amsa-nationalplan 2007 overview

7/29/2019 AMSA-Nationalplan 2007 Overview

1/28

NATIONAL

PLAN

Australias National Plan to Combat Pollution of the Sea

by Oil and Other Noxious and Hazardous Substances


2/28

National Plan Information:

Environment Protection Response

Australian Maritime Safety Authority

GPO Box 2181

Canberra ACT 2601

Telephone 02 6279 5090

Facsimile 02 6279 5076

Email [email protected]

Further information on Australias

National Plan can be found under

Marine Environment Protection

at www.amsa.gov.au

Photos courtesy of:

Australian Institute of Marine Sciences;

Australian Marine Oil Spill Centre;

Australian Maritime Safety Authority;

CALM, Western Australia;

DELM, Tasmania;

Great Barrier Reef Marine Park Authority;

NSW Department of Transport;SA Metropolitan Fire Service;

WA Department of Transport.

Updated by Giraffe vcm 2007


3/28

1|NationalPlanS

hippingisanimp

ortant

partofAustralianlife

Introduction

Oilspill

victim

We are all aware of the environmental damage that may occur from spills

of harmful substances at sea. Through the media we see graphic images of

marine animals covered in oil, unexplained fish deaths, and damaged and oiledbeaches, mangroves and other coastal areas.

Pollutants enter the oceans from various sources creating a major threat to

a valuable resource. Runoff from land, shipping operations and accidents,

natural seepage, exploration activities and industrial emissions all contribute to

pollution of the oceans.

Measures to prevent pollution, combined with pre-planned clean up strategies,

are essential for the protection of the marine environment. Specific preventativemeasures involving shipping include mandatory pilotage in the Great Barrier

Reef and Torres Strait, environmentally protective ship design such as double

hulls, more efficient cargo handling, and better-trained and qualified personnel.


4/28

2

| NationalPlan

Since October 1973 Australia has had in place a pre-planned national strategy to

respond to marine spills. The original strategy dealt only with oil spills and was

known as the National Plan to Combat Pollution of the Sea by Oil. In April 1998

the strategy was extended to deal with the response to maritime chemical spills

in Australian waters and is now known as the National Plan to Combat Pollution

of the Sea by Oil and other Noxious and Hazardous Substances and is known as

the National Plan.

The National Plan is a national integrated government and industry

organisational framework enabling effective response to marine pollution

incidents. The Australian Maritime Safety Authority (AMSA) manages the

National Plan, working with State/Northern Territory (NT) governments and the

shipping, oil, exploration and chemical industries and emergency services to

maximise Australias marine pollution response capability. The National Plan

Management Committee (NPMC) provides strategic management of theNational Plan while the National Plan Operations Group (NPOG) handles

operational functions.

Shorelinec

leanup

crew

atwork

Recov

eredoil

stora

getank


5/28

3

|NationalPlan

The aim of the National Plan is to protect the community and the environment of

Australias marine and foreshore zones from the adverse effects of oil and other

noxious or hazardous substances. It also aims to minimise those effects where

protection is not possible.

The National Plan provides a national framework for responding promptly and

efficiently to marine pollution incidents by designating competent national and

local authorities and maintaining:

the National Oil and Chemical Marine Spill Contingency Plans, which

includes the organisational relationship of various groups

involved, both public and private;

detailed state, local and industry contingency plans and communications

arrangements for mobilising resources and responding to incidents;

an adequate level of strategically positioned response equipment,balanced with the risk involved, and programs for its use;

a comprehensive national training program to familiarise government

and industry personnel with the requirements involved in planning

for and responding to spilled marine pollutants, including conducting

regular exercises.

Objectives

Operationalandplanning

proceduresareregularlyexercised


6/28

4

| NationalPlan

The responsibilities of National Plan participants are clearly defined in

the National Plan Inter-Governmental Agreement. These include access to

equipment and dispersant stockpiles, equipment maintenance and storage,

funding and joint use of resources. Based on these arrangements, the

Commonwealths role, through AMSA, is coordination, training and the provision

of technical and logistic support, equipment, materials and finance.

