Contingency panning for oi spis on water Good practice guideines for the deveopment of an effective spi response capabiity
The goba oi and gas industry association for environmenta and socia issues 5th Foor, 209 215 Backfriars Road, London SE1 8NL, United Kingdom Teephone: +44 (0)20 7633 2388 Facsimie: +44 (0)20 7633 2389 E-mai: info@ipieca.org Internet: www.ipieca.org Internationa Association of Oi & Gas Producers London office 5th Foor, 209 215 Backfriars Road, London SE1 8NL, United Kingdom Teephone: +44 (0)20 7633 0272 Facsimie: +44 (0)20 7633 2350 E-mai: reception@ogp.org.uk Internet: www.ogp.org.uk Brusses office Bouevard du Souverain 165, 4th Foor, B-1160 Brusses, Begium Teephone: +32 (0)2 566 9150 Facsimie: +32 (0)2 566 9159 E-mai: reception@ogp.org.uk Internet: www.ogp.org.uk OGP Report Number 519 Date of pubication: January 2015 IPIECA-OGP 2015 A rights reserved. No part of this pubication may be reproduced, stored in a retrieva system, or transmitted in any form or by any means, eectronic, mechanica, photocopying, recording or otherwise, without the prior consent of IPIECA. Discaimer Whist every effort has been made to ensure the accuracy of the information contained in this pubication, neither IPIECA, OGP nor any of their members past, present or future warrants its accuracy or wi, regardess of its or their negigence, assume iabiity for any foreseeabe or unforeseeabe use made of this pubication. Consequenty, such use is at the recipient s own risk on the basis that any use by the recipient constitutes agreement to the terms of this discaimer. The information contained in this pubication does not purport to constitute professiona advice from the various content contributors and neither IPIECA, OGP nor its members accept any responsibiity whatsoever for the consequences of the use or misuse of such documentation. This document may provide guidance suppementa to the requirements of oca egisation. However, nothing herein is intended to repace, amend, supersede or otherwise depart from such requirements. In the event of any confict or contradiction between the provisions of this document and oca egisation, appicabe aws sha prevai.
Contingency panning for oi spis on water Good practice guideines for the deveopment of an effective spi response capabiity
IPIECA OGP Preface This pubication is part of the IPIECA-OGP Good Practice Guide Series which summarizes current views on good practice for a range of oi spi preparedness and response topics. The series aims to hep aign industry practices and activities, inform stakehoders, and serve as a communication too to promote awareness and education. The series updates and repaces the we-estabished IPIECA Oi Spi Report Series pubished between 1990 and 2008. It covers topics that are broady appicabe both to exporation and production, as we as shipping and transportation activities. The revisions are being undertaken by the OGP-IPIECA Oi Spi Response Joint Industry Project (JIP). The JIP was estabished in 2011 to impement earning opportunities in respect of oi spi preparedness and response foowing the Apri 2010 we contro incident in the Guf of Mexico. The origina IPIECA Report Series wi be progressivey withdrawn upon pubication of the various tites in this new Good Practice Guide Series during 2014 2015. Note on good practice Good practice in the context of the JIP is a statement of internationay-recognized guideines, practices and procedures that wi enabe the oi and gas industry to deiver acceptabe heath, safety and environmenta performance. Good practice for a particuar subject wi change over time in the ight of advances in technoogy, practica experience and scientific understanding, as we as changes in the poitica and socia environment. 2
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Contents Preface 2 Introduction 4 The contingency panning process 5 Tiered preparedness and response 6 The reguatory framework 8 Internationa conventions and agreements 8 Regiona and binationa agreements 9 Nationa and oca egisation and reguations 10 Environmenta and cutura conventions 10 and agreements Stakehoder engagement 11 Oi spi panning scenario deveopment 13 Hazardous event identification and characterization 14 Likeihood 15 Reease voume and discharge rate 15 Oi type and behaviour of spied oi 15 Event ocation and prevaiing conditions 16 Identify spi scenarios for consequence anaysis 17 Spi scenario consequence anaysis 18 Computer modeing of oi spis 18 Sensitivity mapping 20 Evauate risk and seect oi spi panning scenarios 22 Response strategy deveopment 23 Net environmenta benefit anaysis 26 Determination of response capabiity 27 Tactica panning and resource identification 27 Tiered provision of resources 31 Supporting response eements 33 Waste management 33 Response communications 34 Widife protection and response 34 Samping and monitoring 35 Crisis (externa) communications 35 Funding and compensation 36 Contingency pan preparation 37 OSCP introduction 38 Integration with other pans 38 Initia actions 39 Notifications and reporting 39 Assessment 40 Response resources 41 Response management 42 Sensitive areas 42 Response strategy 44 Waste management 44 Decontamination 44 Demobiization and termination of the response 44 Response debrief 46 Appendices or supporting documents 46 Impementation 47 Training 47 Exercises and equipment depoyments 47 Review and update 48 References and further reading 49 Annex 1: Preparing a contingency pan 52 Annex 2: Tactica response pan/ 56 handbook topics Acknowedgements 57 3
