2024 Boiler, pressure vessel and refrigeration code adoption consultation

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Introduction

From Wednesday, February 7 through Friday, March 8, 2024, Technical Safety BC engaged with boiler, pressure vessel, and refrigeration (BPVR) contractors, manufacturers, certificate holders, owners, industry associations, and other interested groups on the following:

• using the latest editions of the boiler and pressure vessel codes in BC, including CSA B51:24; and
• using the latest editions of the refrigeration codes in BC, including CSA B52:23.

This report summarizes the feedback we heard throughout the consultation.

Outreach and Participation

Before the code adoption consultation, we notified BPVR clients when CSA's public review process was open for comments on the codes:

• June 27, 2023: we notified refrigeration clients to provide feedback to CSA during the B52:23 public review process.
• September 14, 2023: we notified BPVR clients to provide feedback to CSA during the B51:24 public review process.

When we launched the code adoption consultation, we notified all BPVR clients by email. Additionally, we posted consultation notices on Facebook, Twitter, and our website. In total, 123 participants provided feedback in this consultation, including some feedback we received after the consultation closing date.

Note: This table counts the number of participants in each feedback method, regardless of whether they participated through multiple feedback methods.

Participant Types

We invited all BPVR contacts to participate in this consultation, primarily targeting BPVR contractors and manufacturers, as they would be most impacted by the code changes. In total, 30 BPVR contractors and manufacturers (representing about 2% of all BPVR contractors and manufacturers) participated in this consultation. This table shows the number of participants who provided feedback during the consultation.

Note: This table counts each participant in one participant type category, regardless of whether they fall into multiple categories or have participated through multiple feedback methods.
“Other” includes equipment suppliers, distributors, manufacturers of related products, consultants, inspectors, engineers and engineer supervisors, retirees, and participants who did not specify their participant type.

Feedback

We invited participants to read about high impact code changes on our Engage site and complete an online survey. The survey asked participants when they could meet the requirements of the applicable codes, and their overall support for adopting the new editions of the codes.

Boiler and pressure vessel codes

72% support for adoption

(based on 90 survey participants)

Participants commented on the code adoption and consultation process:

• more consultation is needed on new code requirements, specifically post-weld heat treatment and carbon steel impact testing; and
• more clarification is needed on whether to follow ASME BPVC codes or CSA B51 code where there are conflicts.

37% could meet code requirements within 6 months

(based on 90 survey participants)

Participants commented on the costs associated with meeting the new code requirements, including:

• manufacturing requirements for post-weld heat treatment, material impact testing, and pneumatic testing;
• purchasing code books;
• requalifying to new procedures; and
• replacing equipment (if applicable for these code changes).

Refrigeration codes

69% support for adoption

(based on 54 survey participants)

Participants made the following comments regarding the code adoption and consultation process:

• TSBC's consultation does not allow for input on the code from industry and code users.
• CSA B52:23 code needs to be adopted promptly to allow manufacturers to use climate-friendly A2L refrigerant and ensure the supply chain of air conditioning equipment in BC.

69% could meet code requirements within 6 months

(based on 55 survey participants)

Participants commented on the costs associated with meeting the code requirements, including:

• manufacturing requirements for post-weld heat treatment and pneumatic testing; and
• replacing equipment (if applicable for these code changes).

Next Steps

After a code adoption consultation, TSBC reviews and considers the feedback we receive. We then recommend to the Province of BC whether to adopt the codes and make the proposed changes to the Power Engineers, Boiler, Pressure Vessel and Refrigeration Safety Regulation. We will provide an update to the boiler, pressure vessel, and refrigeration industry on the outcomes of this consultation and the effective date of any new codes.

Canadian Standards Association (CSA) publishes codes for designing, manufacturing, installing, operating, and maintaining pressure equipment, including CSA B51 Boiler, pressure vessel, and pressure piping code.

Currently, the 2014 edition is used in BC. We are proposing to update the PEBPVRSR to use the newest edition, CSA B51:24, to be published in Spring 2024.

The 2024 edition of CSA B51 has been reorganized into a lifecycle format. This edition incorporates safety improvements that were developed as a result of recent risks and incidents. Technical Safety BC notified the boiler and pressure vessel industry when CSA held its public review on the CSA B51:24 in September 2023.

The major changes include:

New design requirements

• Blowoff vessels. New definitions for blowoff vessel and blowdown separator were included. Additionally, designers of blowoff vessels connected to superheated steam sources must follow a new clause for design guidance when connecting to superheated steam sources. These changes are intended to make it easier to comply with local health and safety regulations.
• Cold-stretched pressure vessels (from CSA B51:19). Designers and manufacturers of pressure vessels using cold-stretch technology must follow Annex K. Cold-stretched pressure vessels are often used for cryogenic storage.