State, local and industry contingency plans support the arrangements. An

example of a local area plan is TORRESPLAN, the marine pollution plan for

the Torres Strait. Each State/NT has a National Plan State Committee chaired

by a senior member of the State/NT marine or environmental authority. Also

represented are AMSA, the environmental authority, the oil industry, emergency

services and other relevant agencies.

Divisions of responsibility


7/28

5|NationalPlan

The Statutory Agency is the State/NT or Commonwealth agency having statutory

authority for marine pollution in their area of jurisdiction. The Combat Agency

is the agency having operational responsibility in accordance with the relevant

contingency plan to take action to respond to an oil and/or chemical spill in the

marine environment.

The Combat Agency responsible for responding to marine spills is:

at oil exploration rigs, platforms and pipelines - the relevant oil company,

with assistance, as required, from the National Plan State Committee or

AMSA, depending on the area of jurisdiction

at oil terminals - the relevant oil company using the industry mutual aid

arrangements as required, unless the response is beyond the capability of

its resources, in which case the responsibility is transferred to the respective

State/NT through the National Plan State Committee, with assistance from

AMSA as required

at chemical terminals - the relevant chemical company or terminal operator

under the Plastics and Chemicals Industries Association (PACIA) Chemsafe

Emergency Management Program arrangements. If however, the responseis beyond the capability of these resources, responsibility is transferred to

the respective State/NT through the National Plan State Committee, with

assistance from AMSA as required

Efficientresponseminimises

widespread

damage

REEFPLAN-protecting

theGreatBarrierReef


8/28

6

| NationalPlan

in ports (other than terminals) and within the three nautical mile coastal

waters limit - the responsible State/NT authority through the National Plan

State Committee, with assistance from AMSA as required

beyond the three nautical mile coastal waters limit - the Commonwealth

through AMSA, except in incidents when oil is likely to come ashore. The

State/NT, through the National Plan State Committee, will be the combat

authority for protecting the coastline, while AMSA assumes responsibility for

ship operational matters such as salvage

in the REEFPLAN area of the Great Barrier Reef- the Queensland

Government through the National Plan State Committee, with assistance

from AMSA as required.

The National Plan Management Committee (NPMC) was established after the

2000 National Plan Review.

NPMC provides strategic management of the National Plan, including setting of

broad policy directions, oversight of formal arrangements between stakeholders

and advice to the Australian Transport Council on the collection and distribution

of funds for the National Plan.

The National Plan Operations Group (NPOG) supports the NPMC by addressing

operational aspects for the National Plan such as equipment, training,

contingency planning and exercises. NPOG has established three working

groups to attend to specific issues on oil, chemicals and the environment.

National Plan Management Committee

National Plan Operations Group


9/28

7|NationalPlan

Working with the National Plan to protect the marine environment are the

National Maritime Emergency Response Arrangements (NMERA). The NMERA

enhances preventative arrangements by ensuring the continuing provision of a

minimum level of maritime emergency towage capability around the Australian

coastline and the enhancement of the emergency response management

framework, which includes the appointment of a single national decision maker

to coordinate a response to a maritime casualty.

Key elements of the NMERA are:

A number of Emergency Towing Vessels (ETVs) located in strategic

Australian coastal regions to provide an appropriate level of emergency

towage capability to deal with a significant, or potentially significant, threat

to Australia's marine environment. The ETV's include a dedicated vessel,

the Pacific Responder, based in Cairns and available for emergency tasking

by AMSA should a maritime casualty occur. Other ETVs are either vesselscontracted by AMSA to be available to be called upon in the event of an

incident or suitable vessels that are in the relevant area at the time of the

incident that are used as vessels of opportunity.

National Maritime

Emergency Response Arrangements

thePacificResponder


10/28

8

| NationalPlan

A Maritime Emergency Response Commander (MERCOM) appointed by

AMSA to act on behalf of the Authority during a shipping casualty. The

MERCOM is responsible for the management of responses to shipping

incidents, with intervention powers to take such measures as may be

necessary to prevent, mitigate or eliminate a risk of significant pollution,

including the power to direct a port to release a tug to provide emergency

assistance to a vessel at risk or designate a place of refuge for a shipin emergency situations that present a risk of significant pollution. The

MERCOM has appropriate statutory powers to enable effective

decision-making consistent with the aim of the NMERA.

