Tony Bennett April 11, 2011

Ontario Waterpower Association – Public Safety Workshop

Tony BennettApril 11, 2011

OPG - Waterways Public Safety Program ... working with the OWA , CDA & MNR for better programs

O N T A R I O P O W E R G E N E R A T I O N OWA PUBLIC SAFETY AROUND DAMS WORKSHOP 2011

OPG- Program for Public Safety Around Dams

OUTLINE of PRESENTATION

OPG’s Portfolio of Dams

OPG Dam Safety Program

OPG Guidelines for Waterways Public Safety

• Managed System Approach− Guiding Principles− Base Planning Assumptions− Minimum Requirements

• Program Elements• Applications

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O N T A R I O P O W E R G E N E R A T I O N OWA Public Safety Workshop April 20113

65 Hydroelectric Generating Stations

241 Dams

109 Dams in the ICOLD Registry

Formal Dam Safety Program - 1986

CH Plant Group26 Hydro Plants123 MW


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Dam Safety

• prevent an uncontrolled release of water (i.e. dam breach)

• have Emergency Preparedness Plans in place in the event of failure

Public Safety Around Dams

• safe management of water during normal operations intake water discharge from turbines spill events

• security of the site to minimize the exposure of the public to hazards

Sudden DischargesFrom Gates

Strong Underwater CurrentsNear Intakes and Sluiceways

Sudden DischargesFrom Turbine s Produce Strong Currents

Sudden Changes in FlowsProducing Swift Currents

Fluctuating Water LevelsInundate Low Lying Areas

Potential Flooding fromDam Breach

Dry Spillway ChannelsCan Suddenly Fill withTurbulent Water

OPG Dam Safety Program – Dam & Public Safety


Managed System Approach to Public Safety

Managed System approach to address the residual risks to the public that are associated with dams and their operations.

Managed System includes the following elements;

Plan/ Policies, Accountability, Assessments Do/ Implement Controls and Maintain Check/ Monitor Revise/ Develop Corrective Actions

Report

Provides a process for continuous review of the measures to address site specific conditions which can change throughout a dam’s life cycle.

Integration allows owner’s to take advantage of the synergies created in addressing the risks, including public education, control measures and monitoring activities.

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OPG Managed System- Waterways Public Safety

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OPG Dam Safety Program- Policy and Governance Framework

OPG’s Dam Safety Policy Statement

• Approved by the highest level of the Organization

• Clear statement of the accountabilities

• Outlines the scope of the Program

• Establishes execution of the Oversight role

• Insures the decision makers are informed as to the safety status of dams

• Instills a requirement for regular review of the Policy• Specifies that all dams are to be designed, constructed, operated

and maintained according to:- Regulations / CDA – Dam Safety Guidelines / Industry Best

Practices

• Encompasses both conventional dam safety (i.e. failure scenarios) as well as the notion of public safety around dams under normal operations

• Establishes the concept of risk management


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Public Safety beyond dam failure incorporated in Principles…

1a The public and the environment shall be protected from the consequences of dam failure as well as release of any or all of the stored volume of water and/ or tailings behind a dam.

2a Requirements for the safe operation, maintenance and surveillance of the dam, shall be suitably documented and contain sufficient information in accordance with the consequences of dam failure

2b Documented operating procedures shall be followed for the dam and applicable discharge equipment to address normal, unusual and emergency conditions.

2c Documented maintenance procedures, (including public safety and security measures), shall be followed to ensure that the dam remains in a safe and operational ready condition.

CDA Dam Safety Guidelines (2007) - Principles


OPG Public Safety Program- Standards & Procedures

Based on Six (6) Governing Documents for Public Safety Around Dams

Guidelines for Waterways Public Safety- Provides the guiding principles

- Provides the minimum requirements

- Outlines the Risk Assessment Methodology

- Outlines the Control Measures

- Describes Elements of the Managed System

Supporting Technical Documents Guidelines for Booms and Buoys

Guidelines for Audible Warning Devices and Lights

Standard for Public Safety Signage

Guidelines for Fencing & Barricades

Guidelines for Risk Assessment for Waterways Public Safety


OPG Guidelines for Waterways Public Safety - Governing Principles

OPG Corporate Health and Safety Policy provides overarching guidance in matters related to health and safety of employees, contractors and the public. In accordance with the Policy the Hydro BU will:

• Make conservative decisions regarding our operations as they relate to the health and safety of the public

• Integrate public safety considerations into business practices and decisions

• Engage in partnerships that enhance public safety awareness and address public safety issues in the communities in which we operate

Plant Groups are responsible for public safety at the facilities for which they have been assigned accountability

Deviation from the “minimum requirements” stipulated in this Guideline is permitted provided written rationale for the deviation has been submitted to the Executive Vice President - Hydro for approval, copy to the Director Dam Safety & Emergency Preparedness.


OPG Guidelines for Waterways Public Safety - Base Planning Assumptions

The following assumptions will form the basis in applying the Guidelines for Waterways Public Safety in OPG;

1. Physical barriers are intended as act as deterrents and are not designed to prevent access from those seeking to unlawfully gain access to OPG property or controlled areas.

