1、 Section II Manual on Oil Pollution CONTINGENCY PLANNING 1995 Edition INTERNATIONAL MARITIME ORGANIZATION London, 1995 First published in 1978 by the INTERNATIONAL MARITIME ORGANIZATION 4 Albert Embankment, London SE1 7SR Second edition 1988 Third edition 1995 Printed in the United Kingdom by Edward
2、 Mortimer Ltd, Halifax 8 10 9 ISBN 92-801-1330-5 IMO PUBLICATION Sales number: L4560E The cover photo is reproduced by kind permission of Environment Canada Copyright 0 IMO 1995 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any for
3、m or by any means, electronic, electrostatic, magnetic tape, mechanical, photocopying or otherwise, without prwr permission in writingfrom the International Maritime Organuatwn. Preface This publication, prepared by the Marine Environment Protection Committee of the International Maritime Organizati
4、on (IMO), supersedes the 1988 edition of section II of the Manual on Oil Pollution. It provides guidance to Governments, particularly those of developing countries, on ways and means of establishing a response organization and preparing contingency plans. This edition takes into account the Internat
5、ional Convention on Oil Pollution Preparedness, Response and Co-operation, 1990 (OPRC Convention) and other new developments in oil pollution emergency preparedness and response. Chapter 1, which deals with response considerations, introduces the new organizational concept of a tiered response, acco
6、rding to the severity of the spill. To that end, subsequent chapters mirror the escalation of activity, beginning with guidance on local contingency plans (chapter 2), national response (chapter 3) and international agreements designed to cover operational aspects of the rare, catastrophic spill (ch
7、apter 4). Finally, chapter 5 provides specific guidance on intervention and cost recovery from spills arising from shipping accidents. The Manual on Oil Pollution consists of five sections: Section I Prevention, revised edition published in 1983; Section II Contingency Planning, first published in 1
8、978, revised editions published in 1988 and 1995; Section III Salvage, published in 1983; Section IV Combating Oil Spills, published in 1988 Section V Administrative Aspects of Oil Pollution Response (1995). A related publication addressing one aspect of combating oil spills is the IMO/UNEP Guidelin
9、es on Oil Spill Dispersant Application including Envi- ronmental Considerations (1995). iii Contents Page Chapter 1 General response planning considerations 1.1 Designation of authority responsible for development and operation of a plan 1 1.2 Response organization 2 1.3 Identification of areas of h
10、igh spill risk . 5 1.4 Fate of oil 5 1.5 Probable oil spill movement based on local wind and current 5 1.6 Coastal sensitivity mapping . 6 1.7 Priorities for protection 7 1.8 Oil spill response policy . 7 1.9 Organization for response . 8 Chapter 2 Facility. seaport. local and area oil pollution eme
11、rgency plans 2.1 Introduction 11 2.2 Scope and geographic area . 12 2.3 Duties and responsibilities 12 2.4 Methods for increasing response effort and requesting further assistance 13 2.5 Training and exercises . 13 Chapter 3 National systems for preparedness and response 3.1 Background . 14 3.2 Purp
12、ose and objectives . 14 3.3 Scope and content of the plan . 15 3.4 Definitions 15 3.5 Support from other agencies . 16 3.6 Reporting systems 16 3.7 Alerting systems 16 3.8 Spill assessment . 17 3.9 Salvage and cargo removal considerations 17 3.10 Spill surveillance . 17 V 3.1 1 3.12 3.13 3.14 3.15 3
13、.16 3.17 3.18 3.19 Response decisions 18 Clean-up operations 18 Communications . 18 Transport and disposal of recovered oil and oily debris . 19 Restoration of affected areas and post-spill monitoring . 19 Record keeping and preparation of claims 19 Public information . 20 Training and exercises . 2
14、0 Plan revision . 20 Chapter 4 International agreements for preparedness. response and co-operation 4.1 Introduction 21 4.2 Scope of co-operation between participating governments 22 Definition of geographical area(s) and division of responsibility., . 22 Reporting. alerting and communications 23 Lo
15、gistics. administration and funding 23 Review and update of an international contingency plan . 25 4.3 4.4 4.5 4.6 Chapter 5 Intervention and cost recovery 5.1 Introduction 26 5.2 Intervention on the high seas 26 5.3 Intervention in national waters 26 5.4 Intergovernmental regimes for compensation f
16、or oil pollution damage . 27 Identification of the polluter . 28 Preparation of claims 28 Oil pollution damage not covered by the The role of the P and I Clubs with regard to manne casualties 31 5.5 5.6 5.7 5.8 intergovernmental compensation regimes 31 vi Appendices Appendix 1 Appendix 2 Appendix 3
17、Appendix 4 Appendix 5 Appendix 6 Issues to be considered when developing local oil pollution emergency plans . 33 Oil pollution emergency plans for offshore units. seaports and oil handling facilities . 37 Outline of a national oil pollution emergency plan 39 Suggested outline for an international o