The National Plan is based on three basic funding principles:

The potential-polluter-pays principle, applied to preparedness;

The polluter-pays principle, applied to pollution response; and

The potential-polluter-pays principle applied to pollution response where

the polluter is not identified or the cost is not recoverable.

This means that potential polluters are required to contribute to National Plan

funds an amount related to the risk they present for marine oil or chemical

spills. Actual polluters are required to meet the response costs to the NationalPlan for any spills they cause.

A levy is imposed on commercial shipping using Australian ports. This levy

provides funds for ongoing development, maintenance and administration of

the National Plan including the acquisition, storage and maintenance of the

equipment and training programs. The levy also provides contingency funds to

cover costs incurred in responding to incidents where the polluter cannot be

identified and costs cannot be recovered.

The Protection of the Sea (Shipping Levy) Act 1981 and the Protection of the Sea(Shipping Levy Collection) Act 1981 were proclaimed in 1982, replacing 1972

legislation. These Acts together fund the operations of the National Plan.

Funding


11/28

9

|NationalPlan

The Levy Acts apply to vessels with a tonnage length in excess of 24 metres

carrying at least ten tonnes of oil, and which are in an Australian port at any

time during a calendar quarter. The levy rate is based on an amount per net

registered tonne, with a minimum levy of $10 per calendar quarter.

Australian legislation also implements international conventions dealing with

cost recovery following spills and pollution response activities.

It should also be noted that States/NT, industry and ports also provide funding,

both direct and indirect, to carry out National Plan functions.AlevyonshippingfundstheNation

alPlan


12/28

10

| NationalPlan

Computer models are used to simulate and predict the movement of oil spills.

The information provided assists those making decisions on measures needed

to counter the threat to the marine environment.

Using anticipated wind and current movements and taking into account the type

of oil, the models indicate where the oil is expected to spread over a period of

hours or days. Assessments are updated as weather conditions change.

Oil spill trajectory modelling

OilSpillResponseAtlas

identifiessensitiveareas

Protectingawetlands

nestingsite


13/28

11|NationalPlan

With assistance of $1 million grant from the Natural Heritage Trust the National

Plan Oil Spill Response Atlas (OSRA) project was completed at the end of 1999.

OSRA is a computer-based digital mapping system that allows operators to

overlay various types of data to identify biological, cultural, geomorphological

and socio-economic resources and how a marine pollution incident may impact

these resources.

AMSA manages the maintenance of existing data and the collection of new data

through the assistance of OSRA coordinators in the States/NT.

Oil Spill Response Atlas

Oilspillmovementpre

diction


14/28

12

| NationalPlan

The Marine Oil Spill Equipment System (MOSES) is a computer based system

for the management of National Plan equipment. The system includes

comprehensive information on equipment owned by AMSA, States/NT and

industry and also provides logistics and maintenance history information. It also

generates details of equipment used in incident responses for cost recovery.

To assist in predicting, modelling and preventing chemical spills, the National

Plan has access to a range of chemical spill and emergency decision support

tools. These tools provide information on chemical toxicity and properties,

atmospheric plume dispersion, bulk chemicals and packaged goods

transported by sea, and safety emergency procedures.

Chemical spill and emergency decision support tools

Responseves

selandboom

Marine Oil Spill Equipment System


15/28

13

|NationalPlan

Regular training programs and exercises are conducted for personnel likely to be

involved in a spill response. These programs are designed to provide Australia

with sufficient numbers of trained personnel to mount an effective response

to an oil or chemical spill incident. The States/NT and industry also conduct

training courses that are integrated in the National Plan training program.

Oil spill training is conducted on three levels:

State Marine Pollution Controllers for senior government and industry

management personnel responsible for high level decision-making,

including Commonwealth and State/NT appointed oil spill commanders

and industry advisers.

Oil Spill Management Courses for middle management personnel

responsible for managing a response, their deputies, and environment

and scientific personnel. Training at this level addresses both incident

management and contingency planning.

Training

Difficultaccesscancre

ateproblems


16/28

14

| NationalPlan

Operator/Foreshore/Administration for supervisors appointed as site

managers and personnel responsible for undertaking on-site clean up and

support operations.

