160310 aira phase b final program report for formatting-kg · nuka research and planning group, llc...

March 2016

PHASE B

Final Program Report

Nuka Research and Planning Group, LLCPearson Consulting, LLC

Aleutian Islands Risk Assessment, Phase B – FINAL PROGRAM REPORT

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AleutianIslandsRiskAssessment–PHASEBFinalProgramReport

Submittedby:

NukaResearchandPlanningGroup,LLCPearsonConsulting,LLC

March2016


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TABLEOFCONTENTSTableofContents.........................................................................................................31. Introduction...........................................................................................................4

1.1 Project Overview ................................................................................................... 41.2 Project Scope ........................................................................................................ 41.3 Transportation Research Board Recommendation ............................................... 51.4 Purpose of this Report .......................................................................................... 5

2. PhaseA..................................................................................................................63. PhaseB..................................................................................................................84. TechnicalTasksandOutcomes...............................................................................9

4.1 Task 1-2: Optimal Response System ..................................................................... 94.1.1 Supporting Analyses ....................................................................................... 94.1.2 Recommendation .......................................................................................... 12

4.2 Task 3: Aleutian Islands Subarea Contingency Plan Update and Enhancement . 144.2.1 Subarea Contingency Plan Update ............................................................... 144.2.2 Geographic Response Strategies .................................................................. 154.2.3 Potential Places of Refuge ............................................................................ 20

4.3 Task 4: International Maritime Organization Routing Measures ......................... 214.4 Task 6: ETS Exercise and Training Materials ....................................................... 23

5. FacilitationandProjectManagement...................................................................256. Conclusion............................................................................................................26REFERENCES...............................................................................................................27APPENDIX..................................................................................................................29

APPENDIX A – PHASE B PROJECT PARTICIPANTS .................................................. 30


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1. INTRODUCTIONThisisthefinalprogramreportforPhaseBoftheAleutianIslandsRiskAssessment(AIRA).Thereportreferencesprojectdeliverablesformosttasks.Agreaterlevelofdetailisprovidedonthetasksnotalreadydocumentedthroughotherreports.

1.1 ProjectOverviewTheAIRAwasconductedasadirectresultofa2004oilspillandsubsequentpleaagreement.TheM/VSelendangAyu,aMalaysian-flaggedbulkcarriertravelingfromtheU.S.toChina,sufferedenginefailure,drifted100milesthroughstormyseas,andgroundednearUnalaskaIslandintheAleutianIslandsarchipelago.SixcrewmembersdiedwhenaU.S.CoastGuardhelicopterengagedintherescueoperationwasstruckbyawaveandcrashednearthegroundedvessel.Shortlythereafter,theshipbrokeapartandspilledapproximately336,000gallonsoffueloilanddiesel(NTSB,2006)and132millionpoundsofitssoybeancargo.Inadditiontothelossoflife,theaccidentresultedintheclosureoflocalfisheries,86milesofshorelineoiled,andmorethan1700birdskilled(NOAA,2016).Theresultingpleaagreementfor$3millionfundedthedevelopmentofariskassessmentmethodologyandtheimplementationoftheAIRAandassociatedprojects(SelendangAyuSettlement,2007).

TheNationalFishandWildlifeFoundation(NFWF),theU.S.CoastGuard(USCG),andtheAlaskaDepartmentofEnvironmentalConservation(ADEC)initiatedtheAIRAtoassesstherisksandpotentialmitigationmeasuresassociatedwithmaritimetransportationintheAleutianArchipelago.TheprojectwasconductedintwophasesaccordinganapproachdesignedspecificallyfortheAIRAbytheTransportationResearchBoard(TRB)oftheNationalAcademies(alsowithSelendangAyusettlementfunds).

PhaseAoftheAIRAwasconductedfromMay2009–September2011,resultinginrecommendedriskreductionoptions.ThisreportfocusesonPhaseB,conductedfromJuly2012–July2015,whichincludedbothfurtheranalysisandimplementationoftherecommendationsfromPhaseA.AManagementTeamcomprisedofNFWF,ADEC,andUSCGoversawbothphasesoftheproject,withinputfromadiverseAdvisoryPanel.ATechnicalPeerReviewPanelprovidedfeedbackatkeymilestones.AnAnalysisTeamconductedtechnicalanalysesandprovidedinputbasedontheirexpertise.

NukaResearchandPlanningGroup,LLC(NukaResearch)andPearsonConsulting,LLCfacilitatedtheproject.AppendixAliststheindividualsinvolvedwitheachofthesegroupsduringPhaseB.

1.2 ProjectScopeTheAIRAfocusedonvesselsof300grosstons(GT)orgreater,orthosewithatleast10,000gallonsoffuelcapacity,thattravelthroughtheAleutianIslandsandwesternAlaskaPeninsula(seeFigure1).


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Figure1.AIRAstudyarea

1.3 TransportationResearchBoardRecommendationTheTRBdevelopedSpecialReport293,“RiskofVesselAccidentsandSpillsintheAleutianIslands:DesigningaComprehensiveRiskAssessment”(2008),whichrecommendedatwo-phasedapproachtotheAIRA:aPreliminaryRiskAssessment(PhaseA)followedbyaFocusedRiskAssessment(PhaseB).ThiseffortwasconductedusingsettlementfundsfromtheSelendangAyuoilspillandattherequestoftheADECandUSCG,whosoughtariskassessmentframeworkthatconsistedofdiscretestepsandincorporatedinputfromstakeholdersandtechnicalexperts.

1.4 PurposeofthisReportThisdocumentservesastheFinalProgramReportrequiredinthecontractbetweenNFWFandNukaResearchtoconductPhaseBoftheproject.Itsummarizestheactivitiesundertakenandresultsachieved.


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2. PHASEAPhaseAoftheAIRAinvolvedtheestablishmentofamanagementstructurecomprisedoffourgroups:aManagementTeam,anAdvisoryPanel,anAnalysisTeam,andaTechnicalPeerReviewPanel.

