Vol. 150, No. 9 — May 4, 2016

Registration

SOR/2016-75 April 15, 2016

EXPLOSIVES ACT

Regulations Amending the Explosives Regulations, 2013

P.C. 2016-228 April 15, 2016

His Excellency the Governor General in Council, on the recommendation of the Minister of Natural Resources, pursuant to section 5 (see footnote a) of the Explosives Act (see footnote b), makes the annexed Regulations Amending the Explosives Regulations, 2013.

Regulations Amending the Explosives Regulations, 2013

Amendments

1 Subsection 6(3) of the Explosives Regulations, 2013 (see footnote 1) is amended by adding the following in alphabetical order:

product name means the trade name or part number of an explosive, or both in the case of an explosive that has both a trade name and a part number. (nom de produit)

2 Paragraph 28(b) of the Regulations is replaced by the following:

3 (1) The portion of section 29 of the Regulations before paragraph (a) is replaced by the following:

Application for specified period

29 An applicant for an authorization for a specified period, if the explosive is for use other than at a tour or international competition involving fireworks, must complete, sign and send to the Chief Inspector of Explosives the application form provided by the Department of Natural Resources. The application must include the following information:

(2) Paragraph 29(c) of the Regulations is replaced by the following:

4 The portion of section 30 of the Regulations before paragraph (a) is replaced by the following:

Application for specified period — tour or competition

30 An applicant for an authorization for a specified period, if the explosive is for use at a tour or international competition involving fireworks, must complete, sign and send to the Chief Inspector of Explosives the application form provided by the Department of Natural Resources. The application must include the following information:

5 (1) Paragraph 45(c) of the Regulations is replaced by the following:

(2) The portion of item 1 of the table to section 45 of the Regulations in column 1 is replaced by the following:

6 Paragraph 46(1)(f) of the Regulations is replaced by the following:

7 (1) Paragraph 47(2)(b) of the Regulations is replaced by the following:

(2) Paragraphs 47(5)(a) and (b) of the Regulations are replaced by the following:

(3) Section 47 of the Regulations is amended by adding the following after subsection (9):

Exception

(10) Subsections (7) to (9) do not apply to a holder that reports the importation of explosives by electronic means in accordance with section 4 of the Reporting of Imported Goods Regulations.

8 Paragraph 48(e) of the Regulations is replaced by the following:

9 (1) Paragraphs 49(1)(a) and (b) of the Regulations are replaced by the following:

(2) Section 49 of the Regulations is amended by adding the following after subsection (4):

Exception

(5) Subsections (2) to (4) do not apply to a holder that reports the importation of explosives by electronic means in accordance with section 4 of the Reporting of Imported Goods Regulations.

10 (1) Paragraph 74(1)(b) of the Regulations is replaced by the following:

(2) Paragraphs 74(3)(a) and (b) of the Regulations are replaced by the following:

11 The definition division 2 factory licence in section 106 of the Regulations is replaced by the following:

division 2 factory licence means a licence that is issued by the Minister under paragraph 7(1)(a) of the Explosives Act authorizing a manufacturing activity referred to in section 53 at a workplace. (licence de fabrique de la section 2)

12 Paragraphs 117(2)(a) and (b) of the Regulations are replaced by the following:

13 The definitions user magazine licence and user magazine zone licence in section 144 of the Regulations are replaced by the following:

user magazine licence means a licence that is issued under paragraph 7(1)(a) of the Explosives Act and authorizes the storage of explosives by a person who has acquired them for use or conveyance. (licence de poudriére (utilisateur))

user magazine zone licence means a licence that is issued under paragraph 7(1)(a) of the Explosives Act and authorizes the storage of type E or I explosives by a person who has acquired them for use. It also authorizes the holder to move the storage of explosives from one site to another. (licence de poudrière (utilisateur-zone))

14 (1) Subsection 153(1) of the Regulations is replaced by the following:

Unlocked magazine

153 (1) A magazine must be *attended in person when it is unlocked.

(2) Paragraphs 153(2)(d) and (e) of the Regulations are replaced by the following:

15 Subsection 158(2) of the Regulations is replaced by the following:

Attendance of explosives

(2) Any explosives that are not put into another magazine must be *attended in person.