New requirements for boilers and high energy piping systems

• Boilers and high energy piping systems in creep fatigue and cyclic service (from CSA B51:19 and CSA B51:24).Designers and owners of boilers and high energy piping systems in creep fatigue and cyclic service must follow new requirements. These include:
  1. developing and registering a lifetime in-service monitoring program and specific limits or conditions to ensure the equipment can be properly monitored during operation;
  2. establishing equipment integrity plans and maintaining appropriate equipment records; and
  3. having engineering assessments completed to identify any special risks.

These new requirements were developed as a result of risks and failures observed in industry that could have caused significant property damage, injuries, or fatalities. These types of equipment and service are often seen in large industrial settings, such as biomass boilers, pulp mills, and power generation.
Note: New informative Annexes L and Q support these requirements.

Expanded requirements

• Anhydrous ammonia service pressure vessels. The 2024 edition of CSA B51 expands requirements for post-weld heat treatment when manufacturing pressure vessels to include vessels in ammonia service. The previous edition excluded vessels in ammonia refrigeration service. Changes in CSA B52:23 also clarify that these requirements apply to vessels in ammonia refrigeration service.
• Carbon steel impact testing requirements. The 2024 edition of CSA B51 expands requirements for impact testing of carbon steel pipe, fittings, and forgings. Manufacturers must ensure carbon steel components meet these additional toughness requirements. These requirements are a result of industry reports of failures during testing due to unacceptably low toughness of some carbon steel materials.
• Pneumatic testing of pressure vessels and piping systems. The 2024 edition of the code expands requirements for pneumatic testing. These requirements provide appropriate safety precautions to manage the risks of potential failure. Additionally, a new informative Annex M provides requirements on how to safely evaluate and perform pneumatic testing on pressure vessels and piping systems. This new annex is a result of reports of “near miss” incidents and risks due to energy accumulated during the test.

Historical boilers

Additional guidance and reference material

Reorganized clauses and parts

• Lifecycle phases of pressure equipment. The 2024 edition of the code is now organized by lifecycle phases of pressure equipment. This change helps users of the code to easily find requirements related to their work.
• Changes to the former Part 2 and Part 3 of CSA B51:14. Part 2 of CSA B51:14 is now included in CSA HGV 2 and CSA NGV 2 and is no longer in the 2024 edition of CSA B51. The requirements of Part 3 in CSA B51:14 have been incorporated into the main body of the code in the 2024 edition of CSA B51.

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Canadian Standards Association (CSA) publishes codes for designing, manufacturing, installing, operating, and maintaining pressure equipment, including CSA B52:23 Mechanical refrigeration code.

Currently, the CSA B52:13 is used in BC. We are proposing to update the PEBPVRSR to use the newest edition, CSA B52:23.

The 2023 edition of the CSA B52 includes new refrigerant classification types, and changes made as a result of learning from recent risks and incidents. Technical Safety BC notified the boiler and pressure vessel industry when CSA held its public review on the CSA B52:23 in June 2023.

Review a read-only version of CSA B52:23 Mechanical refrigeration code on the CSA Communities website (login required – available until March 5, 2024)

The major changes include:

A2L and B2L refrigerant groups

• Introduction of A2L and B2L refrigerant groups. The 2023 edition introduces two new refrigerant groups: A2L (non-toxic, mildly flammable) and B2L (toxic, mildly flammable). Many environmentally friendly refrigerants are in the A2L group. This change aligns with ASHRAE’s refrigerant classifications.
• Installation requirements related to A2L and B2L refrigerants. Installers of refrigeration systems using A2L refrigerants must follow new installation requirements based on the type of refrigerant, occupancy, and leakage probability. Designers, manufacturers, and installers of machinery rooms must follow new installation requirements that are tailored to the specific needs and risks associated with A2L and B2L refrigerant groups. Many of these new requirements are less restrictive than the current applicable requirements, which were designed for A2 and B2 refrigerant groups. This also supports BC’s shift to environmentally friendly refrigerants.
• Design registration no longer required for Canadian-certified refrigeration systems using A1 or A2L refrigerants up to 500 kW.Designers, manufacturers, installers, and owners of refrigeration systems no longer need to register designs for refrigeration systems that meet the following criteria:
  1. certified by a certification body accredited by Standards Council of Canada;
  2. total prime mover nameplate rating up to 500 kW capacity; and
  3. using A1 or A2L refrigerant groups.

Currently, refrigeration systems up to 125 kW capacity do not require design registration. This change promotes using certified refrigeration systems and environmentally friendly refrigerants. The threshold for requiring design registration using all other refrigerant groups is still at the 125 kW capacity mark.