PhaseAbeganwithariskreportanalyzingthelikelihoodofspillsbasedonvesseltrafficthroughtheAleutians.Next,ariskmatrixwascreatedtoanalyzethepotentialconsequencesofspillsfromvessels.Finally,PhaseAconcludedwithaqualitativeassessmentandrecommendedriskreductionoptionsin2011.Inall,sixtechnicalreportsweredeveloped:

1) Semi-quantitativeTrafficStudyReport.DNVandERM(2010a).AnalyzesvesseltrafficintheAleutianIslandsfor2008/2009andincludesaforecastfor2034.

2) MarineSpillFrequencyandSizeReport.DNVandERM(2010b).Estimatedthefrequencyofmarineaccidentsandprovidedmarinespillscenariosforbothabaselineyear(2008/2009)andfutureyear(2034).

3) BaselineSpillStudyReport.DNVandERM(2010c).Presentssixhypotheticalspillscenariosbasedonvesseltrafficanalysisandpotentialspillfrequencyandsize.

4) ConsequenceAnalysisReport.DNVandERM(2011a).Considerspotentialconsequencesfrom16hypotheticalspillscenarios.

5) AccidentScenarioandCausalityStudyReport.DNVandERM(2011b).Presentsadditionalinformationandanalysisregardingthe16scenariosdevelopedintheConsequenceAnalysisReport.

6) RiskReductionOptionsEvaluationReport.DNVandERM(2011c).Summarizedtheoutcomesoftwoworkshopsheldinthefallof2010,duringwhichtheAdvisoryTeam,ManagementTeam,RiskAnalysisTeamandFacilitationTeamreviewedandprioritizedpotentialriskreductionoptions.

ThesereportsweresummarizedinafinalPhaseAreportin2011,availableat:http://www.aleutiansriskassessment.com/documents/110826AIRA_SummaryReportvFINALlr.pdf

PhaseAresultedinasetofrecommendedRiskReductionOptions(RRO).ThefourRROidentifiedinPhaseArequiringadditionalstudywere:(1)increaserescuetugcapabilitiesintheAleutianIslands;(2)increasesalvageandspillresponsecapabilitiesintheAleutianIslands;(3)strengthentheAleutianIslandsSubareaContingencyPlan;and(4)determinetheboundariesofpotentialIMOParticularlySensitiveSeaAreas(PSSA)andproposerecommendationsforassociatedprotectivemeasures.

ThescopeofworkforPhaseB,discussedinSection3,wasbasedontheAdvisoryPanel’srecommendationsfromPhaseA.


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Figure2liststherecommendationsfromPhaseAandtheirstatusuponcompletionofPhaseB.

Figure2.SummaryofrecommendedriskreductionmeasuresatconclusionofPhaseAandthestatusofeachattheconclusionofPhaseB


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3. PHASEBTheAdvisoryPaneldiscussedtheworkplanforPhaseBatanin-personmeetinginUnalaskaandsubsequentlyapprovedbytheManagementTeampriortoimplementation.ThissecondphaseoftheprojectpickedupwherePhaseAended,focusingonfurtheranalysiswhereneededorimplementationofpredeterminedcoursesofactionbasedontheriskreductionoptionsrecommendedinPhaseA.Table1showsthetasksandoutcomes.Table1.KeytechnicaltasksandoutcomesfromPhaseB

TASK PHASEBOUTCOMETask1-2.RecommendoptimalresponsesystemforAleutianIslandsbasedonconsiderationofoperatingenvironment,logistics,costsandbenefits,andpotentialorganizationalstructure.TheAdvisoryPaneloriginallyrecommendedtwoseparate,butrelated,riskreductionoptions:oneforsalvage/spillresponse,andoneforemergencytowing.Thesewerecombinedintoonetask.

ReportissuedinFebruary2015basedon14supportinganalysesrecommendstheorganizationalstructure,spillprevention,emergencytowing,salvage,andspillresponseelementsofanoptimalresponsesystemfortheregion.

Task3.UpdateSubareaContingencyPlan(SCP),includingdevelopingandupdatingGeographicResponseStrategies(GRS)andPotentialPlacesofRefuge(PPOR).

SCPupdateapprovedinApril2015followingapubliccommentperiod.TwentynewGRSdeveloped.GRSdeploymentexerciseheldinAdak.PPORinformationupdated.

Task4.InitiateapplicationtoInternationalMaritimeOrganization(IMO)forprotectivemeasures.

InJune2015,theIMOapprovedrecommendedroutingmeasuresforvesselstransitingtheAleutianIslands,whichwillrequireshipstostay50nmoffshoreexceptwhenusinganapprovedpass.ApplicationpreparedforParticularlySensitiveSeaArea.

Task5.FacilitatecoordinationamongManagementTeam,AdvisoryPanel,andsubcontractors.Quarterlyreporting.

TheManagementTeamand/orAdvisoryPanelconvenedmorethan30timeseitherinpersonorviateleconference.Emailupdateswereusedbetweenmeetings.Quarterlyreportsweresubmitted.

Task6.UpdateandsustainEmergencyTowSystem(ETS)deploymentintheAleutianIslands.

ETSdeploymentexerciseconductedfromUnalaskainOctober2012.Trainingmanualupdated.

Task7.Communicateprojectprogresstopublic,conveneprojectkick-offandwrap-upmeetings,andcoordinatewithpeerreviewpanel.

Projectwebsitesforthepublicandprojectparticipantsweredevelopedandmaintainedat:aleutianislandsriskassessment.com.PeerreviewcommentsonOptimalResponseSystemreportreceivedinfall2014.Twoin-personmeetingsheld.


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4. TECHNICALTASKSANDOUTCOMESThissectiondescribedtheresultsofthekeytechnicaltasks(Tasks1-2,3,4,and6)conductedduringPhaseB.

4.1 Task1-2:OptimalResponseSystemTask1-2recommendedanoptimalresponsesystemfortheAleutianIslands.TherecommendationisdescribedinRecommendinganOptimalResponseSystemfortheAleutianIslands:SummaryReport.

