160310 AIRA Phase B Final Program Report FOR FORMATTING-kg · Nuka Research and Planning Group, LLC (Nuka Research) and Pearson Consulting, LLC facilitated the project. Appendix A
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March 2016
PHASE B
Final Program Report
Nuka Research and Planning Group, LLCPearson Consulting, LLC
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AleutianIslandsRiskAssessment–PHASEBFinalProgramReport
Submittedby:
NukaResearchandPlanningGroup,LLCPearsonConsulting,LLC
March2016
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TABLEOFCONTENTSTableofContents.........................................................................................................31. Introduction...........................................................................................................4
1.1 Project Overview ................................................................................................... 41.2 Project Scope ........................................................................................................ 41.3 Transportation Research Board Recommendation ............................................... 51.4 Purpose of this Report .......................................................................................... 5
2. PhaseA..................................................................................................................63. PhaseB..................................................................................................................84. TechnicalTasksandOutcomes...............................................................................9
4.1 Task 1-2: Optimal Response System ..................................................................... 94.1.1 Supporting Analyses ....................................................................................... 94.1.2 Recommendation .......................................................................................... 12
4.2 Task 3: Aleutian Islands Subarea Contingency Plan Update and Enhancement . 144.2.1 Subarea Contingency Plan Update ............................................................... 144.2.2 Geographic Response Strategies .................................................................. 154.2.3 Potential Places of Refuge ............................................................................ 20
4.3 Task 4: International Maritime Organization Routing Measures ......................... 214.4 Task 6: ETS Exercise and Training Materials ....................................................... 23
5. FacilitationandProjectManagement...................................................................256. Conclusion............................................................................................................26REFERENCES...............................................................................................................27APPENDIX..................................................................................................................29
APPENDIX A – PHASE B PROJECT PARTICIPANTS .................................................. 30
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1. INTRODUCTIONThisisthefinalprogramreportforPhaseBoftheAleutianIslandsRiskAssessment(AIRA).Thereportreferencesprojectdeliverablesformosttasks.Agreaterlevelofdetailisprovidedonthetasksnotalreadydocumentedthroughotherreports.
1.1 ProjectOverviewTheAIRAwasconductedasadirectresultofa2004oilspillandsubsequentpleaagreement.TheM/VSelendangAyu,aMalaysian-flaggedbulkcarriertravelingfromtheU.S.toChina,sufferedenginefailure,drifted100milesthroughstormyseas,andgroundednearUnalaskaIslandintheAleutianIslandsarchipelago.SixcrewmembersdiedwhenaU.S.CoastGuardhelicopterengagedintherescueoperationwasstruckbyawaveandcrashednearthegroundedvessel.Shortlythereafter,theshipbrokeapartandspilledapproximately336,000gallonsoffueloilanddiesel(NTSB,2006)and132millionpoundsofitssoybeancargo.Inadditiontothelossoflife,theaccidentresultedintheclosureoflocalfisheries,86milesofshorelineoiled,andmorethan1700birdskilled(NOAA,2016).Theresultingpleaagreementfor$3millionfundedthedevelopmentofariskassessmentmethodologyandtheimplementationoftheAIRAandassociatedprojects(SelendangAyuSettlement,2007).
TheNationalFishandWildlifeFoundation(NFWF),theU.S.CoastGuard(USCG),andtheAlaskaDepartmentofEnvironmentalConservation(ADEC)initiatedtheAIRAtoassesstherisksandpotentialmitigationmeasuresassociatedwithmaritimetransportationintheAleutianArchipelago.TheprojectwasconductedintwophasesaccordinganapproachdesignedspecificallyfortheAIRAbytheTransportationResearchBoard(TRB)oftheNationalAcademies(alsowithSelendangAyusettlementfunds).
PhaseAoftheAIRAwasconductedfromMay2009–September2011,resultinginrecommendedriskreductionoptions.ThisreportfocusesonPhaseB,conductedfromJuly2012–July2015,whichincludedbothfurtheranalysisandimplementationoftherecommendationsfromPhaseA.AManagementTeamcomprisedofNFWF,ADEC,andUSCGoversawbothphasesoftheproject,withinputfromadiverseAdvisoryPanel.ATechnicalPeerReviewPanelprovidedfeedbackatkeymilestones.AnAnalysisTeamconductedtechnicalanalysesandprovidedinputbasedontheirexpertise.
NukaResearchandPlanningGroup,LLC(NukaResearch)andPearsonConsulting,LLCfacilitatedtheproject.AppendixAliststheindividualsinvolvedwitheachofthesegroupsduringPhaseB.
1.2 ProjectScopeTheAIRAfocusedonvesselsof300grosstons(GT)orgreater,orthosewithatleast10,000gallonsoffuelcapacity,thattravelthroughtheAleutianIslandsandwesternAlaskaPeninsula(seeFigure1).
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Figure1.AIRAstudyarea
1.3 TransportationResearchBoardRecommendationTheTRBdevelopedSpecialReport293,“RiskofVesselAccidentsandSpillsintheAleutianIslands:DesigningaComprehensiveRiskAssessment”(2008),whichrecommendedatwo-phasedapproachtotheAIRA:aPreliminaryRiskAssessment(PhaseA)followedbyaFocusedRiskAssessment(PhaseB).ThiseffortwasconductedusingsettlementfundsfromtheSelendangAyuoilspillandattherequestoftheADECandUSCG,whosoughtariskassessmentframeworkthatconsistedofdiscretestepsandincorporatedinputfromstakeholdersandtechnicalexperts.
1.4 PurposeofthisReportThisdocumentservesastheFinalProgramReportrequiredinthecontractbetweenNFWFandNukaResearchtoconductPhaseBoftheproject.Itsummarizestheactivitiesundertakenandresultsachieved.
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2. PHASEAPhaseAoftheAIRAinvolvedtheestablishmentofamanagementstructurecomprisedoffourgroups:aManagementTeam,anAdvisoryPanel,anAnalysisTeam,andaTechnicalPeerReviewPanel.