New manufacturing requirements for ammonia refrigerant

• New manufacturing requirements for pressure vessels using ammonia as a refrigerant. CSA B51:24 introduces stricter manufacturing requirements for pressure vessels using ammonia as a refrigerant. This change in CSA B52 clarifies when the new requirements in CSA B51 apply.

New requirements for decommissioning

Requirements relating to safety orders

• Removal of the requirement for an emergency discharge line. New and existing refrigeration systems no longer require an emergency discharge system if their relief piping complies with CSA B52:23. Owners of existing systems with an emergency discharge line must meet the requirements of Safety Order SO-BP 2021-02: Emergency discharge line. This change was based on the recommendations developed after the 2017 Fernie Memorial Arena incident investigation. Designers, installers, and owners in BC are already familiar with these requirements, as Technical Safety BC issued a safety order with similar requirements in 2021. Read Safety Order SO-BP-2021-02: Emergency discharge line for details.
• Design and testing of secondary coolant systems (brine). Installers and owners of refrigeration systems using a secondary coolant must address how the system can safely withstand the effects of a refrigerant leak. The 2023 edition of CSA B52 also introduces additional requirements for secondary coolant testing. The goal of this change is to detect early warning signs of over pressurization and prevent ammonia release and is based on the recommendations developed after the 2017 Fernie Memorial Arena incident investigation. Owners and maintenance contractors in BC are already familiar with this change, as Technical Safety BC issued similar requirements in 2021. Read Safety Order SO-BP 2021-01: Secondary Coolant Systems for details.

Air conditioning systems in private residences

New mandatory annexes

Read more about the 2023 edition on the CSA website

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The American Society of Mechanical Engineers (ASME) publishes codes for manufacturing boilers and pressure vessels. According to their agreement with ASME, all organizations that manufacture ASME-certified boilers and pressure vessels must follow the latest edition of codes 6 months after ASME publishes them.

The following ASME code editions have been reviewed and accepted through the newest edition of the CSA B51:24. We would like to update the PEBPVRSR to align with the following codes:

• ASME BPVC.I - 2023 Rules for construction of power boilers
• ASME BPVC.IV - 2023 Rules for construction of heating boilers
• ASME BPVC.VIII.1, .2, .3 - 2023 Rules for construction of pressure vessels, divisions 1, 2, and 3
• ASME BPVC.X - 2023 Fiber-reinforced plastic pressure vessels
• ASME BPVC.XII - 2023 Rules for construction and continued service of transport tanks
• ASME/ANSI PVHO-1 - 2023 Safety standard for pressure vessels for human occupancy

All industry organizations are already using the latest editions of these codes.

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The American Society of Mechanical Engineers (ASME) publishes codes for manufacturing, operating, and maintaining piping, controls, and safety devices for boilers and pressure vessels.

The following ASME code editions have been reviewed and accepted through the newest edition of the CSA B51:24. We would like to update the PEBPVRSR to align with the following codes:

• ASME B31.1 - 2022 Power piping
• ASME B31.3 - 2022 Process piping
• ASME B31.5 - 2022 Refrigeration piping and heat transfer components
• ASME B31.9 - 2020 Building services piping
• ASME CSD-1 - 2021 Controls and safety devices for automatically fired boilers

All industry organizations are already using the latest editions of these codes.

Read more about the 2022 edition of ASME B31.1 in ANSI’s blogpost

Read more about the 2022 edition of ASME B31.3 in ANSI’s blogpost

Read more about the 2022 edition of ASME B31.5 the ASME website

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There are other boiler, pressure vessel, and refrigeration codes that apply to specific industries and equipment regulated under PEBPVRSR.

We would like to update the PEBPVRSR to align with using the following codes:

• ANSI CGA G-2.1-2023 Requirements for the storage and handling of anhydrous ammonia
• NFPA 85 Boiler and combustion systems hazards code (2019)

Note: The 2014 edition of ASME PTC 25 Pressure Relief Devices will remain in use in the PEBPVRSR.

ANSI CGA G-2.1-2023 Requirements for the storage and handling of anhydrous ammonia

American National Standards Institute (ANSI) publishes codes for various types of technical equipment. ANSI CGA G-2.1 applies to ammonia stored in pressure vessels as a gas, mostly used in agricultural settings as a fertilizer. It does not apply to ammonia manufacturing plants, or refrigeration systems that use ammonia as a refrigerant.

Read more about the 2023 edition of ANSI CGA G-2.1 on ANSI’s blogpost: Storage and Handling of Anhydrous Ammonia in CGA G-2.1-2023

NFPA 85 Boiler and combustion systems hazards code (2023)

National Fire Protection Association (NFPA) publishes codes to prevent fires and explosions in technical equipment. NFPA 85 Boiler and combustion systems hazards code covers the design, installation, operation, maintenance and training associated with combustion systems for boilers, pulverized fuel systems, and steam generators.