TherecommendationwasdevelopedbyanAnalysisTeam,whichmetbothremotelyandinperson,andconsideredbytheManagementTeamandAdvisoryPanel.Thefinalrecommendation,summarizedinSection4.1.2,representsnear-consensusfromtheAdvisoryPanel.TheSummaryReportclearlystipulatesareasofagreementand,forthosefewissueswhereconsensuswasnotreached,thereasonsgivenforanyobjectionstotherecommendation.

TheAnalysisTeamincluded:BaldwinandButler,LLC(organizationandfunding),GlostenAssociates(emergencytowing),MoranEnvironmentalRecovery,LLC(spillresponse),MoranTowing(salvage),andNorthernEconomics,Inc(benefit-costanalysis).NukaResearchandPearsonConsulting,LLCfacilitatedtheteamandcontributedresearchandanalysisaswell.

ThereportwasalsoreleasedforpubliccommentandreviewedbytheTechnicalPeerReviewPanel,whosecommentsareincludedasanappendixtothefinalversion.

4.1.1 SUPPORTINGANALYSESTheAnalysisTeamconsideredoptionsacrossfourtracks:emergencytowing,salvage,spillresponse,andmanagementandfunding.Thebenefitsandcostsoftheirpreliminaryrecommendationwereanalyzedpriortofinalization.Figure3summarizestheprocessthattheAnalysisTeamusedtodeveloptherecommendation.


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Figure3.AnalysisTeamapproachtodevelopingrecommendedoptimalresponsesystem.NotshownhereistheextensiveinputprovidedbytheAdvisoryPanelthroughdiscussionsviawebinarandduringin-personmeetings.


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Fourteensupportingreportswerecompletedtodocumenttheresearchandreasoningfortheultimaterecommendation.TheseareheavilyreferencedthroughouttheSummaryReportandarelistedhere.

1) AleutianIslandsRiskAssessmentRegulatoryResourceStudy.NukaResearchandPlanningGroup,LLC&PearsonConsulting,LLC(2013).OverviewofregulatoryrequirementsrelatedtosalvageandoilspillpreventionandresponseapplicabletotheAleutianIslandsregion,andestimatedcostofresourcesrequiredforfullcomplianceofregulationsaswritten.

2) ImpactofEnvironmentalConditionsonVesselIncidentResponseintheAleutianIslands:AResponseGapAnalysis.NukaResearchandPlanningGroup,LLC(2014a).Characterizeshowoftenenvironmentalconditionsalonewouldprecludeorsignificantlyimpedearangeofemergencyandoilspillresponseoperationsintheregion.

3) CharacterizingEnvironmentalConditionsintheAleutianIslands.NukaResearchandPlanningGroup,LLC(2013b).Summarizesweatherdatausedinresponsegapanalysisandtowinganalyses.

4) 2012TransitsofUnimakPass.NukaResearchandPlanningGroup,LLC(2014).Providesanupdatetoprevioustrafficstudiesanddeterminesthepercentageofdeep-draftvesselsusingUnimakPassin2012thatwereininnocentpassage,andthereforewouldnotbesubjecttoU.S.responseplanregulations.Usedasproxyfor“currentdata”toinformper-vesselcostestimates.

5) MinimumRequiredTugfortheAleutianIslands.TheGlostenAssociates(2014).Calculatestheminimumtugbollardpullneededtocontrolandturnacontainershipthatofthe75thpercentilesizeofthosetransitingtheAleutiansin2012.

6) MinimumRequiredTug.TheGlostenAssociates(2013a).Firststudyofminimumtugbollardpullrequired,basedonslightlysmallervesselsizesfrom2010data.UsedforRegulatoryResourceStudy.

7) TugofOpportunityStudy.TheGlostenAssociates(2013b).Calculatestheabilityoftugsofopportunityintheregiontoreachvariousscenariolocationsandrescuealargeship.

8) EstimatedResponseTimesforTugsofOpportunityintheAleutians.NukaResearch&PlanningGroup,LLC(2014).BuildingoffofanalysisbyTheGlostenAssociates,concludesthattugsofopportunitymayoftenbeavailabletoaidrelativelysmallvesselsinfairconditions,butnotlargershipsoranyshipsinpoorconditions.

9) BestAvailableTechnology.TheGlostenAssociates(2013c).Identifiesbestavailabletechnologytugs(oneU.S.andoneforeign)basedonreviewofexistingvesselsandasetofcriteriaapplicabletoAleutianIslandsoperations.


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10) PurposeDesignedTowingVessel.TheGlostenAssociates(2013d).PresentdesignandcostestimatefortowingvesselintendedtomaximizefeaturessuchasspeedandseakeepingforAleutianIslandsoperations.

11) TugLocationStudy.TheGlostenAssociates(2013e).PresentsgeographicareasthatcanorcannotbereachedbytugsbasedatdifferentlocationsintheAleutianIslands.

12) Benefit-costAnalysisofRiskReductionOptionsfortheAleutianIslandRiskAssessment.NorthernEconomics,Inc.(2014).Concludesthatpredictedbenefitsofrecommendedsystemexceedcostsofsystemimplementation.

13) ConsideringOptionsfortheManagement&FundingofanOptimalResponseSystemintheAleutianIslands.Baldwin&Butler,LLCandPearsonConsulting,LLC.(2014).Describesapproachusedtoidentifynon-profitmodelforrecommendedsystem.

14) ConsideringOptionsforSalvage&OilSpillResponseinanOptimalResponseSystem.NukaResearch&PlanningGroup,LLC,PearsonConsulting,LLC,MoranEnvironmentalRecovery,&MoranTowing(2014).Describesapproachusedtoidentifyspillresponseandsalvageresourcesandsystemcomponentsforrecommendedsystem.

4.1.2 RECOMMENDATIONTherecommendedsystem(Figure4)includesoilspillpreventionthroughroutingmeasuresandreal-timevesselmonitoring,alongwithemergencytowing,salvage,andoilspillresponsecomponents.Italsorecommendsanorganizationalstructureandestimatesannualizedcosts.