IPIECA OGP Introduction Oi spi contingency panning is the process of deveoping a suitabe spi response capabiity that is in compiance with the reguatory framework and commensurate with the oi spi risks of an organization or faciity. The intent of this guide is to provide guidance on the contingency panning process for potentia oi spis in or on water. It is aimed at organizations with a risk of an accidenta reease of oi to a marine or aquatic environment, incuding those invoved in the handing, transport, production or storage of oi products. The degree of compexity invoved in the panning process wi greaty depend on the type of operation, oca conditions, and environmenta and socio-economic sensitivities. However, the overa objective is aways to deveop a capabiity to effectivey react to a spi and sustain an ongoing response that is proportionate to the risk. This capabiity requires suitabe equipment, sufficient ogistics, and competent, trained responders supported by proven, exercised pans. A reiabe system of review and maintenance wi ensure the panning remains reevant and appropriate to changing eves of risk as an organization matures or evoves. This is a cycica process that shoud remain active over the ifetime of an operation. The guide consists of nine main sections: The contingency panning process provides an overview and starting point. The reguatory framework discusses the incusion of internationa, regiona and oca agreements and reguatory requirements in an organization s contingency panning. Stakehoder engagement considers the invovement of stakehoders who share the risk and may be consuted in the panning process or in a response. Oi spi panning scenario deveopment provides guidance on the anaysis of risk and the identification of panning scenarios that cover the fu range of risk and response chaenges an organization may face. Response strategy deveopment discusses the deveopment of appropriate response strategies for the panning scenarios and the roe of net environmenta benefit anaysis (NEBA) in agreeing the most appropriate response options. Determination of response capabiity expains the identification and provision of response resources, incuding consideration of supporting eements, in buiding an overa response capabiity. Contingency pan preparation outines the compiation of the panning materia into a cear and concise, actionabe pan for use in a response, and supporting documents for suppementa materia and justification of response capabiity. Impementation discusses the use of training and exercises to buid responder competence and to test and verify that the capabiity and the pan meet the needs of the organization. Review and update expains the importance of a reguar review and update of the panning materia to maintain and improve capabiity over time. IPIECA and OGP have deveoped severa subject-specific pubications reating to the contingency panning effort. Numerous other documents and internet information portas have aso been deveoped by industry and government for specific aspects of contingency panning. Such resources are referenced where appropriate throughout this guide and are isted in the References and further reading section on pages 49 51. The reader is encouraged to consut the various information sources. 4
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER The contingency panning process The oi spi contingency panning process described in this guide is iustrated in Figure 1. To begin, panners must ceary define the assets and operations to be incuded within the panning scope. Industries such as shipping, pipeines, ports, oi handing faciities, and exporation and production differ widey in their scae of operationa activities, environmenta concerns, reguatory requirements and consequent oi spi risks. Each presents distinct chaenges in panning. Once panners have defined their scope, a thorough review of the reguatory framework is required to determine the appicabe egisative and reguatory structure. This framework wi have an infuence throughout the entire process, and panners shoud aways remain aware of the requirements and expectations. Stakehoder engagement shoud aso be addressed at the outset by estabishing who may be affected by the oi spi risk and a potentia spi s consequences and who may need to be consuted or informed during the panning effort. The process proceeds with a structured approach to deveoping spi response capabiity by: assessing risks and seecting oi spi panning scenarios that are representative of the risks; anaysing the scenarios to determine an appropriatey tiered oi spi response capabiity; compiing effective pans and thorough documentation; and impementing and verifying the desired eve of preparedness. Figure 1 The oi spi contingency panning process Organizations are then responsibe for reguary reviewing and updating a aspects of the contingency panning process and maintaining an appropriate state of preparedness over the ife of the operation. The various steps in the process draw on a wide range of discipines, incuding crisis management, operations, environmenta science, chemistry, ogistics and suppy chain management, heath and safety, government reations, risk management, engineering, pubic affairs, and ega issues and 5
IPIECA OGP compiance. To adequatey incorporate this diversity, organizations wi benefit from engaging a range of interna and externa expertise, and impementing the contingency panning process under the guidance of experienced oi spi response panners and responders. Whie subject matter expertise may be outsourced, it is important to ensure that the organization remains engaged in the panning process and takes ownership of its outcomes and impementation. Tiered preparedness and response The estabished three tiered structure aows those invoved in contingency panning to describe how an effective response to any oi spi wi be provided; from sma operationa spiages to a worst-case reease at sea or on and. The structure provides a mechanism to identify how individua eements of capabiity wi be cascaded. An organization s response capabiity and contingency pan shoud reate directy to the potentia spi scenarios and cover each tier, as appropriate. It is important to note that the tiers are stricty for panning purposes and, in the event of a spi, whatever resources are necessary to adequatey respond to the spi must be mobiized regardess of the tier. Panning according to the tiered approach ensures that an appropriate provision of resources is considered for a response of any magnitude as appies to an organization s risk. It enabes responders with access to adequate resources to mobiize an effective and timey initia response using pre-panned strategies and Tier 1 capabiities and to cascade in additiona resources as they adapt to any response as it unfods. Generay speaking, and uness nationa contingency pans or reguations define response eves otherwise, it is recognized internationay that tiers fa into three categories (see Box 