2. Physical barriers are not intended to address naturally occurring hazards; both water based (e.g. rapids, submerged boulders, etc.) and landforms (e.g. cliffs); associated with a dam or hydroelectric site.

3. Recreational water use of waterways ... does not occur when there is floating ice in the waterway… or has been … designated for use by the authorities.



4. Partially open water and cracked ice is part of normal river/ reservoir conditions from late fall through spring seasons and no special protective measures are required to address these hazards…

5. Illumination of signs and barriers is intended to come from the motorized vehicles and watercraft which may be operated outside of daylight hours or other periods of low visibility.



6. The publics’ safe exit from an area will be based on normal healthy individuals and will be assumed to begin on first alert from the audible sirens, where provided. For the hearing impaired the assumption is that they will be cognizant of changing water levels based on signage and as brought about by the staged discharge from the spillway gates, or stop log sluices, and safely exit the area without delay.

7. It is recognized that changes will occur from time to time in the standards for control measures and the requirements of these Guidelines. These changes do not imply that existing control measures need to be replaced. In this case the effectiveness of the existing control measures is to be assessed relative to the new standards through the risk assessment process. If they meet the intent they shall be considered to be in compliance until such a time as they are scheduled for replacement, following which they will be replaced with control measures meeting the new standards.


OPG Guidelines for Waterways Public Safety - Minimum Requirements

Managed System

1. Waterways public safety within the Hydro BU is to be incorporated within a managed system.

2. All water conveyance structures shall have a documented Waterways Public Safety Management Plan that meets the requirement of these Guidelines.

3. Waterways Public Safety Management Plans are to be reviewed every three years.

4. All physical control measures are to be inspected at least annually (e.g. signs, fencing, booms, buoys, audible alarms, access gates, etc.)



Managed System

5. For the manual operation of sluice gates and log sluices, a form is to be used as a checklist by staff to ensure each procedural step is carried out. This checklist then becomes a formal record of the site specific public safety procedural requirements performed.

The public safety procedural requirements, being site specific, may include such activities as, e.g., completing notifications of downstream or upstream stakeholders, spillway inspections, sounding audible sirens, stepped opening of sluice gates, etc.



Managed System

5. Con’d … for the different manual operations the following applies:

Remote/Manual operation (e.g., from a control centre or a generating station control room) – the time of completion of each step of the public safety procedural requirements shall be recorded by the Operators in the Station Log as it is completed.

Local/Manual operation – A controlled form shall be used as a checklist that:

• Lists each step of the site specific public safety procedure;

• Records the time of completion for each step of the procedure as it is completed;

• Includes supervisory review and sign off on the field copy;• Has the field copy filed in the local Hydro Record Centre.



Risk Assessment

6. All water conveyance structures shall have a documented public safety risk assessment.

7. The risk assessment shall clearly define the system, including the extent that upstream and downstream reaches of the reservoirs/ rivers are considered.

8. Risk assessments shall be conducted on a 3 year cycle.

9. Hydraulic Assessments are to form supporting documentation for the risk assessment and should be completed, where required.



Signage

10. Signage is to be used on OPG property to identify both hazardous locations rated as a medium or high risk, as well as to identify any areas designated for public use (e.g. portages).

11. All sites with the potential to spill water or where there is a risk of a vertical fall of greater than 3 meters from an OPG structure will have signage to identify the residual risks.

12. All waterway signs are to be sized and placed so that they are readable by the public approaching the Dangerous Waterway Zone along the shore or from the waterway.

13. The installation of all new waterway signs shall meet the requirements of DS-LP-STD-002, for colour and format.

14. A sufficient number of waterway signs that are within hearing distance of an audible warning device and/or strobe light are to include wording which explains the purpose of the audible alarm and/or strobe lights.



Signage

15. Red Waterway “Danger Signs” are to be installed:

• One upstream, one downstream and at the commonly used land access point(s) to the water conveyance structure.

• Such that they define the extent of the Dangerous Waterways Zone.

16. At all other locations identified as having a “high” risk rating on OPG property.

17. Yellow waterway warning signs are to be installed at all locations on OPG property identified as having a “medium” risk rating.

18. Where hazards are identified that could create either “Medium” or “High” risks to the public, as a direct result of OPG’s operations, but not on OPG property, formal correspondence advising the landowner of these hazards should be sent.



Spillway Gates

19.Audible warning devices (or strobe lights) are to be used to warn the public in the Dangerous Waterways Zones downstream of all remotely and automatically controlled spillway gates.

20.All spillway gates are to be opened in increments so as to provide sufficient warning to persons who may be in the spillway channel to safely exit.

21. An audible alarm will sound prior to, and during, the initial opening of all spillway gates as they are raised from the sill, except where visual surveillance is maintained of the area.

22. After the initial opening the audible alarm should be sounded for any step in gate movement that creates a hazardous increase in water level or flow in the spillway channel, as determined by the hydraulic assessment.



