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Ronald Reagan Presidential Library
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Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: [Environment] - Report of the
Ad Hoc Committee, State Regulations and
Inspection Practices, Oil and Gas Operations
and Oil Pollution, June 1969
Box: P36
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Resources
STA C OF CALIFORNIA-RESOURCES AGENCY
RONALD REAGAN, Governor
DEPARTMENT OF CONSERVATION
DIVISION OF FORESTRY
DIVISION OF MINES AND GEOLOGY
DIVISION OF OIL AND GAS
DIVISION OF SOIL CONSERVATION
SACRAMENTO, CALIFORNIA
1416 Ninth Street
June 18, 1969
Honorable Norman B. Livermore, Jr.
Secretary for Resources
The Resources Agency of California
Room 1311, Resources Building
1416 Ninth Street
Sacramento, California 95814
Dear Mr. Livermore:
It is a pleasure to send to you for review and further disposition the
report of your Ad Hoc Committee, State Regulations and Practices, Oil
and Gas Operations and Oil Pollution. Attached to and included in the
report is a proposed "California Oil Spill Disaster Contingency Plan".
This Committee was formed in late February at your request. The State
Lands Commission requested a somewhat similar study by the State Lands
Division. By participation on this Committee, the State Lands Division
considers this to be, in part, a joint report.
In addition to the State agencies represented on the Committee (see
below), the following State agencies have reviewed preliminary drafts
of the report at various stages of the study:
Department of Water Resources
Department of Harbors and Watercraft
Interagency Council on Ocean Resources (ICOR)
Public Utilities Commission
Division of Industrial Safety
Review and comment was also solicited and received from the United States
Geological Survey and the Western Oil and Gas Association.
It should be stressed that this has been a critical, comprehensive study
with no punches pulled. It should be equally stressed that, due to the
length of the study, many of the resultant recommendations have already
been, or are being, implemented and therefore some criticisms contained
in the report are no longer valid. The interagency dialogue generated
by the study process itself has solved many of the problems discussed.
Recommendations "A" and "B" provide a mechanism for implementing the
other recommendations.
CONSERVATION IS WISE USE-KEEP CALIFORNIA GREEN AND GOLDEN
Honorable Norman B. Livermore, Jr.
June 18, 1969
Page 2
Despite the critical approach of this study, it is difficult to
escape the conclusion that the State of California has done a
generally excellent job in regulating oil and gas operations in
the past. With the adoption of the recommendations made in this
report and continued interagency coordination through the pro-
posed "State Interagency Oil Spill Committee", it should be
possible to maintain this excellent safety record in the continued
development of the vital oil and gas resources of an increasingly
urban, increasingly environmental quality conscious California.
Respectfully,
Ad Hoc Committee, State
Regulations and Practices,
Oil and Gas Operations
and Oil Pollution
William C. Bailey
Division of Oil and Gas
Paul R. Bonderson
Water Resources Control Board
Wesley G. Bruer
Department of Conservation
Donald J. Everitts
State Lands Division
Charles E. Fullerton
Department of Fish and Game
Edward N. Gladish
Department of Conservation
George P. Gribkoff
Water Resources Control Board
Fred E. Kasline
Oil and Gas Supervisor
John F. Matthews, Jr.
Division of Oil and Gas
Loren Fields
California Disaster Office
F. W. Boone
Environmental Quality Study Council
Enclosure
CC: State Lands Commission
% Mr. Frank Hortig
Chief Executive Officer
REPORT OF THE AD HOC COMMITTEE
STATE REGULATIONS AND INSPECTION PRACTICES,
OIL AND GAS OPERATIONS AND OIL POLLUTION
CONTENTS
PAGE
Summary of Review and Conclusions
1
Recommendations and Implementation
2
Recommendation Index
3
Introduction
4
I. Prevention of Pollution from Oil Operations
5
A. Release and Coordination of Geologic Data
5
1. Legal Restrictions and Exchange Systems
5
B. Drilling.
7
1. Offshore and Tideland
7
a. Equipment and Methods
7
b. Personnel and Supervision
11
C. Aesthetics
12
(i) During Operations
12
(ii) Site Restoration
13
d. Waste Containment and Disposal
13
e. Inspection Processes
15
f. Enforcement Procedures
16
2. Upland
17
a. Equipment and Methods
17
b. Personnel and Supervision
17
c. Aesthetics
17
d. Waste Containment and Disposal
18
e. Inspection Processes
18
f. Enforcement Procedures
18
C. Production (Offshore and Upland)
18
1. Production Facilities
18
a. Offshore
18
b. Upland
19
2. Oil and Waste Water Sumps and Other Surface Disposal
20
3. Transportation
21
a. Pipelines
21
(i) Offshore
22
(ii) Upland
23
b. Tankers
24
II. Abatement of Major Oil Spills
25
A. Controlling the Source
26
B. Containment and Removal
26
II. Lesser Spills and Nuisances
27
A. Harbor Spills
27
B. Old Well Abandonments
27
C. Natural Oil Seeps
28
alifornia Oil Spill Disaster Contingency Plan
Attac
ed
REPORT OF THE AD HOC COMMITTEE,
STATE REGULATIONS AND INSPECTION PRACTICES,
OIL AND GAS OPERATIONS AND OIL POLLUTION
Summary of Review and Conclusions
This study was requested by the California Resources Agency in the wake of the
Santa Barbara Channel oil pollution incident of early 1969. Regulations and
practices are reviewed and recommendations made to assure that public safety,
property and environmental quality receive maximum protection consonant with
economic development of the oil and gas resources of an increasingly urbanized
California. Provision is made herein for implementation of these recommenda-
tions.
Under State regulation and supervision, the California oil industry has a
generally excellent record in the prevention of major oil spills. State regula-
tions are not so rigid as to preclude discretion. This approach has been
successful and should be continued. Some legal restrictions on inter-agency
exchange of offshore data should be removed.
State agencies have various responsibilities in regard to oil operations and
oil pollution. The Division of Oil and Gas is responsible for the conservation
and protection of oil, gas and fresh water. The State Lands Commission,
operating through the State Lands Division, represents the State as a land and
mineral owner, and protects the State's interest in the development of same.
The State Water Resources Control Board and the Regional Water Quality Control
Boards are responsible for water quality and control of water pollution. The
Department of Fish and Game is responsible for fish and wildlife resources in
California and, in carrying out its duties, also enforces State and Federal
pollution laws. The Division of Industrial Safety is responsible for assuring
safe working environments.
In general, State agencies have sufficient authority to enforce compliance with
oil pollution prevention and abatement requirements, although there are some
"gray" areas. The responsibilities of the Division of Oil and Gas should be
expanded to include protection of public safety, property and natural resources
in regard to oil and gas operations. The Division should accordingly expand
its duties, require additional information from oil operators and conduct more
inspections. There appears to be a serious void in State regulation and inspec-
tion of the pollution aspects of onshore pipelines, other than public utility
pipelines. Also, there should be better control on the location, construction
and operation of oil and waste water sumps, and on waste water disposal into
ocean waters. Oil containment and removal devices should be quickly available
to offshore oil operations.
There is a need for better coordination between State agencies in many activities
related to oil and gas operations. For example, the State Lands Division should
establish better coordination with other agencies, particularly the Regional
Water Quality Control Boards. The latter Boards also need to work at this and,
in addition, should maintain better liaison with the Division of Oil and Gas.
-1-
Ocean-going tankers are the most likely future source of disastrous oil spills.
A study should be made of west coast tanker traffic and safety procedures.
Lesser oil spills in harbors and old well abandonments are continuing nuisances
which also require further study.
A new California Oil Spill Disaster Contingency Plan is proposed to provide for
effective coordination of State efforts during any future major oil spill abate-
ment operations, regardless of the source of the spill.
Recommendations and Implementation
Two primary recommendations are not in the body of the report; they are as follows:
(A) The head of each State agency mentioned herein shall on or before
September 15, 1969 submit a report to this Ad Hoc Committee detailing
the actions taken by his agency to implement the recommendations in
this report which concern it, and suggesting the form of any legisla-
tion which may be needed to complete the implementation of these
recommendations. Submittal of reports shall be expedited by the agency
designated to coordinate each recommendation. These agency reports
shall be evaluated by this committee and forwarded to the Resources
Agency and the State Lands Commission, on or before October 15, 1969,
with further recommendations including those for necessary legislation.
(B) The concerned departments shall put the needed legislation into required
form and secure its introduction early in the 1970 session of the Legis-
lature, as coordinated by the Resources Agency.
The other 38 recommendations are included and numbered in each section of the
report. The "Recommendation Index", on the next page, summarizes them all by
number, description, location in report, agencies concerned and method of
implementation.
Most recommendations are for changes in, or additions to, present procedures
and practices, and/or for better inter-agency coordination. These can be
adopted administratively or effected by cooperation. In some instances,
additional authority seems warranted and legislation may be required for
achievement.
-2-
AGENCIES CONCERNED
State Regulations and Inspection
METHOD OF IMPLEMENTATION
Practices, Oil and Gas Operations and
Oil Pollution
Recommendation Index
RECOMMENDATION
WRCB & RWQCB
DNOD ** (or DRSW)
0.
BRIEF DESCRIPTION
DOG
SLD
PAGE
DFG
DIS
DWR
RA
PUC
CDO
D.C.
INDUSTRY
ADMINISTRATIVE
a
All agencies report back on recommendation implementation and
legislative needs, Ad Hoc Committee Coordinate.
2
X
X
X
X
X
X
X
*
X
X
x
x?
X
X
Resources Agency coordinate preparation and introduction of
KI
legislation.
2
x
X
x
x
x
X
X
X
X
*
X
DOG access to offshore data available to SLD.
KI
X
6
X
x
Explore offshore date exchange with USGS.
6
1x
X
X
Expand DOG responsibilities to protection of life, property
x
and natural resources.
9
X
DOG require more data on proposals.
9
x
X
x
DOG require drilling Fluid-monitoring devices.
9
KI
X
x
Establish standard classification of BOPE.
10
IX
X
X
Offshore casing, cementing and testing.
10
X
X
Additional notice for producing well work,
10
X
Form DOG offshore unit.
10
X
X
x
).
2-way radios in DOG vehicles,
10
x
1.
Operator reporting of spills to DOG, mandatory.
10
x
x
2.
DOG "Weekly Summaries" to RWQCB's.
11
X
*
x
X
1.
SLD send notices to RWQCB's.
11
ix
X
X
X
Analysis of geology and drilling conditions for RWQCB's.
11
*
17
x
X
6.
Shallow electrical logs for fresh water.
11
*
X
x
X
x
X
5.
Better liaison, RWQCB's, DOG, SLD, DFG.
11
*
X
x
x
X
7.
Mandatory weekly blow-out practice drills, offshore drilling
crews.
12
*
x
3.
DOG require injection well corrosion protection information.
14
KI
X
X
9.
Revise interagency procedural agreements, water quality.
14
R
X
K
x
X
X
).
Detailed BOPE inspection for condition.
16
X
x
1.
All State employee reporting of spills.
16
x
K
X
x
X
X
x
X
*
2.
DOG investigate suspected subsidence areae and seek remedial
action.
17
X
x
x?
x
X
of
Require additional data and conduct regular inspection,
X
X
X
surface water disposal.
18
X
+.
Underwater facilities not to be fishing hasard.
19
x
*
x
5.
Flowing well "storm-chokes" in sensitive upland areas.
19
x
X
6,
Annual inspection of producing areas.
20
x
E
7.
Cooperative inspection of oil and waste water sumps.
20
MI
X
x
x
X
8,
Review disposal of waste water in ocean,
21
X
X
x1
X
x
*?
X
9.
Greater care in location of 011 and waste water sumps,
21
X
X
IN
X
x
x
0,
24
X
I
R
Pipeline study.
X
X
X
R
II
x?
X
1.
Review underwater pipeline locations.
24
x
x
X
X
2.
Cooperate in offshore pipeline corridor study.
24
*
XI
x
X
X
*
K
X
X
X
Tanker traffic study, spill haward,
124
1x
X
3.
X
X
4.
CDO implement spill disaster contingency plan.
25
X
X
X
x
X
x
X
*
X
X
x
X
X
X
26
15.
Operator access to booms and skimmers.
K
x
x
X
x
X
Plan dispersant testing and licensing.
27
16,
x
X
x
X
Ensure good condition of offshore loading facilities,
27
KI
X
X
:
x
37.
X
x
28
x
X
X
X
x?
X
28.
Recommend funding source, deserted problem-well abandonments.
*
Some recommendations repeated in other sections of report.
**
Proposed Department of Navigational and Oceanograph Development.
3
Coordinating agency.
-3-
Ad Hoc Committee Members:
John M. Mayfield, Jr., Chairman, Deputy Director, Department of Conservation
Division of Oil and Gas
William C. Bailey
Water Resources Control Board
Paul R. Bonderson
Department of Conservation
Wesley G. Bruer
State Lands Division
Donald J. Everitts
Charles E. Fullerton
Department of Fish and Game
Edward N. Gladish
Department of Conservation
Water Resources Control Board
George P. Gribkoff
Oil and Gas Supervisor
Fred E. Kasline
Division of Oil and Gas
John F. Matthews, Jr.
California Disaster Office
Loren Fields
Environmental Quality Study Council
F. W. Boone
Introduction
As recently demonstrated by the uncontrolled oil discharge near Platform
402A in Federal waters off Santa Barbara, oil operation accidents can have
a serious adverse affect on the environment. Members of this committee
were appointed by their respective agency heads following the State Resources
Agency request to do so dated February 27, 1969. The original charge of
the committee was to critically assess current State of California offshore
oil and gas regulations and inspection practices as they relate to public
safety and the environment, and to develop recommendations for necessary
or desirable improvements. During the review, questions arose concerning
regulations and practices on the uplands; therefore, the study was expanded
to include these.
From 1957 through 1968, 682 wells were drilled from platforms, piers, islands
and fixed or floating structures on State offshore leases, under State regula-
tions and jurisdiction; other offshore lands were slant-drilled from upland
drillsites. In addition, 708 offshore coreholes were drilled under State
regulation and supervision from May, 1956 through January, 1969; of these,
465 were drilled prior to the May, 1965 U.S. Supreme Court Opinion, in then-
disputed areas which are now Federal O.C.S. lands. No significant oil spill
has resulted from the drilling of any of these wells. This excellent record
is not the result of simple good fortune. California began regulating oil
operations in 1915; since that time, a vast background of experience has
been gained from the drilling of approximately 90,000 wells in the State.
The State regulations and practices of the past have been satisfactory, as
indicated above. However, the increasingly urban nature of California and
the resultant growing concern for environmental quality dictate that additional
precautions be taken in the future.
-4-
Well programs proposed by oil and gas operators are considered for approval
by State agencies on an individual, well-by-well basis, taking into consider-
ation the known (or unknown) geologic factors and other conditions which may
be encountered. To quote from an April 17, 1969 report to Los Angeles City
officials, prepared by Los Angeles City Petroleum Administrator, Arthur 0.
Spaulding: "---State officials are allowed to exercise their judgement as to
what constitutes a safe drilling and casing program. To make such a program
rigidly adhere to any given set of conditions is simply to invite disaster,
for no longer would discretion be a factor in the approval which must be
obtained".
Those most experienced in oil operations generally agree that regulations
must retain flexibility to allow for discretion; each well is different from
every other well, particularly in California. Therefore, while some legis-
lative amendments are suggested by the Committee, there are herein no long
lists of specifications recommended for inclusion in statutes or formal
regulations. Individual agencies have such lists for their own internal
use, to be sure, but these are used with judgement and amended internally
when warranted. Most of the recommendations have to do with practices and
with additional interagency coordination, and many of them are already
being implemented by the affected agencies.
Coordination between State agencies in some areas covered by this report
has been excellent; in other aspects, there appears to be considerable
room for improvement. Cooperative efforts in making this study have
already improved interagency communications. The continuation of this
Ad Hoc Committee until its recommendations have been implemented should
effect better coordination procedures. The formation and functioning of
the recommended "State Interagency Oil Spill Committee" (see proposed
"California Oil Spill Disaster Contingency Plan") should maintain better
coordination in the future.
I.
Prevention of Pollution from Oil Operations.
A. Release and Coordination of Geologic Data
1. Legal Restrictions, and Exchange Systems
Review: Section 6826, Public Resources Code, requires that
permittees make available geologic and other physical data from
their operations on State owned lands to the State Lands Commission;
it further provides that it is a misdemeanor for any member or
employee of the Commission to disclose this information to anyone
other than fellow members or employees of the Commission without
the written consent of the permittee. This prohibits sharing of
some critical information developed on State owned lands with
the Division of Oil and Gas. Since casing design and some other
drilling practices are best considered on a well-for-well basis,
taking geologic conditions into full account, this situation pre-
cludes full direct knowledge of some geologic information by DOG
on and adjacent to State owned lands. DOG therefore relies to
some extent on the judgement of State Lands Division personnel
as to the adequacy of casing and other provisions proposed by the
operators insofar as these are governed by geologic conditions in
those areas.
-5-
DOG also requires submittal of certain records and provides that
they remain confidential except by written consent of the operator.
State Lands Division gains access to this information by including
a waiver in the lease form to all data filed with the DOG on State
owned lands.
The United States Geological Survey requires that data gathered by
operations on Federal land be made available to it but this informa-
tion is also confidential. Consequently, there is no official
exchange of offshore geologic data between State and Federal agencies.