1 on page 7). The resources hed at the three tiers work to compement and enhance the overa capabiity by enabing seamess escaation according to the requirements of the incident. An important concept is the cumuative nature of tiered response. The eements of a Tier 1 response are suppemented by higher tier capabiity and not superseded or repaced by it. There are no rigid rues for categorizing scenarios in terms of a tiered response capabiity. A nearshore spi of persistent oi woud require the cascading in of regiona resources (Tier 2), compared to the same size offshore spi of a non-persistent oi which coud be handed soey with oca resources (Tier 1). The chaenge for panners as they proceed through the panning process is to consider the scenarios and their potentia outcomes, the resources avaiabe to the organization, and the chaenges of the geographica area of interest, in making a decision on the eve of Tier 1 capabiity required and on the necessary arrangements at Tier 2 and Tier 3. For exampe, in remote ocations, where significant time and effort is required to mobiize additiona resources, oca Tier 1 capabiity wi need to be more sophisticated compared to the Tier 1 capabiity required at a project ocation near a we-deveoped area with avaiabe Tier 2 response support that can be quicky and easiy mobiized and depoyed. For further detais on the tiered response approach see IPIECA-OGP, 2014a. 6
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Box 1 Tiered preparedness and response: a three-tiered system Tier 1 Source: OSRL Source: ECRC~SIMEC Source: ECRC~SIMEC Tier 1 capabiities describe the operator s ocay hed resources used to mitigate spis that are typicay operationa in nature occurring on or near an operator s own faciity. The resources aso provide an initia response to spis that may potentiay escaate beyond the scope of Tier 1 initia actions and capabiities. Tier 2 Tier 2 capabiities refer to additiona, often shared, nationa or regiona resources necessary to suppement a Tier 1 response or support an escaating response. Tier 2 capabiity incudes a wider seection of equipment and expertise suited to a range of strategic response options. Tier 3 Tier 3 capabiities are gobay avaiabe resources that further suppement Tiers 1 and 2. They comprise the internationa resources necessary for spis that require a substantia externa response due to incident scae, compexity and/or impact potentia. 7
IPIECA OGP The reguatory framework The foundation for any oi spi contingency panning effort is an understanding of the reguatory framework in which the assets and operations are ocated. Organizations shoud assess how internationa, regiona, nationa, and oca reguations and agreements may appy to their situation, and how that may affect their particuar oi spi contingency panning. Many internationa companies with spi risks aso maintain interna guideines and conformance standards, which panners must baance and integrate with government requirements. Internationa conventions and agreements Many countries have ratified the Internationa Convention on Oi Poution Preparedness, Response and Co-operation, 1990 (OPRC Convention), which provides a framework for internationa cooperation for combating major oi poution incidents and sets requirements for nationa systems of preparedness and response. It requires countries to deveop their own aws and procedures for preparing for, and responding to, oi spis ranging from oca impact to internationa scae. These shoud be encompassed within a nationa oi spi contingency pan, under the auspices of a designated nationa authority. The OPRC Convention cas for nationa authorities to work with oi and shipping industries, port authorities, and other reevant entities to unify response efforts. It is crucia that industry works with governments to deveop a cear, common interpretation of nationa requirements. There needs to be carity within both government and industry contingency pans as to who is responsibe for specific actions under a foreseeabe situations. Other internationa agreements and conventions reevant to contingency panning incude the: Protoco on Preparedness, Response and Co-operation to poution Incidents by Hazardous and Noxious Substances, 2000 (OPRC-HNS Protoco); and the Internationa Convention for the Prevention of Poution from Ships, 1973 (MARPOL). Additiona information on these and other internationa conventions, as we as a current ist of signatories, can be found on the Internationa Maritime Organization (IMO) website at www.imo.org. Internationa iabiity and compensation conventions reevant to contingency panning for shipsource spis incude the: Civi Liabiity Convention (1992 CLC); Fund Convention (1992 Fund); Suppementary Fund Protoco (2003); Bunkers Convention (2008); and HNS (Hazardous and Noxious Substances) Convention (2010). Organizations are advised to investigate the status of conventions as we as any reevant nationa egisation on compensation and iabiity for both ship and non-ship source spis. Some countries are not signatories to the internationa conventions and/or may have impemented their own aws instead. Exampes incude the United States Oi Poution Act of 1990 (OPA 90) and the European Union Environmenta Liabiity Directive (ELD). 8
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER For detaied information on these conventions and their considerations in deveoping procedures for caims and compensation see IPIECA-OGP, 2014b. Regiona and binationa agreements There are a growing number of regiona conventions and biatera agreements that provide a forma framework for countries to respond jointy to spis. Where there is the potentia for transboundary movement of spied oi, or if personne and equipment may need to be transported across borders, agreements can expedite response actions and sharing of resources. Prearranged procedures are vita for rapid resoution of issues such as iabiity concerns, emergency immigration and import provisions, and financia compensation processes. Organizations deveoping contingency pans shoud be aware of the current status of such agreements in their operating region. The United Nations Environment Programme (UNEP) Regiona Seas Programme has been instrumenta in driving regiona cooperation to protect common