TheAdvisoryPanelagreedwiththeAnalysisTeam’srecommendationthattheU.S.CoastGuardshouldapprovetheoptimalresponsesystem,managedbysomefutureManagingEntity,ascompliantwithfederalVesselResponsePlanregulationsfordeepdrafttankandnon-tankvesselsunderthealternativecomplianceoptiongrantedinfederalregulations.Thisapproachisconsideredtobemuchbettersuitedtotheregionthancompliancewiththeregulationsaswritten.


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Figure4.Summaryofrecommendedoptimalresponsesystem


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4.2 Task3:AleutianIslandsSubareaContingencyPlanUpdateandEnhancement

OilspillresponseforAlaskaisorganizedaroundaUnifiedPlanandregionalSCP.TheAlaskaRegionalResponseTeamconvenesSubareaCommitteesforeachsubareatoguiderevisionsandupdatestotheirSCP.TheAleutianIslandsSCPincludesGRSandPPOR,bothofwhichwereupdatedaspartofPhaseBoftheriskassessment.

ThemostrecentpreviousupdatetotheAleutianIslandsSCP–Change1–wasin2010andfocusedonincorporatinglessonslearnedfromtheM/VSelendangAyuoilspill;however,somepartsoftheplanremainedincompleteorhadbecomeoutdated.

4.2.1 SUBAREACONTINGENCYPLANUPDATETheSubareaCommitteewasreconvenedaspartofPhaseBtoreviseandupdatetheSubareaContingencyPlan.Thesameorganizationalstructurewasusedforthisupdateasforpreviousones,withanExecutiveCommitteecomprisedofagencyco-chairs(theUSCG,ADECandtheU.S.EnvironmentalProtectionAgency)andtwoworkgroups:Response/LogisticsandSensitiveAreas.

TheExecutiveCommitteeestablishedascheduleforconveningtheSubareaCommitteetoupdatetheplan,ultimatelyusingthefollowingprocess:

• February2013:InitialSubareaCommitteemeetinginAnchorage,withfundsfromtheriskassessmentusedtosupportinpersonparticipationbylocalandtribalgovernmentrepresentativesfromtheregion.ProvidedbackgroundontheSCPupdateprocessandschedule.

• April2013:Government-to-governmentconsultationandcoordinationwasinitiated,announcingtherevisionoftheSCPandseekingcommunityinputregardingresponseresources,infrastructurechanges,andsensitiveareas.TheSensitiveAreasectionoftheSCPupdatedtoconformtoanewformat,requiringmultiplesolicitationsforinputfromtheresourceagencies.Thissectionrequiredupdatedcontentonendangeredspecies,changestocertainlandsensitivities,andlinkstothePribilofIslandsWildlifeProtectionGuidelines.TheinformationprovidedbycommunitieseitherthroughtheSubareaCommitteeorbyindividualcontactswasincorporatedintotheResponseSection(Part1)oftheSCP.

• January2014:SubareaCommitteemeetingheldtoreviewdraftupdatesansolicitadditionalinput.

• August2014:SubareaCommitteemeetingheldtoreviewdraftupdatesanddiscussinclusionofOptimalResponseSystemrecommendation(fromTask1-2)intheplan.TheExecutiveCommitteedecidedtoaddtherecommendationfollowingthismeeting,addinganewsubsectionentitled,“MarineResponseandSalvageRecovery.”Thatsectionincluded:


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o Background§ WeatherCharacterization§ 2012TransitsofUnimakPass

o EmergencyTowingSystem(ETS)§ ETSDeploymentandOperations§ ResponseTimesforTugsofOpportunity§ ConsiderationforResponseTugs

o OilSpillResponseandSalvageo SpecialProcedures

§ DutchHarborSevereWeatherPlan§ RecommendedRoutingMeasures

o References:AnnotatedbibliographyofallfourteenAIRAreportswithweblinks

o AlternativePlanningCriteriaAnnex

• March2015:FinalmeetingofSubareaCommittee.Publiccommentperiodheldfor30days,withnocommentsreceived.

• May2015:Change2oftheAleutianIslandsSCPfinalizedandpostedonthefollowingwebsite:http://dec.alaska.gov/spar/perp/plan.htm

TheSCPisonafive-yearreviewcyclewiththenextrevisionscheduledfor2020.

4.2.2 GEOGRAPHICRESPONSESTRATEGIESTwentynewGRSweredevelopedaspartofPhaseB,andaGRSdeploymentexercisewasconductedinAdak.GRS,includedintheSCP,areoilspillresponseplansforcoastalareasdesignedtoprotectspecificsensitivesitefromimpactsfollowingaspill.Theseresponseplanscansavetimeduringthecriticalfirstfewhoursofanoilspillresponsebyshowingresponderswheresensitiveareasarelocatedandwheretoplaceoilspillprotectionresources.

ForthepurposesofGRSdevelopment,theAleutianSubareaisdividedintofivezonestomaketheselectionofsensitivesitesmoremanageableandfacilitateoutreachandsurveyactivities(seeFigure5).Forty-threeGRShadpreviouslybeendevelopedintheWestAandBZones,includingfivethatmemorializedthetacticsdeployedduringtheSelendangAyuresponse.


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Figure5.AleutianIslandsSubareaGRSzones

InFebruary2012,theGRSworkgroupreconvenedtodevelopadditionalGRSfortheAleutianIslandsareaaspartoftheefforttoupdatetheSCPoverall.TheworkgroupagainfocusedontheWestAandWestBZones,identifying15sitesintheWestAZoneduringtheinitialmeeting.SelectingsitesintheWestBZoneprovedmorechallengingbecauseoftheenvironmentalconditions,thelocationofthemostsensitiveresources,limitationsofoilspillresponseequipment,andremotenessofthearea.Aftergatheringinputfromresourceagenciesandlocalstoidentifysensitivesiteswherearesponsecouldbeeffective,fiveWestBsiteswereselected(SeeFigure6).


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Figure6.GRSsitesselectedinWestAandWestBzonesaspartofPhaseB


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FieldDeployment

InJuly2014,TacticsCommitteememberstraveledtoAdaktogatherinformationaboutconditionson-site,reachouttolocalstakeholdersforinputonlocalprotectionpriorities,andobserveandevaluatefirstresponderswhileimplementingaGRSduringascheduleddeploymentexercise.AcommunitymeetingwasheldattheAdakCityHallonJuly22,2014andattendedbylocalofficialsandcommunitymembers.PresentationsweregivenbyADECregardingtheSCPandGRSprogram.CommunitymembersconfirmedtheselectionofsitesforGRSandaddedotherareastheydeemedhighprioritysites.