PhaseAbeganwithariskreportanalyzingthelikelihoodofspillsbasedonvesseltrafficthroughtheAleutians.Next,ariskmatrixwascreatedtoanalyzethepotentialconsequencesofspillsfromvessels.Finally,PhaseAconcludedwithaqualitativeassessmentandrecommendedriskreductionoptionsin2011.Inall,sixtechnicalreportsweredeveloped:
1) Semi-quantitativeTrafficStudyReport.DNVandERM(2010a).AnalyzesvesseltrafficintheAleutianIslandsfor2008/2009andincludesaforecastfor2034.
2) MarineSpillFrequencyandSizeReport.DNVandERM(2010b).Estimatedthefrequencyofmarineaccidentsandprovidedmarinespillscenariosforbothabaselineyear(2008/2009)andfutureyear(2034).
3) BaselineSpillStudyReport.DNVandERM(2010c).Presentssixhypotheticalspillscenariosbasedonvesseltrafficanalysisandpotentialspillfrequencyandsize.
4) ConsequenceAnalysisReport.DNVandERM(2011a).Considerspotentialconsequencesfrom16hypotheticalspillscenarios.
5) AccidentScenarioandCausalityStudyReport.DNVandERM(2011b).Presentsadditionalinformationandanalysisregardingthe16scenariosdevelopedintheConsequenceAnalysisReport.
6) RiskReductionOptionsEvaluationReport.DNVandERM(2011c).Summarizedtheoutcomesoftwoworkshopsheldinthefallof2010,duringwhichtheAdvisoryTeam,ManagementTeam,RiskAnalysisTeamandFacilitationTeamreviewedandprioritizedpotentialriskreductionoptions.
ThesereportsweresummarizedinafinalPhaseAreportin2011,availableat:http://www.aleutiansriskassessment.com/documents/110826AIRA_SummaryReportvFINALlr.pdf
PhaseAresultedinasetofrecommendedRiskReductionOptions(RRO).ThefourRROidentifiedinPhaseArequiringadditionalstudywere:(1)increaserescuetugcapabilitiesintheAleutianIslands;(2)increasesalvageandspillresponsecapabilitiesintheAleutianIslands;(3)strengthentheAleutianIslandsSubareaContingencyPlan;and(4)determinetheboundariesofpotentialIMOParticularlySensitiveSeaAreas(PSSA)andproposerecommendationsforassociatedprotectivemeasures.
ThescopeofworkforPhaseB,discussedinSection3,wasbasedontheAdvisoryPanel’srecommendationsfromPhaseA.
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Figure2liststherecommendationsfromPhaseAandtheirstatusuponcompletionofPhaseB.
Figure2.SummaryofrecommendedriskreductionmeasuresatconclusionofPhaseAandthestatusofeachattheconclusionofPhaseB
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3. PHASEBTheAdvisoryPaneldiscussedtheworkplanforPhaseBatanin-personmeetinginUnalaskaandsubsequentlyapprovedbytheManagementTeampriortoimplementation.ThissecondphaseoftheprojectpickedupwherePhaseAended,focusingonfurtheranalysiswhereneededorimplementationofpredeterminedcoursesofactionbasedontheriskreductionoptionsrecommendedinPhaseA.Table1showsthetasksandoutcomes.Table1.KeytechnicaltasksandoutcomesfromPhaseB
TASK PHASEBOUTCOMETask1-2.RecommendoptimalresponsesystemforAleutianIslandsbasedonconsiderationofoperatingenvironment,logistics,costsandbenefits,andpotentialorganizationalstructure.TheAdvisoryPaneloriginallyrecommendedtwoseparate,butrelated,riskreductionoptions:oneforsalvage/spillresponse,andoneforemergencytowing.Thesewerecombinedintoonetask.
ReportissuedinFebruary2015basedon14supportinganalysesrecommendstheorganizationalstructure,spillprevention,emergencytowing,salvage,andspillresponseelementsofanoptimalresponsesystemfortheregion.
Task3.UpdateSubareaContingencyPlan(SCP),includingdevelopingandupdatingGeographicResponseStrategies(GRS)andPotentialPlacesofRefuge(PPOR).
SCPupdateapprovedinApril2015followingapubliccommentperiod.TwentynewGRSdeveloped.GRSdeploymentexerciseheldinAdak.PPORinformationupdated.
Task4.InitiateapplicationtoInternationalMaritimeOrganization(IMO)forprotectivemeasures.
InJune2015,theIMOapprovedrecommendedroutingmeasuresforvesselstransitingtheAleutianIslands,whichwillrequireshipstostay50nmoffshoreexceptwhenusinganapprovedpass.ApplicationpreparedforParticularlySensitiveSeaArea.
Task5.FacilitatecoordinationamongManagementTeam,AdvisoryPanel,andsubcontractors.Quarterlyreporting.
TheManagementTeamand/orAdvisoryPanelconvenedmorethan30timeseitherinpersonorviateleconference.Emailupdateswereusedbetweenmeetings.Quarterlyreportsweresubmitted.
Task6.UpdateandsustainEmergencyTowSystem(ETS)deploymentintheAleutianIslands.
ETSdeploymentexerciseconductedfromUnalaskainOctober2012.Trainingmanualupdated.
Task7.Communicateprojectprogresstopublic,conveneprojectkick-offandwrap-upmeetings,andcoordinatewithpeerreviewpanel.
Projectwebsitesforthepublicandprojectparticipantsweredevelopedandmaintainedat:aleutianislandsriskassessment.com.PeerreviewcommentsonOptimalResponseSystemreportreceivedinfall2014.Twoin-personmeetingsheld.
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4. TECHNICALTASKSANDOUTCOMESThissectiondescribedtheresultsofthekeytechnicaltasks(Tasks1-2,3,4,and6)conductedduringPhaseB.
4.1 Task1-2:OptimalResponseSystemTask1-2recommendedanoptimalresponsesystemfortheAleutianIslands.TherecommendationisdescribedinRecommendinganOptimalResponseSystemfortheAleutianIslands:SummaryReport.