bodies of water. Most of the Regiona Seas Programmes function through Action Pans that are often underpinned by a egay-binding regiona convention (www.unep.org/regionaseas/programmes). Severa other independent, intergovernmenta programmes, for exampe the Arctic Counci and Hesinki Commission (HELCOM), were formed as a resut of regiona conventions and work cooperativey with UNEP. Source: Arctic Counci Neighbouring countries may be party to biatera or mutiatera agreements to faciitate cooperation in responding to spis in adjacent waters. This can incude conducting joint exercises, deveoping joint contingency pans, sharing information, or estabishing expedited customs and immigration procedures for equipment and trained personne. For exampe, the Canada-United States Joint Marine Poution Contingency Pan has provided a framework for cooperation since 1974; and the Manche Pan, a biatera agreement between France and the UK, has been in pace since 1978. Nationa and oca egisation and reguations Many countries and their provinces have we-estabished aws and reguations for contingency panning. These may incude compiance requirements, such as response time frames and incident reporting, tier definitions, approvas systems and various other aspects. Reguations can be specific and prescriptive in their conditions and processes. In these cases, the reguatory system wi drive the panning process and set the requirements for overa oi spi preparedness and response capabiity as we as integration with the nationa and oca oi spi contingency panning frameworks. The Arctic Counci consists of the eight Arctic States: Canada, Denmark (incuding Greenand and the Faroe Isands), Finand, Iceand, Norway, Russia, Sweden and the United States. Six internationa organizations representing Arctic Indigenous Peopes have permanent participant status. www.arctic-counci.org In the absence of specific nationa or oca guidance, organizations shoud adhere to the internationa and regiona protocos and conventions appicabe to their operationa area, as we 9
IPIECA OGP as to internationa good practice. Efforts shoud be made to achieve a common understanding of response management and capabiity with the reevant government reguatory bodies. ITOPF maintains a series of Country Profies focused on ship-source spis. The Profies provide a summary of the oi spi response arrangements and cean-up resources in many maritime nations (www.itopf.com). Environmenta and cutura conventions and agreements Panners shoud aso consider conventions, agreements and internationa guidance on cutura and environmenta protection, particuary when deveoping sensitivity maps and estabishing priority protection areas. Box 2 provides exampes of treaties and conventions that provide a ega basis for the protection of critica habitats, species and cutura heritage. The Word Database on Protected Areas administered by the UNEP Word Conservation Monitoring Centre hods a vast amount of information on protected areas (www.protectedpanet.net). Box 2 Environmenta and cutura conventions and agreements Internationa exampes Convention on Wetands of Internationa Importance (Ramsar Convention) United Nations Educationa, Scientific and Cutura Organization (UNESCO) Word Heritage Convention Convention on the Conservation of Migratory Species of Wid Animas (CMS or Bonn Convention) Regiona exampes Protoco Concerning Speciay Protected Areas and Widife (SPAW) under the Cartagena Convention Japan Austraia Migratory Bird Agreement (JAMBA) Near right: Ha Long Bay, Vietnam a UNESCO Word Heritage Site. Far right: Otago Peninsua, New Zeaand a habitat for yeow-eyed penguins, an IUCN (Internationa Union for Conservation of Nature) Red List species with endangered conservation status. Source: Treis Environmenta, LLC Source: Treis Environmenta, LLC 10
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Stakehoder engagement Fostering open communication between industry, government and the community ensures that stakehoder priorities and expectations are understood. Eary identification of stakehoders and consistent engagement throughout the contingency panning process aows for meaningfu discussion and resoution of conficting interests and opinions whie in a non-emergency situation. It aso provides panners with the opportunity to identify important environmenta resources and socio-economic features and their vaue to the community. Potentia stakehoders may invove parties from many different backgrounds and with diverse interests (Box 3). A stakehoder can be a person or an organization with an interest or concern in response preparedness or their potentia consutation or participation in a response to an oi spi. It can aso be a oca community or indigenous group that coud potentiay be impacted by a spi in their area. The participation of certain stakehoders during the contingency panning process may be mandated by reguation, such as pubic consutation requirements or approvas by government agencies. Box 3 Potentia stakehoders Government agencies Indigenous groups Universities and research institutes Non-governmenta organizations Loca communities Loca business Vounteer organizations Ports/harbours Neighbouring faciities and industries Loca emergency responders Labour organizations Poitica parties Source: Treis Environmenta, LLC Panners wi need to identify stakehoders that have a vaid contribution to the contingency panning process, as we as those who may be engaged in sharing information. For exampe, the contact detais for oca andowners are important data for incusion in the contingency pan. Sensitivity mapping (see pages 20 21) and net environmenta benefit anaysis (NEBA) (see page 26) are important parts of the contingency panning process where invovement of oca constituents and the benefit of traditiona and oca knowedge can improve the quaity of panning. A stakehoder mapping exercise carried out in consutation with an organization s externa affairs group is one potentia method panners might use to identify the reevant parties. Contingencies need to be considered wherever an oi spi coud disrupt oca communities, for exampe those reying on subsistence fishing. More detaied information on stakehoder engagement and community consutation can be found in IPIECA-OGP, 2014c and IPIECA-OGP, 2014d. 11