16 (1) The portion of subsection 162(1) of the Regulations before paragraph (a) is replaced by the following:

Notice of change of site

162 (1) When the storage of explosives that is authorized by a user magazine zone licence is moved to a new site, within 24 hours after the move the holder of the licence must complete, sign and send a notice of change of site, in the form provided by the Department of Natural Resources, to the Minister, to the police force in the locality of the previous site and to the police force in the locality of the new site. The notice must be dated and include the following information:

(2) Paragraph 162(1)(d) of the Regulations is replaced by the following:

(3) Paragraphs 162(1)(e) to (g) of the French version of the Regulations are replaced by the following:

(4) The portion of paragraph 162(1)(h) of the Regulations before subparagraph (ii) is replaced by the following:

17 Section 163 of the French version of the Regulations is replaced by the following:

Copie de la licence et de l’avis

163 Le titulaire d’une licence de poudrière (utilisateur-zone) veille à ce qu’une copie de la licence et une copie de l’avis de changement de site soient affichées dans chaque poudrière.

18 (1) Paragraph 170(1)(b) of the Regulations is replaced by the following:

(2) Section 170 of the Regulations is amended by adding the following after subsection (2):

Exception

(3) Subsections (1) and (2) do not apply to a holder that reports the importation of explosives by electronic means in accordance with section 4 of the Reporting of Imported Goods Regulations.

19 Subsection 176(1) of the Regulations is replaced by the following:

Approval letter or equivalent document

176 (1) An individual who applies for a licence, permit or certificate or for the renewal of one must include with their application proof that they have an approval letter or equivalent document.

20 Subsection 177(1) of the Regulations is replaced by the following:

Issuance of document

177 (1) If the applicant’s criminal record check does not reveal any of the circumstances set out in subsection (2) or the applicant has an equivalent document, the Minister may issue or renew the licence, permit or certificate.

21 (1) Subparagraphs 190(1)(c)(i) and (ii) of the Regulations are replaced by the following:

(2) Subparagraph 190(1)(c)(iv) of the Regulations is replaced by the following:

22 Paragraph 195(1)(a) of the Regulations is replaced by the following:

23 (1) The definition user in section 205 of the Regulations is replaced by the following:

user means a person, or a law enforcement agency, that acquires military explosives or law enforcement explosives for use. (utilisateur)

(2) Section 205 of the Regulations is amended by adding the following in alphabetical order:

law enforcement agency means a police force, the Correctional Service of Canada or the Canada Border Services Agency. (organisme d’application de la loi)

24 Section 211 of the Regulations is replaced by the following:

Acquisition — exception

211 (1) Despite subsection 210(1), a law enforcement agency may acquire and store military explosives, hazard category PE 3 or PE 4, or law enforcement explosives, hazard category PE 3 or PE 4, even if the agency is unlicensed. A law enforcement agency that acquires such explosives must comply with subsection (2).

Storage — exception

(2) The explosives must be stored away from flammable substances and sources of ignition, in a manner that prevents them from being stolen and ensures that access to them is limited to people authorized by the law enforcement agency.

25 The definition user in section 213 of the Regulations is replaced by the following:

user means a person who acquires *industrial explosives for use or conveyance. (utilisateur)

26 The heading of Part 12 of the Regulations is replaced by the following:

Blank Cartridges for Tools

27 Section 238 of the Regulations is replaced by the following:

Overview

238 This Part authorizes the acquisition, storage and sale of special purpose explosives. Division 1 sets out the rules for sellers and users of low-hazard special purpose explosives (type S.1: for example, highway flares, personal distress flares, bird scaring cartridges and fire extinguisher cartridges). Division 2 sets out the rules for sellers and users of high-hazard special purpose explosives (type S.2: for example, reactive targets, explosive bolts and cable cutters). Division 3 deals with the destruction of expired marine flares (type S.1 or S.2).

28 The English version of paragraph 341(3)(a) of the Regulations is replaced by the following:

29 Section 344 of the Regulations is replaced by the following:

Non-aerial fireworks

344 (1) Non-aerial fireworks (flares, fountains, snakes, ground spinners, strobe pots, wheels and ground whistles) may be displayed for sale only if they are

Aerial fireworks

(2) Aerial fireworks may be displayed for sale only if they are

Non-aerial and aerial fireworks

(3) Non-aerial and aerial fireworks may be displayed for sale only if they are displayed in accordance with section 346.