TherecommendationwasdevelopedbyanAnalysisTeam,whichmetbothremotelyandinperson,andconsideredbytheManagementTeamandAdvisoryPanel.Thefinalrecommendation,summarizedinSection4.1.2,representsnear-consensusfromtheAdvisoryPanel.TheSummaryReportclearlystipulatesareasofagreementand,forthosefewissueswhereconsensuswasnotreached,thereasonsgivenforanyobjectionstotherecommendation.
TheAnalysisTeamincluded:BaldwinandButler,LLC(organizationandfunding),GlostenAssociates(emergencytowing),MoranEnvironmentalRecovery,LLC(spillresponse),MoranTowing(salvage),andNorthernEconomics,Inc(benefit-costanalysis).NukaResearchandPearsonConsulting,LLCfacilitatedtheteamandcontributedresearchandanalysisaswell.
ThereportwasalsoreleasedforpubliccommentandreviewedbytheTechnicalPeerReviewPanel,whosecommentsareincludedasanappendixtothefinalversion.
4.1.1 SUPPORTINGANALYSESTheAnalysisTeamconsideredoptionsacrossfourtracks:emergencytowing,salvage,spillresponse,andmanagementandfunding.Thebenefitsandcostsoftheirpreliminaryrecommendationwereanalyzedpriortofinalization.Figure3summarizestheprocessthattheAnalysisTeamusedtodeveloptherecommendation.
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Figure3.AnalysisTeamapproachtodevelopingrecommendedoptimalresponsesystem.NotshownhereistheextensiveinputprovidedbytheAdvisoryPanelthroughdiscussionsviawebinarandduringin-personmeetings.
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Fourteensupportingreportswerecompletedtodocumenttheresearchandreasoningfortheultimaterecommendation.TheseareheavilyreferencedthroughouttheSummaryReportandarelistedhere.
1) AleutianIslandsRiskAssessmentRegulatoryResourceStudy.NukaResearchandPlanningGroup,LLC&PearsonConsulting,LLC(2013).OverviewofregulatoryrequirementsrelatedtosalvageandoilspillpreventionandresponseapplicabletotheAleutianIslandsregion,andestimatedcostofresourcesrequiredforfullcomplianceofregulationsaswritten.
2) ImpactofEnvironmentalConditionsonVesselIncidentResponseintheAleutianIslands:AResponseGapAnalysis.NukaResearchandPlanningGroup,LLC(2014a).Characterizeshowoftenenvironmentalconditionsalonewouldprecludeorsignificantlyimpedearangeofemergencyandoilspillresponseoperationsintheregion.
3) CharacterizingEnvironmentalConditionsintheAleutianIslands.NukaResearchandPlanningGroup,LLC(2013b).Summarizesweatherdatausedinresponsegapanalysisandtowinganalyses.
4) 2012TransitsofUnimakPass.NukaResearchandPlanningGroup,LLC(2014).Providesanupdatetoprevioustrafficstudiesanddeterminesthepercentageofdeep-draftvesselsusingUnimakPassin2012thatwereininnocentpassage,andthereforewouldnotbesubjecttoU.S.responseplanregulations.Usedasproxyfor“currentdata”toinformper-vesselcostestimates.
5) MinimumRequiredTugfortheAleutianIslands.TheGlostenAssociates(2014).Calculatestheminimumtugbollardpullneededtocontrolandturnacontainershipthatofthe75thpercentilesizeofthosetransitingtheAleutiansin2012.
6) MinimumRequiredTug.TheGlostenAssociates(2013a).Firststudyofminimumtugbollardpullrequired,basedonslightlysmallervesselsizesfrom2010data.UsedforRegulatoryResourceStudy.
7) TugofOpportunityStudy.TheGlostenAssociates(2013b).Calculatestheabilityoftugsofopportunityintheregiontoreachvariousscenariolocationsandrescuealargeship.
8) EstimatedResponseTimesforTugsofOpportunityintheAleutians.NukaResearch&PlanningGroup,LLC(2014).BuildingoffofanalysisbyTheGlostenAssociates,concludesthattugsofopportunitymayoftenbeavailabletoaidrelativelysmallvesselsinfairconditions,butnotlargershipsoranyshipsinpoorconditions.
9) BestAvailableTechnology.TheGlostenAssociates(2013c).Identifiesbestavailabletechnologytugs(oneU.S.andoneforeign)basedonreviewofexistingvesselsandasetofcriteriaapplicabletoAleutianIslandsoperations.
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10) PurposeDesignedTowingVessel.TheGlostenAssociates(2013d).PresentdesignandcostestimatefortowingvesselintendedtomaximizefeaturessuchasspeedandseakeepingforAleutianIslandsoperations.
11) TugLocationStudy.TheGlostenAssociates(2013e).PresentsgeographicareasthatcanorcannotbereachedbytugsbasedatdifferentlocationsintheAleutianIslands.
12) Benefit-costAnalysisofRiskReductionOptionsfortheAleutianIslandRiskAssessment.NorthernEconomics,Inc.(2014).Concludesthatpredictedbenefitsofrecommendedsystemexceedcostsofsystemimplementation.
13) ConsideringOptionsfortheManagement&FundingofanOptimalResponseSystemintheAleutianIslands.Baldwin&Butler,LLCandPearsonConsulting,LLC.(2014).Describesapproachusedtoidentifynon-profitmodelforrecommendedsystem.
14) ConsideringOptionsforSalvage&OilSpillResponseinanOptimalResponseSystem.NukaResearch&PlanningGroup,LLC,PearsonConsulting,LLC,MoranEnvironmentalRecovery,&MoranTowing(2014).Describesapproachusedtoidentifyspillresponseandsalvageresourcesandsystemcomponentsforrecommendedsystem.
4.1.2 RECOMMENDATIONTherecommendedsystem(Figure4)includesoilspillpreventionthroughroutingmeasuresandreal-timevesselmonitoring,alongwithemergencytowing,salvage,andoilspillresponsecomponents.Italsorecommendsanorganizationalstructureandestimatesannualizedcosts.
