History of the regulatory and supervisory framework for the industry and service sector in Pakistan is short, but, generally, tainted with mismanagement,
History of the regulatory and supervisory framework for the industry and service sector in Pakistan is short, but, generally, tainted with mismanagement, nepotism, in-efficiencies, corruption scandals and incredibility. Merit and the set of criteria for appointment of head and other responsible positions of most of the regulatory bodies were ignored in a number of cases, and services of competent and qualified personnel well-versed with the latest regulatory measures were not acquired as a matter of policy.
Therefore, lack of professionalism prevailed from the early days of establishing a number of regulatory bodies. For example, the founding chairman of Pakistan Electronic Media Regulatory Authority (Pemra) was a police officer, whereas the rules of National Electric Power Regulatory Authority (Nepra) were amended to accommodate a retired army general who had the only experience of utilities as a consumer. The case of Oil and Gas Regulatory Authority (Ogra) involving its last chairman and members is rather well-known to the public. Consequently, such regulators failed to set a standard which other similar regulatory bodies established in Pakistan in subsequent years could emulate.
For these reasons, and the fact that the government continues to interfere, influence these regulatory authorities in policy decisions, these organisations have failed to act independently and provide protection to the general public against vested interests. Take the case of Nepra and Ogra, for whom the only responsibility somehow remains increasing tariff almost on a month-on-month basis, mostly without any rationale or justification, thus making the life of masses miserable, whereas placing its salutary objectives on backburner. Sadly, most of the regulatory bodies have wasted the huge physical and financial resources in the past, and, at the same time, been unable to develop adequate regulatory infrastructure.
Given the above conditions, Pakistan Nuclear Regulatory Authority (PNRA) stands out remarkably high among the regulatory bodies in the country. Perhaps, the only independent and professional regulatory body in real terms, PNRA is manned by professionals qualified and trained in their areas. PNRA ensures safety and security in the radioactive and nuclear materials, exercising effective control and supervision over the production, application and use of atomic energy and matters incidental thereof. While it protects the operators and general public against undue radiological risks, it establishes standards on liability for nuclear damage as well.
For the purpose, the authority issues, from time to time, regulations for the implementation and performance of the obligations both by the public and power sector installations, ensuring that the use of ionizing radiation and nuclear energy does not cause unacceptable impact on the health of workers and general public as well as on the environment. In fact, institutional mechanism of the PNRA coupled with adoption of internationally benchmarked practices has achieved regulating operations of all nuclear power plants satisfactorily, ensuring to prevent a potential major disaster. Primary responsibility of plant safety resting with operator and licensee, an effective safety culture has been developed by the regulators over a period of time.
A comprehensive legislation governing civil atomic energy activities and radiation facilities is in place since 2001 through an ordinance, and governing rules and regulations are reviewed with the assistance of the International Atomic Energy Agency (IAEA) on a regular basis. PNRA regulations notified so far include regulations on radiation protection, licensing of nuclear safety class equipment and components manufacturers, licensing of radiation facilities other than nuclear installations, licensing of nuclear installations, safety of nuclear installations--site evaluation, safety of nuclear power plant design, safety of nuclear power plants–quality assurance, safety of nuclear power plants—operation, regulations on radioactive waste management, regulations for the safe transport of radioactive material, Pakistan nuclear safety and radiation protection regulations, etc.
Compliance to PNRA regulations is mandatory for licensees throughout the lifetime of a nuclear installation and radiation facility, and is verified through regulatory inspections carried out on a regular basis by the PNRA. In addition, regulatory guides for the industry are issued from time to time that describe acceptable methodology for implementation of requirements, whereas regulations on decommissioning of facilities using radioactive material is in advanced stage of finalisation. In areas where PNRA regulations are not yet available, latest US Nuclear Regulatory Commission’s regulations are made applicable.
The IAEA-Pakistan Security Cooperation Programme is being implemented effectively, while PNRA officials have assisted IAEA in as many as 67 expert missions to other countries last year alone. PNRA is a member of the IAEA working group on Fukushima nuclear disaster. Also, Pakistan has international cooperation agreements with various countries including China in areas of nuclear safety, is a party to the Nuclear Safety Convention and has participated in several peer review exercises carried out by IAEA and World Association of Nuclear Operators (WANO). Under the umbrella of IAEA, the PNRA is providing expert services to the member states embarking upon nuclear technology.
Indeed, PNRA is now internationally recognised as one of the few credible and independent regulators globally, having necessary capacity and capability as well as supporting infrastructure. Integrity, transparency and independence in decision-making are the core values at PNRA, which is managed by Chairman and Members representing Ministry of Health, Pakistan Environmental Protection Agency (PEPA), Strategic Plans Division (SPD), Pakistan Atomic Energy Commission (PAEC), and independent professionals from science, engineering and medical sectors. A number of measures post-Fukushima have been taken by PNRA towards greater integration in the areas of safety and security through sharing international experiences and expertise, and, at the same time, emergency planning and preparedness has been strengthened at national level.
Focused steps are taken for developing human resource on a constant basis, and PNRA already has competent and certified regulatory staff of over 300 personnel. It has established a National Institute of Safety and Security (Nisas) dedicated to training related to licensing, training, documentation and safety. About 550 officials from PNRA, PAEC and other stakeholder organisations were trained in nuclear safety in 2014, having attended 22 professional courses. Another five training courses were conducted in nuclear security attended by some 117 personnel. In all, 273 PNRA professionals attended related international workshops, seminars and training courses organised by the IAEA.
On-going projects under the Public Sector Development Programme (PSDP) include establishment of National Dosimetry and Protection Level Calibration Laboratory, Safety Analysis Centre to provide regulatory support for indigenisation of nuclear power plants, and National Programme on Environmental Monitoring Radioactivity Surveillance, while National Dosimetry and Protection Level Calibration Laboratory has recently gone into operation. A National Nuclear Security Action Plan has also been implemented recently. The Whole-Body Counting Laboratory at Islamabad is operational for assessment of internal contamination. All radiation facilities using radioactive material are licensed by PNRA. Total licensing net of PNRA consists of about 3,500 medical centres, industrial users, research institutes, x-ray and other facilities.
Based on the evaluation of pre-defined strategic performance indicators, overall performance of the PNRA is assessed as satisfactory during the last ten years. These areas include, priority-wise: (i) ensures that acceptable level of safety is being maintained by licensees, (ii) ensures that regulations and guidelines are in place and duly implemented to prevent degradation of safety, and to promote safety improvements, (iii) performs in functions in a timely and cost-effective manner ensuring confidence of the operating organisations and that of the government and public in general. As a result of performance of PNRA, Pakistan is currently ranked 22 out of 25 countries on the global Nuclear Materials Safety Index in terms of safety and security.
The writer is Chairman of the Institution of Engineers, Pakistan