IPIECA OGP Source: ITOPF Source: OSRL Forums hed to faciitate stakehoder engagement during panning and exercises contribute to more effective and efficient communication and reationships. Industry efforts are aso being made on regiona and goba scaes to promote cooperation between stakehoders. Programmes, such as the Goba Initiative (GI) (see Box 4), compement government and industry in regiona efforts to enhance the capacity of countries to prepare for, and respond to, marine oi spis (www.ipieca.org/topic/oi-spi-preparedness/goba-initiative). Box 4 Goba Initiative regiona groups Caspian Sea, Back Sea and Centra Eurasia Region Oi Spi Preparedness Regiona Initiative (OSPRI) West, Centra and Southern Africa Region (WACAF) Southeast Asia Region (GISEA) China Programme In addition to the Goba Initiative programme, a growing number of other groups, such as ARPEL (the Regiona Association of Oi, Gas and Biofues Sector Companies in Latin America and the Caribbean), are aso invoved in promoting constructive diaogue, information sharing and capacity buiding in their regions. Panners wi benefit from an understanding of these efforts in their region and how they affect their contingency panning. 12
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Oi spi panning scenario deveopment A suitabe seection of oi spi panning scenarios serves as the basis for defining an effective response capabiity that is commensurate with an organization s eve of risk. In accordance with the tiered response approach, panners shoud aim to define a baanced group of scenarios that coectivey represent the range of spi risks and response chaenges within the panning scope. A number of detais are determined and anaysed in making an appropriate seection (see Box 5). Box 5 Spi scenario information, and questions that may need to be considered in its anaysis Scenario information to be determined Event Likeihood (frequency/probabiity) Oi type Voume Duration of reease Behaviour of spied oi Location of event Prevaiing hydrodynamic and environmenta conditions Trajectory and fate Geographic zone of potentia spi impact Environmenta and socio-economic sensitive resources at risk and potentia consequences if impacted. Anaysis What can go wrong? What is the chance that it coud happen? What type of oi and how much of it coud be reeased? Where coud it happen and what are the oca conditions? Where coud the spied oi go and how might it behave in the environment? What impacts coud it have and how severe coud the consequences be? This data compiation and its anaysis wi continue to inform decision making throughout the contingency panning process and shoud be incuded in the contingency panning documentation for use during a response as we as for justification of response capabiity. Figure 2 The genera process for oi spi scenario deveopment Figure 2 outines the genera process for deveoping oi spi scenarios for contingency panning. It uses the principes of oi spi risk assessment to faciitate an informed seection of scenarios. An oi spi risk assessment is a systematic method to: identify hazardous events that coud resut in spis; anayse the characteristics and ikeihood of the hazardous events; define associated oi spi scenarios and identify a seection suitabe for consequence anaysis; anayse the potentia consequences of each seected spi scenario if they were to occur; and estabish and evauate the subsequent risks to the environmenta and socio-economic resources. A number of risk assessment methodoogies exist, ranging from prescriptive and comprehensive quantitative processes to simpified quaitative approaches. Panners wi need to 13
IPIECA OGP estabish a risk assessment context (degree of compexity) that is appropriate for the panning scope. This wi depend on a variety of considerations, incuding the scope and type of operations, avaiabiity and reiabiity of data, risk criteria and corporate practices. Utimatey, organizations shoud empoy a risk assessment technique appropriate for their situation, in compiance with both their interna standards and the reguatory framework, and which provides resuts suitabe for making reiabe decisions regarding risk. Detaied guidance on risk assessment and the seection of scenarios can be found in IPIECA-OGP, 2013a and IMO, 2010. Hazardous event identification and characterization Panners shoud begin with a hazard identification anaysis to determine a of the operationa hazards that coud resut in a reease of oi product. IPIECA-OGP, 2013a outines a number of toos that may be used to faciitate hazard identification. A characterization of the hazardous events shoud then be undertaken to define oi spi scenarios that are representative of those hazardous events (Box 6). For fixed faciities, it is possibe to identify and describe specific hazardous events and reease scenarios. For transient operations, such as shipping, the use of appicabe generic scenarios can be appropriate. For ports or operations with a mix of shipping and fixed faciities, panners may find that a combination approach is most suitabe. Box 6 Exampes of potentia spi scenarios based on hazardous events Sma operationa/maintenance spis due to minor incidents Loss of we contro eading to a bowout Ruptured fow ines, pipeines, risers, subsea equipment due to earthquake Loss of containment due to tank storage faiure Loss of containment during offoading/transfers/bunkering Loss of containment from ship coision Loss of containment from ship grounding Loss of containment due to exposion Panners shoud be aware of the inherent differences in industries when describing scenarios for operations that are fixed, transient or a combination of the two. Source: OSRL Source: istockphoto.com 14