TheAdvisoryPanelagreedwiththeAnalysisTeam’srecommendationthattheU.S.CoastGuardshouldapprovetheoptimalresponsesystem,managedbysomefutureManagingEntity,ascompliantwithfederalVesselResponsePlanregulationsfordeepdrafttankandnon-tankvesselsunderthealternativecomplianceoptiongrantedinfederalregulations.Thisapproachisconsideredtobemuchbettersuitedtotheregionthancompliancewiththeregulationsaswritten.
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Figure4.Summaryofrecommendedoptimalresponsesystem
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4.2 Task3:AleutianIslandsSubareaContingencyPlanUpdateandEnhancement
OilspillresponseforAlaskaisorganizedaroundaUnifiedPlanandregionalSCP.TheAlaskaRegionalResponseTeamconvenesSubareaCommitteesforeachsubareatoguiderevisionsandupdatestotheirSCP.TheAleutianIslandsSCPincludesGRSandPPOR,bothofwhichwereupdatedaspartofPhaseBoftheriskassessment.
ThemostrecentpreviousupdatetotheAleutianIslandsSCP–Change1–wasin2010andfocusedonincorporatinglessonslearnedfromtheM/VSelendangAyuoilspill;however,somepartsoftheplanremainedincompleteorhadbecomeoutdated.
4.2.1 SUBAREACONTINGENCYPLANUPDATETheSubareaCommitteewasreconvenedaspartofPhaseBtoreviseandupdatetheSubareaContingencyPlan.Thesameorganizationalstructurewasusedforthisupdateasforpreviousones,withanExecutiveCommitteecomprisedofagencyco-chairs(theUSCG,ADECandtheU.S.EnvironmentalProtectionAgency)andtwoworkgroups:Response/LogisticsandSensitiveAreas.
TheExecutiveCommitteeestablishedascheduleforconveningtheSubareaCommitteetoupdatetheplan,ultimatelyusingthefollowingprocess:
• February2013:InitialSubareaCommitteemeetinginAnchorage,withfundsfromtheriskassessmentusedtosupportinpersonparticipationbylocalandtribalgovernmentrepresentativesfromtheregion.ProvidedbackgroundontheSCPupdateprocessandschedule.
• April2013:Government-to-governmentconsultationandcoordinationwasinitiated,announcingtherevisionoftheSCPandseekingcommunityinputregardingresponseresources,infrastructurechanges,andsensitiveareas.TheSensitiveAreasectionoftheSCPupdatedtoconformtoanewformat,requiringmultiplesolicitationsforinputfromtheresourceagencies.Thissectionrequiredupdatedcontentonendangeredspecies,changestocertainlandsensitivities,andlinkstothePribilofIslandsWildlifeProtectionGuidelines.TheinformationprovidedbycommunitieseitherthroughtheSubareaCommitteeorbyindividualcontactswasincorporatedintotheResponseSection(Part1)oftheSCP.
• January2014:SubareaCommitteemeetingheldtoreviewdraftupdatesansolicitadditionalinput.
• August2014:SubareaCommitteemeetingheldtoreviewdraftupdatesanddiscussinclusionofOptimalResponseSystemrecommendation(fromTask1-2)intheplan.TheExecutiveCommitteedecidedtoaddtherecommendationfollowingthismeeting,addinganewsubsectionentitled,“MarineResponseandSalvageRecovery.”Thatsectionincluded:
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o Background§ WeatherCharacterization§ 2012TransitsofUnimakPass
o EmergencyTowingSystem(ETS)§ ETSDeploymentandOperations§ ResponseTimesforTugsofOpportunity§ ConsiderationforResponseTugs
o OilSpillResponseandSalvageo SpecialProcedures
§ DutchHarborSevereWeatherPlan§ RecommendedRoutingMeasures
o References:AnnotatedbibliographyofallfourteenAIRAreportswithweblinks
o AlternativePlanningCriteriaAnnex
• March2015:FinalmeetingofSubareaCommittee.Publiccommentperiodheldfor30days,withnocommentsreceived.
• May2015:Change2oftheAleutianIslandsSCPfinalizedandpostedonthefollowingwebsite:http://dec.alaska.gov/spar/perp/plan.htm
TheSCPisonafive-yearreviewcyclewiththenextrevisionscheduledfor2020.
4.2.2 GEOGRAPHICRESPONSESTRATEGIESTwentynewGRSweredevelopedaspartofPhaseB,andaGRSdeploymentexercisewasconductedinAdak.GRS,includedintheSCP,areoilspillresponseplansforcoastalareasdesignedtoprotectspecificsensitivesitefromimpactsfollowingaspill.Theseresponseplanscansavetimeduringthecriticalfirstfewhoursofanoilspillresponsebyshowingresponderswheresensitiveareasarelocatedandwheretoplaceoilspillprotectionresources.
ForthepurposesofGRSdevelopment,theAleutianSubareaisdividedintofivezonestomaketheselectionofsensitivesitesmoremanageableandfacilitateoutreachandsurveyactivities(seeFigure5).Forty-threeGRShadpreviouslybeendevelopedintheWestAandBZones,includingfivethatmemorializedthetacticsdeployedduringtheSelendangAyuresponse.
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Figure5.AleutianIslandsSubareaGRSzones
InFebruary2012,theGRSworkgroupreconvenedtodevelopadditionalGRSfortheAleutianIslandsareaaspartoftheefforttoupdatetheSCPoverall.TheworkgroupagainfocusedontheWestAandWestBZones,identifying15sitesintheWestAZoneduringtheinitialmeeting.SelectingsitesintheWestBZoneprovedmorechallengingbecauseoftheenvironmentalconditions,thelocationofthemostsensitiveresources,limitationsofoilspillresponseequipment,andremotenessofthearea.Aftergatheringinputfromresourceagenciesandlocalstoidentifysensitivesiteswherearesponsecouldbeeffective,fiveWestBsiteswereselected(SeeFigure6).
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Figure6.GRSsitesselectedinWestAandWestBzonesaspartofPhaseB
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FieldDeployment
InJuly2014,TacticsCommitteememberstraveledtoAdaktogatherinformationaboutconditionson-site,reachouttolocalstakeholdersforinputonlocalprotectionpriorities,andobserveandevaluatefirstresponderswhileimplementingaGRSduringascheduleddeploymentexercise.AcommunitymeetingwasheldattheAdakCityHallonJuly22,2014andattendedbylocalofficialsandcommunitymembers.PresentationsweregivenbyADECregardingtheSCPandGRSprogram.CommunitymembersconfirmedtheselectionofsitesforGRSandaddedotherareastheydeemedhighprioritysites.