The National Plan training program also includes a three-day Marine Chemical

Spill Response Level 2 Course. The course aims to provide participants with

a detailed understanding of the strategies, planning, response techniques

and environmental consequences of marine chemical spills. This course is

for maritime response, Fire Brigade, Hazmat or environmental personnel who

may be expected to be involved in a marine chemical, hazardous and noxious

substance (HNS) incident as well as incident controllers, their deputies,

response planners, middle management and supervisor level.

Details of the National Plan training courses can be found on the AMSA web site,

www.amsa.gov.au

Helicoptersprayingdispersa

nt


17/28

15|NationalPlan

National Plan operational responses are based on a tiered arrangement. Oil spill

response is graded on volume, with chemical spill response determined by the

type of chemical and its potential impact on the environment and human health.

Operations

OIL CHEMICAL

tier 1, small local spills, less than 10 tonnes. level 1, potential emergency condition.Such incidents are usually associated with A chemical incident that can be contained and

ship transfer or bunkering operations at a responded to within the boundaries of a vessel,

jetty, pier or mooring, and around waterside berth or small geographical area and having

storage tanks. no impact outside the operational area.

tier 2, medium spill, 10 to 1000 tonnes, near level 2, limited emergency condition.

or at some distance from operational centres. A chemical incident that can be contained and

These incidents are typically associated with responded to within the boundaries of a vessel,

shipping incidents in ports or harbours, berth or small geographical area, but largeestuaries or coastal waters, but could be enough to have a significant impact on the

from pipelines, tank failures or near shore environment or human health.

exploration and production operations.

tier 3, large spill, greater than 1000 tonnes. level 3, full emergency condition.

This covers major incidents, normally involving A chemical incident, which induces a national,

oil tankers or other vessels having large regional and local response and having a major

amounts of bunker oil. probability of causing severe environmental

and/or human health problems.


18/28

16

| NationalPlan

Each spill incident involves a unique environment and set of circumstances

requiring an individual plan of action and response decisions based on proven

clean up operations. New technology may develop to improve methods of

dealing with marine spills, but until extensively proven will not be exclusively

used in an emergency situation.

The National Plan recognises there are limitations in responding to a spill in

the marine environment. The ability to respond effectively depends on what is

physically and scientifically possible. Currently there is not the technology to

prevent weather-driven slicks or airborne contaminants from coming ashore,

nor can prevention of environmental damage or economic loss be guaranteed.

Sometimes the most environmentally friendly solution is to allow the oil or

chemical to disperse and break down naturally. Actions taken to demonstrate

concern for the environment, or in response to public or media pressure, can

result in much more serious damage to the environment than if the spill wasleft alone.

Methods of spill clean up

Intenseme

diainterest


19/28

17|NationalPlan

The effectiveness of an oil spill response depends upon a number of factors.

These include the location, oil type and volume, weather conditions and the

availability of human and physical resources. No single response method will

meet all the demands of an oil spill.

Methods for responding to oil spills include:

Leave alone, but monitor - Sometimes the best course of action is a decisionnot to clean up the spilled oil. If the oil is at sea, and not threatening shores

or sensitive areas, it may be sufficient to monitor the spill while allowing the

natural processes of dispersion and biodegradation to take their course.

Oil spill response

UseofMar

cooilspill

recov

eryvessel

Skimmer

incrudeoil


20/28

18

| NationalPlan

Use of dispersants - Chemical dispersal of oil may be used only when all

environmental effects have been considered. Modern dispersants are often

not as toxic as the oil itself. The effective use of dispersant requires quick

decision-making so that oil can be dispersed at sea before coming ashore.

Dispersants work best on freshly spilled oil. Application of dispersants,

together with agitation of the water surface, causes the oil to form small

particles. These particles flow and disperse through the water, enhancingbiodegradation.

The National Plan has in place a Fixed Wing Aerial Dispersant Capability

(FWADC) program for the spraying of oil spill dispersant. This capability is

managed by AMSA. The FWADC uses large agricultural aircraft with a dispersant

capacity of between 1850 and 3100 litres. This complements the informal

dispersant spraying arrangements using helicopters which are confined to close

inshore work.