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER The identified hazardous events are characterized in terms of the ikeihood of the event, the potentia voume and duration of the reease, the type of oi, and the ocation. Likeihood Likeihood refers to the chance an event might occur. It can be determined in genera terms or mathematicay, depending on the oi spi risk assessment context. Historica data (e.g. see Figure 3) can provide usefu information on the causes of spis and statistics on spi frequency. This can aid in determining ikeihood as we as informing the seection of spi panning scenarios. Anaysis of shipping-reated data has shown that most spis from ships occur in or cose to ports; they tend to be sma in size and are generay the resut of routine operations such as off-oading, discharging and bunkering (ITOPF, 2011a). Conversey, the occurrence of arge spis is reativey rare; however, their impact can be severe. When anaysing operations of any type, panners shoud be mindfu of distinguishing not ony the ow probabiity, high-consequence reeases associated with worst credibe case scenarios, but aso the more ikey owvoume reeases reated to sma, oca incidents. Figure 3 Petroeum spis from US Outer Continenta Shef oi and gas activities number of spis in each size category, 1964 2009 Data from Anderson et a., 2012 Updated shipping statistics are produced by ITOPF every year. The OGP Risk Assessment Data Directory report series contains usefu information for the oi and gas production and process industries (www.ogp.org.uk). Many nationa agencies aso compie data on spis within their jurisdiction. Reease voume and discharge rate Reease voume can be estabished using either known fixed voumes and discharge rates or estimated voumes based on cacuations and assumptions. This can be as simpe as presuming an instantaneous reease of 100% of a fixed voume due to faiure of containment, or it can invove compex engineering and mathematica cacuations, such as estimating rates for a pipeine rupture or we bowout. Government reguations or internationa industry standards shoud aways be consuted on this subject as cacuations for determining voumes and reease rates for contingency panning are often prescribed. Panners shoud aso incude an estimation of worst credibe case discharge and ensure that the associated scenario is carried forward for consequence anaysis. Oi type and the behaviour of spied oi Panners need to understand how the anticipated oi type wi behave in the environment into which it may be spied, incuding how it wi weather or change over time. The base properties of a particuar oi wi drive the physica and chemica changes that occur when it may be spied onto water. Oi characterization is the process used for describing the unique properties of a particuar oi and its weathering profie under certain environmenta conditions. Understanding how the oi behaves provides key information for panners because it: 15
IPIECA OGP can be used to predict persistence in the environment and toxicity; is a required input to spi trajectory and fate modeing for consequence anayses; contributes to strategy deveopment and the choice of appropriate response techniques and equipment (for exampe understanding an oi s propensity to evaporate or emusify can aid in estabishing the efficacy and windows of opportunity for certain techniques, such as dispersant appication and in-situ burning); informs waste management decisions; and provides heath and safety panners with indicators of potentiay hazardous conditions, such as noxious fumes or dangerous fash points. The base properties and weathering behaviour of many ois have been studied and documented. If sufficient data are not avaiabe or appicabe to the organization s operating environment, aboratory and bench-scae experiments can be conducted on sampes of the product to obtain the necessary data. Exporation projects face a particuar chaenge in that the oi properties may not yet be known. In this case, panners shoud choose an anaogue oi based on their best avaiabe data. A range of possibe oi types can aso be used to capture a variety of potentia outcomes. Panners shoud be aware of the uncertainty invoved with this and the potentia pitfas when determining response measures. For more detai on weathering, oi characterization and exampes of appications in contingency panning, see aso IPIECA-OGP, 2013b; ITOPF, 2011b; and ITOPF, 2014. Event ocation and prevaiing conditions The event ocation together with an understanding of oca prevaiing conditions give panners a preiminary view of the areas that coud potentiay be affected by a spi and the response chaenges associated with the characteristics of a particuar area. Athough detaied environmenta and socio-economic sensitivities wi not have been considered at this stage, oca knowedge, environmenta/socia impact assessments, and existing sensitivity maps can provide a basis for spi response experts to highight events with the potentia for severe consequences and which may therefore be given priority for further anaysis. Figure 4 The effects of wind and current on the movement of an oi sick An oi sick moves at approximatey the same speed as the surface current and at about three percent of the wind speed the resutant movement being a vector sum of the two. 16
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Prevaiing conditions refers to the typica weather and hydrodynamic conditions experienced in an area. Loca meteoroogica and oceanographic, or metocean, data is a fundamenta input to predicting oi behaviour and movement (Figure 4). It is aso an important consideration for panners and responders when evauating the appropriateness of response techniques and site heath and safety considerations. Reevant data for use in oi spi scenario definition and spi modeing incude wind/current direction and speed, sea state, tides, sea and air temperature, and possiby ice. Three-dimensiona current data together with temperature and sainity profies of the water coumn are aso of particuar interest for modeing subsea reease pumes and dispersant efficacy in deep water environments. Source: Aaska Cean Seas Unique panning factors, such as ice fow or break-up periods, can affect the distribution, behaviour and fate of spied oi and choice of response method. Seasonaity shoud aways be considered, aong with data from a time frame sufficient to incude variations throughout the year. Any extreme conditions and unique panning factors that pose particuar threats shoud aso be noted, such as: hurricane, typhoon and monsoon seasons; ice fows or break-up periods; areas of high current or sea state; and temperature extremes (hot or cod). Data for use in computer modeing of oi spis shoud be based on historica records and/or modeed metocean data fieds. The avaiabiity and reiabiity