OnJuly23,2014thelocalfueldistributor,AleutEnterprise,providedresponseequipment,vessels,andtrainedresponsepersonneltoconductGRSfielddeploymentinnearbyClamLagoon.Theseresponderscollaboratedwiththelocalfiredepartment,EMS,andpolicetosimulateanactualresponseforthevillage.Approximately25peoplewereinvolvedintheexercise.
ClamLagooninarelativelylargelagoon,typicalinWesternAlaska.Withanextensiveintertidalarea,thelagoonsupportssalmonrunsandprovidesacriticalhabitatfornestingandmigratingwaterfowl.Thelagoon’sentranceisanarrowchannelwithsignificanttidalcurrents.TheGRSdraftedforthatlocationcalledfor250feetofexclusionboominginfrontoftheentrancetokeepanyoilfromenteringthelagoon.
Afterrespondersattendedanexercisebriefing,theboomwasdeployedattheendoftheoutgoingtide.Theanchoringsystemsweresetatslacktide.Asthecrewsreadjustedtheanchors,thetidebegantoflood.Givenchallengingthetidalconditions,theboomwasdismantledbeforetheGRSwasfullydeployed(seeFigure7).TheGRSmayhavebeeneffectiveifboomhadbeenproperlyanchoredinitially.
Figure7.Crewshaddifficultywithshoreanchorsystems
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TheGRSwasmodifiedbasedonthefielddeployment(seeFigure8).Additionalboomwasspecifiedandtidalsealingboomwasaddedinadditiontoarequirementforoilcollectionatshoresidesites.Beyonddemonstratingtheimportanceoftestingdrafttactics,theGRSdeploymentrevealedtheimportanceoftrainingforlocalfirstresponders.Evenwithassistancefromthefuelcompany’strainedpersonnel,whodeploycontainmenttacticsatfueldepotsandtankfarms,additionaltrainingmaybewarrantedforthedeploymentofcertainGRStactics.
Figure8.GRSmappageforthetacticsasrevisedaftertheexercise
FieldSurveySurveyorsfromADECandNukaResearchconductedafieldsurveyfromavesselprovidedbyAleutEnterprises.Anemployeewithextensivelocalknowledgeguidedthesurveyofeightnearbysitestogatherinformationanddevelopprotectiontacticsforthesesensitiveareas.Accesstolocalknowledgegavesurveyorsinsightintoseasonalconditionsandadditionalresourcesthathadnotbeenidentifiedpriortothesurvey.
TacticsCommitteeMeetingandWorkgroupReviewTheTacticsCommittee,comprisedofrepresentativesfromtheAlaskaChaduxCorporation,USCG,ADECandNukaResearch,metafterthesurveytoreviewthe20GRSthathadbeendrafted.Afterexaminingthedraftplansandthelongdistancesfrompopulationcentersandequipmentdepots,thegroupfelttheneedtoaddressthelogisticalchallengestoresponseintheseareas.Forexample,theuseoflightweightandeasilytransportableabsorbentboomspriortothearrivalofcontainmentboomwasincorporatedintomanyGRStoenableafastercommunity
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response.Althoughnotideal,thismeasurecouldoffersomeprotectionbeforemoreadequateequipmentarrived.Inotherareassmaller-sizedcontainmentboomwasspecifiedtoreduceweightandincreasetheamountofboomthatcouldbedeliveredtoasite.AfterthetacticswerereviewedandapprovedbytheTacticsCommittee,theGRSwerepostedtotheprojectwebsitefortheworkgroup’sreview.InMay2015,theGRSwereconsideredapprovedbytheworkgroupandforwardedtotheSubareaCommitteeforinclusionintheSCP.GRPareavailableat:http://dec.alaska.gov/spar/perp//grs/ai/home.htm
4.2.3 POTENTIALPLACESOFREFUGEAplaceofrefugeisalocationwhereavesselneedingassistancecanbedirectedormovedtowhereactionscanthenbetakentostabilizethevessel,protecthumanlife,reduceahazardtonavigation,and/orprotectsensitivenaturalresourcesandotherusesofthearea(e.g.,subsistenceharvesting,commercialfishing,recreationalboating).Theseplacesmayincludeconstructedharbors,ports,naturalembayments, oroffshorewaters.PotentialPlacesofRefuge(PPOR)plansinAlaskacataloganddescribesitesthatmaybeaccessedbyvesselsindistress.Actualdesignationofaplaceofrefugewillalwaysbeanincident-specificdecisionmadebytheUSCG’sCaptainofthePortforWesternAlaska.Themoreinformationthatisavailabletodecisionmakers,themorelikelytheywillbeabletomakethebestdecisionpossible.
TheplansaredevelopedwithaworkgroupprocesssimilartothatusedtodevelopGRS.Aworkgroupconsistingofprofessionalmariners,resourceagencies,local,stateandfederalgovernmentrepresentatives,andcommunitystakeholdersoverseesanddirectsthedevelopmentoftheplans.
PPORDevelopmentintheAleutianSubareaThedevelopmentofthePPORfortheAleutianSubareacoincidedwiththedevelopmentofGRSthere.Manyworkgroupmemberswereinvolvedwithbothefforts,whichincreasedefficiency.TheSubareaisdividedinto10areastoallowfortheproductionofdetailedmapsandinformationaboutPPOR.PotentialPlaceofRefugePlansreflectthebestavailableknowledgeatthetimetheyareproduced,butconditions,resources,facilities,andresponseresourcesarealwayschanging.TheworkgroupreviewedandupdatedPPORmapsandinformationfortheAleutianIslandsSubareasforinclusionintheSCP.