OnJuly23,2014thelocalfueldistributor,AleutEnterprise,providedresponseequipment,vessels,andtrainedresponsepersonneltoconductGRSfielddeploymentinnearbyClamLagoon.Theseresponderscollaboratedwiththelocalfiredepartment,EMS,andpolicetosimulateanactualresponseforthevillage.Approximately25peoplewereinvolvedintheexercise.

ClamLagooninarelativelylargelagoon,typicalinWesternAlaska.Withanextensiveintertidalarea,thelagoonsupportssalmonrunsandprovidesacriticalhabitatfornestingandmigratingwaterfowl.Thelagoon’sentranceisanarrowchannelwithsignificanttidalcurrents.TheGRSdraftedforthatlocationcalledfor250feetofexclusionboominginfrontoftheentrancetokeepanyoilfromenteringthelagoon.

Afterrespondersattendedanexercisebriefing,theboomwasdeployedattheendoftheoutgoingtide.Theanchoringsystemsweresetatslacktide.Asthecrewsreadjustedtheanchors,thetidebegantoflood.Givenchallengingthetidalconditions,theboomwasdismantledbeforetheGRSwasfullydeployed(seeFigure7).TheGRSmayhavebeeneffectiveifboomhadbeenproperlyanchoredinitially.

Figure7.Crewshaddifficultywithshoreanchorsystems


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TheGRSwasmodifiedbasedonthefielddeployment(seeFigure8).Additionalboomwasspecifiedandtidalsealingboomwasaddedinadditiontoarequirementforoilcollectionatshoresidesites.Beyonddemonstratingtheimportanceoftestingdrafttactics,theGRSdeploymentrevealedtheimportanceoftrainingforlocalfirstresponders.Evenwithassistancefromthefuelcompany’strainedpersonnel,whodeploycontainmenttacticsatfueldepotsandtankfarms,additionaltrainingmaybewarrantedforthedeploymentofcertainGRStactics.

Figure8.GRSmappageforthetacticsasrevisedaftertheexercise

FieldSurveySurveyorsfromADECandNukaResearchconductedafieldsurveyfromavesselprovidedbyAleutEnterprises.Anemployeewithextensivelocalknowledgeguidedthesurveyofeightnearbysitestogatherinformationanddevelopprotectiontacticsforthesesensitiveareas.Accesstolocalknowledgegavesurveyorsinsightintoseasonalconditionsandadditionalresourcesthathadnotbeenidentifiedpriortothesurvey.

TacticsCommitteeMeetingandWorkgroupReviewTheTacticsCommittee,comprisedofrepresentativesfromtheAlaskaChaduxCorporation,USCG,ADECandNukaResearch,metafterthesurveytoreviewthe20GRSthathadbeendrafted.Afterexaminingthedraftplansandthelongdistancesfrompopulationcentersandequipmentdepots,thegroupfelttheneedtoaddressthelogisticalchallengestoresponseintheseareas.Forexample,theuseoflightweightandeasilytransportableabsorbentboomspriortothearrivalofcontainmentboomwasincorporatedintomanyGRStoenableafastercommunity


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response.Althoughnotideal,thismeasurecouldoffersomeprotectionbeforemoreadequateequipmentarrived.Inotherareassmaller-sizedcontainmentboomwasspecifiedtoreduceweightandincreasetheamountofboomthatcouldbedeliveredtoasite.AfterthetacticswerereviewedandapprovedbytheTacticsCommittee,theGRSwerepostedtotheprojectwebsitefortheworkgroup’sreview.InMay2015,theGRSwereconsideredapprovedbytheworkgroupandforwardedtotheSubareaCommitteeforinclusionintheSCP.GRPareavailableat:http://dec.alaska.gov/spar/perp//grs/ai/home.htm

4.2.3 POTENTIALPLACESOFREFUGEAplaceofrefugeisalocationwhereavesselneedingassistancecanbedirectedormovedtowhereactionscanthenbetakentostabilizethevessel,protecthumanlife,reduceahazardtonavigation,and/orprotectsensitivenaturalresourcesandotherusesofthearea(e.g.,subsistenceharvesting,commercialfishing,recreationalboating).Theseplacesmayincludeconstructedharbors,ports,naturalembayments, oroffshorewaters.PotentialPlacesofRefuge(PPOR)plansinAlaskacataloganddescribesitesthatmaybeaccessedbyvesselsindistress.Actualdesignationofaplaceofrefugewillalwaysbeanincident-specificdecisionmadebytheUSCG’sCaptainofthePortforWesternAlaska.Themoreinformationthatisavailabletodecisionmakers,themorelikelytheywillbeabletomakethebestdecisionpossible.

TheplansaredevelopedwithaworkgroupprocesssimilartothatusedtodevelopGRS.Aworkgroupconsistingofprofessionalmariners,resourceagencies,local,stateandfederalgovernmentrepresentatives,andcommunitystakeholdersoverseesanddirectsthedevelopmentoftheplans.

PPORDevelopmentintheAleutianSubareaThedevelopmentofthePPORfortheAleutianSubareacoincidedwiththedevelopmentofGRSthere.Manyworkgroupmemberswereinvolvedwithbothefforts,whichincreasedefficiency.TheSubareaisdividedinto10areastoallowfortheproductionofdetailedmapsandinformationaboutPPOR.PotentialPlaceofRefugePlansreflectthebestavailableknowledgeatthetimetheyareproduced,butconditions,resources,facilities,andresponseresourcesarealwayschanging.TheworkgroupreviewedandupdatedPPORmapsandinformationfortheAleutianIslandsSubareasforinclusionintheSCP.