18、il pollution emergency plan . 41 Pollution reporting systems (POLREPs) 43 Guidelines for identifjmg response resources . 62 vii Chapter 1 - General response planning considerations 1.1 Designation of authority responsible for development and operation of a plan 1.1.1 Before serious consideration can
19、 be given to writing a plan to respond to oil pollution, some agency or agencies must be made responsible for the task both at the national and local levels. The national plan would normally be developed at a higher management level of an organization, while it is important for local plans to be dev
20、eloped by local authorities responsible for Co-ordinating on-scene response efforts at the beginning of an incident. Different countries have various solutions to this problem, but the principal options at Government level are: - Defence Department - Maritime Transport (Civil) Department - Environme
21、nt Protection Department - CoastGuard - National Committee. 1.1.2 It is likely that different agencies or organizations will be responsible for different aspects of the counter-pollution plan, at sea and on shore, but overall Co-ordination by a designated authority or lead agency is essential for su
22、ccess. Similarly, a wide range of expertise will have to be made available. Necessary skills include, but are not necessarily limited to: - marine salvage - ship operations - meteorology and oceanography - aircraft operations - scientific expertise of various kinds - fisheries - environment protecti
23、on - civil engineering - legal - logistics, customs and immigration arrangements - health and safety - training and exercises - communications. 1 Manual on Oit Pollution II: Contingency planning 1.2 Response organization 1.2.1 Before national contingency plans are finalized, a national system for pr
24、eparedness and response fulfilling the minimum requirements of article 6 of the OPRC Convention should be developed. The number of levels that such a national system needs should also be identified. Each response level identified will need a corresponding contingency plan. Some countries may require
25、 fewer levels of response and thus fewer plans than other States. However, a minimum of two response levels should be established: a national level that will require a national contingency plan (NCP) as discussed in chapter 3 of this manual and a local level which will address responses to geographi
26、c subdivisions. This local area may be a terminal, a port or several ports within the specified re- sponse area or jurisdiction. Each local area will need a facility, seaport or local oil pollu- tion emergency plan as discussed in chapter 2 of this manual. There will be substantial differences betwe
27、en an oil pollution emergency plan dealing with a whole national coastline and one dealing with a single port or locality. The former will be wider in scope, while the latter can go into much greater local detail. However, all plans covering a given area must be compatible. . 1 .2 1.2.2 Another resp
28、onse level that may be needed is an area response level. This level may be established in laiger countries that require an intermediate response level between the local and national organizations. An area plan would likely follow the same format as the national plan. 1.2.3 In addition, those entitie
29、s that may be the source of a pollution incident should also have an established response system and a corresponding oil pollution emergency plan. Guidance on oil pollution emergency plans has been developed specifically for vessels (see regulation 26 of Annex I of MARPOL 73/78 and resolution MEPC.5
30、4(32), Guidelines for the Development of Shipboard Oil Pollution Emergency plans). Other activities that may need oil pollution emergency plans include seaports, oil handling facilities and offshore units as described in article 3 of the OPRC Convention. Co-operation with industry 1.2.4 A Co-operati
31、ve approach with the oil and shipping industries is key to the establishment and sustainment of an effective response system. It is Governments role to establish the legal and organ- izational framework for this relationship. Whatever relationship is established, the roles of Government and industry
32、 should be clearly defined. 2 Chapter 1 1.2.5 It is important to understand the envisaged relationships between national response systems and international oil spill pre- paredness and response arrangements currently in existence. There are two planning approaches that coexist in the international a
33、rena: the international industrys concept of tiered response and govern- mental arrangements at the local, national, and regional levels. Figure 1 is a depiction of the relationship of these two approaches with response capability. INTERNATIONAL CAP.43ILITY GROUP / MULTI-NATIONAL ORREGIONAL /GROP2 I