ChangestotheRiskandAssetMapincluded:
• ProductionofamapforthelocationsofAutomaticIdentificationSystemtowersandcoverageinthearea(seeFigure9)
• Updateoftheinformationonoilspillsinthearea• ProductionofamapthatillustratedthelocationsoftheEmergencyTow
Systemsinthearea
Changestoindividualmapsincluded:
• Documentandincludeanychangestoinfrastructureinthearea• ChangeRatIslandtoHawadaxIslandtoreflectthenewname
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• IncludetheemergencymooringbuoyinUnalaskaBay• Generaleditsandreviewtoensureaccuracy
Duringtheplanupdateprocess,nonewPPORwereselectedandnonewereremoved.TheworkgroupwasnotifiedoftheseupdatesinMay2015andencouragedtoprovidecommentsoranyadditionalinformationduringareviewperiod.NoadditionalinformationwasofferedandtheplanswereforwardedtotheSubareaCommitteeforinclusionintheSubareaPlan.TheupdatedPPORplansareavailableat:http://dec.alaska.gov/spar/perp/aippor/home.htm
Figure9.OnelayeroftheRiskandAssetMapsincludedinthePPORSectionoftheSCPshowingAIScoverageintheregion
4.3 Task4:InternationalMaritimeOrganizationRoutingMeasures
Vesselsininnocentpassage–non-U.S.flaggedvesselsvoyagingbetweentwonon-U.S.ports-areaconcernintheAleutianIslands.Whiletheyarerequiredtocomplywithinternationalnormsandconventionsrelatedtooilspillresponsepreparedness,thesevesselsarenotrequiredtocontributetoarea-specificresponseresourcesorreadinessintheAleutianIslandsthewayvesselssubjecttoU.S.vesselresponseplanrequirementsmust.ThisissuewasakeyconcerninPhaseAoftheAIRA,andresultedinarecommendationtoexploreoptionsforestablishinginternationalroutingmeasuresintendedtokeeplargevessels,includingthoseininnocentpassage,awayfromtheislandsunlesstheyareusingapass.
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InJune2015,theInternationalMaritimeOrganization(IMO)approvedtheU.S.government’sproposaltoestablishfiveareastobeavoided(ATBA),50nmoffshoreoftheAleutianIslands.ThismeasuretakeseffectinJanuary2016.Althoughtechnically“recommendatory,”itestablishesastandardofcarethatappliestoallshipspassingthroughtheregion,includingthoseininnocentpassage.(Vesselsengagedinlocaltradearenotaffected.)
Figure10.RecommendatoryareastobeavoidedestablishedbyIMOfortheAleutianIslandsarea
InDecember2012,PearsonConsulting,LLCandCapeInternationalconvenedaworkgroupofAdvisoryPanelmemberstoconsiderthepotentialforestablishingaParticularlySensitiveSeaArea(PSSA)intheAleutianIslands.Thisgroupmetfivetimesontheissuebetween2012-2014,inadditiontofullAdvisoryPaneldiscussions.
ThepursuitofthePSSAwasdrivenbyaninterestinestablishingATBAinthearea.AfterfurtherresearchanddiscussionswiththeU.S.NationalOceanicandAtmosphericAdministration(NOAA),whichadvocatesfortheU.S.attheIMOontheseissues.WithinputfromtheAdvisoryPanelaswellasUSCGandNOAAofficialsfamiliarwiththeprocedures,theAIRAManagementTeamdecidedtotaketheapproachofpursuingroutingmeasuressuchasATBAwithoutaPSSAdesignation.
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Theroutingmeasuresproposalincluded:
• Generaldescriptionoftheregion• Uniqueorrarefeatures,includingenvironmentalsensitivities• Criticalhabitat• Productivity• Vulnerability• Economicbenefit• Culturalsignificance• Subsistencesignificance• Scientificandresearchvalue• Otherconsiderations,suchasvesseltrafficandstateofnavigationalaidsand
hydrographicsurveys• Naturalfactors• Vulnerabilitytointernationalshipping• Domesticmeasures• Shippingconsiderations• AimoftheproposedATBA• Impactonshipping• Actionrequested
TheAdvisoryPanelreviewedandapprovedadraftapplicationtotheIMOforproposedATBA(routingmeasures)inOctober2014.TheapplicationwaspresentedtoandendorsedbytheNavigationSafetyCommitteeinMarch2015,andenactedbythefullIMOinJune2015totakeeffectinJanuary2016.
AnapplicationforaPSSA,whichincludesmuchofthesameinformation,wasalsopreparedtoadheretotheoriginalprojectscopeofwork.
4.4 Task6:ETSExerciseandTrainingMaterials
ADEChasanongoingprojecttostationEmergencyTowingSystems(ETS)aroundAlaskaandmaintainthiscapabilitythroughperiodicexercisessupplementedbyatrainingmanualandDVD.TheMayorofUnalaskainitiatedthisprogramfollowingtheneargroundingofashipoftheircoastin2007.
WiththebenefitsoftheETSwidelyrecognized,fundsfromtheM/VSelendangAyusettlementwereusedviaPhaseBoftheAIRAtofacilitatea6thAnnualETSExerciseinUnalaskain2012.Theywerealsousedtoupdatetheexistingauxiliarytrainingmanualanddevelopatrainingvideo,madepubliclyavailablebythestate.Thevideoisavailableat:https://dec.alaska.gov/spar/PPR/ets/index.htm.
AnETStrainingexercisewasconductedonOctober3,2012inUnalaskaBay,northofAmaknakIsland.TheexerciseobjectivesweretofamiliarizelocalresponderswiththeETSandcaptureinformationtoupdatethetrainingmanualandvideo.Twenty-
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onerepresentativesfromtheAIRAAdvisoryPanelandlocaloperators(PortofUnalaska,DunlapMarine,andHarleyMarine)participated,alongwithrepresentativesfromADECandU.S.CoastGuard’sSectorAnchorageandMarineSafetyDetachmentUnalaska.TheAfterActionReportisavailableat:http://www.aleutiansriskassessment.com/images/121102_ETS_AAR_v1.pdf.
Figure11.ETSdeploymentbeingpreparedduringOctober2012exerciseinUnalaskaBay
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5. FACILITATIONANDPROJECTMANAGEMENTInadditiontotheactivitiesdescribedinSection4,projectfacilitationandmanagementincluded:
• Facilitationof27ManagementTeamteleconferences(inadditiontoAdvisoryPanelmeetings).