Booms & Buoys

24. Where the waterway has unrestricted access to boating (i.e. the rights to navigation have not been extinguished through the Canadian Shipping Act) an upstream safety boom is to be installed to delineate the Dangerous Waterways Zone in the following instances:

• Upstream of all overflow spillways

• Upstream of all flashboard installations

• At the upstream entrance to all intake power canals

• Upstream of all spillway gates and stoplog spillways where the risk rating is medium or above

• Upstream of all intakes where the risk rating is medium or above.


Site Specific Operating Procedures

• Stepped Operation of Spillway Gates• Hydraulic Testing of Spillway Channels• Buffer Zone in Reservoir to reduce Spill• Visual Inspection prior to Operation• Video Surveillance Cameras

Audible Alerts & Warning Systems

• Remotely Controlled Spillway Gates• Integrate Controls with Gate Operation

Site Access Controls

• Signage, Booms & Buoys, Fencing• Security Patrols in High Public Use• Restricting Navigation Near Facilities

Vulnerability Assessments

• Vandalism Threat Evaluations

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OPG Guidelines for Waterways Public Safety - Control Measures


Do - PSMPPhysical control measures Silver Falls Intake

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Do – Maintenance & Inspection Plans

Maintenance & Inspection

• prescribed minimum standards

• detailed procedures

• follow-up protocols

• embedded in existing work management systems


Check/ Correct – PSMP ReviewsExtending Fencing

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Corrective Action – Based on Attitude Research

39%39%

28%21%21%

26%

18%12%

15%23%

10%7%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Source: Research Strategy Group, Oct. 2004

Increased w ater levels /f looding/dam overf low

Strong Currents

Drow ning/ getting caught in currents/electrocution

Increased w ater f low

Not enough w arning about gate openings

Risk of contact w ith pow er lines/machinery

Overall Unaided Reasons For Dangers (Among Those Who Are Aware Of Any Dangers)

2004

2003

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Residents’ awareness of the dangers highlighted in OPG ads and educational material has increased significantly since 2003.

Unaided reasons for dangers:

• increased water levels/ flooding/dam overflow unchanged

• strong currents down 7%

• drowning/getting caught in currents/electrocution up 5%

• increased water flow down 6%

• not enough warning about gate openings up 8%

• risk of contact with power lines down 3%

What do you typically use these areas for?

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119

14

9 8

54

22

8

12

27

5

47

24

8

31

20

5

50

26

10

20

26

4

55

21

9

18

22

5

0

10

20

30

40

50

60

70

80

Fishing Swimming Canoeing, Kayaking Other Boating Hiking or Walking Hunting

% o

f re

sp

on

den

ts t

hat

use

d a

reas

North East(n=189)

North West(n=463)

Ottawa/ St.Lawrence(n=261)

Evergreen(n=168)

Total(n=1081)

Respondents were most likely to use areas for fishing

Older males are using the areas slightly more often than others

Respondents living less than 5 kilometers from a dam or hydroelectric station were more likely to use the areas

Norman Giesbrecht, Rose Schmidt & Anca Ialomiteanu (2008)

CAMH Study for OPG on Risk Takers


800 Site Specific Community Surveys Annually to assess Effectiveness of OPG’s Waterways Public Safety Program

- e.g. Effectiveness of Signage in Conveying Safety Message

80% 77%

11% 13%

5% 5% 2% 3%

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%

Alw ays Usually Occasionally Never

Source: Research Strategy Group, Oct. 2004

Overall Degree To Which Those Who Use Facilities Obey The Signs

2003

2004

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Degree to which users obey signs:

- always (80%)

- usually (11%)

- occasionally (5%)

- never (2%)

OPG Gauging Effectiveness – Engaging Stakeholders


Signage Standards

Name of Facility

Emergency Telephone Number (24/7)

Dam Owner

Headline Hazard Identification

Message Text (1.5 x Headline)

Require Action

Colour Coding

Dimensions & Lettering

What would be effective in discouraging your activities at hydro sites?

Note: Remaining participants answered somewhat or very ineffective

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36

48

50

50

51

53

57

60

61

69

70

72

76

0 10 20 30 40 50 60 70 80

Bigger Signs or Better Marked Barriers

More Brochures

More Newspaper Ads

Different Brochures

Presentations at Schools

More Radio Ads

Information Sessions

Different Newspaper Ads

Different Radio Ads

More TV Ads

Laying Charges of Every Person

More Patrols by Security Staff

Different TV Ads

Larger Financial Penalties

% of respondents

What would be effective?

Norman Giesbrecht, Rose Schmidt & Anca Ialomiteanu (2008)

CAMH Study for OPG on Risk Takers


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Focus on signage may change to “Trespassers will be prosecuted” to address findings of Research Program

OPG – Applications of Research Program


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OPG - Waterways Public Safety Program

... working with the OWA , CDA & MNR for better programs

[email protected]

Tony Bennett April 11, 2011

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