of data wi vary depending on the data coection history of the region of interest. Some areas of the word s oceans have extensive databases compied over years of sophisticated monitoring, whereas remote or ess-deveoped areas may not have such detaied information to draw on. Data can be obtained from officia agencies, academic institutions and commercia organizations. In addition, experience has proven that information from oca fishermen and watermen can be invauabe, particuary during a response. Identify spi scenarios for consequence anaysis Panners shoud use the hazardous event characterization information to define representative oi spi scenarios and identify a seection suitabe for consequence anaysis. For a arge operation with hundreds of potentia events, this can be compex and wi require a rigorous approach. Sound judgment based on data obtained during the characterization must be used to choose a manageabe and meaningfu number of scenarios for detaied consequence anaysis, which can be time consuming and costy. It is recommended that the chosen scenarios be imited to a practica number and be representative of the tiered response approach. Reguatory requirements may aso define specific scenarios that wi need to be addressed. 17
IPIECA OGP Spi scenario consequence anaysis For each identified scenario, the potentia environmenta and socio-economic consequences shoud be determined. Predictions of oi trajectory and fate, together with an evauation of the potentia sensitive resources at risk of impact from oiing, combine to provide an estimate of the severity of an oi spi scenario. This vaue is critica in estabishing and evauating the risks associated with a spi scenario. Computer modeing of oi spis Oi spi modeing provides a forecast of oi trajectory and fate based on known or estimated oi properties and oca prevaiing conditions. Two main types of transport modeing outputs are used by panners to evauate spi scenarios. A stochastic mode (Figure 5) provides a statistica anaysis of mutipe trajectories of the same scenario simuated over a defined period of time, such as a season, using a database of historic or modeed hydrodynamic and wind data. The stochastic modeing output predicts the geographica zone of potentia impact for a spi scenario (i.e. where oi might go) and the probabiity of impact for areas within that zone, aong with associated timescaes and potentia concentrations or voume. A deterministic mode provides a simuation of the fate and transport of a singe trajectory for a specific spi scenario and one set of hydrodynamic and wind conditions (Figure 6). The output predicts the projected oi movement, timeine and voume or concentration, incuding estimates Figure 5 An exampe of stochastic modeing output Figure 6 An exampe of deterministic modeing output Source: SINTEF, using the OSCAR (Oi Spi Contingency and Response) Mode Source: SINTEF, using the OSCAR (Oi Spi Contingency and Response) Mode This image of a statistica anaysis of mutipe trajectories predicts the probabiity of where water surface oiing might occur based on a 10-day simuation using a dataset of historica hydrodynamic and wind conditions. It does not define the exact footprint of a spi scenario, but rather iustrates the zone of potentia impact within which oiing might occur and the probabiity that oi might be present within that zone. This image shows a singe trajectory from the mutipe trajectory statistica anaysis in Figure 5. It predicts the maximum thickness of oi emusion occurring on the water surface over a 10-day simuation using one input set of hydrodynamic and wind conditions. 18
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER of beached oi. Deterministic modes can aso be used to generate a mass baance anaysis, which depicts the fate of the spied oi over time, e.g. evaporation, biodegradation, dispersion, shoreine stranding, etc. (Figure 7). Figure 7 Exampe mass baance anaysis Data source: ASA RPS This exampe of an oi mass baance graph is based on water surface area exposed to surface oi with an average thickness greater than 0.01 mm (dark brown sheen) for a 1,000 m 3 reease of IFO-180 (intermediate fue oi with a maximum viscosity of 180 centistokes). Combining stochastic resuts with any number of deterministic outputs produces vauabe information that can infuence decisions concerning strategy deveopment and the identification of necessary response capabiity. The information is aso an essentia input to the sensitivity mapping and evauation of environmenta and socio-economic risk. Correct interpretation of the data generated from modeing is a speciaist task, and care shoud be taken to ensure the materia is interpreted and presented appropriatey for the intended audience. Various organizations and companies have deveoped oi spi computer modes ranging from basic to the very sophisticated. Panners shoud use a mode that is suitabe for the spi scenarios they are anaysing. It shoud be mentioned that certain spi scenarios may not need a sophisticated mode when the spi voume is very sma or if spi movement and fate predictions can be made based on previous modeing resuts, the experience of speciaists couped with oca knowedge, or the use of the vector addition method shown in Figure 4. Modeing is a predictive too and cannot readiy repace the need for reatime surveiance during an actua incident. Deep water driing programmes, for which one or more scenarios may be a subsea reease of oi, are advised to use modes that are capabe of performing mutifaceted subsurface and surface fate and trajectory anayses. These compex modes may aso be used to simuate the appication of spi response techniques, such as the use of subsea dispersants and their potentia effectiveness, which can be usefu during strategy deveopment. It is important to note that these modes are ony capabe of making predictive estimates of fate and trajectory, and the quaity of the input data wi infuence the quaity of the mode output. Users of the modeing data shoud understand the mode imitations and the inherent difficuties in predicting oi fate processes (e.g. evaporation, emusification, etc.). Source: OSRL 19