ChangestotheRiskandAssetMapincluded:

• ProductionofamapforthelocationsofAutomaticIdentificationSystemtowersandcoverageinthearea(seeFigure9)

• Updateoftheinformationonoilspillsinthearea• ProductionofamapthatillustratedthelocationsoftheEmergencyTow

Systemsinthearea

Changestoindividualmapsincluded:

• Documentandincludeanychangestoinfrastructureinthearea• ChangeRatIslandtoHawadaxIslandtoreflectthenewname


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• IncludetheemergencymooringbuoyinUnalaskaBay• Generaleditsandreviewtoensureaccuracy

Duringtheplanupdateprocess,nonewPPORwereselectedandnonewereremoved.TheworkgroupwasnotifiedoftheseupdatesinMay2015andencouragedtoprovidecommentsoranyadditionalinformationduringareviewperiod.NoadditionalinformationwasofferedandtheplanswereforwardedtotheSubareaCommitteeforinclusionintheSubareaPlan.TheupdatedPPORplansareavailableat:http://dec.alaska.gov/spar/perp/aippor/home.htm

Figure9.OnelayeroftheRiskandAssetMapsincludedinthePPORSectionoftheSCPshowingAIScoverageintheregion

4.3 Task4:InternationalMaritimeOrganizationRoutingMeasures

Vesselsininnocentpassage–non-U.S.flaggedvesselsvoyagingbetweentwonon-U.S.ports-areaconcernintheAleutianIslands.Whiletheyarerequiredtocomplywithinternationalnormsandconventionsrelatedtooilspillresponsepreparedness,thesevesselsarenotrequiredtocontributetoarea-specificresponseresourcesorreadinessintheAleutianIslandsthewayvesselssubjecttoU.S.vesselresponseplanrequirementsmust.ThisissuewasakeyconcerninPhaseAoftheAIRA,andresultedinarecommendationtoexploreoptionsforestablishinginternationalroutingmeasuresintendedtokeeplargevessels,includingthoseininnocentpassage,awayfromtheislandsunlesstheyareusingapass.


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InJune2015,theInternationalMaritimeOrganization(IMO)approvedtheU.S.government’sproposaltoestablishfiveareastobeavoided(ATBA),50nmoffshoreoftheAleutianIslands.ThismeasuretakeseffectinJanuary2016.Althoughtechnically“recommendatory,”itestablishesastandardofcarethatappliestoallshipspassingthroughtheregion,includingthoseininnocentpassage.(Vesselsengagedinlocaltradearenotaffected.)

Figure10.RecommendatoryareastobeavoidedestablishedbyIMOfortheAleutianIslandsarea

InDecember2012,PearsonConsulting,LLCandCapeInternationalconvenedaworkgroupofAdvisoryPanelmemberstoconsiderthepotentialforestablishingaParticularlySensitiveSeaArea(PSSA)intheAleutianIslands.Thisgroupmetfivetimesontheissuebetween2012-2014,inadditiontofullAdvisoryPaneldiscussions.

ThepursuitofthePSSAwasdrivenbyaninterestinestablishingATBAinthearea.AfterfurtherresearchanddiscussionswiththeU.S.NationalOceanicandAtmosphericAdministration(NOAA),whichadvocatesfortheU.S.attheIMOontheseissues.WithinputfromtheAdvisoryPanelaswellasUSCGandNOAAofficialsfamiliarwiththeprocedures,theAIRAManagementTeamdecidedtotaketheapproachofpursuingroutingmeasuressuchasATBAwithoutaPSSAdesignation.


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Theroutingmeasuresproposalincluded:

• Generaldescriptionoftheregion• Uniqueorrarefeatures,includingenvironmentalsensitivities• Criticalhabitat• Productivity• Vulnerability• Economicbenefit• Culturalsignificance• Subsistencesignificance• Scientificandresearchvalue• Otherconsiderations,suchasvesseltrafficandstateofnavigationalaidsand

hydrographicsurveys• Naturalfactors• Vulnerabilitytointernationalshipping• Domesticmeasures• Shippingconsiderations• AimoftheproposedATBA• Impactonshipping• Actionrequested

TheAdvisoryPanelreviewedandapprovedadraftapplicationtotheIMOforproposedATBA(routingmeasures)inOctober2014.TheapplicationwaspresentedtoandendorsedbytheNavigationSafetyCommitteeinMarch2015,andenactedbythefullIMOinJune2015totakeeffectinJanuary2016.

AnapplicationforaPSSA,whichincludesmuchofthesameinformation,wasalsopreparedtoadheretotheoriginalprojectscopeofwork.

4.4 Task6:ETSExerciseandTrainingMaterials

ADEChasanongoingprojecttostationEmergencyTowingSystems(ETS)aroundAlaskaandmaintainthiscapabilitythroughperiodicexercisessupplementedbyatrainingmanualandDVD.TheMayorofUnalaskainitiatedthisprogramfollowingtheneargroundingofashipoftheircoastin2007.

WiththebenefitsoftheETSwidelyrecognized,fundsfromtheM/VSelendangAyusettlementwereusedviaPhaseBoftheAIRAtofacilitatea6thAnnualETSExerciseinUnalaskain2012.Theywerealsousedtoupdatetheexistingauxiliarytrainingmanualanddevelopatrainingvideo,madepubliclyavailablebythestate.Thevideoisavailableat:https://dec.alaska.gov/spar/PPR/ets/index.htm.

AnETStrainingexercisewasconductedonOctober3,2012inUnalaskaBay,northofAmaknakIsland.TheexerciseobjectivesweretofamiliarizelocalresponderswiththeETSandcaptureinformationtoupdatethetrainingmanualandvideo.Twenty-


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onerepresentativesfromtheAIRAAdvisoryPanelandlocaloperators(PortofUnalaska,DunlapMarine,andHarleyMarine)participated,alongwithrepresentativesfromADECandU.S.CoastGuard’sSectorAnchorageandMarineSafetyDetachmentUnalaska.TheAfterActionReportisavailableat:http://www.aleutiansriskassessment.com/images/121102_ETS_AAR_v1.pdf.

Figure11.ETSdeploymentbeingpreparedduringOctober2012exerciseinUnalaskaBay


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5. FACILITATIONANDPROJECTMANAGEMENTInadditiontotheactivitiesdescribedinSection4,projectfacilitationandmanagementincluded:

• Facilitationof27ManagementTeamteleconferences(inadditiontoAdvisoryPanelmeetings).