30 Subsection 358(1) of the Regulations is replaced by the following:

Instructions

358 (1) When using consumer fireworks, a user must follow the instructions of the person who obtained their authorization. If there are no such instructions, the fireworks must not be used.

31 The table to Part 16 of the Regulations is replaced by the following:

TABLE

IMAGES

USING CONSUMER FIREWORKS

UTILISATION DE PIÈCES PYROTECHNIQUES À L’USAGE DES CONSOMMATEURS

 

Part 16 of the Explosives Regulations, 2013 provides additional safety rules for consumer fireworks.

La partie 16 du Règlement sur les explosifs prévoit des règles de sécurité additionnelles.

This image illustrates the rule that follows.

PEOPLE UNDER 18 YEARS OLD who use fireworks must be supervised by an adult.

LES PERSONNES DE MOINS DE 18 ANS qui utilisent des pièces pyrotechniques doivent le faire sous la surpervision d’un adulte.

This image illustrates the rule that follows.

CHOOSE a wide, clear site away from all obstacles. Refer to the safety instructions on the fireworks label for minimum distances from spectators.

CHOISIR un emplacement spacieux, bien dégagé et loin de tout obstacle. Consulter les consignes de sécurité sur l’étiquette des pièces pyrotechniques pour connaître les distances minimales entre les pièces et les spectateurs.

This image illustrates the rule that follows.

DO NOT FIRE IN WINDY CONDITIONS.

NE PAS METTRE À FEU LES PIÈCES PYROTECHNIQUES PAR TEMPS VENTEUX.

This image illustrates the rule that follows.

READ all instructions on the fireworks. PLAN the order of firing before you begin.

LIRE toutes les instructions sur les pièces pyrotechniques. DÉTERMINER l’ordre de mise à feu avant de débuter.

This image illustrates the rule that follows.

USE A GOOD FIRING BASE such as a pail filled with earth or sand.

UTILISER UNE BONNE BASE DE MISE À FEU, tel un seau, remplie de terre ou de sable.

This image illustrates the rule that follows.

BURY fireworks that do not have a base HALFWAY in a container of earth or sand (such as a pail, box or wheelbarrow) unless the label on the firework indicates otherwise. Set them at a 10-degree angle, pointing away from people.

ENFOUIR À MOITIÉ les pièces pyrotechniques qui ne possèdent pas de base dans un contenant (par exemple, un seau, une boîte ou une brouette) renfermant du sable ou de la terre, sauf indication contraire sur l’étiquette. Les installer à un angle de 10 degrés et les pointer en direction opposée des spectateurs.

This image illustrates the rule that follows.

NEVER try to light a firework or hold a lit firework in your hand unless the instructions of the person who obtained its authorization indicate that they are designed to be hand-held.

NE JAMAIS tenir dans la main des pièces pyrotechniques qui sont allumées ou que vous tentez d’allumer, sauf si les instructions de la personne qui a obtenu l’autorisation des pièces indiquent qu’elles sont conçues pour être tenues dans la main.

This image illustrates the rule that follows.

LIGHT CAREFULLY: Always light the fuse at its tip.

ALLUMER PRUDEMMENT : toujours allumer la mèche à l’extrémité.

This image illustrates the rule that follows.

KEEP WATER NEARBY: Dispose of used fireworks (including debris) in a pail of water.

GARDER DE L’EAU À PORTÉE DE LA MAIN : mettre les pièces pyrotechniques utilisées et les débris dans un seau d’eau.

This image illustrates the rule that follows.

WAIT at least 30 minutes before approaching a firework that did not go off. NEVER try to RELIGHT a firework that did not go off. NEVER try to fix a firework that is defective.

ATTENDRE au moins 30 minutes avant de s’approcher d’une pièce pyrotechnique dont la mise à feu n’a pas fonctionné. NE JAMAIS tenter de RALLUMER une pièce pyrotechnique dont la mise à feu n’a pas fonctionné. NE JAMAIS tenter de réparer une pièce pyrotechnique qui est défectueuse.