This is not the case for upland wells drilled on Federal lands. The
Division of Oil and Gas regulates and supervises these well operations
in the same manner and is furnished the same data as for wells drilled
on other lands in California, by tacit agreement with the USGS.
Recommendations:
(1) Division of Oil and Gas and State Lands Division
The DOG should prepare special forms of the Notice of
Intention to Drill (Form 105) and notice of intention
to rework (Form 107) for proposed operations on State
owned lands, only, which include a clause constituting
written consent for DOG to have access to all data avail-
able to the State Lands Commission. DOG coordinate.
(2) Department of Conservation, DOG, State Lands Division
A preliminary meeting has taken place between State personnel,
and USGS and U.S. Department of Interior representatives.
Further meetings should be arranged to explore means of
establishing an offshore data exchange system in specific
areas of mutual concern. Department of Conservation
coordinate.
-6-
B. Drilling
1. Offshore and Tideland
a. Equipment and Methods
Review: The primary charge of the State Oil and Gas Supervisor
and the DOG is to prevent loss of oil, gas or reservoir energy
and damage to oil, gas or underground or surface fresh waters
from oil and gas operations. This is to be liberally construed
to meet its purposes; however Section 3203 of the Public Resources
Code is specific as to the contents of drilling notices filed by
operators, namely the following: well location, evaluation and
designation; the method and estimated depth of water shut-off;
size and weight of casing; and estimated productive depths.
For offshore wells and for wells located in other sensitive
areas, such as urban centers, high-use recreational areas and
in or about other natural resources particularly susceptible
to major damage from possible pollution resulting from oil or
gas operations, additional information should be required.
Section 3203 also requires the filing of a notice with the DOG
prior to deepening, redrilling, plugging or permanently altering
casing in any well. No notice is currently required by DOG for
downhole work not involving any of these operations, such as
pulling rods or tubing. There should be some requirement for
this for offshore wells and for wells in other sensitive areas,
as determined by the District Deputy, so that DOG can ensure that
adequate precautions are taken to prevent escape of fluids.
Current DOG answers to drilling and rework notices specify the
following: adequate blow-out prevention equipment, hole to be
kept full of drilling fluid at all times, subsurface fresh water
protection, and casing and cementing requirements. DOG personnel
witness the following: test of blow-out prevention equipment, water
shut-offs including casing splices, and plugging operations for
abandonment, partial abandonment or for redrilling. Some of these
requirements should be more specific, some additional requirements
should be made, and inspection, particularly of BOP equipment,
should be more comprehensive.
Four of the six Oil and Gas Districts of the DOG include sub-
merged land areas. Because of the specialized nature of off-
shore operations, a centralized offshore unit could do a more
efficient and complete job of regulating these activities.
The Subsidence Control Act provides a means for repressuring oil
and gas pools to arrest subsidence provided there is a threat of
inundation by the sea. This may be done through unitization which
may be voluntary or which can be compulsory if 65% of the working
interest owners agree. There may be a need for subsidence control
measures in some additional near shore and other upland areas.
-7-
Division 6 of the Public Resources Code gives the State Lands
Commission jurisdiction over all ungranted tide and submerged
lands owned by the State and full authority to lease and administer
those lands. The State Lands Commission therefore operates, through
the State Lands Division, as the representative of the State as a
land and mineral owner. Lands are leased to the oil industry for
drilling and producing oil and gas and for constructing and operating
submarine pipelines, cables and tanker moorings. These properties
are managed so as to obtain maximum revenue consistent with the basic
concepts of conservation and multiple use. Oil and gas leases must
contain provisions specifying methods of operation and standard
requirements for operating in a proper and workmanlike manner, for
the prevention of waste and pollution, for the protection of the
safety and health of workman, and for the liability of the lessee
for personal injuries and property damage. All valid Federal, State
and local laws applicable to lessee's operations must be observed.
Before offering State owned lands for lease, any affected city or
county may request a hearing at which to present objections. The
Commission makes a determination to lease or not, considering the
affect on adjacent developed shoreline or recreational areas, only
after any such hearing.
The State Lands Division has comprehensive requirements covering
oil and gas operations including: erection of permanent structures,
well location and drilling course, size, strength and setting depths
of casing, casing tests, cementing, mud specifications, blow-out
prevention equipment, completion procedure, fire equipment, abandon-
ment, and site clearance. Drilling proposals are reviewed, including
a check of the casing design by computer, and approvals are granted
on an individual well basis. DOG approval is a prerequisite to
approval by the State Lands Division. Continuous use of gas detection
and mud-logging equipment is required by the SLD on all exploratory
coreholes drilled on State owned offshore areas.
Although both the State Lands Division and the Division of Oil and
Gas have responsibilities related to oil and gas operations on State-
owned lands, non-conflicting roles have developed through the years.
There are no significant overlaps or voids in the operation of these
two agencies on State lands with regard to oil operations; on the con-
trary, their activities in areas of mutual concern are complementary.
-8-
The Division of Oil and Gas makes available copies of its
"Weekly Summary" to all Regional Water Quality Control Boards.
This summary shows all notices received during the week to
drill, rework or abandon wells in California. The State Lands
Commission furnishes notices to the appropriate Regional Water
Quality Control Boards of the location of all leases issued.
The Regional Boards should receive specific notification
sufficiently in advance to allow considered comment prior to
a decision by the Commission as to whether or not to lease.
Oil and gas operators occasionally do not run electrical logs
through the uncased shallow part of boreholes. In the interest
of delineating possible fresh water aquifers and assuring their
protection, it should be mandatory for offshore operators to
run an electrical or other acceptable survey of the entire bore-
hole up to the shoe of the conductor casing string in designated
wells.
Recommendations:
Division of Oil and Gas
(3) There should be an amendment of the Public Resources Code,
Section 3106, to include prevention of damage to life, health,
property and natural resources, in addition to oil, gas and
fresh water. (requires legislation) Sections 3220 and 3224
should be similarly amended, as should Section 3714 (Geothermal
Resources Act)
(4) The Division should require that additional information be
submitted on or with notices of intention to drill and to rework,
such as depth of first competent strata, estimated depth of
fresh water, expected pressures, programs for drilling fluid
and casing, cementing, and detail of BOP equipment to be used
for each casing string. If the well is to be directionally
drilled, the proposed course and bottomhole coordinates should
be stated. (The Oil and Gas Supervisor has authority under
Sections 3013 and 3106 to require this information) DOG
coordinate (with SLD).
(5) The DOG should require use of additional drilling fluid system
safety devices, such as: (a) mud pit-level indicator in full
view of the driller and equipped with a warning device; (b)
mud volume measuring device to determine volume required to
fill the hole when running in or out of the hole. DOG
coordinate (with SLD).
-9-
(6)
A standard classification for blow-out prevention equipment
should be established for internal use by all districts.
This should be regularly reviewed and updated. Coordinate
with SLD.
(7)
The following policy on casing requirements should be continued:
sufficient and adequate surface casing strings should be run
and solidly cemented so as to provide containment of fluids
within the well under all conditions. Setting depths should
continue to be determined on a well- by-well basis taking into
account: (a) geologic conditions, (b) ocean depth, (c) forma-
tion fracture gradients, (d) pressures to be contained within
the well bore, (e) protection of fresh water zones, and (f)
provision for adequate well control until the next string of
casing is set.
A minimum of two strings of surface casing was required in the
past. The above design criteria may require a third string. The
previous requirement that conductor casing (first surface casing)
string be set at not less than 300 nor more than 350 feet below
the ocean floor should be observed as a guide. In all cases,
the surface casing should extend into competent formation. Each
casing string should be solidly cemented and have BOP equipment
installed, inspected and pressure-tested, with test to be wit-
nessed by DOG or State Lands Division, before drilling below the
shoe. Height of cement in the casing-borehold annulus should,
in some cases, be determined by appropriate down-hole surveys.
(8)
At the discretion of the District Deputy, a notice and approval
may be required for any down-hole work during which a well
capable of production is not under mechanical containment at
all times, including operations not specified in Section 3203.
(This is within the authority of the Oil and Gas Supervisor)
(9)
An offshore unit within the DOG should be promptly formed for
centralized supervision of all offshore activities of the
Division.
(10)
The DOG, for each district, should immediately make a cost
effectiveness study of installation of two-way radios in
vehicles used for inspections, if this study has not already
been made, and install same as warranted for more efficient
deployment of personnel engaged in expanded inspection practices.
(11)
As a condition of approval for all operations, the DOG should
require operators to promptly report to the DOG office in the
affected district all spills which endanger life, property or
the environment. DOG shall relay such reports to any other
appropriate State agencies.
-10-
(12) DOG should specifically send copies of its "Weekly
Summary" to each Regional Water Quality Control Board.
State Lands Division
(13) The SLD should specifically direct copies of Notices of
Intention to Lease and notices of hearings to all affected
Regional Water Quality Control Boards sufficiently in
advance to allow considered comment prior to a decision
by the Commission.
(14) Along with the copy of Notice of Intention to Lease, SLD
should send to the affected Regional Water Quality Control
Board a brief report on the expected geologic and drilling
conditions in the area and note any unusual factors which
could be of special interest to the Board. DOG should
review such reports if specifically requested by the Board,
in writing, to do so,
SLD, DOG, Department of Water Resources and SWRCB
(15) In the first well drilled on any State lease and in subsequent
wells as may be reasonably necessary, the SLD should require
electrical or other acceptable surveys to be run through all
parts of the borehole up to the shoe of the first surface
(conductor) casing for the purposes of delineating possible
fresh water aquifers and assuring maintenance of water quality
in such aquifers. In special cases, where any State agency can
present reasonable evidence of valuable fresh water deposits
at shallower depths, SLD should consider requiring that such
surveys be made of such shallower parts of the hole also. DOG
coordinate joint discussion with other agencies to establish
procedures.
Water Resources Control Board and DFG
(16) Chairmen of Regional Water Quality Control Boards, or
their representatives, should personally visist district
offices of the DOG and SLD in their respective regions
at least twice annually for purposes of mutual information
and coordination. The Department of Fish and Game should
make similar periodic visits.
-11-
b. Personnel and Supervision
Review: Operators generally require weekly practice drills for
each offshore drilling crew to insure proper training for emergency
duties to prevent or contain blow-outs.
State Lands Commission leases require that all operations be
carried on in a proper and workmanlike manner in accordance with
good oil field practice and with due regard for the safety and
health of workmen.
Oil and gas operators are required to comply with the safety orders
of the Division of Industrial Safety which is charged with assuring
safe working environments. This includes safety features in offshore
structure designs, and safety practices during construction and
operation of the structures.
Recommendation:
Division of Oil and Gas
(17) DOG should make weekly blow out practice drills
mandatory for each offshore drilling crew.
C.
Aesthetics
(i.) During Operations
Review: Aesthetics is largely a matter of personal
preference. Local and special interest emphasis on
recreational and scenic aspects sometimes tends to
override the broader State and national benefits to
be derived from resource development.
State Lands Commission leases provide for the following:
removal of derricks within 60 days after cessation of use;
landscaping and/or fencing at the discretion of the
Commission; waste disposal in conformance with local
regulations; sanitary and washing facilities; minimizing
dust, noise, vibrations and noxious odors; prohibition
of pollution; not less than 20 wells from each permanent
structure unless the entire facility is hidden from view;
and removal of such structures and facilities within 90
days after becoming non-operative.
Recommendations: No change in State requirements. Because
of increasing public concern for "scenic pollution" and
because of other factors, industry will continue research
on ocean-floor completion and other exotic techniques,
and on further landscaping and camouflage innovations.
-12-
(ii) Site Restoration
Review: DOG requires plug at ocean floor or at the surface
of an island. For wells drilled from floating vessels, casing
must be cut off at least 5 feet below the ocean floor.
State leases require that all permanent improvements be
surrendered in good condition or, at the option of the
Commission, that all structures and facilities be removed
at lessee's cost upon termination of the lease.
Recommendations: No change.
d. Waste Containment and Disposal
Review: Regional Water Quality Control Boards have the authority
to set waste discharge requirements. The State Water Resources
Control Board and the Regional Water Quality Control Boards have
mutual agreements on procedures with both the DOG and the State Lands
Commission. The Department of Fish and Game and the State Lands
Division also have a procedural agreement for pollution incidents.
For disposal of waste water by injection into formations of porous
media not containing fresh water, the DOG requires the operator to
submit his proposal with the following information: structural
cross-section through the proposed injection well, structural
contour map on the injection zone, source and analysis of injection
water, analysis of water presently in injection zone, top and bottom
depths and formation name and age of injection zone, method of
injection, daily expected amount of water to be injected and maximum
expected pressure of injection, base of fresh water, treatment of
water before injection, condition of old or abandoned wells in the
area, precautions to be taken to insure confinement of injected
water to intended injection zone, and reasonable proof that no
damage will occur or that oil recovery will not be adversely affected.
DOG also requires the following:
copies of letters to offsetting operators informing them of the
operator's intention to inject, monthly reports from operator
stating amount of water injected and pressures required to do so,
data confirming that injection water is confined to the intended
zone, notification of any anomalies in any injection well, and
that all project records be open to inspection by DOG. DOG
engineers review projects in person semi-annually. Special
casing integrity tests are ordered and witnessed on a periodic
basis. DOG forwards copies of answers to injection or disposal
proposals to the appropriate Regional Water Quality Control Board
and to the Department of Water Resources. The Board may concur
or prescribe additional requirements; the latter seldom occurs.
-13-
For disposal of waste water from oil and gas operations by other
methods, the operator submits his proposal directly to the
Regional Water Quality Control Board. The Board and other State
and local agencies jointly consult. Personnel of the Regional
Board or other agencies make a field investigation and report
to the Board which then prescribes requirements.
Lessees of State owned lands are required to immediately suspend
operations (other than mitigative) in the event of pollution or
contamination resulting from those operations, and are not allowed
to resume until the condition is corrected and resumption authorized
by the State Lands Commission.
Offshore structures on State leases must be designed to prevent
contamination of ocean water; decking must be drip-proof, sloped
for drainage, protected on all sides, and fitted for drainage to
a sump for clean-up or shipment to shore with all other contaminants.
An approved disposal system may be built on the platform and water
which meets discharge requirements of the Regional Water Quality
Control Board may be disposed in the ocean. Regional Water Quality
Control Boards, the Department of Fish and Game and the Department
of Water Resources are notified quarterly of all new State leases
issued.
Under California law, clean drill cuttings may be deposited beneath
a platform unless the created fill will be adverse to the marine
environment, as determined by the Department of Fish and Game, or
to navigation. Generally, cuttings carried by water base mud may
be deposited on the ocean floor, but those carried by oil base mud
must be brought ashore for disposal. The THUMS Long Beach Company
is satisfactorily disposing of drill cuttings in a deep, oxygen-
depleted offshore basin jointly selected by the Department of Fish
and Game and the U.S. Bureau of Commercial Fisheries.
Recommendations:
Division of Oil and Gas
(18) DOG should specifically require information from operators
on proposed corrosion protection method for injection and
disposal wells and facilities.
DOG, State Land Division, State and Regional Water Control Boards
(19) These agencies should jointly review and if necessary, revise
their existing procedural agreements for reporting and con-
trolling discharges and pollution. The Departments of Fish
and Game and Water Resources should be consulted prior to
final revision. State Water Resources Control Board coordinate.
-14-
e. Inspection Processes
Review: The DOG witnesses tests of blow-out prevention equipment,
water shut-off tests and plugging operations for drilling and
abandonment operations. Injection projects are inspected at least
semiannually and casing integrity tests of disposal and injection
wells are witnessed. Other inspections of drilling, operating
and abandonment procedures, and of oil operation-related nuisances
are made when and where needed.
The State Lands Division makes on-site inspections of all drilling
operations on State leases for examination of equipment, materials
and procedures. Offshore and onshore production facilities are
also inspected. Any spills in the area of operations on State owned
lands are investigated. Exploratory core-holes drilled under SLD
Geological Survey Permits are under the continuous on-site
surveillance of a State Inspector from the time the drill site
location is determined through abandonment. Surface waste water
disposal facilities are investigated by SLD prior to approval
for operation.
The Department of Fish and Game regulates use of explosives in
offshore seismic geophysical exploration. This Department and
SLD have had observors on each seismic survey boat during these
operations. The expense of these observors is paid by industry.
These regulations in regard to protection of marine life extend
to cover the Federal outer continental shelf by Memorandum of
Understanding between DFG and the Secretary of the Interior. DFG
also investigates pollution incidents in or endangering any State
Waters. These investigations are normally conducted after the
fact; however, in those areas where repeated violations are noted,
DFG will make uannounced inspections.
Regional Water Quality Control Boards are the primary agencies
empowered to investigate pollution sources. Upon notification
of offshore violations by other agencies, Board staff personnel
inspect the facilities for compliance with waste discharge require-
ments.
The Division of Industrial Safety inspects drilling structures
during construction to observe safety practices or to advise on
safety procedures and regulations. Electrical equipment and
pressure vessels are inspected during installation. During drilling
operations, DIS inspects BOP equipment and other safety equipment
insofar as it affects the safety of the workmen and the equipment
with which they work. During drilling operations, drilling structures
are inspected at least monthly; drilling vessels are usually inspected
at the beginning of a well and once thereafter. During the produc-
tion period, structures are inspected at least once yearly or more
often if warranted.
