation Safety has just entered. The development of the Institute and its precursors together with current and planned research activities are described. BACKGROUND Traditionally and constitutionally, natural resource exploitation and its regulation is under provincial jurisdiction; however, the uranium industry has been under federal control since the Second World War when security measures necessitated the creation of the Atomic Energy Control Board (AECB). Health and safety aspects, in terms of inspection, compliance and environmental monitoring are performed on behalf of the AECB by provincial labour inspectors (Saskatchewan and Ontario) and Ministries of Environment. Non-radiation health and safety matters are also enforced under the federal Canada Labour Code by provincial inspectors. In support of licensing and standard-setting functions, major research programs have been initiated and expanded at both the AECB and the Canada Centre for Mineral and Energy Technology (CANMET), formerly the Mines Branch of the Federal Department of Energy, Mines and Resources). CANMET established a Mining Research Laboratory at Elliot Lake, Ontario in 1965 to conduct research and development aimed at improving production capability, providing information on the security of uranium supply and investigating the hazards of mining and their implications for the health and safety of the miners. The provincial route in assessing the costs and benefits of uranium production has attempted to be far more conclusive in nature. While some on-going studies are funded, periodic inquiries by Royal Commission have become the accepted practice. Six such inquiries have been conducted in four provinces and widely differing policies have resulted from their findings and recommendations. For example, while the government of British Columbia in the Fall of 1980 declared a seven-year moratorium on(2) uranium mining and exploration in the province, the province of Ontario's crown utility "Ontario Hydro" financed the rehabilitation of a mine/mill complex at Elliot Lake. The latter instance is not surprising considering that the final report of Ontario's "Royal Commission on Electric Power Planning",(3) concluded that nuclear energy has a continuing role to play in the expansion of Ontario Hydro.