34、 CAPABILITY GROUP 1 CAPABILITY TIER 2 LOCAL CAPABILITY TIER 1 Industry concept of tiered response The organization of the international framework Figure 1 - The global framework for pollution response Tiered response 1.2.6 Tiered response is a widely accepted operational concept that provides a conv
35、enient categorization of response levels and a practical basis for planning. Tiered response recognizes three levels. .I Tier 1 is concerned with preparedness and response to a small spill within the capabilities of an individual facility or harbour authority. Seven hundred tons is often cited as th
36、e upper limit of tier 1; however, the circumstances of the spill and the surrounding environment will determine the actual level of response. .2 Tier 2 is concerned with preparedness and response to a spill that requires the Co-ordination of more than one source of equipment and personnel. For a tie
37、r 2 response, assistance can come from a number of entities within a port area or from sources outside the immediate geographic area. Tier 2 de- scribes a wide range of spill sizes and potential scenarios. Figure 1 depicts a grey boundary either side of tier 2 to reflect this. 3 Manual on Oil Pollut
38、ion Il: Contingency planning .3 Tier 3 is concerned with a major spill requiring the mobili- zation of all available national resources and, depending upon the circumstances, will likely involve mobilization of regional and international systems. It is this tier of response where positive advance cu
39、stoms arrangements are critical to facil- itate a successful effort. Governmental arrangements 1.2.7 Governmental oil spill preparedness and response arrangements may be “grouped” in the following fashion. .1 Group 1 encompasses the entire national response system, and is the focus of this proposal.
40、 The national oil pollution emergency plan, also called the national contingency plan (NCP), is the over-arching document that embodies the na- tional response policy and establishes the national organi- zation for response to oil spills (the national response system). As described in section 1.2.1,
41、 depending on the needs and complexity of the country. the response system described by the plan may consist of an assembly of sub-national plans for specific geographic areas which would be further subdivided into local plans. o Additionally, the NCP should address the interrelationship between the
42、 vessel plans, offshore unit plans, seaport plans or oil handling facility plans and the national response system. Typically, the developers of these plans would re- quire guidance on organizational structures to maintain compatibility with the national response system, lines of authority and report
43、ing procedures. .2 Group 2 consists of any bilateral or multilateral response plans or agreements with other countries as well as regional response bodies. Multilateral arrangements have been devel- oped for the Mediterranean, Baltic and North Seas by gov- ernments and for some eight regions of the
44、world covered by the UNEP Regional Seas Programme. The importance of these arrangements to the concept of sustainable development cannot be overestimated. Effective multilateral and regional systems provide for the pooling of resources and effective re- sponse to the rare large spill. o Customs issu
45、es. The movement of oil spill response equip- ment and personnel across national borders is a necessary ingredient of a sustainable system. No individual country, regardless of its wealth, can sustain the levels of equipment Note: Article 3 of the 1990 OPRC Convention calls for authorities or operat
46、ors in charge of vessels, offshore units, seaports and oil handling facilities to have oil pollution emergency plans or (for seaports and oil handling facilities) similar arrangements. 4 Chapter 1 and personnel needed for the worst-case spill. Such spills require rapid movement of equipment, unimped
47、ed by lengthy customs formalities. Conversely, countries should be able to protect themselves from opportunists who would use an emergency to smuggle contraband. The NCP should contain guidance that ensures the legitimate need for se- curity is maintained in a system that expedites the im- portation
48、 of essential response resources. Group 3 is the network of inter-regional plans or agreements. This includes the operation of the IMO Oil Pollution Co-ordi- nation Centre and relationships, both formal and informal, among the secretariats of the various regional agreements world-wide. .3 1.3 1.3.1
49、In deciding on the provision of counter-pollution response capability, it is clearly desirable to give special emphasis to those areas at highest risk. The perception of risk might be based upon the amount of passing tanker and other shipping traffic, navigational hazards, the location of oil refineries and oil terminals and the exist-ence of offshore oil exploration and production operations and related undersea pipelines. 1.3.2 The degree of attention paid to this aspect of planning will vary. A country with a short coastline might find it rel