-15-
Recommendations:
Division of Oil and Gas
(20) DOG should make inspections of BOP equipment in sufficient
detail so as to be assured of satisfactory condition as
well as adequate design.
All State Agencies
(21) All State employees who are not themselves empowered to
take direct action in regard to pollution should promptly
notify the appropriate Regional Water Quality Control Board,
either directly or through DOG, SLD or DFG, of any observed
pollution violation.
f.
Enforcement Procedures
Review: Division 3 of the Public Resources Code governs oil
and gas operations supervised by the DOG. Violations of Chapter 1
(Oil and Gas Conservation) and Chapter 2 (Wasting of Natural Gas)
are misdemeanors and punishable by fine and/or imprisonment. Any
well drilled for oil and gas in violation of Chapter 3 (Spacing of
Wells and Community Leases) is declared to be a public nuisance.
In addition an operator is required to post a $5,000 bond prior
to drilling, redrilling or deepening any well (or $25,000 for
multiple wells) as surety that he will comply with the provisions
of Chapter 1 of Division 3.
A State lease may be terminated for failure of lessee to comply
with the lease terms including applicable State and local laws,
and rules and regulations of the State Lands Commission. State
oil and gas offshore leases further require two additional bonds,
one bond, in an amount fixed by the Commission, to assure per-
formance in accordance with the terms of the lease; and a second
bond to assure performance of lessee in the placement, maintenance
and removal of structures, and in site restoration. The amount
of this second bond is not to exceed 50% of the cost of the
structure.
Sections 13060, 13063 and 13064 of the State Water Code provide
Regional Water Quality Control Boards with enforcement authority
when waste discharge requirements are violated. This includes
the power of injunction.
Section 5650 of the Fish and Game Code declares it to be unlawful
to pollute the waters of the State. Section 851 provides that
a deputy appointed to enforce the Fish and Game Code is a public
officer and has all the powers and authority of a peace officer
to make arrests for violations of the code.
The Division of Industrial Safety, under Division 5, Part 1 of
the Labor Code, has authority to, among other things, prepare
safety orders and to enforce all laws and lawful orders requiring
work and work places to be safe.
-16-
Recommendations:
Same as (3).
2. Upland
a. Equipment and Methods
Review: Essentially included in B.I. a. "Drilling, Offshore
and Tideland, Equipment and Methods" (page 6). Sensitive areas,
such as those in or adjacent to urban development or natural
resources particularly susceptible to major damage from possible
pollution resulting from oil or gas operations, should require
precautions similar to those taken in offshore operations.
State leases require that drilling rigs be sound-proofed in
urban or other areas where noise is objectionable.
Recommendations:
Same as (3), (6), (10), (11), and (16)
For "sensitive" upland areas, same as (4), (5), and (7); and
Division of Oil and Gas
(22) DOG should actively investigate additional areas in which
subsidence due to oil operations are suspected of becoming
a problem. DOG should actively encourage the undertaking
of subsidence programs in any identified problem areas;
if voluntary programs are not undertaken in any identified
problem areas within a reasonable time, DOG should request
amendment of the Subsidence Act by legislation, if this is
required to initiate corrective measures. If it is deter-
mined by DOG that areas are subsiding due to causes other
than oil operations, the appropriate State agency should
be SO informed.
b. Personnel and Supervision
Review: Included in B.1.b., "Drilling, Offshore and Tideland,
Personnel and Supervision" (page 11).
Recommendation: (17) should also apply in "sensitive" areas.
C. Aesthetics
Review: Partly covered in B.1.c., "Drilling, Offshore and Tideland,
Aesthetics" (page 12). Aesthetic considerations are governed by
local authorities in areas in which this has been a serious concern.
Requirements for site restoration, landscaping, dust abatement,
traffic and sign restrictions, minimizing noise, fumes and vibrations
etc., may be included either in City or County ordinances or in the
provisions of local drilling and/or producing permits. This has been
a prerogative of local government and should not be pre-empted by the
State.
-17-
Site restoration is a common provision of oil and gas leases
between private parties.
No recommendation.
d. Waste Containment and Disposal
Review: Partially covered under B.1.d. "Drilling, Offshore and
Tideland, Waste Containment and Disposal" (page 12). There appears
to be generally satisfactory information, inspection and control
on subsurface disposal and/or injection wells on uplands. While
major surface disposal projects are monitored by Regional Water
Quality Control Boards, there appears to be scanty preliminary
information and little follow-up inspection of most of these
facilities on a periodic basis.
Recommendation: Same as (18), and
Regional Water Quality Control Boards, DOG and DFG
(23) These agencies should discuss means of augmenting initial
and subsequent data, regular inspection during use, and
control of surface waste water disposal facilities; and
mutually agree on agency responsibilities. DOG coordinate.
e.
Inspection Processes
Review: Included in B.l.e., "Drilling Offshore and Tideland,
Inspection Processes" (page 14).
Recommendations: Same as (21). For "sensitive" upland areas,
same as (20).
f. Enforcement Procedures
Review: Included in B.1.f., "Drilling, Offshore and Tideland,
Enforcement Procedures" (page 15).
No Recommendation.
C. Production (Offshore and Upland)
1. Production Facilities
a. Offshore
Review: All producing wells, production vessels, tanks, and
other facilities on State offshore leases must be equipped with
safety devices which shut down all producing operations in the
event of a failure.
Remainder previously covered under B., "Drilling".
-18-
Recommendation:
State Lands Division and DFG
(24) Underwater well heads and other underwater facilities,
whenever possible, should be located, designed and
constructed so as to not interfere with commerical
fishing practices, i.e., cause damage to trawl nets.
SLD coordinate.
b. Upland
Review: The Division of Industrial Safety prescribes safety
features for production facilities basically for the protection
of workmen.
State Lands Division requires that all production and processing
facilities on State leases be designed and operated so as to
minimize dust, noise, vibration, or noxious odors. Facilities
must be equipped with fire prevention and fire fighting equipment.
In sensitive areas, unattended facilities must be equipped with
safety devices which shut down all operations in the event of a
failure.
The other regulations and practices of the State Lands Commission
and Division, and those of the Division of Oil and Gas, Department
of Fish and Game, and State and Regional Water Quality Control
Boards are essentially covered in B.1., "Drilling, Offshore and
Tideland" (page 6) and B.2., "Drilling, Upland" (page 16).
It should be noted that, except for Division of Industrial Safety
inspections which are limited primarily to safety, and DOG
inspection of Subsidence Units, there is no systematic inspection
of upland producing properties in general.
Recommendations:
Same as (3) , (6), (8), (10), (11), (12), (16), (18, 19),
(21), and (23) ; and,
DOG
(25) Installation of "storm chokes" and/or other safety pre-
cautions should be a condition of approval for flowing
well completions in particularly "sensitive" areas, in
areas of known earth-slides and active faults, and in
any other area in which there is a high risk of accidental
well-head damage to flowing wells (e.g., adjacent to
airports and freeways).
-19-
(26) District personnel should make an on-site inspection
of all producing and unrestored abandoned production
areas in the district including geothermal, not less
than once yearly, and more often as conditions require
and manpower allows.
2. Oil and Waste Water Sumps and Other Surface Disposal
Review: Mostly covered under B.1.d., "Drilling, Offshore and
Tideland, Waste Containment and Disposal" (page 12).
Water pollution aspects of sumps are governed by Regional Water
Quality Control Boards under authority provided by Sections
13053 and 13054 of the Water Code. DFG may order immediate
clean up when fish and wildlife are damaged or endangered.
Sumps constructed so that rains, runoff or other conditions
result in overflow or rupturing can cause considerable damage
to property, wildlife and other resources.
Sumps so constructed as to attract birds or allow easy entry
by animals have caused a problem in the San Joaquin Valley.
The increasing volume of oil-field waste waters being disposed
into maritime waters presents a threat to marine life.
Recommendations: Same as (3), (10), (11), (12), (16), (19),
(21), and (26); and
State and Regional Water Quality Control Boards, DOG, DFG
& SLD
(27) These agencies should cooperatively inspect all
existing oil and waste water sumps prior to the next
rainy season. Owners of precariously located or
constructed sumps should be requested to (1) relocate,
reinforce or take whatever measures necessary to pre-
vent the likelihood of overflow or rupture, (2) correct
any other existing or potential cause of pollution from
such sumps, and (3) take measures to correct features
which allow the easy entry of wildlife. Owners should
be given a reasonable time to conduct remedial work
voluntarily; appropriate legal action should be taken
to ensure correction when other means have been ex-
hausted. DOG coordinate.
-20-
(28)
Waste water discharge requirements, and practices
of waste water disposal into ocean waters should be
jointly reviewed by these agencies. Recommendations
for improvement should be made to oil operators using
this method of disposal. If adverse practices are
not voluntarily corrected, all available legal authority
should be used. If existing legal authority is not
adequate to effect compliance, additional legislation
should be sought. SWRCB coordinate.
State and Regional Water Quality Control Boards, DFG, DOG & SLD.
(29) These agencies should exercise particular care in the
investigation of proposed oil and waste water sump
locations. These should not be located in existing
drainages unless effective precautions are taken to
exclude run-off water and to prevent damage by floods.
SWRCB coordinate.
3. Transportation
a. Pipelines
(i) Offshore
Review:
Pipelines serving State oil and gas leases are permitted
under terms of the lease. Easements for lines crossing
State lands and serving Federal Outer Continental Shelf
leases are granted by the State Lands Commission. Agree-
ments are also entered into for piers and tanker loading
facilities. For the purposes of discussion, all of the
following are considered to be pipelines:
1) Individual well flowlines, injection and service lines.
2) Oil and gas gathering and shipping lines.
3) Waste water lines.
4) Gas, water and electrical supply lines (offshore).
The Lessee is required to furnish:
(a) Maps and drawings of all development work, improvements,
and other related operations on the leased lands, including
all buildings, structures, or other works placed in or upon
them.
(b) Maps and drawings of all development work related to the
surface location of any producing well under a lease, includ-
ing oil lines, gas lines, tankage, shipping points, facilities
for shipping, dehydration piping and all lines connecting into
any of the foregoing.
-21-
Any proposed change in, or addition to, pipe line systems
or any proposed installation or removal of equipment which
would result in a different routing of production to or
from the gauge tanks must be reported to the State inspector
giving the reason for such proposed change, addition,
installation or removal at least 24 hours prior thereto.
Plats and drawings showing the change must be furnished to
the State Lands Division upon request.
All pipelines must be designed, installed, protected and
inspected in accordance with good engineering practices.
The design must meet the safety requirements of the State
of California, Department of Industrial Relations, as well
as the valid regulations of the United States, and valid
ordinances of the cities and counties which are applicable
to the Lessee's operations. The lines must be protected
from corrosion. They must be protected with acceptable
safety devices and alarms to cause shut-down of the system
if the pipeline is severed (low-pressure shut-down device)
or accidentally or otherwise shut-in downstream (high-
pressure shut-down device). In cases where the pipeline
services a continuously operated facility or producing
wells, the pipeline safety system should cause shut-in
of the facility or the producing wells. All ocean-floor
pipelines must be completely tested and inspected upon
installation and inspected annually thereafter. A
cathodic protection system should be checked at least
monthly. The pipeline and facility safety systems should
be inspected and tested at least monthly.
Offshore pipelines, because of their inaccessibility and
ocean environment, warrant special design considerations.
For these reasons it has been the practice of the operators
to incorporate greater factors of safety in the design of
offshore piping than used in comparable onshore piping.
Although the design factors used vary somewhat among operators,
they all exceed those recommended by A.S.A. Codes B-31.4
and B-31.8 for oil and gas transportation piping in the most
restrictive locations and uses onshore.
All pipelines are welded and inspected in accordance with the
applicable pipeline codes and are hydrostatically tested upon
installation. Because of the overdesign of the lines in
respect to their use, they have been hydrostatically tested
to a pressure many times that of their expected operating
pressures. This is especially true for low pressure lines as
they have been tested from 9 to 35 times their expected opera-
ting pressures. High pressure lines (500 psi and above) have
been tested from 1.5 to 3.5 times their anticipated operating
pressures. Subsequent testing is infrequent, but all are
monitored or equipped with pressure safety devices.
-22-
All pipelines are buried through the surf zone and are
anchored at the shore line. They are externally coated
in their entirety; larger lines are weight coated with
cement, and a few are internally plastic coated.
The State Lands Division has for some time felt the need to
establish fixed corridor routes for the confined placement of
pipelines on State-owned offshore submerged lands. The need
for fixed corridors arises from expressed demands for other
uses of the ocean floor. These uses are often incompatible
with pipeline construction and occupancy. Examples of these
other possibly incompatible uses for offshore lands include
marine ecological reserves, scientific research areas (for
instrument testing and development undisturbed by artificial
metallic or electro-magnetic influences), and underwater parks
and recreation preserves. It is possible unplanned and
indiscriminate pipeline crossings of the offshore submerged
lands would leave little land remaining useful for other
purposes.
As a means to satisfying these multiple-use demands, a series
of meetings have been held with industry and interested State
and conservation groups. The "real-estate" aspects of the
study have been essentially completed, and it is now proposed
to enter into a more technical engineering and quality control
review of design principles.
(ii) Upland
Review: The Public Utilities Commission has jurisdiction of
gas transmission lines. The Division of Industrial Safety
prescribes safety rules for working on pipelines and that
pipelines be so constructed as to withstand necessary stresses.
The State Lands Commission has jurisdiction over pipelines
crossing State owned lands. There appears to be no State
agency otherwise responsible for systematic approval or
inspection of onshore crude oil, petroleum products or
chemical pipelines.
Line ruptures are a real problem. The Department of Fish
and Game investigates from 25 to 50 line ruptures each
year in the Los Angeles Basin alone, and these are only
ruptures in that area which could possibly flow into State
waters.
Recommendations:
Resources Agency, Business and Transportation Agency, Human Relations
Agency, State and Regional Water Quality Control Boards, DOG, PUC,
Division of Industrial Safety, DFG, State Lands Division, DWR.
-23-
(30) From the above agencies, and any others with possible
jurisdiction or expertise, and respresentatives of the
pipeline industry, an ad hoc committee should be formed
for these purposes; (1) recommending means to correct
this critical jurisdictional gap in regulation and control
of a major pollution source; and (2) making preliminary
recommendations for minimum standards of construction,
types and spacing of high and low pressure safety valves
and other controls, corrosion prevention, expansion pro-
visions to be incorporated for normal and abnormal condi-
tions, inspection and monitoring methods and means, and
such other criteria as may be needed. SWRCB coordinate.
Regional Water Quality Control Boards, State Lands Division & DFG.
(31) These agencies should confer on the location of present under-
water or overwater pipelines and also confer prior to construc-
tion of such future lines. DFG coordinate.
All Agencies and Industry
(32) Should offer full cooperation to the State Lands Division
and others involved in the continuation of the offshore
fixed pipeline corridor study. SLD coordinate.
b. Tankers
The oil spill hazard presented by tankers is generally beyond the
scope of this report. However, the increased size of tankers,
their lessened maneuverability, and the density of waterborne
traffic aggravate the already serious threat of a disastrous
spill from this source. The volume of oil discharged by the
"Torrey Canyon" off southern England exceeded that released
from the Santa Barbara Channel rupture by a factor of hundreds.
Recommendation:
Proposed Department of Navigational and Oceanographic Development
(or Department of Harbors and Watercraft).
(33) If and when this department is established, one of its first
studies should be of tanker traffic in and about California
waters in the interest of reducing the hazard of disasterous
oil spills. The study should include aids to navigation,
navigational equipment, defined and/or restricted sea lanes,
shore guidance, speed restrictions and officer and crew
training. This study should be cooperative with appropriate
Federal and private elements, and with other Pacific Coast
states.
Methods and procedures adopted as a result of this study
should be standardized for the entire Pacific Coast by
cooperative action. Department of Harbors and Watercraft
coordinate.
-24-
II. Abatement of Major Oil Spills
The foregoing section, I. "Prevention of Pollution from Oil Operations",
is a review of present requirements and practices designed to prevent
pollution from oil operations, and contains recommendations as to how
these can be made even more effective. The oil industry, working under
State regulation and supervision, has been very successful in preventing
major oil spills in California. Continuation of this excellent record
is anticipated. However, when men work with equipment, in any industry,
there are bound to be occasional accidents in spite of the most sophisti-
cated precautions.
The most likely source of future disasterous oil spills will continue to
be ocean-going tankers. Pipelines are a potential source of serious
spills on land as well as in water.
Whatever the source, major oil spills (except far at sea) require abatement
efforts. Such operations are occasioned only rarely and, when required,
involve many governmental agencies and private groups. A pre-existing
plan for organizing these many elements and coordinating their efforts
in such an emergency can greatly expedite operations, particularly in
the critical early stages. The State of California developed such a
plan, the "Marine Chemical Spill Disaster Plan", in early 1968. However,
the adoption of the "National Multi-Agency Oil and Hazardous Materials
Pollution Contingency Plan", in the fall of 1968 by various Federal agencies,
partially nullified the State plan. Attached is a draft of a proposed
new State plan designed to either function independently, or to complement
U.S. Coast Guard efforts or the national plan, if activated.