• FacilitationofsixAdvisoryPanelmeetings,includingwebinarsandin-personmeetingsinUnalaskaandAnchorage,Alaska.

• Managementofsevensubcontracts,includingfacilitatingreviewandapprovalofallsubcontractordeliverables.

• Managementandreportingforaseparatefundusedtofacilitateparticipanttravelforin-personmeetings.

• DevelopmentandmaintenanceofemaillistsfortheManagementTeam,AdvisoryPanel,andinterestedmembersofthepublic.

• Developmentanddistributionofprojectnewsletterswithupdates,meetingandcommentperiodannouncements,andlinkstoprojectdeliverables.

• Developmentandmaintenanceofprojectwebsites,includingoneforthepublicandpassword-protectedsitesfortheAdvisoryTeamandManagementTeam.(Thepublicwebsitewillbestatic,butmaintainedfortwoyearsfollowingprojectcompletion.)

• Presentationsorbriefingsabouttheprojectdeliveredto:BC-PacificStatesOilSpillTaskForce(2013),ArcticandMarineOilSpillProgram(2013),ArcticCircleConference(2013),ArcticResearchCommission(2014),OfficeoftheGovernorandAlaskaDepartmentofEnvironmentalConservation(2014),CityCouncilofUnalaska(2014),USCGSectorAnchorage(2014),AleutianIslandsSubareaCommittee(2014),membersofthepressandpublic(viawebinar,2014),andCleanPacificConference(2015).

• Quarterlyandfinalreporting.

• BudgetmanagementandupdatesfortheManagementTeam.


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6. CONCLUSIONTheseassurroundingtheAleutianIslandspresentsomeofthemostchallenginganddangerouswaterstraversedbymarineshippingintheUnitedStates.Overfourthousandvesselstransitthesewaterseachyear.Therehavebeennumerousmarinecasualtiesresultinginoilspill,environmentaldamage,andhumanfatalitiesinthesewatersinthepast100years.Onesuchcausality,thegroundingoftheM/VSelendangAyuin2004,ledtotheAleutianIslandRiskAssessment.

TheAleutianIslandRiskAssessmentutilizedacombinationofpeer-reviewedtechnicalanalysisandexpertknowledgefromadiversegroupofstakeholderstoevaluatetherisksofmarineaccidentsandoilspillsintheAleutianIslandsandmakeaseriesofrecommendationinbothpreventionandresponsemeasurestoimprovesafety.Someoftheserecommendationshavebeenimplemented,whilepolicymakerswerestillconsideringothersatthetimeofthisreport.

Hopefullyhistorywillshowthatthisprojectreducedthefrequencyofmarinecasualtiesandtheconsequencesofaccidentsthatinevitablyoccur.Themethodsusedforthisriskassessmentarereadilyreplicableforotherregionswherethereareoilspillrisksfrommarineshippingandasharedcommitmenttoidentifyingandmitigatingthoserisks.


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REFERENCES

Baldwin&Butler,LLCandPearsonConsulting,LLC.(2014).Consideringoptionsforthemanagement&fundingofanoptimalresponsesystemintheAleutianIslands.Ed.NukaResearchandPlanningGroup.AleutianIslandsRiskAssessmentPhaseB.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011a).Task3-4consequenceanalysisreport.AleutianIslandsRiskAssessmentPhaseA.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011b).Accidentscenarioandcausalitystudyreport.AleutianIslandsRiskAssessmentPhaseA.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011c).Task6and7riskreductionoptionsevaluationreport.AleutianIslandsRiskAssessment.PhaseA.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010a).Task1semi-quantitativetrafficstudyreport.Reportno./DNVrefno:EP007543.AleutianIslandsRiskAssessmentPhaseA.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010b).Task2Amarinespillfrequencyandsizereport.Reportno./DNVrefno:EP007543-1.AleutianIslandsRiskAssessmentPhaseA.

DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010c).Task2Bbaselinespillstudyreport.AleutianIslandsRiskAssessment.PhaseA.

NationalOceanicandAtmosphericAdministration.(2016.)M/VSelendangAyu.DamageAssessment,Remediation,andRestorationProgram.Retrievedfrom:https://darrp.noaa.gov/oil-spills/mv-selendang-ayu

NationalTransportationandSafetyBoard.(2006.).GroundingofMalaysian-flagBulkCarrierM/VSelendangAyuonNorthShoreofUnalaskaIsland,AlaskaDecember8,2004.NTSB/MAB-06/01.Retrievedfrom:https://www.ntsb.gov/investigations/fulltext/MAB0601.htm

NorthernEconomics.(2014).Benefit-costanalysisofrisk-reductionoptionsfortheAleutianIslandsRiskAssessment.AleutianIslandsRiskAssessmentPhaseB.

NukaResearchandPlanningGroup,LLC.(2014a).ImpactofenvironmentalconditionsonvesselincidentresponseintheAleutianIslands:Aresponsegapanalysis.AleutianIslandsRiskAssessmentPhaseB.

NukaResearchandPlanningGroup,LLC.(2014b).SummaryoflargevesseltransitsofUnimakPassin2012.AleutianIslandsRiskAssessmentPhaseB.

NukaResearchandPlanningGroup,LLC.(2014c).EstimatingresponsetimesfortugsofopportunityintheAleutianIslands.AleutianIslandsRiskAssessmentPhaseB.

NukaResearchandPlanningGroup,LLC.(2013).CharacterizingenvironmentalconditionsintheAleutianIslands.AleutianIslandsRiskAssessmentPhaseB.


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NukaResearchandPlanningGroup,LLC.,PearsonConsulting,LLC.,MoranEnvironmentalRecovery,&MoranTowing.(2014).Consideringoptionsforsalvage&oilspillresponseinanoptimalresponsesystem.AleutianIslandsRiskAssessmentPhaseB.