• FacilitationofsixAdvisoryPanelmeetings,includingwebinarsandin-personmeetingsinUnalaskaandAnchorage,Alaska.
• Managementofsevensubcontracts,includingfacilitatingreviewandapprovalofallsubcontractordeliverables.
• Managementandreportingforaseparatefundusedtofacilitateparticipanttravelforin-personmeetings.
• DevelopmentandmaintenanceofemaillistsfortheManagementTeam,AdvisoryPanel,andinterestedmembersofthepublic.
• Developmentanddistributionofprojectnewsletterswithupdates,meetingandcommentperiodannouncements,andlinkstoprojectdeliverables.
• Developmentandmaintenanceofprojectwebsites,includingoneforthepublicandpassword-protectedsitesfortheAdvisoryTeamandManagementTeam.(Thepublicwebsitewillbestatic,butmaintainedfortwoyearsfollowingprojectcompletion.)
• Presentationsorbriefingsabouttheprojectdeliveredto:BC-PacificStatesOilSpillTaskForce(2013),ArcticandMarineOilSpillProgram(2013),ArcticCircleConference(2013),ArcticResearchCommission(2014),OfficeoftheGovernorandAlaskaDepartmentofEnvironmentalConservation(2014),CityCouncilofUnalaska(2014),USCGSectorAnchorage(2014),AleutianIslandsSubareaCommittee(2014),membersofthepressandpublic(viawebinar,2014),andCleanPacificConference(2015).
• Quarterlyandfinalreporting.
• BudgetmanagementandupdatesfortheManagementTeam.
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6. CONCLUSIONTheseassurroundingtheAleutianIslandspresentsomeofthemostchallenginganddangerouswaterstraversedbymarineshippingintheUnitedStates.Overfourthousandvesselstransitthesewaterseachyear.Therehavebeennumerousmarinecasualtiesresultinginoilspill,environmentaldamage,andhumanfatalitiesinthesewatersinthepast100years.Onesuchcausality,thegroundingoftheM/VSelendangAyuin2004,ledtotheAleutianIslandRiskAssessment.
TheAleutianIslandRiskAssessmentutilizedacombinationofpeer-reviewedtechnicalanalysisandexpertknowledgefromadiversegroupofstakeholderstoevaluatetherisksofmarineaccidentsandoilspillsintheAleutianIslandsandmakeaseriesofrecommendationinbothpreventionandresponsemeasurestoimprovesafety.Someoftheserecommendationshavebeenimplemented,whilepolicymakerswerestillconsideringothersatthetimeofthisreport.
Hopefullyhistorywillshowthatthisprojectreducedthefrequencyofmarinecasualtiesandtheconsequencesofaccidentsthatinevitablyoccur.Themethodsusedforthisriskassessmentarereadilyreplicableforotherregionswherethereareoilspillrisksfrommarineshippingandasharedcommitmenttoidentifyingandmitigatingthoserisks.
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REFERENCES
Baldwin&Butler,LLCandPearsonConsulting,LLC.(2014).Consideringoptionsforthemanagement&fundingofanoptimalresponsesystemintheAleutianIslands.Ed.NukaResearchandPlanningGroup.AleutianIslandsRiskAssessmentPhaseB.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011a).Task3-4consequenceanalysisreport.AleutianIslandsRiskAssessmentPhaseA.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011b).Accidentscenarioandcausalitystudyreport.AleutianIslandsRiskAssessmentPhaseA.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2011c).Task6and7riskreductionoptionsevaluationreport.AleutianIslandsRiskAssessment.PhaseA.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010a).Task1semi-quantitativetrafficstudyreport.Reportno./DNVrefno:EP007543.AleutianIslandsRiskAssessmentPhaseA.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010b).Task2Amarinespillfrequencyandsizereport.Reportno./DNVrefno:EP007543-1.AleutianIslandsRiskAssessmentPhaseA.
DetNorskeVeritas(U.S.A.),Inc.andERM-West,Inc.(2010c).Task2Bbaselinespillstudyreport.AleutianIslandsRiskAssessment.PhaseA.
NationalOceanicandAtmosphericAdministration.(2016.)M/VSelendangAyu.DamageAssessment,Remediation,andRestorationProgram.Retrievedfrom:https://darrp.noaa.gov/oil-spills/mv-selendang-ayu
NationalTransportationandSafetyBoard.(2006.).GroundingofMalaysian-flagBulkCarrierM/VSelendangAyuonNorthShoreofUnalaskaIsland,AlaskaDecember8,2004.NTSB/MAB-06/01.Retrievedfrom:https://www.ntsb.gov/investigations/fulltext/MAB0601.htm
NorthernEconomics.(2014).Benefit-costanalysisofrisk-reductionoptionsfortheAleutianIslandsRiskAssessment.AleutianIslandsRiskAssessmentPhaseB.
NukaResearchandPlanningGroup,LLC.(2014a).ImpactofenvironmentalconditionsonvesselincidentresponseintheAleutianIslands:Aresponsegapanalysis.AleutianIslandsRiskAssessmentPhaseB.
NukaResearchandPlanningGroup,LLC.(2014b).SummaryoflargevesseltransitsofUnimakPassin2012.AleutianIslandsRiskAssessmentPhaseB.
NukaResearchandPlanningGroup,LLC.(2014c).EstimatingresponsetimesfortugsofopportunityintheAleutianIslands.AleutianIslandsRiskAssessmentPhaseB.
NukaResearchandPlanningGroup,LLC.(2013).CharacterizingenvironmentalconditionsintheAleutianIslands.AleutianIslandsRiskAssessmentPhaseB.
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NukaResearchandPlanningGroup,LLC.,PearsonConsulting,LLC.,MoranEnvironmentalRecovery,&MoranTowing.(2014).Consideringoptionsforsalvage&oilspillresponseinanoptimalresponsesystem.AleutianIslandsRiskAssessmentPhaseB.