This proposed plan, titled "California Oil Spill Disaster Contingency
Plan", would also create a standing State Interagency Oil Spill Committee
to maintain the plan and to serve as a coordinating body for State agencies
which deal with oil operations on a more or less routine basis.
Recommendation:
(34) California Disaster Office
CDO should seek review of the proposed contingency plan by
the California Attorney General's Office and appropriate
Federal agencies; CDO should then implement the plan as soon
as possible.
-25-
A.
Controlling the Source
Review: Federal and State laws and regulations governing operations
on offshore leases hold the lessee liable for pollution damages. State
bonding requirements provide additional assurance that offshore oil
operators on State leases will use every effort to shut off any source
of pollution from their operations. Normally, the oil operator is the
one best suited for this task, having the necessary equipment and
experience in its use, and being able to readily obtain specialized
services and equipment if needed.
Various State and Federal agencies have the enforcement authority to
halt wilful and/or negligent discharges from vessels. Direct operations
to shut off the source of oil pollution from a damaged tanker would
likely require outside help from the outset.
Legal incentive for an owner or operator to shut off the source of
oil pollution onshore would be the enforcement authority of the
Regional Water Quality Control Board, if water quality is endangered,
or of the Department of Fish and Game if fish or wildlife were damaged
or threatened. Cessation of oil pollution affecting environmental
features not involving water use or wildlife can be enforced by the
DOG under provisions for the prevention of waste. Local authorities
can order abatement of a public nuisance. However, the owner or
operator of such a pollution source can normally be expected to take
all necessary measures to halt the discharge without the necessity
of a legal order being given.
Recommendation: Same as (3).
B.
Containment and Removal
Review: Partially covered under II A, "Controlling the Source".
Outer Continental Shelf (OCS) Order No. 10 of the U.S. Geological
Survey, Branch of Oil and Gas Operations Pacific Region, requires
that offshore operators on the Federal OCS maintain standby pollu-
tion control, containment and removal equipment, as approved by
the USGS, on or immediately available to each drilling platform
or drilling vessel. This has stimulated development of this type of
equipment by industry. The State does not now require such equipment.
Recommendation:
State Lands Division, State and Regional Water Quality Control Boards,
DFG and DOG
(35) SLD should require that operators of offshore State oil and gas
leases have ready access to acceptable booms and skimming devices
during operations. If apparatus approved by the USGS is also
acceptable to SLD and is available to State lessees on reasonably
short notice, this would probably not require more equipment than
would ordinarily be available for operations on the Federal OCS.
All four agencies and the U.S. Coast Guard should jointly work out
a cooperative agreement with the owners and/or operators of such
equipment for its employment in the event of a spill disaster not
directly involving oil operations, such as tanker or pipeline damage.
State Lands Division coordinate.
-26-
State Water Resources Control Board and DFG
(36) These agencies should proceed with plans for testing and
licensing oil dispersants and oil removal substances in
anticipation of enactment of pending State legislation
authorizing same. SWRCB coordinate.
III. Lesser Spills and Nuisances
A. Harbor Spills
Review: Day-to-day spills are normally cleaned up by the party
responsible for the spill. The actual work is usually done by
a contractor. The Department of Fish and Game, the U.S. Coast
Guard, or local port authorities can order such clean-up.
Criminal proceedings are brought against offenders by DFG if
the situation warrants such action.
Offshore loading facilities, when in poor condition or carelessly
operated, cause some spill problems.
Port officials report that deliberate oil spill pollution is
practically non-existent.
Recommendation: Same as (21); and
State Lands Division, Department of Fish and Game, Division of
Industrial Safety and Regional Water Quality Control Boards.
(37) Offshore loading facilities located on State lands should be
required to be kept in good condition by SLD. Enforcement
authority of DFG, DIS and/or Regional Boards should be used
if necessary to see that facilities on other property be
maintained in good condition SO as to prevent pollution.
SLD coordinate.
B. Old Well Abandoments
Review: Structural and other remnants from oil operations conducted prior
to the 1921 State Mineral Leasing Act exist in several areas along the
California coast. These consist of improperly abandoned oil well casings,
pilings and portions of old wharves which project up from the ocean floor
or beach. A relatively few additional obstructions from subsequent
operations have also been reported. Due to coastal erosion, some casing
remnants formerly located on upland areas now constitute obstructions
on State tidelands. The State Legislature appropriated funds in 1966
for removal of such obstructions near Summerland. Legislation for additional
funds to remove remaining obstructions is now pending.
-27-
A drilling bond has been required by the State since 1931. Such bonds
are not released until the Oil and Gas Supervisor is satisfied that the
bonded well is properly completed or abandoned. Problems occasionally
arise due to leakage from abandoned wells drilled prior to 1931 by
operators no longer in business and/or from wells which have been
illegally re-entered after abandonment. There is no established
source of funds for financing proper re-abandonment of such wells.
Recommendations:
Division of Oil and Gas, SLD and Industry
(38) DOG and SLD should meet with oil industry representatives to
study reabandonment funding for deserted problem wells. DOG
and SLD should then prepare joint recommendations for the RA
and State Lands Commission regarding abatement of these problems
on both State and other lands. DOG coordinate.
C. Natural Oil Seeps
Review: Natural oil seeps in upland areas generally create no serious
problems.
There are a number of known active seeps off the coast of California. At
least 40 offshore oil seeps exist between Point Conception and the Mexican
border. Eleven of these are classified as major seeps, emitting signifi-
cant daily quantities of oil. Tarry oil from ocean bottom seeps creates
a nuisance on bathing beaches. Its presence there is sometimes blamed
on ships or offshore oil operations. However, tarry oil was present and
utilized by the Indians hundreds of years ago, and was noted as early as
1776, by Father Pedro Font, near Goleta.
Recommendations: None. Oil spill containment devices and fissure
sealing methods under development by industry (accelerated by the
Santa Barbara incident), may make entrapment of oil from ocean
bottom seeps worthwhile or may provide a practical means of sealing
the seeps.
Ad Hoc Committee
State Regulations and Inspection Practices
Oil and Gas Operations and Oil Pollution
John M. Mayfield,
Chairman
June 17, 1969
-28-
June 17,1969
CALIFORNIA OIL SPILL DISASTER CONTINGENCY PLAN
CONTENTS
PAGE
I. Introduction and Objectives
1
II. Definitions, Duties and Organization
2
A. Disaster
2
B. Oil
2
C. Oil Spill Disaster
2
D. Support
2
E. On-Scene Commander (OSC)
2
F. State Operating Authority (SOA)
3
G. State Support Team (SST)
3
H. State Operating Team (SOT)
3
I. Operations Center (OC)
4
J. State Interagency Oil Spill Committee (SIOSC)
4
III.
Operational Responsibilities
6
A. Local Authorities
6
B. U.S. Coast Guard
6
C. State of California
6
D. Federal Regional Operating Team
7
E. Organizational Charts
8
IV.
Alerting Procedures
11
A. Alerting Chart
11
V. Operations
12
A. Warnings and patrols
12
B. Establish Operations Center
12
C. Gather information
12
D. Secure, contain and abate spill
12
(1) Securing source
12
(2) Containment
13
(3) Removal
13
(4) Disposal
13
(5) Cleanup and rehabilitation
13
E. Information Center
14
F. Evaluation Center
14
VI. Appendix
A. Cooperative Agreement
(1) Signatories
B. Telephone Numbers
C. Paper on Oil Spill Control
D. Summary of State Legal Capabilities
E. Funding (State of California)
F. Ship Salvage Authority of the U.S. Navy as related to oil
spill emergencies.
G. Recommendations for Local Contingency Plans
-0-
I.
Introduction and Objectives
The principal objective of this "California Oil Spill Disaster Contingency
Plan" is to reestablish an integrated and effective State organization to
combat massive oil spills in and about the State of California. Included
are all major elements, public and private, which have significant resources
and technical knowledge which may be required or utilized in the public
interest to combat such a spill. Operations under the plan will be directed
toward the preservation of the lives and health of the civil populace, the
protection of public and private property and the preservation of natural
resources.
The plan will replace the "Marine Chemical Spill Disaster Plan" (1968),
insofar as oil spills are concerned. This earlier State plan was a positive
forward step and contained many excellent features which have been incorporated
herein; however, it relied on the U.S. Coast Guard for centralized coordination
of State agency efforts. The subsequently-issued "National Multi-Agency Oil
and Hazardous Materials Pollution Contingency Plan" for coordinating the
Federal response to spill disasters necessarily took precedence with the
Coast Guard and governed that agency's response during the Santa Barbara
incident of early 1969. With the Coast Guard committed to the national
plan, State efforts were left without pre-designated central coordination
during this incident. This plan is designed to correct that deficiency so
that the State contingency organization can either function independently
or function more effectively with the Coast Guard and/or within the national
contingency plan organization.
-1-
II.
Definitions, Duties and Organization
A. Disaster: A calamity from any cause, natural or man-made, of such
extent and severity that large numbers of persons are imperiled and/or
vast quantities of property or natural resources are threatened,
damaged or destroyed. Implicit in the term is the requirement to
marshal and employ the resources of numerous organizations, public and
private, civil and military, to minimize and recover from its effects.
B. Oil: For the purposes hereof, this includes petroleum, petroleum
products, sludge oil refuse and any other oil-like substance which
when spilled or discharged in large quantities presents an imminent
or immediate substantial hazard to public health, safety or welfare,
to natural resources, or to public or private property.
C. Oil Spill Disaster: The discharge of large quantities of oil which
presents an imminent or immediate hazard to public health, safety or
welfare, to natural resources, or to public or private property, of
a magnitude greater than the mitigative capabilities of local organiza-
tions.
This term does not include small oil discharges which cause only minor
pollution of a local nature and which constitute no major hazard. Such
discharges are of interest primarily from the law enforcement aspect
by the local, State or Federal agency or agencies having jurisdiction.
D. Support: The furnishing of resources such as: technical expertise
including legal counsel; personnel; equipment and material; and the
delegation of the authority necessary to direct the effective utiliza-
tion thereof.
E. On-Scene Commander (OSC): That person or organization charged with the
responsibility and delegated commensurate authority for planning and
directing the overall operations of all organizations engaged in combating
an oil spill disaster; specific operations, however, will be conducted
under the supervision of the respective organizations.
For spill disasters affecting navigable waters, the U.S. Coast Guard will
normally be the OSC. If a Regional Operating Team is activated under the
provisions of the national contingency plan, the Regional Operating Team
will be advisory to OSC. Under the leadership of the OSC, the State
Operating Authority shall direct all State and local government agency
oil spill disaster operations.
For all other oil spill disasters, the State Operating Authority shall
be the OSC.
-2-
F. State Operating Authority (SOA) That person charged with the
responsibility and delegated commensurate authority for planning
and directing the coordinated overall operations of all State and
local government agencies engaged in combating an oil spill disaster,
and to coordinate these operations with those of Federal agencies and
private organizations. He shall be delegated such authority as may
be necessary to effectively carry out this responsibility by, and shall
serve at the pleasure of, the State Support Team.
The SOA shall be a department director, deputy director or equivalent.
He shall be designated for the ensuing calendar year on or before each
January 1 by the State Support Team which, however, may designate a
new SOA at any time subject to giving thirty (30) days notice to the
parties signatory to this plan whenever a new SOA is designated. A
designated SOA shall serve until replaced. He shall have a First and
Second Alternate all of whose names and telephone numbers shall be
included on any notices provided hereinabove.
Either the SOA or one of his alternates shall be available for immediate
communications contact at all times.
The Director of the Department of Conservation shall be acting SOA
until January 1, 1970 unless otherwise designated prior to that time.
G. State Support Team (SST) : This team consists of: the Secretary for
Resources, who shall be chairman; the Secretary for Agriculture and
Services; the Secretary for Business and Transportation; the Secretary
for Human Relations; the Attorney General; the Director of the California
Disaster Office; State Adjutant General;and the Director of the Department
of Finance.
The State Support Team shall designate the SOA from time to time as
specified above, and shall provide him with such support, including
authority, as he may properly need to meet his responsibilities.
H. State Operating Team (SOT) This on-scene team shall provide technical
advice, operating personnel and equipment, and general counsel to the
SOA during oil spill disasters. Within SOT there will be an operational
element consisting of one respresentative from each of the following
agencies or organizations: State Water Resources Control Board, Department
of Fish and Game, Department of Conservation, State Lands Division, and
local government.
Such additional support from other State agencies as the SOA may properly
require shall be provided through the SST.
-3-
When the SOA is also the On-Scene Commander, a representative of the
industry most closely affected by the oil spill (preferrably from the
company involved, if any) shall also be a member of the operational
element of the SOT.
A representative of the California Disaster Office, as a member of the
SOT, shall work directly with the SOA and provide for early alerting,
other communications services, public information and public relations
services and progress reports to the Governor's Office.
State agency members of the SOT shall be designated by their respective
agency heads. The local government member shall be as specified by the
local contingency plan or as otherwise designated by local authorities.
The industry member shall be designated by the company involved or other-
wise by the industry association deemed most appropriate by the SOA.
I.
Operations Center (OC) : The Operations Center shall be oil spill disaster
headquarters for the SOA and the State Operating Team. The SOA, in
cooperation with the California Disaster Office, shall select facilities
as near as practicable to the spill site considering such factors as
accessibility, communications facilities, location of operational units
and safety.
The Operations Center may be relocated at any time by the SOA after 24
hours notice (if possible) to all organizations directly concerned.
J. State Interagency Oil Spill Committee (SIOSC) This standing committee
is hereby created and shall function until dissolved by the State Support
Team.
SIOSC shall be responsible for the following:
(1) Establishing and maintaining liaison with Federal, local, and regional
public and private organizations engaged in oil pollution prevention
and control;
(2) Coordination between State agencies and other organization in day-to-day
procedures and practices relative to the prevention and mitigation of
pollution from oil discharges;
(3) Reviewing this plan at least once yearly to consider the affect of newly
enacted legislation, for consideration of suggested amendments and
additions, and for circulation of recommendations for same to the parties
hereto;
(4) Reviewing contingency plans of other organizations; and
(5) Recommending necessary research, development and testing by the
appropriate organizations of materials, equipment and methods related
to oil spill prevention and control.
-4-
The SIOSC shall consist of the SOA, as Chairman, and as regular members,
a representative and alternate from, and appointed by the head of, each
of the following agencies: Department of Fish and Game, Department of
Conservation, Water Resource Control Board and State Lands Division. A
California Disaster Office representative shall participate in all
contingency plan considerations. In addition, the SOA may request other
agencies to be represented from time to time as appropriate.
SIOSC shall meet annually in October at the call of the Chairman and at
any other time at the request of the Chairman or of any two regular
Committee members.
-5-
III.
Operational Responsibilities
A. Local Authorities: Action to abate oil spills on uplands or on non-
navigable inland waters, unless otherwise governed by statute, is the
primary responsibility of local government. Local authorities must
take all necessary action to rescue and evacuate endangered citizens;
secure, contain and abate the spill; alert the SOA and/or Coast Guard;
and enforce the security of the affected area. Personnel from the
industry involved in the spill can be expected (or may be required by
law) to exert all possible efforts to mitigate the spill; local author-
ities may need to support industry efforts with personnel and equipment,
particularly from fire departments and law enforcement agencies. The
existence of a local or regional oil spill contingency plan will expedite
operations. Establishment of a central operations and communications
center will greatly aid coordination of the various operational elements
which may be employed, including State and Federal agencies.
B. U.S. Coast Guard: In the event of oil spills on navigable waters, the
Coast Guard has a primary responsibility to take mitigative action in
accordance with standard operating procedures. Local authorities and
the SOA should be alerted and prepared to provide assistance as requested.
Local authorities should take all possible steps to abate the affects
of oil and oil contaminated materials which reach shore regardless of the
origin of the spill.
C. State of California: Upon notification of an oil spill (see part IV),
the State Operating Authority will ascertain all available facts regarding
the spill by communication with local authorities, State personnel on the
scene or in the area, the Coast Guard if involved, and by any other avail-
able means. If it appears that State assistance is or may become needed,
he shall alert the State Operating Team and the Chairman of the State
Support Team and proceed, or dispatch a representative, to the scene. The
SOA or his representative will then establish an on-scene communications
base, monitor operations at the spill site, and furnish technical assistance
from State agencies as required.
At his discretion, the SOA may partially activate the State Operating Team
to act in an advisory capacity. If a need for major State efforts is indicated,
he shall, with the approval of the State Support Team, declare the existence
of an "oil spill disaster" and fully activate the State Operating Team. At
this point, if the Coast Guard is not already actively involved, the SOA
becomes the On-Scene Commander for all spill-related operations. Otherwise,
he shall direct State and local agency operations under the leadership of
the Coast Guard On-Scene Commander. Depending upon the gravity of the
situation, he may recommend that the State Support Team request the Governor
to proclaim a State of Disaster.
-6-
D. Federal Regional Operations Team: If, in the judgement of Federal
authorities, the magnitude of the spill disaster exceeds the miti-
gative capabilities of the otherwise available forces, or if the
spill originates in an area under Federal jurisdiction, the "National
Multi-Agency Oil and Hazardous Materials Pollution Contingency Plan"
will be activated. A Regional Operations Team will be formed which
will be advisory to OSC. The SOA will function directly under the
On-Scene Commander with the continued responsibility of directing
State and local agency operations. Unless the spill is primarily on
State-owned lands, the industry representative, otherwise on the
State Operating Team, will at the request of the On-Scene Commander
function directly under him.