IPIECA OGP Sensitivity mapping Once panners have defined what incidents coud occur, where the oi might go and how it coud behave and weather in the environment, it is then necessary to determine which environmenta and socio-economic resources coud be affected and the degree of sensitivity of those resources to accidenta oiing. Three sensitivity themes are considered: shoreine type and its genera environmenta sensitivity to oi spis; sensitive ecosystems, habitat, species and key natura resources; and sensitive socio-economic (incuding cutura heritage) features. The combined modeing output of a the spi scenarios defines the overa zone of potentia spi impact and outines the geographic area of interest for sensitivity mapping. Potentiay vunerabe sensitivities within this area of interest shoud be identified and characterized, and the probabiity of the spied oi having an impact on these resources shoud be considered. This is best accompished by deveoping a sensitivity map or anaysing existing maps of the area, which may aready be estabished and reguary maintained, usuay by government programmes, regiona cooperative efforts, or industry. The sensitivity data is used in the risk assessment process to determine the potentia consequences of a spi scenario and the probabe impacts on key habitats and species as we as socio-economic features. The evauation wi provide panners with information on the ocation of high-risk areas and the resources and data to support their prioritization for protection, for exampe for optimum shoreine excusion booming. Strategic sensitivity maps are deveoped to identify protection priorities and their ranking of importance, which is vita for setting response objectives and supporting decision making during a response. This can be a compex process and is cosey tied to net environmenta benefit anaysis (NEBA) (see page 26). Sensitive environmenta and socio-economic areas and resources at risk shoud be iustrated in sensitivity maps. Sensitivity maps aso contribute vita information during a response. They can be used to convey essentia information to on-site spi responders by iustrating the ocation of sensitive areas and resources, such as bird and turte nesting areas and maricuture faciities. The maps can aso be expanded to contain a wide range of operationa panning information such as ogistics data, sitespecific tactics for priority protection areas, trajectory modeing, equipment stockpies, staging areas, emergency medica faciities, potentia command centres, etc. Sources: Treis Environmenta, LLC 20
CONTINGENCY PLANNING FOR OIL SPILLS ON WATER Figure 8 Coasta sensitivity viewer webgis interface too Source: BP Angoa Sensitivity mapping can be presented as a simpe hard-copy map with tabes isting resource detais, or integrated into a geographic information system (commony referred to as GIS) capabe of containing arge voumes of data. Maps deveoped in GIS may be accessed either by printing hard copies or by viewing the information eectronicay, incuding via internet access (see Figure 8). Sensitivity maps deveoped in GIS can aso be integrated into eectronic emergency management systems, and inked to other databases for enhanced command and contro and a depiction of response activities, resources and status. This is referred to as a common operating picture (COP). Athough GIS is becoming widey used in oca and nationa administrations and by industry, it is not aways necessary and basic printed maps may be suitabe for smaer operations. It is recommended that hard-copy versions of maps are generated for use by on-site responders, as the use of eectronic devices may not aways be feasibe or reiabe in remote or extreme ocations, and the maps may serve as a record for ater reference during incident investigations and caims preparation. Care must be taken to avoid printed maps becoming too cuttered and difficut to interpret. Detaied guidance on sensitivity mapping for oi spi response can be found in IPIECA/IMO/OGP, 2012. 21
IPIECA OGP Evauate risk and seect oi spi panning scenarios After the spi scenarios are defined and anaysed, panners shoud make a fina seection that represents the fu range of response chaenges and risks against which response strategies and a tiered capabiity can be defined. This shoud refect the tiered response approach and resut in a range of scenarios covering sma operationa spis up to and incuding a worst credibe case scenario. Worst credibe case represents the scenario with the most severe consequences and which is considered pausibe. Reguatory requirements shoud aso be consuted as they may dictate specific scenarios that must be incuded in contingency panning. A common method used to faciitate and refine the fina seection of panning scenarios is a risk assessment matrix (RAM). It is used to pot the ikeihood and consequence outcomes from each of the spi scenarios and can be presented in a variety of formats. An exampe of one variation is shown in Figure 9. The matrix provides a view of the overa risk profie and a comparison of the risk associated with each potentia spi scenario. Overa risk reduction is achieved with effective prevention and mitigation measures. Reducing the ikeihood of a spi occurring through prevention is the primary aim, yet despite best intentions a residua risk aways remains. The risk comparison, together with a review of each scenario s unique infuences (e.g. oi type, prevaiing conditions, oca sensitivities), informs the choice of an appropriate set of oi spi panning scenarios to formuate mitigation measures. For smaer operations ony a few scenarios may be identified, one of which may provide the information needed to pan the most effective response strategies to mitigate risks. For arger and/or compex operations, numerous scenarios may be identified, in which case a we-rounded, representative set covering a range of risks wi need to be seected. Figure 9 Exampe of an oi spi scenario risk assessment matrix (RAM) Assess the risks: ikeihood x consequence = risk rating = Loss of containment during fue transfer quayside; 10 tonnes; diese fue t = Sma maintenance eak; 10 itres; hydrauic fuid 6 = Pipeine rupture near shore; 1,000 tonnes; ight crude n = Offoading at sea; 400 tonnes; diese fue u = Subsea eak; 1,500 tonnes; crude s = Subsea we bowout; 1,500 tonnes/day for 30 days; crude oi v = Vesse grounding oaded utra-arge crude carrier 22