This image illustrates the rule that follows.

KEEP fireworks in a cool, dry, ventilated place, out of the reach of children.

CONSERVER les pièces pyrotechniques dans un endroit frais, sec, aéré et hors de la portée des enfants.

This image illustrates the rule that follows.

IT IS RECOMMENDED that safety glasses be worn.

IL EST RECOMMANDÉ de porter des lunettes de sécurité.

32 Subsection 384(1) of the Regulations is replaced by the following:

Instructions

384 (1) A user must, when using special effect pyrotechnics, follow the instructions of the person who obtained their authorization.

33 Subsection 404(1) of the Regulations is replaced by the following:

Danger zone

404 (1) A danger zone must be established, taking into account the properties of the special effect pyrotechnics to be used, how they will be positioned, the instructions of the person who obtained their authorization, the weather conditions if the pyrotechnic event is to be held outdoors and the likelihood of harm to people or property resulting from the use of the pyrotechnics.

34 Subsection 406(1) of the Regulations is replaced by the following:

Instructions

406 (1) When setting up and firing the special effect pyrotechnics, the instructions of the person who obtained their authorization must be followed.

35 Subsection 434(5) of the Regulations is replaced by the following:

Handling

(5) Only a person who holds a fireworks operator certificate (display assistant), fireworks operator certificate (display supervisor), fireworks operator certificate (display supervisor with endorsement) or fireworks operator certificate (display visitor) may handle fireworks in the danger zone or fallout zone.

No smoking

(6) Smoking must be prohibited in the danger zone.

36 The English version of subsection 437(6) of the Regulations is replaced by the following:

Access

(6) After the display, only people designated to do a search by the display supervisor in charge may enter or be in the fallout zone until the display supervisor in charge declares the zone to be free of explosives.

37 The Regulations are amended by replacing “power device cartridges” with “blank cartridges for tools”, with any necessary modifications, in the following provisions:

38 The Regulations are amended by replacing “Minister of Natural Resources” with “Minister” in the following provisions:

39 The Regulations are amended by replacing “trade name” with “*product name” in the following provisions:

40 The Regulations are amended by replacing “Quantity Distance Principles — User’s Manual, 1995, published by the Explosives Regulatory Division, Department of Natural Resources, with “National Standard of Canada Standard CAN/BNQ 2910–510/2015 entitled Explosives — Quantity Distances as amended from time to time”, in the following provisions:

41 The Regulations are amended by replacing “Storage Standards for Industrial Explosives, May 2001, published by the Explosives Regulatory Division, Department of Natural Resources” with “National Standard of Canada Standard CAN/BNQ 2910–500/2015 entitled Explosives — Magazines for Industrial Explosives, as amended from time to time” in the following provisions:

42 Paragraph 162(2)(c) of the English version of the Regulations is amended by replacing “Quantity Distance Principles — User’s Manual, 1995, published by the Explosives Regulatory Division, Department of Natural Resources” with “National Standard of Canada Standard CAN/BNQ 2910–510/2015 entitled Explosives — Quantity Distances, as amended from time to time”.

43 Paragraph 162(2)(c) of the French version of the Regulations is amended by replacing “le document intitulé Principes de quantités de sécurité — Manuel de l’utilisateur, publié en 1995 par la Division de la réglementation des explosifs du ministère de Ressources naturelles” with “ la norme nationale du Canada CAN/BNQ 2910–510/2015 intitulée Explosifs — Distances par rapport à la quantité d’explosifs, avec ses modifications successives”.

44 The French version of the Regulations is amended by replacing “ministre des Ressources naturelles” with “ministre” in the following provisions:

45 The French version of the Regulations is amended by replacing “d’une licence” with “d’une licence, d’un permis ou d’un certificat” in the following provisions:

46 The English version of the Regulations is amended by replacing “power device cartridges” with “blank cartridges for tools” in the following provisions:

Coming into Force

47 These Regulations come into force on the day on which they are registered.

REGULATORY IMPACT ANALYSIS STATEMENT

(This statement is not part of the Regulations.)