-7-
E. Organization Charts:
(1) State Operating Team
SOA as On-Scene Commander. (Spill not on
navigable waters, national contingency plan not activated.)
OSC
STATE
CALIFORNIA
STATE
OPERATING
DISASTER
SUPPORT
AUTHORITY
OFFICE
TEAM
OTHER
W.R.C.B.
D.C.
D.F.G.
S.L.D.
LOCAL
STATE
GOV'T
INDUSTRY
AGENCY (?)
-8-
(2) U.S. Coast Guard as On-Scene Commander. (Spill primarily on
navigable waters of the State of California, national contingency
plan activated.)
FEDERAL
OSC
ROT
U.S. COAST
GUARD
SST
FEDERAL
FEDERAL
FEDERAL
SOA
AGENCY
AGENCY
AGENCY
CDO
OTHER
LOCAL
W.R.C.B.
D.C.
D.F.G.
S.L.D.
STATE
GOV'T
INDUSTRY
AGENCY
(?)
-9-
(3) U.S. Coast Guard as On-Scene Commander. (Spill primarily on
Federal navigable waters, national contingency plan activated.)
FEDERAL
ON-SCENE COMMANDER
REGIONAL
OPERATING
U.S.C.G.
TEAM
+
State
Support
Team
State
Federal
Federal
Operating
Agency
Agency
Industry
Authority
California
Disaster
Office
OTHER
W.R.C.B.
D.C.
D.F.G.
S.L.D.
STATE
LOCAL
AGENCY
GOV'T.
(?)
-10-
IV.
Alerting Procedures (see diagram)
In the event of a major oil spill or serious threat of such spill in or
about the State, those who first become aware of same should immediately
warn any endangered persons in the affected area and notify the local
authorities, the California Disaster Office and/or the nearest U.S. Coast
Guard Station.
If alerted first, local authorities should immediately notify the State
Disaster Office, Sacramento (916) 485-6231 or 421-4990 and, if the spill
is in or near navigable waters, also notify the nearest U.S. Coast Guard
station. Local authorities will disseminate additional warnings to the
general public in the area. The State Disaster Office, however notified,
will immediately alert the State Operating Authority or one of his pre-
designated alternates, in accordance with the standard operating procedure.
A.
Alerting Procedure Chart
Major
Oil Spill
Detection
Immediately
Endangered
Citizens
Local
U.S. Coast
Authorities
Guard
California
Disaster
Office
Concerned
Federal
Agencies
State
Operating
Authority
Alternate
Alternate
Chairman
State
State
Support
Operating
Team
Team
-11-
V.
Operations
Regardless of the make-up of the organization or the type or location of
the oil spill, certain basic operations will need to be carried out. The
employment of any or a combination of the suggested measures will be under-
taken only after technical advice has been sought and all considerations of
safety, feasibility, availability of material and equipment, side effects
and consequences have been made. Some of the following operations may be
conducted a step at a time, but many will of necessity be carried out
simultaneously.
A. Warnings and Patrols
Issue warnings to threatened areas and establish spill perimeter patrols.
In the case of a major spill, new areas may be imperiled from time to
time as, the pollutant spreads or changes course.
B. Operations Center
Select, establish, staff and equip an Operations Center as a base of
operations and communications center.
C. Gather Information
Continuously gather the maximum information concerning the spill: source
and cause, present and potential volumes and rates of discharge, chemical
and physical properties of the pollutant and its present and probable
directions and rates of movement.
D. Secure, Contain and Abate Spill
Formulate and execute plans to secure, contain and abate the spill.
(1) Securing Source:
The more quickly and effectively the source is secured, the less
will be the magnitude of all other required operations. This may
require expert technical knowledge in one or more fields such as
engineering, ship salvage, pipelines, oil well drilling or pro-
ducing, refineries, chemistry, geology, water quality or demolition.
It may also require considerable special equipment and materials,
and trained crews. Industry representatives will normally know where
these can be obtained. In cases where the source cannot be immediately
secured, an alternative may be to transfer pollutants from a damaged
enclosure to other facilities.
-12-
(2) Containment:
The spilled pollutant should be contained in the smallest possible
area to reduce contamination and more easily facilitate removal.
In water areas, this will probably involve the use of booms or
caissons, and/or absorbents; on land this may involve the use of
levees, ditches, pits and/or absorbents.
(3) Removal:
Gross quantities of the pollutant will need to be removed or
dispersed. On water, this may require skimming and/or pumping
equipment and storage vessels (these may require towing) dispersant,
solvent, chemicals, absorbents, or biological cultures (these will
all require application equipment). On land, this may require pumping,
scraping, earthmoving, steaming or flushing equipment; solvent,
chemicals; or absorbents and raking or scooping equipment. Burning
may or may not be practical or acceptable either on water or land
areas, depending on the composition and location of the material and
local air pollution regulations.
(4) Disposal:
The oil and contaminated materials will require safe disposal. Some
liquids may be treated and reclaimed if facilities are near at hand;
some may require burial or subsurface disposal with or without prior
treatment. Established disposal sites such as county or city dumps
may or may not accept contaminated material, particularly if it is
saturated or super-saturated; under-saturated material will generally
be more acceptable. Disposal and/or treatment sites can become a
severe problem. Disposal sites should be pre-determined by local
contingency plans if at all possible. Burning may or may not be
practical or acceptable depending on the composition and location of
the material and local air pollution regulations. On-site burial by
discing or other methods may or may not be feasible. Most disposal
methods will require hauling, loading and other heavy equipment.
Care must be taken to avoid polluting underground or surface water
supplies.
(5) Cleanup and Rehabilitation:
The final operational phase will be clean up and rehabilitation
of the affected area. Depending on the effects of the spill,
this may involve steam-cleaning, re-soiling, re-vegetation, re-
seeding oyster beds, leveling or reconstruction of buildings and
engineering works, re-establishment of kelp beds, etc.
-13-
All of the above operations will require logistic support such as:
provisions, materials and equipment, transportation, loading, unloading
and storage facilities, and security provisions for same; communications;
personnel, and messing and berthing facilities for same; semi-continuous
surveillance of the spill and its movements by aircraft, vehicles and/or
boats; sampling and analysis; equipment maintenance; weather and sea
forecasting for spill plotting and drift prediction; medical services;
collection and recordation of data (including photography) on a day-to-day
basis; legal counsel; and administration, record keeping, funding and
accounting.
E.
Information Center
As soon as practicable, a separate information center should be established
near the Operations Center. The staff of the information center should
compile a factual, detailed chronology of the disaster, mitigative actions
taken and related events and circumstances. It should file daily situation
reports to higher authority and interested agencies, and disseminate
evaluated information to the news media and the general public. During
State spill disaster operations, the information center will be under the
direction of the California Disaster Office, a representative of which is
a member of the State Operating Team.
F.
Evaluation Center
In the judgement of the State Operating Authority, it may be advisable
to establish a separate evaluation center. Abatement methods, materials
and equipment submitted by various companies and the public can receive
preliminary evaluation here. Evaluation Center activities should be
directed by a member of the State Interagency Oil Spill Committee.
-14-
APPENDIX A
TO
"CALIFORNIA OIL SPILL DISASTER CONTINGENCY PLAN"
APPENDIX "A"
Cooperative Agreement to Establish
The
"California Oil Spill Disaster Contingency Plan"
THIS AGREEMENT by and between the undersigned agencies of the State of
California, and acknowledged by other signatory organizations, will
establish contingency operating and supporting organizations for the
coordination of activities to effectively secure, contain and abate
disasterous spills of petroleum, petroleum products and other oil-like
materials (hereinafter collectively referred to as "oil") in and about
the State of California, said plan to be entitled "California Oil Spill
Disaster Contingency Plan".
WITNESSETH: Each of the parties hereto has interest, authority and/or
responsibility concerning the effects of a massive oil spill in and
about the State of California, and each desires to cooperate in the
employment of the forces, equipment, material and expertise in their
various establishments, districts, regions and agencies in the event of
a massive oil spill which constitutes a disaster.
The land, districts or regions of the parties hereto are concurrent,
adjacent or contiguous so that cooperative action in an oil spill disaster
is feasible, and the jurisdiction and authority of some of the parties
over certain areas is concurrent.
In the interest of the safety and well-being of the citizens of California,
it is the policy of the parties hereto and of their governing bodies to
conclude such agreements whenever practicable, and it is mutually deemed
sound, desirable, practicable and beneficial for the parties to this agree-
ment to act in cooperation with one another in accordance with these terms.
THEREFORE BE IT AGREED THAT:
1. Whenever an uncontrolled discharge of large quantities of oil occurs
in and about the State of California such that there is created or
threatened a widespread hazard to human life, natural resources, or
public or private property, each of the parties hereto will proceed
in accordance with the "California Oil Spill Disaster Contingency Plan"
attached hereto.
2. In taking coordinated or cooperative action in accordance with the Plan,
the parties assume no responsibility for failure of equipment or personnel
in any particular instance where action is taken.
3. Unless funding arrangements have been stipulated between parties, the
costs incurred by a party in responding to any actual or potential oil
spill disaster for or on behalf of another party shall be borne by the
responding party.
A-1
4. The obligations of the parties hereto shall be subject to statutory
limitations on their authority and the availability of funds, per-
sonnel, equipment and material.
5. The organizations, agencies or forces of the parties to this agreement
are invited and encouraged, on a reciprocal basis, to exchange informa-
tion and to witness, participate in, or jointly conduct tests and
demonstrations of procedures and techniques for the development,
application and use of products and equipment which may be employed in
response to an oil spill disaster.
6. Each of the parties hereto shall review this plan at least once each
year. Suggested changes thereto or supplementary detailed plans and
procedures of operations necessary to more effectively implement the
purposes of this agreement shall be submitted to the State Operating
Authority for the consideration of the State Interagency Oil Spill
Committee. Amendments or additions to the plan as recommended by the
committee shall be circulated and become effective upon ratification
by the signatory parties.
7. State agencies party hereto shall assist in planning and conducting
such exercises designed to test this Contingency Plan as the State
Operating Authority may, with the approval of the State Support Team,
request. Other organizations signatory hereto shall cooperate in such
exercises to the extent permitted by their regular duties and other
obligations.
8. This agreement shall remain in full force and effect until cancelled
by mutual agreement of the parties hereto or by written notice by one
party to the other parties, giving thirty (30) days notice of said
cancellation.
9. This agreement may be executed in any number of counterparts and, for
all practical purposes hereof, all such counterparts shall be considered
as one agreement.
IN WITNESS WHEREOF, the undersigned State agencies have executed and are
bound by this agreement subject to the provisions hereinabove; the Federal
agencies signatory hereto hereby acknowledge this plan, approve its pur-
poses and agree to cooperate in its implementation to the extent that their
respective authorities and other obligations may, from time-to-time, permit;
and the Associations signatory hereto hereby acknowledge this plan, approve
its purposes and agree to distribute copies hereof to their respective
members with the request that each member, or regional groups of members,
prepare its or their local contingency plan, compatible herewith, and
forward a copy thereof to the State Operating Authority on or before
December 1, 1969.
A-2
STATE AGENCIES:
California Disaster Office
Department of Harbors and Watercraft
by:
by:
Title:
Date:
Title:
Date:
Department of Finance
Department of Parks and Recreation
by:
by:
Title:
Date:
Title:
Date:
Military Department
Department of Water Resources
by:
by:
Title:
Date:
Title:
Date:
Department of Justice
State Lands Commission
by:
by:
Title:
Date:
Title:
Date:
Attorney General
Water Resources Control Board
by:
by:
Title:
Date:
Title:
Date:
Resources Agency
Department of Fish & Game
by:
by:
Title:
Date:
Title:
Date:
Air Resources Board
by:
Title:
Date:
Department of Conservation
by:
Title:
Date:
State Environmental Quality Council
by:
Title:
Date:
A-3
Agriculture and Services Agency
Department of Industrial Relations
by:
by:
Title:
Date:
Title:
Date:
Department of Agriculture
Department of Public Health
by:
by:
Title:
Date:
Title:
Date:
Office of the Fire Marshal
by:
Title:
Date:
Department of General Services
by:
Title:
Date:
Business and Transportation Agency
by:
Title:
Date:
California Highway Patrol
by:
Title:
Date:
Department of Public Works
by:
Title:
Date:
Public Utilities Commission
by:
Title:
Date:
Human Relations Agency
by:
Title:
Date:
A-4
FEDERAL AGENCIES:
Office of Emergency Planning
Twelfth Naval District
by:
by:
Title:
Date:
Title:
Date:
Office of Science and Technology
Dept. of Transportation
by:
by:
Title;
Date:
Title:
Date:
Office of Civil Defense
Eleventh Coast Guard District
by:
by:
Title:
Date:
Title:
Date:
Dept. of Defense
Twelfth Coast Guard District
by:
by:
Title:
Date:
Title:
Date:
Corps of Engineers
Dept. of Interior
by:
by:
Title:
Date:
Title:
Date:
Sixth U.S. Army
Federal Water Pollution
Control Administration
by:
by:
Title:
Date:
Title:
Date:
Eleventh Naval District
Federal Water Pollution
Control Administration,
by:
Southwest Region
Title:
Date:
by:
Title:
Date:
A-5
U.S. Geological Survey
Department of Health Education and
Welfare
by:
by:
Title:
Date:
Title:
Date:
USGS Conservation Division Branch of Oil
Public Health Service
and Gas Operations - Pacific Region
by:
by:
Title:
Date:
Title:
Date:
Fish and Wildlife Service
Department of Agriculture
by:
by:
Title:
Date:
Title:
Date:
Bureau of Land Management
Forest Service
by:
by:
Title:
Date:
Title:
Date:
Bureau of Reclamation
Department of Commerce
by:
by:
Title:
Date:
Title:
Date:
National Park Service
Weather Bureau
by:
by:
Title:
Date:
Title:
Date:
Department of State
Environmental Science Services
Administration
by:
by:
Title:
Date:
Title:
Date:
A-6
ASSOCIATIONS:
County Supervisors Association of California
by:
Title:
Date:
League of California Cities
by:
Title:
Date:
Western Oil and Gas Association
by:
Title:
Date:
A-7
APPENDIX "B"
Emergency Telephone Numbers:
(To be completed on implemention of plan)
B-1
APPENDIX "C"
OIL SPILLAGE CONTROL
W.H. Swift, C.J. Touhill and P.L. Peterson
Battelle-Northwest, Richland, Washington
Preprint 50 A
Presented at the
Symposium on Water Conservation and Pollution Control-Part II
SIXTY-FOURTH NATIONAL MEETING
New Orleans, Louisiana
March 16-20, 1969
AMERICAN INSTITUTE OF CHEMICAL ENGINEERS
345 East 47 Street, New York, New York 10017
C-1
2
INTRODUCTION
the effectiveness of control. These techniques offer greatest pro-
mise because large areas can be surveyed at near real time.
A great deal of attention recently has been focused on the
Presently, aerial photography, despite its obvious cloud-
growing potential of major oil spillage. Increased size of oil
cover limitations, is the tool which can be most rapidly pressed
tankers, density of waterborne traffic, and offshore petroleum pro-
into service. Black and white, color, and camouflage film are all
duction operations all indicate the need for advanced planning for
readily at hand, and the methodology of their use does not require
prevention and control of oil spillage accidents, and for the de-
highly skilled scientific assistance. However, such assistance might
velopment of defensive measures in the event accidents do occur.
be necessary in the interpretation of data.
A fairly substantial body of knowledge has been accumulated
More sophisticated techniques such as spectrophotometric,
in the area of oil spillage control, both as a result of recent
infrared, ultraviolet, radar, and microwave imaging are also avail-
experience with major spills and accelerated efforts to apply exist-
able, but the higher level of sophistication requires the attention
ing and developing technology. This paper is intended as a statement
of skilled personnel for both operation and data interpretation.
of the current state of the art of oil spillage control from which
Microwave and radar imaging techniques appear to offer the best
recommendations for research and development can be formulated.
outlook for ald-weather surveillance, particularly for large spills.
Spectroscopic and photographic methods are more useful in low-level,
C-2
SURVEILLANCE AND PREDICTION OF SLICK BEHAVIOR
thin film oil pollution situations. When meteorological data are
One can readily appreciate the critical need for surveillance
added to this capability, accurate judgments should be possible.
and prediction of slick movement of major oil spills. The rate and
The ability to predict the direction, rate of movement, and
direction of movement of the slick as well as the extent of the
spreading of an oil slick in the event of a major release of oil
affected area must be rapidly and effectively determined if appropriate
is important in planning the deployment of defensive forces. This
action is to be taken to control the spill. In addition, surveillaoce
is important both in connection with actions to be taken imme-
is essential if the effectiveness of treatment methods is to be
diately following a major oil release and based on real-time or
assessed. Aerial reconnaissance techniques appear to be the most
short-range prediction of environmental conditions, and also in
practical for collecting the type of data needed to make judgments
thorough contingency planning based on seasonal data.
on the rates and direction of slick movements, control measures, and
The rate and direction of movement and spread of an oil slick
from a point source is dependent on a number of variables. These
3
4
include the following in estimated order of importance:
m terials such as polyurethane foam, 3) gelling agents, and 4) demul-
1. Wind direction and speed
sifiers.