Containment and recovery - Spilled oil is contained and recovered using

booms and skimmers. A boom is a barrier, which generally extends above

and below the water. It contains the spilled oil or diverts its flow. Booms

Oiledforeshorescanbe

difficulttoclean


21/28

19

|NationalPlan

may be placed in fixed positions to protect sensitive areas of coastline or

towed between two boats. Containment of oil by a boom enables easier

recovery. A skimmer is a mechanical device designed to collect spilled oil

from the water surface. Skimmers are mainly used when a thick layer of oil

is present.

The effective operation of booms and skimmers can be limited by adverse wind,

currents and sea conditions.

RIGHT:Thesamebeacho

nemonthlater

LEFT:Impactedbeachp

riortocleanup


22/28

20

| NationalPlan

Sorbents are materials used to recover oil by absorption or adsorption. They are

used as alternatives or to complement booms and skimmers, especially when

dealing with small oil slicks. Sorbents are made from a variety of materials such

as peat, cotton, vermiculite, polypropylene fibre, wool or pine bark. They come

in various forms: mops, pads, booms or as loose material. Sorbents can provide

the final touch in a clean up response.

Biodegradation - This is the natural process whereby bacteria and other

micro-organisms found in the sea break down spilled oil. It is one of the

main ways in which spilled oil is weathered. When oil is spilled into the

marine environment, the growth of indigenous microbes is stimulated

as increased amounts of carbon in the oil provide food for the microbes.

Biodegradation occurs at different rates depending on the type of oil, the

amount of oxygen and nutrients and temperature levels.

Bioremediation - This is the application of fertilisers or other nutrient

materials to a contaminated site (such as an oil spill) to accelerate natural

biodegradation. By adding nutrients such as phosphorous and nitrogen,

bacterial growth is stimulated. There are potential advantages in this

technique, especially when treating difficult clean up areas in sensitive

environments. Research work continues into bioremediation methods

and the use of oxygen injection in oiled sediments lacking in oxygen, like

mangrove muds.

In-situ burning- The in-situ burning of spilled oil has been used on a limited

scale in oil spills overseas. This method has not been used in Australia.

Overseas developments are being monitored to ascertain the viability of in-

situ burning as a response option.


23/28

21|NationalPlan

For chemical spills, response methods are tailored to the characteristics of the

chemical involved. The impact on the environment is monitored and warnings

are issued in areas of community use.

Gases and vapours - Releases of gas and vapour can result in the rapid

spread of flammable or toxic substances. This can also involve a risk of

inhalation. Plume dispersion modelling, using meteorological data, is used

to assess potential impact. Chemical concentrations in the surrounding

atmosphere are measured to estimate the severity of the release. There may

be a need to evacuate the area.

Chemicals that dissolve - Dispersion and dilution is often the only way to

respond to chemicals that dissolve. Some chemical plumes can be

neutralised with other chemicals, but the chance of causing another

chemical spill through application of a remedy is often a limiting factor. Such

action is carefully assessed before this method is employed.

Chemical spill response

Typeofchemical

determines

therespon

semethods


24/28

22

| NationalPlan

Chemicals that evaporate - If highly volatile chemicals are released, there is

often little that can be done other than to evacuate the area. If the chemical

is of a flammable nature, then foam blankets can be applied until all ignition

sources are eliminated. Monitoring of plume characteristics is paramount so

as to be able to warn the community and predict environmental impacts.

Chemicals that float - Chemicals that float can be viscous, free flowing

or solid. Their properties can also change over time or as a result ofweathering. Booms can be deployed to contain and control their movement.

Skimmers and absorbents can also be used to recover the material from

the surface of the water. However, the chemical involved may react with

equipment and therefore hamper recovery and clean up operations.

Chemicals that sink - In shallow waters, mechanical dredges and pump/

vacuum devices can be used to recover sunken substances. The use of

submersibles and remote controlled underwater cameras can identify and

recover chemicals on the seabed.

Packaged chemicals lost at sea - Packaged materials can be recovered by

using mechanical grabs, hoists, ship/barge cranes, nets, etc. The success of

the recovery depends on the size of the package and whether it is floating

on the sea surface or lodged on the ocean floor.

RIGHT:Fixedwingaircraftsprayingdispersant

LEFT:Fendersusedduringoiltransferoperations


25/28

23

|NationalPlan

The National Plan holds a wide range of response equipment at all major ports.