NukaResearchandPlanningGroup,LLC.,PearsonConsulting,LLC.,Baldwin&Butler,LLC.,MoranEnvironmentalRecovery,MoranTowing,NorthernEconomics,Inc.,&TheGlostenAssociates.(2013).Regulatoryresourcestudy.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2014).MinimumrequiredtugfortheAleutianIslands.ReportNo.12127.03.01.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2013a).Minimumrequiredtug.ReportNo.12127.02.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2013b).Tugofopportunitystudy.ReportNo.12127.01.12e.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2013c).Bestavailabletechnology.ReportNo.12127.02.12c.NukaResearchandPlanningGroup,LLC.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2013d).Purposedesignedtowingvessel.ReportNo.12127.02.12c.NukaResearchandPlanningGroup.AleutianIslandsRiskAssessmentPhaseB.
TheGlostenAssociates.(2013e).Tuglocationstudy.ReportNo.12127.02.12d.NukaResearchandPlanningGroup,LLC.AleutianIslandsRiskAssessmentPhaseB.
SelendangAyuSettlement.(2007.)UnitedStatesofAmericavs.IMCShippingCo.PTELtd.Aug.13.
TransportationResearchBoard.(2008).RiskofvesselaccidentsandspillsintheAleutianIslands:Designingacomprehensiveriskassessment.SpecialReport293.
Wolniakowski,K.,Wright,J.,Folley,G.,andFranklin,M.(2011).AleutianIslandsRiskAssessmentproject:PhaseAsummaryreport.AleutianIslandsRiskAssessmentPhaseA.
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APPENDICES
AppendixA–PhaseBProjectParticipants
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APPENDIXA–PHASEBPROJECTPARTICIPANTSPEER REVIEW PANEL
Name Organization Posit ion Phase
Dr. CJ Beegle-Krause Environmental Research for Decision, Inc. President A
David Bovet Norbridge, Inc Partner B
Dr. Paul S Fischbeck Center for the Study and Improvement of Regulation Department of Social & Decision Sciences Carnegie Mellon University
Director A & B
Dr. Beverly Huey, Panel Coordinator
The National Academies of Science, Transportation Research Board
Senior Program Officer
A & B
Dr. John D Lee University of Wisconsin, College of Engineering, Department of Industrial and Systems Engineering
Professor A & B
Dr. Thomas M Leschine
University of Washington School of Marine Affairs Director A & B
Mr. R Keith Michel Herbert Engineering Corp Chairman of the Board
A & B
Dr. Ali Mosleh University of Maryland, Mechanical Engineering Professor A & B
ADVISORY PANEL
Name Organization Primary/ Altnerate
Stakeholder Category
Phase
David Arzt Alaska Marine Pilots' Association Primary Mariner, Pilot A & B
Louis Audette K-Sea Transportation Primary Mariner, Oil Barges/Tankers
A & B
Mike Baker Aleut Enterprise, LLC Alternate Mariner, Oil Barges/Tankers
A
Catherine Berg Alaska Maritime National Wildlife refuge
Alternate Resource Manager A & B
Reid Brewer AK Sea Grant Marine Advisory Program UAF
Primary Subsistence A & B
Douglas Burn USFWS Alternate Resource Manager B
Cheryl Fultz Delta Western Inc. Alternate Mariner, Oil Barges/Tankers
B
Tom Gemmell Marine Conservation Alliance Primary Fisheries A & B
David Gregory Community member; OC employee; City Council; LEPC Member;
Alternate Subsistence A & B
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ADVISORY PANEL, continued
Name Organization Primary/ Altnerate
Stakeholder Category
Phase
Pete Garay Alaska Marine Pilots' Association Alternate Mariner, Pilot A
Layla Hughes Consultant Alternate NGO / Environmental A & B
Frank Kelty City of Unalaska Alternate NGO – Local (A) Fisheries (B)
A & B
Simon Lisiecki Retired Primary Mariner, Innocent Passage
A & B
Eugene Makarin American President Lines, Ltd Primary Mariner, Containerships
A & B
Karol Kolehmainen
Aleutians West Coastal Resource Service Area
Primary NGO-Local A
Shirley Marquardt
City of Unalaska Primary Local Government A & B
Ed Page Marine Exchange of Alaska Primary Mariner, General A & B
Brent Paine United Catcher Boats Association Primary Fisheries A
Tom Robinson Qawalangin Tribe of Unalaska Primary Subsistence B
Tom Rueter Alaska Maritime Agencies Alternate Marine, General A & B
Mike Ruiz American Marine Corporation/PENCO
Alternate Marine Salvor A & B
Whit Sheard Pacific Environmental Primary NGO / Environmental A & B
Marc Smith Private Consultant Primary Mariner, Tramper A & B
Bob Umbdenstock
Resolve Marine Group Primary Mariner, Salvor A & B
Mike McGlothin American President Lines, Ltd Alternate Mariner, Containerships
A
Richard Wilson American Marine Corporation/PENCO
Alternate Marine Salvor A
Jeff Williams Alaska Maritime National Wildlife Refuge
Primary Resource Manager A & B
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MANAGEMENT TEAM
Name Organization Phase
CAPT Scott Bornemann USCG District 17 B
LT Jason Boyle USCG Inspection/Investigation Division
LT Eugene Chung USCG, Waterways Management Chief / Sector Anchorage B
LT Kion Evans USCG Planner, Sector Anchorage B
LT Robert Fields USCG, Inspections/Investigations Branch A
Gary Folley ADEC/SPAR A & B
LT Mike Franklin USCG Inspection/ Investigation Division A
LCDR Gary Koehler USCG Inspection / Investigation Division A & B
LT Matt Mitchell USCG Planner, Sector Anchorage B
CDR Shane Montoya USCG Planner, Sector Anchorage B
Matt Odeum ADEC/SPAR A
CDR James Robertson USCG, Chief, Inspections/Investigations Branch A
CDR Patrick Ropp USCG Inspection / Investigation Division A & B
CAPT Adam Shaw USCG Inspection / Investigation Division A & B
Crystal Smith ADEC A&B
Krystyna Wolniakowski NFWF A & B
Jay Wright NFWF A & B
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