2. Sea state
The literature shows that the following materials have been em-
3. Surface currents
ployed in actual field situations or in the laboratory with varying
4. Latitude
degrees of success:
5. Surface temperature
Collection Agents
6. 011 density and viscosity at temperature
Absorbents
7. Volatility
Straw
Sawdust
8. Inherent tendency toward emulsification with sea water
Rope
Bark
9. Volume-rate of discharge at source
"Ekoperl"
Chrome leather
10. Interfacial and surface tension: spreading pressure.
Polyurethane foam
Polypropylene fiber
All these variables are, or can be, time dependent.
Copolymer PVC/PVA
Cotton waste
In general, slicks will be most strongly affected by wind con-
Absorbent felt paper
Waste paper
ditions and can be expected to move at a speed on the order of 2 to
Peat
Rock wool sheets
C-3
4% of the wind velocity and, in the northern hemisphere, slightly
Glass wool
Rayon floss
to the right of the wind vector. Little comparative information is
Sisal string
available on the relative emulsification behavior with sea water of
Congealing Agents
various crude oils and refined products, although this factor is im-
Plastic foam
Plastic film
portant in predicting slick behavior.
Nylon agglutinants
Gelling Agents
CHEMICAL TREATMENT COLLECTION AND SINKING
Molten wax
Soaps
Chemical Treatment -- Absorption and Sinking Agents
The literature has revealed that there are numerous compounds
Demulsifying Agents
(unspecified)
and materials available to collect or to sink oil slicks. Four types
Most of the floating absorbents are inexpensive and can be
of collecting agents have been identified as having been either demon-
readily disposed of by either burning or burial. However, recovery of
strated or suggested for oil slick recovery. These are: 1) floating
oil values from these absorbents is not easily accomplished. The use
absorbents such as straw and sawdust, 2) plastic or other polymeric
of plastics or other polymeric materials, polyurethane in particular,
5
6
The weight of material required per unit of oil and the attendant
although rather expensive, offers an excellent solution to the prob-
logistics problem present practical difficulties. Demersal fish species
lem, since no residues are left on the ocean bottom and large quan-
may be adversely affected, and resurfacing of the oil mass is generally
tities of oil can be reclaimed for subsequent use.
probable although it is delayed and slow. The method can be applied
Gelling agents that can solidify petroleum materials are in the
effectively in deep water, e.g., beyond the continental shelf and parti-
development stage and may prove helpful in collecting spilled oil.
cularly in areas not involving commercial fisheries. It is doubtful,
Demulsifiers are commonly used in shipboard systems to break
however, that it can be completely effective and probably will require
emulsions in ballast water so that wastewater cleanup can be effected.
back-up by other methods such as recoverable absorbents. The method
Demulsifiers are generally proprietary and are usually compounded by
cannot be recommended in shallow waters or in estuaries, particularly
Edisonian techniques to meet field conditions at the use site.
since the collection option can be readily applied in these instances.
The function of collection agents is to cause the oil either to
In all cases, the spreading of absorbents, polymeric materials,
adhere to a solid surface or to react chemically with another liquid,
gelling agents, etc., is materially aided when it can be accomplished
thus forming a collectable mass. The selection of the type of collect-
by aircraft. However, experience has shown that greater degrees of success
ing agent is based upon the desired objectives of the cleanup program,
are apparent when the spill area is confined.
e.g., efficient oil recovery for reuse, combustion of recovered resi-
C-4
dues, or economical and rapid action.
CHEMICAL TREATMENT - DISPERSION
Numerous solid absorbents for sinking oil are available. Some
A large number of dispersants and emulsifiers are available,
of these are:
although little quantitative and comparative information exists. All
Sinking Agents
such agents are toxic to aquatic life in some degree, but again, compara-
Sand
Brickdust
tive data are scarce. The aromatic diluent solvent used with the majority
Fly ash
Cement
of these agents may be the principal toxic agent.
China clay
"Omya" clay
Based on review of the aftermath of the TORREY CANYON incident, the
Volcanic ash
Silicone mixtures
majority opinion is against the general use of emulsifiers, either at sea
Carbonized sand
Vermiculite
or in restoration of the shoreline. This conclusion derives not only
Crushed stone
Slaked lime
from the ecological considerations but also from practical experience with
"Stucco"
detergents in the United Kingdom and France. However, this is a general
7
8
conclusion, and specific instances may occur where detergents may be the
estimated that oil might be oxidized in the sea at rates as high as 100
best defensive measure. This may be particularly true in harbors where
to 960 mg/m³ day or 36 to 350 g/m³ year."
aquatic life is not a factor and where detergents can be employed under
Smith (2) has taken issue with the rates of oxidation of oil estimated
controlled conditions. Provision of effective agitation is a key factor
by ZoBell. Smith claimed that laboratory experiments showed that the rates
in the efficiency and effectiveness of detergent emulsifiers. In general,
may be a high estimate. Nevertheless, it is widely recognized that oil
physical collection is preferred if possible.
can be metabolized in the ocean. Even if ZoBell's estimates are accurate,
it is evident that oxidation rates are slow.
BIOLOGICAL DEGRADATION OF CRUDE OIL AND
OIL FRACTIONS IN THE OCEAN
In summary, if environmental conditions, (nutrients, temperature,
oxygen availability) are satisfactory, and if suitable microbial populations
A significant question posed as the result of the TORREY CANYON
are present, oil will be degraded in the ocean. However, the rates of
incident is the following: If no measures were taken to remove oil spilled
hydrocarbon degradation are slow when compared with those of the oxygenated
on the surface of the ocean, how long would oil persist? In particular,
derivatives. There has been much speculation recently about the ability
could the microbiological life in the sea metabolize oil, and if SO, at
what rate? ZoBell (1) has concluded that, "Virtually all kinds of oil are
of highly specific cultures to rapidly degrade oil spills, yet a dearth of
specific information is evident.
C-5
susceptible to microbial oxidation. The rate of such oxidation is in-
BOOMING
fluenced by the kinds and abundance of microorganisms present, the avail-
ability of oxygen, temperature, and the dispersion of the oil in water.
There are three general classes of barriers that can be used to
Microbial oxidation is most rapid when the hydrocarbon molecule is in
prevent the spread of oil on the surface of the water. These include
intimate contact with water and at temperatures ranging from 15 to 35°C;
floating booms, underwater bubble barriers, and chemical booms. In their
some oxidation occurs at temperatures as low as 0°C. An average of one-
present state of development, all types will at best retain or stop the
third of the hydrocarbon may be converted into bacterial cells, which
spread of oil only in relatively calm waters with little current.
provide food for many animals. The remaining two-thirds of the hydrocarbon
The ability to confine a spill in the area immediately surround-
is oxidized largely to CO₂ and H₂O. In the marine environment, oil per-
ing the source is principally a function of time, availability of equip-
sists only when protected from bacterial action.
ment, and prevailing environmental conditions. An incident that essentially
"Based upon rates at which marine bacteria have been observed to
opened an entire vessel to the sea would involve rapid spreading of the
oxidize various kinds of mineral oils under controlled laboratory condi-
oil, and there would be little chance of containment equipment being
tions and upon information on the abundance of bacteria in the sea, it is
effective unless it was in the immediate area and ready for use when the
9
10
incident occurred. In a more probable case, where the oil release
A floating slick will have a difference in elevation. or freeboard, with
occurs over several days, the ability to confine the oil to the imme-
respect to the surrounding water surface according to the equation:
diate area would depend largely upon the prevailing sea conditions.
Booming in waters with a sea state greater than 3 is impractical with
FBD = 1 ) T
presently existing boom designs and even this is suspect if wind condi-
tions are adverse.
where,
For harbors and relatively calm waters, there are several commer-
FBD = difference in elevation, freeboard
cially available booms which can contain a spill. Currents in excess of
Pw = density of water
1 1/2 to 2 knots make booming difficult without extensive skirts and
°0 = density of oil
T = thickness of oil slick.
anchoring systems. Supplementary means of confinement including coagulating
the oil with such absorbing materials as straw, bark, or foamed plastics
Similarly, the oil-water interface will be depressed below the
to prevent spreading.
surrounding surface to a draft equivalent of:
Mechanical Booms
D = Po/ow T
C-6
Floating booms are presently in common use for the control of oil
For the case of a typical United States crude oil floating in sea-water.
spillage in many harbors where transfer operations take place. There
Pw = 1.035 gm/cm3, Po = 0.855 gm/cm³
*
are several commercial designs available as well as makeshift methods such
Therefore,
as inflated fire hoses. In general, all mechanical booms have a floating
FBD If 1 1.035 0.855 T,
section consisting of either an inflatable bladder or a buoyant filler
material such as foamed plastic. Below the floating section is some form
or FBD = 0.17 T
of skirt to which ballast or anchors are attached. The floating booms
and the draft of the slick,
are used for such operations as confining oil within an area, preventing
D = 0.83 T =
the spread or passage of oil, sweeping oil from a particular area, or
condensing a slick into a smaller area.
This means that the boom will require a minimum freeboard of
Oil slicks on the water have a mean surface elevation that is
approximately 1/5 and a minimum draft of about 4/5 of the thickness of
higher than the elevation of the water surface outside of the slick.
the slick to contain the oil in calm conditions. It can easily be seen
why so many makeshift booms without skirts fail by passing the oil under-
neath.
11
12
Commercial and make-shift booms are now in usage at practically
This type of barrier appears to have considerable merit for fixed
all marine terminals of the United States and Europe, particularly where
installations in sheltered waters and has the advantage that entry and
oil transfer operations take place. They are either placed around ships
egress of ships is unimpaired.
during cargo transfer routinely to prevent spread if a spill occurs or
Chemical Booming
are quickly available in the event of an emergency.
There has been relatively little study on the possibility of en-
The most satisfactory are those which can be stored compactly on
hancing or preventing the spread of oil on the water surface by use of
the water and are self-buoyant.
wetting or spreading agents. Ambrose (5) states, "Langmuir showed that
Bubble Curtain Barriers
hydrophobic (water-hating) hydrocarbons do not spread well on water, but
Compressed air distributed from a submerged pipe causes local
that hydrophilic (water-loving) hydrocarbon derivatives spread well.
upwelling with a resultant surface current flowing in both directions
This principle is used in putting cetyl alcohol on reservoir water to
normal to the bubble curtain. As long as this net flow toward the oil
retard evaporation. The cetyl alcohol is hydrophilic and forms a con-
is not exceeded by the free stream current or overcome by the wind force
tinuous, thin, nonvolatile film on the surface of quiet water. Wind and
C-7
on the oil, the barrier will contain a spill.
wave action may disrupt the film and push it down wind, however.
"Addition of relatively small proportions of a hydrophilic compound
Underwater bubbles barriers are a relatively recent development
and presently in use in the harbors of Hamburg, Germany and Tobruk, Libya
(3)
(stearic acid, or oleic acid or other hydrophilic compound) to oil may
cause the oil spill to spread over a vast area. Oxidation and bacteria
to help prevent the spread of oil from routine loading and unloading
action will be enhanced by such dispersal.
operations. Following the TORREY CANYON incident, a 1200 ft-long bubble
"On the other hand, if fatty acid is spread at the periphery of
barrier was placed across the mouth of the Helford River to try to pre-
an oil spill the spreading force of the fatty material will repel the
vent incoming oil. Performance is unknown as oil never reached this
boom.
(4) The present units use air up to 100 psi supplied by a compressor
nonpolar petroleum oil and push it into a smaller area."
Some experimental work by the Naval Research Laboratory was re-
which makes the unit somewhat susceptible to mechanical failure. A
ported by Zisman and Pickett (6) on tests made on wetting agents as well
rapidly deployable system could be developed employing a submerged,
as spreading agents to aid in removing oil films from the surface of the
perforated, flexible base buoyed at the surface and supplied with air at
water. The objective of the work was to find spreading agents to reduce
a pressure sufficient to create critical flow through the perforations.
the thickness of a burning oil film to the point that it would not
13
14
sustain combustion or to use these spreading agents to push burning oil
With regard to burning the oil aboard ship, heavy oils and crudes
away from a ship. The results showed that the agents were incapable of
tend to burn very slowly if the cargo tanks are not opened to the atmos-
spreading burning oil, although they would spread oil films not on fire.
phere. A tanker fire in the Persian Gulf burned for over two months,
The spreading agents were ineffective against the wind and could not
after which one half of the cargo remained plus an obnoxious residue.
(7)
theoretically push back a layer of oil over about one inch thick Such
In the case of the TORREY CANYON, estimates place the amount of
spreading agents as oleic acid and stearic acid could be used perhaps
oil destroyed by burning in situ at between 40,000 and 50,000 tons
in calm harbors where the quantity of oil was fairly small and a thick
(British), or over one-third of the cargo.
(8)
film would not develop.
The fire had to be reignited several times. Beynon
(9)
estimated
BURNING
that in the three days of attacks "160,000 1b of high explosives,
10,000 gal of aviation kerosene, 3000 gal of napalm and several rockets
Burning at Sea
If a ship or its cargo cannot be salvaged after a stranding, and if
had been dropped on the ship." It is pointed out that several of the
a large spill is imminent, possibly the most desirable method of control
bombs failed to detonate and will continue to present a hazard in the
(7)
C-8
area.
will be destruction by burning. Preferably this should be done while the
oil is still contained aboard ship. Once oil is on the sea, burning be-
In summary, it was concluded that destruction of the oil by burning
comes increasingly more difficult due to evaporation of the more volatile
can only be achieved before it is discharged to the sea. Development of
components, rapid heat transfer to the water (decreasing the oil tempera-
improved demolition devices for opening the tanker deck to expose the
ture to below the flash point), and to the lack of oxygen supply to all
cargo should be explored.
but the edges of the slick.
Burning Oil Washed Ashore
Following the stranding of the TORREY CANYON and after salvage
The oil coming ashore from the TORREY CANYON proved to be very
attempts had failed, attempts were made to ignite the oil slicks surround-
hard, if not impossible, to burn in most situations where it was tried.
ing the ship and to open the decks of the ship and ignite the oil remain-
Some success was reported in burning where there were pools of unemulsified
ing in the holds. Four unsuccessful attempts were made to ignite small
oil between rocks.
(10)
Beynon noted: "In places, black oil was present
slicks which were believed to be reasonably thick in the waters around
on rocks and in pools between rocks. The pools were sometimes of 'neat'
the TORREY CANYON. Pyrotechnic devices containing sodium chlorate were
oil and sometimes of oil floating on water. It was possible to ignite
employed in these attempts with no sign of ignition of the oil.
15
16
these pools by flame gunning, but an equally successful and more con-
principles differ according to usage but generally incorporate either
venient method was to pour a little flame-thrower fuel into a pool,
rotating drums, suction devices, or weirs. Several of these devices
mix it a little with the oil, and then apply a lighted match. Pools of
are self-propelled recovery barges that can traverse a slick until the
'neat' oil burned virtually to completion, but oil burning on water even-
oil film is picked up.
tually generated enough steam to extinguish the flame and the fire had
An example of the rotating drum principal is an oil recovery barge
to be re-ignited on several occasions after first allowing the water to
used in the harbor of Baltimore, Maryland, which is based upon oil ad-
cool. Brown oil in pools only burned so long as the flame-thrower was
hering to a rotating drum. Because oil and water are relatively immiscible,
present and this applied also to the 'chocolate mousse' on the beaches.
only the oil adheres to the drum and is removed by a wiper blade. The
Even when an 'oxygen tile' was used to effect ignition and wood shavings
system is similar to that used in offset printing: it relies upon the
were mixed with the oil, combustion could not be maintained. It was
adhesion, cohesion, viscosity, and surface tension of oils and their
possible during these tests to watch water boiling out of the 'chocolate
repulsion to water.
mousse' but they effected little beyond producing a thick black skin on
It seens likely that the oil recovery rate of such a system could
the surface. An attempt was also made to burn 'chocolate mousse' by
be improved by applying a hydrophobic plastic foam "sock" or sleeve to
spreading magnesium powder on it and igniting by means of a high tempera-
the primary oil rotary pickup drum. A "wringer" roller would squeeze the
ture flare. This was spectactular but equally as ineffective as using
recovered oil from the primary drum.
C-9
flame-thrower fuel."
A recovery barge incorporating the weir principle for oil re-
A small portable incimerator was effective in disposing of con-
covery uses an adjustable weir mounted on the forward end to induce the
taminated debris on the beaches of Cornwall. It consists of a 40 gal
surface oil to flow into a sump from where it is pumped into gravity
open-topped steel drum into which a compressed air line enters tangen-
decanting tanks with large holes on the bottom to allow passage of the
tially and sloping downward near the top. This air path forms a cyclone
water out following separation. Recovery is approximately 600 gal /hr
on top of the material and the low pressure region near the center tends
under optimum conditions.
to hold the flame in contact with the fuel.
Another recovery barge that incorporated the weir principle, skims
SKIMMING
oil from the surface of the water by means of a moving barge having rigid
Several mechanical devices are presently being routinely used to
floating booms hinged on both sides of the barge. These booms open auto-
remove surface oil from calm water in harbors and waterways. The working
matically when the targe moves forward. All floating oil entering between
the booms will collect where the boom hinges to the barge. From this
17
18
position it is sucked into the barge through a vertical slot extending
operations. The primary stage of treatment most often employed for oil-
below the water surface. In the hold the oil-water mixture is separated
water mixtures is gravity separation where the lighter-than-water oils float
by decanting and the oil is stored. The oil-free water is then pumped
to the surface and the larger solids settle. The most common device used
overboard. It has a storage capacity of 20 tons and a pumping capacity
is the API separator. Improvements that have been suggested are those
of 100 tons/hr. The water pump can also be used for pumping oil to
that modify the skimming or oil collection system.
shore or into another vessel.