Issues

Since 1995, explosives licences, permits, and certificates have been issued to businesses based on their compliance with two key standards: the 1995 Quantity Distance Principles — User’s Manual and the Storage Standards for Industrial Explosives, May 2001. These standards are what applicants require as reference documents to obtain a licence, permit or certificate.

Both standards were updated in 2015 to reflect already existing industry best practices for the safety and security of explosives storage. The Explosives Regulations, 2013, (the Regulations) are being updated to reference these two new standards.

At the same time, Natural Resources Canada (NRCan) is making a few minor, technical changes to the Regulations based on feedback received from stakeholders during the process of implementing the Regulations.

Background

Canada’s Explosives Act and Regulations control the manufacture, testing, acquisition, possession, sale, storage, transportation, importation and exportation of explosives and the use of fireworks. The term “explosive” covers a wide variety of products, including blasting explosives used for mining and construction, fireworks, small arms cartridges and many other specialized items. In 2013, Natural Resources Canada fundamentally revised the Explosives Regulations, C.R.C., c. 599 to reflect modern technologies and practices in the explosives industry, and to address provisions not in force of the Public Safety Act, 2002.

These regulatory changes (developed over a 10-year period) were made under amendments to the Explosives Act introduced by the Public Safety Act, 2002, which provided authorities for strengthened controls and provisions for import/export/in-transit of explosives, restricted components and security screening of persons having access to high hazard explosives. The Regulations came into force on February 1, 2014, with some provisions entering into force on February 1, 2015, and February 1, 2016.

The amended Regulations reflect modern practices in the explosives industry; removed duplications such as the elimination of regulatory requirements related to transport that are now covered by Transport Canada’s Transportation of Dangerous Goods Regulations; reduced unnecessary administrative burden on industry; and strengthened controls for known security gaps/risks. However, there are a number of minor regulatory amendments that are outstanding and need to be addressed, namely it is necessary to incorporate new versions of the two standards that are referenced in the Regulations.

The Quantity Distance Principles — User’s Manual sets out required minimum distances from explosives sites and vulnerable places defined as any building where people live, work or assemble in addition to public roads, railways, pipelines and energy transmission lines. Incorporating the new standard into the Regulations will ensure that appropriate minimum safety distances are observed in order to minimize injuries and damage to property in the event of accidental initiation of explosives.

The Storage Standards for Industrial Explosives, May 2001, which identifies minimum safety requirements for construction design for magazines (i.e. how the walls are constructed, how the door is secured) was found to have design flaws or deficiencies, which posed a risk to manufacturers and vendors in private industry. A new standard has been developed for well-ventilated magazines so that they are resistant to theft, weather and fire. For example, the new standard incorporates the use of non-sparking materials in order to minimize the likelihood of an accidental initiation. The new standard also incorporates design features, such as robust walls and doors to deter theft and minimize projectiles in the event of an accidental explosion.

Changes to the Quantity Distance Principles — User’s Manual and Storage Standards for Industrial Explosives, May 2001 already conform with industry best practices.

Objectives

With the Regulations now in force, NRCan is proceeding with a series of regulatory amendments, which

Description

Regulatory amendments
1. Incorporated standards

The standards (Quantity Distance Principles — User’s Manual and Storage Standards for Industrial Explosives, May 2001) are used by applicants applying for a factory or magazine licence in the blasting, mining, quarrying, construction, oil extraction and fireworks industries and sectors. Updating the standards was required, as new research and/or incidents or accidents demonstrated that the existing standards could be improved to provide better safety and security of explosives. Stakeholders were fully involved with the development of both standards in order to ensure that they were clear, comprehensive and that they facilitated regulatory compliance.

NRCan’s Explosives Safety and Security Branch worked with the Bureau de normalisation du Quebec (BNQ), through a Standards Council of Canada (SCC) process, to update and issue the two standards regarding the storage of high-hazard industrial explosives and quantity distance principles.

The Quantity Distance Principles — User’s Manual was updated based on new scientific knowledge of modern explosives. It prescribes minimum safety distances to minimize damage in case of an accidental initiation. Storage distances were modified to reflect upcoming changes to North Atlantic Treaty Organization (NATO) tables (i.e. calculations of how far explosives must be stored from neighboring infrastructure to minimize the risk associated with an accidental explosion). Concepts such as containment barricades (i.e. physical barriers to limit the damage associated with an accidental explosion); exposed site (i.e. a site that would be hit by debris in the event of an explosion); and picking areas (i.e. areas for gathering explosives for packaging) are now defined in the new standard.