Equipment provided by AMSA is generally targeted at larger spills

(Tier 2 and 3). This is complemented by equipment held by port authorities for

Tier 1 spills, individual oil and chemical companies and by the industry stockpile

in Geelong. Equipment can be rapidly deployed to the scene of a spill.

Types of equipment include oil spill control booms of varying types and sizes,

self-propelled oil recovery vessels, static oil recovery devices and sorbents. A

range of storage devices including free standing tanks and towable storage

bladders and bags complement recovery devices.

When a vessel collides or is stranded, specialised ship-to-ship transfer

equipment consisting of high capacity submersible pumps, hoses and

fenders are used to lighten the vessel. This equipment is held in Brisbane and

Fremantle.

Equipment used for chemical spills depends on the type of chemical. Chemical

substances have properties that vary widely and can damage or cause failures

to some types of equipment. Appropriate chemical response and clean up

equipment is identified by the chemical industry and fire authorities and is

listed on the MOSES database. Suitable oil response equipment may be used in

a chemical spill.

The National Plan continues to monitor new technological advances in response

to marine spills. New methods are accepted only after meeting technical

specifications and undergoing extensive laboratory and field testing. Products

and techniques must be non-invasive and must not create any additional

problems in the polluted area or in disposal methods.

AMSA and other National Plan members are involved in limited research and

development activities. In recent years this work has included the impacts of

oil and dispersed oil on temperate seagrasses, bunker fuel weathering and

fingerprinting, and rescue and rehabilitation of oiled birds.

Equipment

Acceptance of new techniques


26/28

24

| NationalPlan

Aus

traliascentralindustrystockpile

The Australian Marine Oil Spill CentreThe Australian Marine Oil Spill Centre (AMOSC), a subsidiary of the Australian

Institute of Petroleum, is an integral part of the National Plan. AMOSC provides

Australias central industry stockpile of oil spill response equipment. In an oil

spill response AMOSC has, in addition to its own staff, access to personnel from

the major oil companies. As part of the National Plan program, AMOSC also

coordinates the industrys mutual aid arrangements and provides a range of

training programs.


27/28

International linksAustralia was one of the first countries to adopt the International Convention

on Oil Pollution Preparedness, Response and Co-operation 1990 (OPRC

Convention). This was developed following several major oil spills, including

the Exxon Valdez, which illustrated that a major oil spill could overwhelm a

countrys response capability, regardless of available resources.

Australia has also adopted the Protocol on Preparedness, Response and Co-

operation to Pollution Incidents by Hazardous and Noxious Substances, 2000.

A primary purpose of these instruments is to focus the worlds response

capability on the problem so all nations will benefit. Australia meets is

obligations as a signatory to these instruments through:

establishment of regional and national systems for preparedness and

response (Australia has agreements in place with New Zealand, New

Caledonia, Indonesia, Papua New Guinea, and Singapore and plays a key

role in the Pacific Regional Marine Spill Response Plan developed by the

South Pacific Regional Environment Programme (SPREP))

facilitation of international cooperation and mutual assistance

information exchange

promotion of research and development

technical cooperation and training

oil and chemical pollution emergency plans for ships, offshore platforms

and sea ports

pollution reporting procedures.

The National Plan also implements many of Australias obligations as a

signatory to these instruments. For a major pollution incident Australia may

need to call upon overseas assistance from international stockpiles at Singapore

or Southampton (UK). Provision is made for the speedy entry of equipment and

personnel from overseas.


28/28

YOU CAN HELP

The protection of the marine environment is the

responsibility of everyone. We must be conscious of the

pollution threats to our waterways and oceans and the

serious effects that may result.

Polluters must be held responsible for their actions.

If you witness a vessel polluting, you can report the

incident to AMSA or the local port/marine/transportauthority and the incident will be investigated.

Please provide relevant details of the incident such as

when and where the incident occurred, name of the vessel,

type and extent of pollution and any other information.

Report marine pollution incidents to

AMSAs Australian Searchand Rescue centre

Phone 02 6230 6811 (24 hours)Freecall 1800 641 792Fax 02 6230 6868 (24 hours)

Further information on Australias National Plan

can be found under Marine Environment Protection

at www.amsa.gov.au

amsa-nationalplan 2007 overview

Documents