Most treatment plants which strive for a high degree of efficiency
In recovery barges using suction devices the oil is picked up
in the secondary stage of treatment of oil-water employ the following
from the water with a pump-driven suction apparatus and is pumped to a
sequence of unit operations. First, alum or ferric salts are added to
settling barge. The water which settles out is automatically siphoned
the wastewater. Lime is added when sufficient alkalinity for precipitation
overboard. Capacity is 30 tons/hr.
of the iron is not present. The wastewater is then gently agitated or
All of the present recovery barges have, at best, a capacity of a
flocculated to promote interparticle collisions for agglomeration. The
few tons per hour under ideal conditions. The efficiency of all types
resultant suspension is then allowed to settle in a sedimentation basin.
falls off rather rapidly with increasing wave height, although the rotating
In some cases where the oil content of the floc is high, flotation is
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drum device probably suffers the least loss of efficiency when compared
used. This step is followed by filtration through a rapid sand-filter
to the others.
or through a multimedia filter.
TREATMENT AND DISPOSAL OF RECOVERED SLICKS
While the secondary stage process described above is most often used,
Technology presently exists whereby recovered oil slicks can be
coalescence appears to be gaining greater acceptance for similar applica-
treated to any degree desired. Although such treatment is possible,
tions.
the limiting constraint is either economics or environmental disposal
Biological treatment processes, such as activated sludge, trickling
standards. Improved techniques will evolve mainly through the economic
filters, aerated ponds, and cooling towers, are highly effective as a
incentives. For example, oil reclamation from recovered slicks has not
third or polishing stage of treatment. Experience has shown that the
been exploited. Reclamation is presently merely a function of expediency.
function of biological treatment as the last step prior to environmental
Treatment of recovered oil is likely to use techniques now em-
discharge is highly appropriate.
ployed by the petroleum industry in effectively dealing with wastewater
Techniques for sludge disposal are few. The most common technique
effluents. These techniques are summarized below as sequential unit
employed is to dewater the sludge by gravity drainage in soil, filtration,
19
20
or centrifugation. However, care rust be taken to avoid ground water
contamination. The residue is either used as fill or it is incinerated.
be given first priority.
In actual practice, many combinations of processes have been used.
Aerial reconnaissance techniques should also be considered for
Once again, the degree of treatment is dictated either by economics or
tracing surface buoys which could be released near the oil spill to
environmental disposal standards.
determine the rates of surface currents. A combination with photographic,
ultraviolet, infrared, and microwave imaging techniques should permit
RECOMMENDATIONS FOR RESEARCH AND DEVELOPMENT
surface current measurements to be made under almost any weather condi-
Surveillance
tion and in a short period of time.
The potential of aerial photography and more especially infrared,
Prediction of Oil Slick Behavior
ultraviolet, and microwave imagery in surveillance and oil slick detec-
The behavior and rate of movement of oil slicks on water is rather
tion should be evaluated in detail. These techniques are all dependent
poorly understood despite the importance in deploying defensive measures.
on collecting reflected or emitted electromagnetic radiation from the
Transport and dissipation are the two pertinent problems.
surface and recording the intensity variations which are due to the re-
The direction and speed of an oil slick is expected to yield more
flective quality of the surface, temperature, and type of materials being
to the wind than to the influence of the ocean current. This is because
observed. Various filtering systems should be evaluated to determine
C-11
of the greater momentum transported to the oil slick by the wind. The
which portions of the ultraviolet and infrared spectrum would give the
wind and currents are very likely not in the same direction. Water
greatest oil-water contrast.
currents near the surface which are under the influence of the wind are
Because microwave imagery has all-weather capability, particular
expected to follow the mathematical representation of the Ekman spiral.
emphasis should be given to the development of this type of surveillance
The wind created currents thus flow slightly to the right of the wind
system. The first step would be an investigation of the response of
direction in the Northern Hemisphere. Mechanically and thermally in-
the microwave imaging system to the oil-water surfaces. The microwave
duced ocean currents (i.e., Gulf Stream) would affect the motion of
data which are collected on magnetic tape may be processed by techniques
an oil slick as well. As an oil slick approaches a land mass, a varia-
used on ultraviolet and infrared imagery which should enhance the micro-
tion in the motion of an oil slick is also expected.
wave radiation intensity variations.
The dissipation of oil slicks would primarily rely on "storm"
FM-CW radar has similar all-weather capability and should be
conditions. During periods of high wave and strong wind, the edges of
evaluated along with the microwave iragery approach, but the latter should
the oil slick would be broken up and carried away. Water and atmospheric
21
22
conditions could be related to this breakup. The area of initial break-
or influences could be applied to permit natural forces to act to the
up could be pin-pointed by using Eulerian coordinates or other suitable
best advantage in dispersion of an oil slick.
coordinate systems. The size of the oil slick and thickness at the center
Chemical Treatment - Absorption
point may have additional bearing on the rate that an oil slick will
The use of absorbents in cleaning up oil spills should be carefully
break up, as well as the age of the oil slick.
examined from the standpoint of objectives. For example, if the primary
It is proposed that a correlation of mean wind velocity at the
objective is economy without regard to potential oil reclamation, then
surface and the mean velocity of the ocean current for various sizes of
it is very likely that a different absorbent would be used than if recla-
oil slicks could be related to the movement of the oil slick. Such a
mation was the prime objective. The requirement of cleanup time should
study could start with relatively small oil slicks. The resulting hypo-
be factored into the formulation of objectives. If a relatively long
thesis could be extended to larger oil slicks. Assumptions that are made
period of time is available in which to undertake control measures, then
as the experiments progress (to larger oil slicks) could be tested.
a specific absorbent type might be more apparent.
An initial study of the breakup of oil slicks could be done by
The areas in which sunken oil-absorbent masses would create grave
C-12
relating the breakup of small oil slicks to mean wind speed and wave size.
ecological problems should be defined so that appropriate control decisions
This relationship could be extended to include fluctuations in the down-
can readily be made. The consequences of sunken oil-absorbent masses
wind and crosswind components of wind speed, and the changing characteristics
should be documented by a detailed research program.
of waves related to fetch length. Through photographs and/or infrared
Absorbent dispersal techniques should be examined. Priority should
scanning of the oil slick taken by an aircraft flying over the test area,
be given to those control methods which will be most effective when quick
a study could be made on the rate of breakup and to determine the edge
action is critical because of the limited extent of the affected area:
of the oil slick that breaks up first. Such studies could then be extended
i.e., aerial dispersal techniques.
to the concurrent consideration of the parameters of net radiation; tempera-
It is also recommended that a test and evaluation program using
tures of the atmosphere, the oil, and the ocean; measurements of turbulence;
standardized procedures be initiated to create some order out of the
and measurements of wave heights and character. Once the relation between
currently chaotic body of information.
these parameters and oil slick breakup is established, determination of
Increased attention should also be given to the development of
a portion or all of these parameters could provide additional information
economical absorbents which meet predetermined criteria such as ease of
on the weakest area of an oil slick. Knowing this weak area, one could
spreading, ease of collection, and ease of oil reclamation or disposal.
establish where the application of a detergent, and/or other additives
23
24
Chemical Treatment Dispersion
Booming
Although the general use of detergents is not recommended in this
Booming of oil spills has been a very effective method for contain-
paper, there are situations where such use is warranted. The major need
ment of oil slicks in sheltered and relatively current-free waters. With
at present is a test and evaluation program similar to that recommended
the exception of a few commercial designs, the majority of booms have been
for absorbents. In addition, standardized screening for biological toxi-
of makeshift design using materials readily at hand. These have been
city and for biodegradability will be required.
generally ineffective largely due to lack of understanding of the hydraulics
The possibility of developing a nontoxic emulsifying agent should
and dynamics involved.
be explored from the biochemical standpoint as should the development of
It seems likely that by approaching boom design through careful con-
a detergent with shorter biodegradation half-life. These latter sugges-
sideration of the hydrodynamics and aerodynamics involved, it should be
tions represent long-range goals.
possible to develop the critical design criteria for a boom to be effective
Biological Degradation
in comparatively high sea states. As a minimum, such criteria would include
The use of specific cultures of microbiological species which can
draft, freeboard, shape, particularly above the waterline, linear stresses,
rapidly metabolize oil should be investigated. Despite the fact that
flexibility needs, inertia, and mooring forces. From this basis, several
C-13
this has been suggested by numerous sources, there has been no field
candidate designs could then be evolved, screened for feasibility in terms
experimentation to demonstrate the practical application for oil spills.
of materials, costs, and deployability, and the more promising designs
In any case, it is doubtful that this measure could be relied upon as the
evaluated in model basin tests. Should results prove favorable, one or
sole method for dissipating oil slicks which threaten land masses.
more prototype booms could then be evaluated in field tests.
Methods for enhancing oxygen availability and nutrient supplies
The bubble curtain barrier warrants further evaluation and opti-
for accelerated microbial metabolism should be explored. Dispersal of
mization. At the present time the limitations on its utility as a result
nutrient materials and/or the mechanical or chemical addition of oxygen
of current and wave action are not known despite its mechanical simplicity
to the slick area should be examined in detail.
and apparent merit. Should tests confirm its effectiveness, the design
The mechanisms of anaerobic degradation of sunken oil masses should
of a bubble curtain system capable of rapid deployment should be under-
be investigated along with an assessment of potential toxicity of inter-
taken. There is an excellent possibility that improved performance can
mediate products of degradation. Likewise the effects of intermediate
be achieved by optimizing submergence, air distribution, and bubble size
products from aerobic environments should be evaluated.
to achieve maximum local upwelling of water and foam with a minimum of
25
26
air supply. The addition of surfactants to the air supply, as is done
applied to the recovery problem. If efforts are successful for enhancing
in ore flotation processes, may greatly increase the air utilization
biological degradation in the ocean, then similar techniques could be
efficiency, and this potential should be investigated.
used for recovered slicks.
Chemical booming, that is, the use of spreading agents, warrants
The weakest area in the disposal of recovered slicks is that of
further evaluation.
sludge disposal. Increased emphasis on environmental quality will dictate
Skimming
that improved sludge disposal techniques be developed.
All presently employed skimming vessels currently suffer from low
Increased emphasis should also be placed on more effective oil
rates of oil removal coverage or from inability to operate effectively
reclamation throughout the treatment process. Improved primary separation
in rough water. It appears likely, however, that an improved skimming
offers the best possibility for such research.
device could be designed based on incorporation of several improvements.
ACKNOWLEDGMENTS
For example, the rotary drum skinmer is relatively insensitive to wave
This paper summarizes research conducted by Battelle-Northwest
action, but it is deficient in rate of removal. This latter drawback
for the United States Coast Guard under Contract No. TCG-15560-A. In
could possibly be overcome by (1) using a series of spaced discus rotat-
C-14
addition to the authors, the following individuals contributed signi-
ing around a horizontal axis and (2) covering the surfaces of the discs
ficantly to the results: G. J. Alkire, C. D. Becker, M. W. Cook, Diana
with a hydrophobic oil absorbent foam. Roller type wringers would remove
Davis, C. E. Leach, G. B. Pauley, W. L. Templeton and W. A. Snyder.
the absorbed and adherent oil from the disc surfaces with each revolution.
Disc diameter would be dictated by the wave heights in which operation
would be desired. Preliminary design of such a device is recommended.
Disposal of Recovered Slicks
It is readily apparent that the present methodologies used in
treating recovered oil slicks could be materially aided by an information
interchange with other areas of the total problem. For example, oil
reclamation is a topic which deserves far greater emphasis in the treat-
ment of recovered slicks, yet methods have been developed by those
interested in removing slicks from the sea which could be directly
27
References
1. ZoBell, C. E., "The Occurrence, Effects and Fate of Oil Polluting
the Sea," Int. J. Air Wat. Poll., vol. 7, pp. 173-198. 1963.
2. Smith, J. W., "The TORREY CANYON Disaster," Annual Meeting, 1967,
British Association for the Advancement of Science. September 6,
1967.
3. "Clearing-up the Oil," Petroleum, p. 95. May/June 1967.
4. Dudley, B. L. Harbourmaster's Visit to Cornwall to Study Anti-Oil
Pollution Measures, Milford Haven Conservancy Board. April 25, 1967.
5. Ambrose, H. A. Oil Pollution of Seas, Coasts and Harbors, Gulf
Research and Development Company Report No. 700R7001. September
1967.
6. Sigwalt, R. "The Forces Causing Spreading of Petroleum Products on
C-15
Water and Their Neutralization by Fatty Oils," Compte Rend., 259(3),
pp. 561-64. July 20, 1964.
7. The TORREY CANYON, report presented to Parliament by the Secretary of
State for the Home Department by Command of Her Majesty. London,
Cmnd 3246. April 1967.
8. Smith, J. W. The TORREY CANYON Disaster. Paper given to Annual
Meeting of British Association for the Advancement of Science, Leeds,
England. September 6, 1967.
9. Beynon, L. R. The TORREY CANYON Incident. September 1967.
10. The Removal of Oil from Contaminated Beaches. Report prepared
for I.M.C.O. by the Warren Springs Laboratory. Report number RR/ES/39.
April 1963.
APPENDIX "D"
CALIFORNIA OIL SPILL DISASTER CONTINGENCY PLAN
D.
Summary of State Legal Capabilities (Spill prevention and abatement)
Administrative Code.
Section 2121: Suspension of Operations. The Lessee shall suspend
any drilling and production operations, except those which are
corrective, protective, or mitigative, immediately in the event of
any disaster or of contamination or pollution caused in any manner
or resulting from operations under a lease. Such drilling and pro-
duction operations shall not be resumed until adequate corrective
measures have been taken and authorization of resumption of opera-
tions has been made by the Commission. (State leases only.)
Fish and Game Code.
Section 851: A deputy appointed to enforce the provisions of this
code is a public officer. He has all the powers and authority of
a peace officer to make arrests for violations of this code, and
may serve all processes and notices throughout the State.
Section 856: All members of the Wildlife Protection Branch desig-
nated by the director as deputized law enforcement officers shall
have the power of peace officers provided that their primary duty
shall be the enforcement of the provisions of this code and the
regulations made pursuant thereto. Such deputized law enforcement
members shall not act as peace officers in enforcing any other law
except to make arrests for crimes committed in their presence, or as
requested by other law enforcement agencies, or upon request pursuant
to Section 1509.7 of the Military and Veterans Code.
Section 878: The county fish and game warden shall enforce the state
laws relating to the protection of fish and game. He has the powers
of a peace officer to make arrests for the violation of such laws.
Section 2014: It is the policy of this State to conserve its natural
resources and to prevent the wilful or negligent destruction of birds,
mammals, fish, or amphibia.
The State may recover damages in a civil action against any person who
unlawfully or negligently takes or destroys any bird, mammal, fish, or
amphibian protected by the laws of this State.
The measure of damages is the amount which will compensate for all the
detriment proximately caused by the destruction of such birds, mammals,
fish, or amphibia.
D-1
An action to recover damages under this section shall be brought
in the name of the people of the State, in a court of competent
jurisdiction in the county in which the cause of action arose.
This section does not apply to persons engaged in agricultural
pest control, to the destruction of fish in irrigation canals
or works or irrigation drainages, or to the destruction of birds
or mammals killed while damaging crops as provided by law.
Section 5650: It is unlawful to deposit in, permit to pass into,
or place where it can pass into the waters of this State any of
the following:
(a) Any petroleum, acid, coal or oil tar, lampblack, aniline,
asphalt, bitumen, or residuary product of petroleum, or carbonaceous
material or substance.
(b) Any refuse, liquid or solid, from any refinery, gas house,
tannery, distillery, chemical works, mill or factory of any kind.
(c) Any sawdust, shavings, slabs, edgings.
(d) Any factory refuse, lime, or slag.
(e) Any cocculus indicus.
(f) Any substance or material deleterious to fish, plant life,
or bird life.
Section 12015: In addition to any other penalty provided, anyone
convicted of unlawfully polluting, contaminating, or obstructing
waters to the detriment of fish life in such waters, shall either
be required to remove any substance placed in the waters, which can
be removed, that caused the prohibited condition or to pay the costs
of such removal by the department.
Water Code.
Section 13052: Regional duties
Each regional board, with respect to its region, shall:
(a) Obtain coordinated action in water quality control and in
the abatement, prevention and control of water pollution and nuisance
by means of formal or informal meetings of the persons involved;
(b) Encourage and assist in self-policing waste disposal programs
for industry, and upon application of any person shall advise the
applicant of the condition to be maintained in any disposal area
or receiving waters into which the waste is being discharged;
D-2
(c) Require any state or local agency to inspect and report on any
technical factors involved in water pollution or nuisance;
(d) Request enforcement of laws concerning water pollution or
nuisance by appropriate federal, state and local agencies;
(e) Formulate and adopt long-range plans and policies with
respect to water pollution control and water quality control within
the region in conformity with the policies set forth in Chapter 1
(commencing at Section 13000) and any water quality control policy
adopted at any time by the state board;
(f) Recommend to the state board projects for the reduction of
water pollution which the regional board considers eligible for
any financial assistance which may be available through the state
board;
(g) Report to the state board and appropriate local health officer
any case of contamination in its region which is not being corrected.