View a free access version of the 2023 edition of NFPA 85 on the NFPA website (requires login)

Read more about the 2023 edition of NFPA 85 on NFPA’s website

To be removed: Standards of the Tubular Exchanger Manufacturers Association (TEMA)

The Tubular Exchanger Manufacturers Association publishes standards for designing and manufacturing heat exchangers. ASME is the primary code for the construction of pressure vessels and the TEMA standards act as a secondary design code. We plan to remove the direct reference to the TEMA standards in the PEBPVRSR, to clarify their intended use as a secondary design code.

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The National Board of Boiler and Pressure Vessel Inspectors (NBBI) and the American Petroleum Institute (API) publish codes that industry and Technical Safety BC use for inspection, repair, and alteration activities. The oil & gas industry also develop and use the API codes for inspecting their pressure equipment.

We would like to update the PEBPVRSR to align with using the following codes:

• ANSI/NB-23 (2023) National Board inspection code, Parts 1, 2, 3, and 4
• API 510 (2022) Pressure vessel inspection code: in-service inspection, rating, repair, and alteration
• API 570 (2016) Piping inspection code: inspection, repair, alteration and rerating of in-service piping systems

Note: API STD 530 Revision/Edition 7 Calculation of heater-tube thickness in petroleum refineries is already up to date with the 2015 edition in the PEBPVRSR.

These codes also refer to the ASME construction codes.

Read more about the 2023 edition of the ANSI/NB-23 on NBBI’s website

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National or international codes and standards set the requirements for designing, manufacturing, installing, operating, and maintaining technical equipment. Adopting a code into regulation specifies which codes must be used in BC. Technical Safety BC is the delegated authority responsible for administering regulations for technical equipment in BC, such as the PEBPVRSR. These regulations adopt the national codes and standards.

How codes and standards bodies develop new editions of codes and standards

Codes and standards bodies, such as CSA and ASME, develop and publish new editions of codes on a regular cycle. This cycle typically takes several phases:

• Public review. Codes and standards bodies invite input from code users, technical equipment owners, and the public. Input can be about safety improvements, improvements to practices, recommendations from incidents, technological developments, or any other suggestions.
• Committee review. Committees of various industry backgrounds review and consider all the input gathered during public review and vote on changes to the codes and standards.
• Development and publishing. Based on the committee’s review, the codes and standards body revises the code or standard and develops any new clauses and sections. This results in a new edition.

Read more about CSA’s process for developing new editions of codes and standards

Read more about ASME’s process for developing new editions of codes and standards

How Technical Safety BC reviews new editions of codes and standards

As new editions of codes and standards are developed and published, Technical Safety BC reviews the new edition compared to what is currently in force in BC.

• Impact analysis. We work to understand the new edition in context of factors such as technology changes, safety improvements, changes to the practice of regulated work, and socio-economic impacts.
• BC-specific amendments. We consider whether the code needs BC-specific amendments for it to be usable in BC. BC-specific amendments are rare. We would consider why a requirement, especially safety improvements, should only exist in BC, and not apply nationally. Occasionally, amendments may be appropriate to align with BC-specific factors such as existing provincial laws and seismic requirements.

Once we understand the changes and their impacts, and have considered whether any BC-specific amendments may be appropriate, we start to engage our safety partners.

How Technical Safety BC engages industry on code adoption

Engaging with industry partners helps Technical Safety BC understand the potential impacts and outcomes of code changes. Industry partners often include licence and certificate holders, industry associations, and training providers. We may adjust our approach based on the feedback we receive through consultation.

• During code development. We encourage industry to get involved at the code development and public review stage. This way, industry can direct input into the code content. We notified industry when CSA held its public review on the CSA B51:24 and CSA B52:23 in 2023.
• For adopting the code. We consult with industry on adopting new editions of codes for use in BC. We gather feedback on
  1. when industry can meet the requirements of the new code edition;
  2. the positive and negative impacts of the code changes;
  3. the impact of BC-specific amendments, if any; and
  4. whether industry supports adopting the new code edition.

How the Province adopts codes into regulation

Using a variety of expertise and tools—ranging from technical expertise, data analysis, to consultations with industry partners and the public—Technical Safety BC may make a recommendation to the Provincial Ministry to:

• adopt the new edition of the code as is;
• adopt the new edition of the code with any appropriate BC-specific amendments; or
• not adopt the new edition of the code.

The Ministry decides whether to accept our recommendation to adopt the codes. If the new edition of a code is adopted, the Ministry changes the regulations to require the new edition of a code. There may be a transition period in the regulation specifying the date that industry must comply with new requirements.

Learn more about Technical Safety BC’s regulatory framework

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