The Storage Standards for Industrial Explosives, May 2001 was updated to better define design options that were proven to be more efficient at preventing theft than magazine types previously on the market. Specifically, NRCan worked with stakeholders to address a shortcoming with the Storage Standards for Industrial Explosives, May 2001 by developing an enhanced, secured sliding and/or double door to suit the larger openings, which accommodates traditional mobile materials-handling equipment used by explosives manufacturers or vendors. The new door design contributed to the hardening of the magazine container against criminals using modern power tools. This raised and improved security against attempted theft, thus closing a regulatory gap and permitting additional response time by authorities.

2. Observations and experiences of stakeholders with the Regulations to date

During the implementation of the Regulations, some comments and observations were received from stakeholders on their experience with the Regulations to date. The regulatory amendments will address these comments and provide more flexibility to regulated entities without impacting safety or security. Examples of changes based on comments and observations from stakeholders include the following:

Specifically, the requirement to print the full classification on packages is eliminated for seven of the nine classes of explosives. Two classes (type F - fireworks and type S - special purpose explosives) still require that the type classification be printed on the package for safety reasons to distinguish between explosives that are subject to sales restrictions and those that are not.

3. Typographical Errors

“One-for-One” Rule

The proposal is an “OUT” under the Rule as it would result in an annualized savings of $2,104 to industry through the elimination of duplicate reporting requirements. Currently, explosives importers are required to report the same information to both the CBSA and NRCan. With the changes, NRCan will no longer require importers to submit Importer’s Transaction Report F04-02 and instead use the data reported to CBSA if the importer is submitting the information electronically, so that the importer does not have to report twice. The savings are calculated based on an estimate of 20 minutes required to fill out the report by a clerk, multiplied by the average of 350 import permits issued by NRCan per year. It was assumed there are 350 businesses each making one application per year. Of these 350 businesses, 175 were identified as small businesses. The estimated cost savings calculations have been confirmed by a sampling of small, medium and large businesses.

Small business lens

The small business lens does not apply to the proposal, as it does not impose any costs on small business. Some small businesses were part of the standards consultation process. In addition, the reduction of duplicate reporting requirements will also benefit approximately 175 small businesses.

Consultation

The coming into force of the Regulations, which was developed through close consultation with various industry stakeholder groups over a number of years, had strong support and was eagerly anticipated. Since the Regulations were implemented, through continued consultations with our industry stakeholders, NRCan has received numerous positive comments on the regulatory compliance efficiency and the reduction of burden that the regulatory amendments delivered to industry. The same industry stakeholder groups were also actively involved with updating the Quantity Distance Principles — User’s Manual and the Storage Standards for Industrial Explosives, May 2001, and they have provided concurrence for their issuance as national standards. In addition, the other minor amendments were driven by stakeholders as a result of comments made during the implementation of the Regulations. Consultations with stakeholder groups take place on an ongoing basis, as NRCan representatives attend annual meetings of the explosives associations.

Rationale

While the changes are predominantly administrative in nature, Canadians, in general, will be safer due to:

There are benefits to stakeholders, as the new standards, which were updated through a Standards Council of Canada process, will be made available free of charge on the NRCan Web site. There is no cost to the Government, as both standards were previously updated and their implementation is based on amendments to the Regulations to conduct licensing activities.

There is no cost to businesses as both updated standards reflect best practices already adopted by the industry.

Implementation, enforcement and service standards

Current enforcement and service standards would remain in force. For enforcement, licence holders are inspected at intervals determined by their risk profile (i.e. type of stored explosives, compliance history etc.). Service standards for explosives licence applications are available at: http://www.nrcan.gc.ca/explosives/acts-regulations/13840.

Contact

Jean-Luc Arpin
Director and Chief Inspector of Explosives
Explosives Regulatory Division
Minerals and Metals Sector (MMS)
Natural Resources Canada (NRCan)
Telephone: 343-292-8731
Cell phone: 613-355-1291
Email: jean-luc.arpin@canada.ca