(h) File with the state board, at its request, copies of any official
action with respect to any particular case of actual or threatened
pollution and with respect to the adoption of any water quality control
policy.
(i) Have the power to require any state or local agency to obtain and
submit analyses of well water.
Section 13053. Prescription of requirements. Each regional board shall
prescribe requirements relative to any particular condition of pollution
or nuisance, existing or threatened, in the region.
Section 13055. Investigation of source of water pollution or nuisance;
appeal of regional board's determination.
A regional board may investigate any source of water pollution or nuisance
within its region and may require that any person discharging sewage or
other waste within the region furnish such technical or monitoring program
reports as the board may specify.
Any person who has been required to make any such reports entailing a
substantial expenditure of time or funds or which are not directly related
to the appraisal of the existence or threat of pollution may, within 30
days of the determination of the regional board in the matter, appeal such
determination to the state board. The state board shall determine the
reasonableness and relationships of burdens and costs to benefit of such
report and, within 60 days, shall affirm, modify, or annul the determination
of the regional board. Pending such determination by the state board, the
requirement to furnish the reports shall not be effective.
D-3
Section 13060. Cease and desist orders
When a regional board finds that the discharge of sewage or other waste
within its region is taking place contrary to any requirements prescribed
by the regional board under the provisions of Sections 13053, 13054,
13054.1, 13054.3 and 13055, and that such discharge is threatening to
cause or is causing pollution or a nuisance, the board may issue an order
to cease and desist and direct that those persons, firms or corporations
not complying with the requirements, comply forthwith.
Section 13063. Failure to comply with board order; proceedings for
injunction
Upon failure of any person or persons to comply with any such cease and
desist order of the board, the board issuing the order may certify the
facts to the district attorney for the county in which the discharge
originates or to the Attorney General, as the case may be, shall petition
the superior court in and for that county for the issuance of an injunction
restraining such person or persons from continuing the discharge in violation
of the requirements. The court shall thereupon issue an order directing
the person to appear before the court and show cause why the injunction
should not be issued. Thereafter the court shall have jurisdiction of
the matter, and proceedings thereon shall be conducted in the same manner
as in any other action brought for an injunction pursuant to Chapter 3
(commencing with Section 525), Title 7, Part 2 of the Code of Civil Procedure.
The court shall receive in evidence the order of the board, evidence as
to the validity and reasonableness of the board's requirements as previously
established, and such further evidence as the court in its discretion deems
proper.
Section 13064. Manner of correcting pollution or nuisance; specification
of details in board order. No order issued under the provisions of this
article shall specify the design, location, type of construction or particular
manner in which an operation causing or threatening to cause a condition of
pollution or nuisance is to be corrected, and the person so ordered shall be
permitted to correct the condition in any lawful manner.
Public Resources Code
Section 3013. Construction of chapter: Powers of director and supervisor
generally. This chapter shall be liberally construed to meet its purposes,
and the director and the supervisor shall have all powers which may be
necessary to carry out the purposes of this chapter.
D-4
Section 3106. Duties of supervisor: Objectives: Increasing recovery of
underground hydrocarbons. The supervisor shall so supervise the drilling,
operation, maintenance, and abandonment of wells as to prevent, as far as
possible, damage to underground oil and gas deposits from infiltrating water
and other causes, loss of oil, gas, or reservoir energy and damage to under-
ground and surface waters suitable for irrigation or domestic purposes by
the infiltration of, or the addition of, detrimental substances, by reason
of the drilling, operation, maintenance, or abandonment of wells.
Section 3204. Drilling, etc., bonds: Bond for single well: Amount of bond:
Time for filing: Execution of bond: Condition. Every person who engages
in the drilling, redrilling, or deepening of any well shall file with the
supervisor an indemnity bond in the sum of five thousand dollars for each
well drilled, redrilled, or deepened. The bond shall be filed with the
supervisor at the time of the filing of the notice of intention to drill,
redrill, or deepen provided for in section 3203. The bond shall be
executed by such person, as principal, and by an authorized surety company,
as surety, conditioned that the principal named in the bond shall faithfully
comply with all the provisions of this chapter, in drilling, redrilling, or
deepening any well or wells covered by the bond, and shall secure the State
against all losses, charges, and expenses incurred by it to obtain such
compliance by the principal named in the bond.
Section 3221. Order for shut-off test: Form of order: Manner of service:
Compliance. Whenever it appears to the supervisor that water from any well
is penetrating oil-bearing or gas-bearing strata or that detrimental sub-
stances are infiltrating into underground or surface water suitable for
irrigation or domestic purposes, he may order a shut-off test and designate
a day upon which the test shall be held. The order shall be in writing and
served upon the owner or operator of the well at least ten days prior to
the day designated before the test. Upon receipt of the order, the owner
or operator shall hold the test in the manner and at the time prescribed.
Section 3224. Order for remedial work, etc.: Form and contents: Manner
of service: Publication. The supervisor shall order such tests or remedial
work as in his judgment are necessary to protect oil and gas deposits from
damage by underground water, or to prevent the escape of water into under-
ground formations, or to prevent the infiltration of detrimental substances
into underground or surface water suitable for irrigation or domestic
purposes, to the best interests of the neighboring property owners and the
public.
The order shall be in writing, signed by the supervisor. It shall be
served upon the owner of the well, or his local agent, either per-
sonally or by mailing a copy of the order to the post-office address
given at the time the local agent is designated. If no local agent
has been designated, the order shall be served by mailing a copy to
the last known post-office address of the owner, or if the owner
is unknown, by posting a copy in a conspicuous place upon the prop-
erty, and publishing it once a week for two successive weeks in
some newspaper of general circulation throughout the county in which
the well is located. The order shall specify the conditions sought
to be remedied and the work necessary to protect such deposits from
damage from underground water.
Section 3225. Request for definite order after receipt of written
direction: Delivery of order: Form. Whenever the supervisor or a
district deputy makes or gives any written direction concerning the
drilling, testing, or other operations in any well drilled, in process
of drilling, or being abandoned, and the operator, owner, or repre-
sentative of either, serves written notice, either personally or by
mail, addressed to the supervisor, or to the district deputy at his
office in the district, requesting that a definite order be made
upon such subject, the supervisor or the district deputy shall, within
five days after receipt of the notice, deliver a final written order
on the subject matter in such manner and form that an appeal therefrom
may be taken at once to the board of oil and gas commissioners of
the district.
Section 3226. Time for commencement of remedial work, etc.: Pro-
cedure on owner's default: Payment of costs: Lien on property. Within
thirty days after service of an order, pursuant to sections 3224 and
3225, or if there has been an appeal from the order to the board of
district commissioners, within thirty days after service of the decision
of the board, or if a review has been taken of the order of the board
of district commissioners, within ten days after affirmance of the
order, the owner shall commence in good faith the work ordered and
continue it until completion. If the work has not been commenced and
continued to completion, the supervisor shall appoint necessary agents
who shall enter the premises and perform the work. An accurate account
of the expenditures shall be kept, and the amounts shall be paid from
petroleum and gas fund upon the warrant of the State Controller. Any
amount so expended shall constitute a lien against the property upon
which the work is done.
Section 3235. Investigation of complaints: Report and order: Delivery
of copies of order: Contents and service.
Requisites of complaint: Investigation: Report and order. Upon receipt
by the supervisor or by a district deputy of a written complaint, specifi-
cally setting forth the condition complained against, signed by a person
owning land or operating wells within a radius of one mile of any well
or group of wells complained against; or upon a written complaint specifi-
cally setting forth the condition complained against, signed by any one
of the board of commissioners for the district in which the well or group
of wells complained against is situated, the supervisor shall make an
investigation of the well or wells and make a written report and order,
stating the work required to repair the damage complained of, or stating
that no work is required.
D-6
Delivery of copies of order. A copy of the order shall be delivered
to the complainant, or if more than one, to each complainant, and,
if the supervisor orders the damage repaired, a copy of the order
shall be delivered to each of the owners, operators, or agents having
in charge the well or wells upon which the work is to be done.
Contents and service of order. The order shall contain a statement
of the conditions sought to be remedied or repaired and a statement
of the work required by the supervisor to repair the condition.
Service shall be made by mailing copies to such persons at the post-
office address given.
Section 3236. Acts denounced as misdemeanors: Punishment. Any
owner or operator, or employee thereof, who refuses to permit the
supervisor or the district deputy, or his inspector, to inspect a well,
or who wilfully hinders or delays the enforcement of the provisions
of this chapter, and every person, whether as principal, agent, servant,
employee, or otherwise, who violates, fails, neglects, or refuses to
comply with any of the provisions of this chapter, or who fails or
neglects or refuses to furnish any report or record which may be required
pursuant to the provisions of this chapter, or who wilfully renders a
false or fraudulent report, is guilty of a misdemeanor, punishable by
a fine of not less than one hundred dollars, nor more than five hundred
dollars, or by imprisonment for not exceeding six months, or by both
such fine and imprisonment, for each such offense.
Section 4957. Use of camp inmates and wards in rescuing, and saving
life and protecting property: Cooperation with local agencies.
Conservation camp inmates and wards may be utilized in the rescue of
lost or injured persons, and the saving of life and protection of
property. The State Forester may cooperate with local agencies of
government to accomplish this purpose.
Section 6829. Terms, conditions and provisions to be included. Every
oil and gas lease executed under this chapter shall include the following:
(c) Provisions specifying methods of operation and standard requirements
for carrying on operations in proper and workmanlike manner; the preven-
tion of waste; the protection of the safety and health of workmen; and
the liability of the lessee for personal injuries and property damage.
D-7
(d) Security for faithful performance by the lessee, including
provisions for the forfeiture of the lease, as set forth in Section
6805, and the requirement that the lessee shall, at the time of
execution of the lease, furnish and thereafter maintain a good and
sufficient bond in such sum as may be specified by the commission,
in favor of the State, guaranteeing faithful performance by the
lessee of the terms, covenants, and conditions of the lease and of
the provisions of this chapter. (State leases only.)
Section 6873. Form of lease: Preparation: Contents. When leasing
tide or submerged lands, the commission shall prepare a form of lease
which shall contain, in addition to other provisions deemed desirable
and necessary by the commission, appropriate provisions contained in
this chapter and the following:
(b) Pollution and contamination of the ocean and tidelands and
all impairment of and interference with bathing, fishing or naviga-
tion in the waters of the ocean or any bay or inlet thereof is pro-
hibited, and no oil, tar, residuary product of oil or any refuse of
any kind from any well or works shall be permitted to be deposited
on or pass into the waters of the ocean or any bay or inlet thereof;
provided, however, that this subsection (b) shall not be deemed to
apply to deposit on or passage into said waters of water not con-
taining any hydrocarbons or vegetable or animal matter. (State leases
only.)
D-8
APPENDIX "E"
Funding (State of California):
(To be completed by Department of Finance)
E-1
APPENDIX "F"
SHIP SALVAGE AUTHORITY OF THE U. S. NAVY
AS RELATED TO OIL SPILL EMERGENCIES
As set forth in Public Law 513 (80th Congress, 2nd Session 10 USC 7361, et.seq),
the Secretary of the Navy is authorized to provide, by contract or otherwise,
necessary salvage facilities for both public and private vessels upon such terms
and conditions as he may, in his discretion, determine to be in the best interests
of the United States. In addition to the responsibilities which the Navy would
assume in applying salvage techniques to cope. with a potential pollution problem
involving a U. S. Navy vessel, Public Law 80-513 authorizes the use of Navy
facilities for salving public and private vessels at the request of competent
authority. The following examples are used to illustrate the responsiveness
of Navy salvage forces to pollution incidents and to further delineate the
relationships whereby Navy salvage forces would respond to assist other "com-
petent authorities" in coping with potential pollution problems:
(a) U.S. Navy ship aground: pollution threat to surrounding environment.
The Navy would acknowledge total responsibility for the operation.
Acting in accordance with promulgated Naval directives, Navy sal-
vage forces would automatically respond to cope with the salvage
aspects of the problem. The Navy would seek USCG and FWPCA assist-
ance to deal with a pollution threat which might exist during salvage
efforts or which might develop should initial salvage efforts prove
unsuccessful.
(b) Any vessel aground: pollution threat to U. S. Territorial waters.
As provided for in Naval directives promulgated in response to
Public Law 80-513, the Navy may, subject to the availability of
forces, respond to a request from competent authority for salvage
assistance to save the ship and cargo. Provided it has not been
abandoned, arrested, or in some manner come under Governmental
control, competent authority in the case' of a merchant vessel will
ordinarily be the ship's master, owner, agent, or authorized under-
writer's representative. In such cases, the customer is the ship's
master, owner, agent or underwriter and the Navy provides salvage
services that are governed by the appropriate Naval directives.
Due regard must, however, be given to the existence locally, or the
reasonable availability, of privately owned salvage facilities.
On the other hand, if a competent Governmental agency, such as the USCG,
FWPCA, Corps of Engineers, Office of Emergency Planning, or a federal
court has stepped into the case, and acting in the public interest to
prevent or minimize pollution, requests Navy salvage assistance as an
evolution of the oil pollution control operation, and acknowledge that
it is the "customer", Navy salvage assistance may be provided in
consonance with the provisions of Public Law 80-513. In such cases, the
operation will be considered to be one of cross-servicing within the
Government and the existence of local salvage capability my be considered
subordinated thereto.
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If the ship has been abandoned it may be expected that some agency of the
local, state, or federal Government will have assumed at least interim
possession and will be in a position to act as competent authority to
request salvage, and act as "customer". In such a case, the operation
will again be considered as one of cross-servicing and it may proceed as
above. Similarly, if the ship has been arrested, the salvage assistance
will be governed by the directions of the competent court.
(c) Wrecked vessel of any flag blocking a U. S. Territory navigation
channel. Under the Rivers and Harbors Act of 1889, the Army Corps
of Engineers has the responsibility for wreck removal and can
exercise this authority, if necessary, prior to abandonment of the
vessel by the owners and underwriters. Accordingly, Naval salvage
forces may respond to a request for salvage assistance from the Corps
of Engineers which would act as the competent authority and "customer"
in such a case.
Even though the Corps of Engineers can deal with the Navy or with commercial
salvors for wreck removal as noted above, it does not have removal authority
solely for the purposes of minimizing leakage of oil or potential oil leak-
age. Anti-pollution action must be taken by the USCG or the FWPCA.
(d) Wrecked vessel of any flag in navigable waters: pollution threat to
U. S. Territorial waters; not blocking a channel. Although current
legislation is imprecise in defining a territorial separation or
overlap in the area responsibilities of the USCG and the FWPCA, both
organizations have broad authorities (in effect and pending) under the
provisions of the Federal Water Pollution Control Act and the Oil
Pollution Act of 1924 to prevent, control, and correct the effects
of oil pollution. Accordingly, it is the policy of the Navy to
respond to requests for assistance from either of these organizations
to provide salvage assistance in dealing with potential or actual
oil pollution incidents.
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APPENDIX "G"
Appendix To
California Oil Spill Disaster Contingency Plan
G. Recommendations for Local Contingency Plans:
1. The most important things that a plan can do are to: (1) pre-designate
a local Operating Authority (and an alternate) to take over-all charge
of any local major spill abatement operations, and (2) provide him with
the authority to obtain and direct the personnel and equipment needed.
This should be someone with experience in directing men and equipment,
whether it be the Director of Public Works, Fire Chief, Road Commissioner,
Sheriff, Police Chief or some other local official.
2. A valuable item to the local Operating Authority, particularly at the
beginning of abatement operations, is a list of up-to-date telephone
numbers: Police, Fire, Health, Road and Sanitation Departments; public
utilities; owners and operators of heavy equipment including hay mulchers
and blowers; U.S. Coast Guard; California Disaster Office; State Operating
Authority, Corps of Engineers; Highway Patrol; local Civil Defense Office;
Mayor; Board of Supervisors; and any other organization likely to be con-
tacted on an emergency basis.
3. Disposal sites can become a real problem. It would be a great help if
the local Coordinator could pre-determine how much of what kinds of
contaminants can be disposed of at what sites in or near his area.
Disposal site conditions change with time; therefore this information
should be periodically up-dated. It should be kept in mind that contam-
inants can get into ground-water or surface water systems if the disposal
site is improperly located. Regional Water Quality Control Boards or
the State Department of Water Resources can provide technical advice on
this aspect of disposal.
4. Uncooperative property owners may refuse access across their land for
crews and/or equipment to reach areas affected by contaminants. This
happened in some instances along the beach front in Santa Barbara. It
would be most helpful if Cities and Counties, in the preparation of
their contingency plans, would research the local law in this regard.
If there is no local authority for such access rights, enactment of
an ordinance to establish that authority should be recommended to the
local governing body.
5. Local plans should be tailored to the type of contaminant spill which is
most likely to occur in the locality, e.g., tankers, barges, pipelines,
oil and gas operations, or railroad tank cars or tank trucks which transport
oil, gasoline or chemicals.
6. Local spill contingency plans should be designed to either function
independently or to mesh smoothly into the State spill disaster contingency
organization, if activated, or into U.S. Coast Guard spill abatement
operations if local assistance is needed.
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