NukaResearchandPlanningGroup,LLC.,PearsonConsulting,LLC.,Baldwin&Butler,LLC.,MoranEnvironmentalRecovery,MoranTowing,NorthernEconomics,Inc.,&TheGlostenAssociates.(2013).Regulatoryresourcestudy.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2014).MinimumrequiredtugfortheAleutianIslands.ReportNo.12127.03.01.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2013a).Minimumrequiredtug.ReportNo.12127.02.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2013b).Tugofopportunitystudy.ReportNo.12127.01.12e.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2013c).Bestavailabletechnology.ReportNo.12127.02.12c.NukaResearchandPlanningGroup,LLC.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2013d).Purposedesignedtowingvessel.ReportNo.12127.02.12c.NukaResearchandPlanningGroup.AleutianIslandsRiskAssessmentPhaseB.

TheGlostenAssociates.(2013e).Tuglocationstudy.ReportNo.12127.02.12d.NukaResearchandPlanningGroup,LLC.AleutianIslandsRiskAssessmentPhaseB.

SelendangAyuSettlement.(2007.)UnitedStatesofAmericavs.IMCShippingCo.PTELtd.Aug.13.

TransportationResearchBoard.(2008).RiskofvesselaccidentsandspillsintheAleutianIslands:Designingacomprehensiveriskassessment.SpecialReport293.

Wolniakowski,K.,Wright,J.,Folley,G.,andFranklin,M.(2011).AleutianIslandsRiskAssessmentproject:PhaseAsummaryreport.AleutianIslandsRiskAssessmentPhaseA.


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APPENDICES

AppendixA–PhaseBProjectParticipants


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APPENDIXA–PHASEBPROJECTPARTICIPANTSPEER REVIEW PANEL

Name Organization Posit ion Phase

Dr. CJ Beegle-Krause Environmental Research for Decision, Inc. President A

David Bovet Norbridge, Inc Partner B

Dr. Paul S Fischbeck Center for the Study and Improvement of Regulation Department of Social & Decision Sciences Carnegie Mellon University

Director A & B

Dr. Beverly Huey, Panel Coordinator

The National Academies of Science, Transportation Research Board

Senior Program Officer

A & B

Dr. John D Lee University of Wisconsin, College of Engineering, Department of Industrial and Systems Engineering

Professor A & B

Dr. Thomas M Leschine

University of Washington School of Marine Affairs Director A & B

Mr. R Keith Michel Herbert Engineering Corp Chairman of the Board

A & B

Dr. Ali Mosleh University of Maryland, Mechanical Engineering Professor A & B

ADVISORY PANEL

Name Organization Primary/ Altnerate

Stakeholder Category

Phase

David Arzt Alaska Marine Pilots' Association Primary Mariner, Pilot A & B

Louis Audette K-Sea Transportation Primary Mariner, Oil Barges/Tankers

A & B

Mike Baker Aleut Enterprise, LLC Alternate Mariner, Oil Barges/Tankers

A

Catherine Berg Alaska Maritime National Wildlife refuge

Alternate Resource Manager A & B

Reid Brewer AK Sea Grant Marine Advisory Program UAF

Primary Subsistence A & B

Douglas Burn USFWS Alternate Resource Manager B

Cheryl Fultz Delta Western Inc. Alternate Mariner, Oil Barges/Tankers

B

Tom Gemmell Marine Conservation Alliance Primary Fisheries A & B

David Gregory Community member; OC employee; City Council; LEPC Member;

Alternate Subsistence A & B


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ADVISORY PANEL, continued

Name Organization Primary/ Altnerate

Stakeholder Category

Phase

Pete Garay Alaska Marine Pilots' Association Alternate Mariner, Pilot A

Layla Hughes Consultant Alternate NGO / Environmental A & B

Frank Kelty City of Unalaska Alternate NGO – Local (A) Fisheries (B)

A & B

Simon Lisiecki Retired Primary Mariner, Innocent Passage

A & B

Eugene Makarin American President Lines, Ltd Primary Mariner, Containerships

A & B

Karol Kolehmainen

Aleutians West Coastal Resource Service Area

Primary NGO-Local A

Shirley Marquardt

City of Unalaska Primary Local Government A & B

Ed Page Marine Exchange of Alaska Primary Mariner, General A & B

Brent Paine United Catcher Boats Association Primary Fisheries A

Tom Robinson Qawalangin Tribe of Unalaska Primary Subsistence B

Tom Rueter Alaska Maritime Agencies Alternate Marine, General A & B

Mike Ruiz American Marine Corporation/PENCO

Alternate Marine Salvor A & B

Whit Sheard Pacific Environmental Primary NGO / Environmental A & B

Marc Smith Private Consultant Primary Mariner, Tramper A & B

Bob Umbdenstock

Resolve Marine Group Primary Mariner, Salvor A & B

Mike McGlothin American President Lines, Ltd Alternate Mariner, Containerships

A

Richard Wilson American Marine Corporation/PENCO

Alternate Marine Salvor A

Jeff Williams Alaska Maritime National Wildlife Refuge

Primary Resource Manager A & B


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MANAGEMENT TEAM

Name Organization Phase

CAPT Scott Bornemann USCG District 17 B

LT Jason Boyle USCG Inspection/Investigation Division

LT Eugene Chung USCG, Waterways Management Chief / Sector Anchorage B

LT Kion Evans USCG Planner, Sector Anchorage B

LT Robert Fields USCG, Inspections/Investigations Branch A

Gary Folley ADEC/SPAR A & B

LT Mike Franklin USCG Inspection/ Investigation Division A

LCDR Gary Koehler USCG Inspection / Investigation Division A & B

LT Matt Mitchell USCG Planner, Sector Anchorage B

CDR Shane Montoya USCG Planner, Sector Anchorage B

Matt Odeum ADEC/SPAR A

CDR James Robertson USCG, Chief, Inspections/Investigations Branch A

CDR Patrick Ropp USCG Inspection / Investigation Division A & B

CAPT Adam Shaw USCG Inspection / Investigation Division A & B

Crystal Smith ADEC A&B

Krystyna Wolniakowski NFWF A & B

Jay Wright NFWF A & B

160310 aira phase b final program report for formatting-kg · nuka research and planning group, llc...

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