Of all the advances made in the safe transportation of oil since the 1989 Exxon Valdez oil spill, perhaps the most innovative and significant was the establishment of permanent, industry-funded citizen oversight for both Cook Inlet and Prince William Sound. While the citizen advisory groups established in Alaska after the spill were modeled after the advisory committee set up for the Sullom Voe Terminal in the Shetland Islands, throughout the world, most oil development still takes place without citizen involvement. In Prince William Sound, many of the safety improvements now in place are a direct result of partnerships between industry, regulators, and citizens.
March 24, 2024, will mark 35 years since the Exxon Valdez disaster. This year will also mark 34 years since the formation and incorporation of PWSRCAC. The Council recently reconnected with several of our founding members to discuss why they think our organization is still relevant today, with quotes from those conversations featured in our most recent “Year In Review” report.
All of the early Council Board and committee members witnessed firsthand the devastating effects of the oil spill. Some of them are still volunteering for the Council more than a quarter of a century later. These experiences played a big part in the passion and drive of all parties to put systems in place designed to prevent another accident, and to make sure there are adequate trained personnel, and enough equipment available, to respond immediately should prevention measures fail and another spill occurs.
The oil spill contingency plan for the Valdez Marine Terminal is undergoing its five year renewal. During a public comment period in December, the Council voiced concern over a “prevention credit” that reduces the amount of oil that the industry must be ready to clean up if a spill were to occur.
One of the Council’s primary duties is reviewing spill contingency plans for the oil industry in Prince William Sound. The Council has been reviewing these plans since 1990.
“Over 30 volunteers, staff, and contractors spent hours reviewing documents and coordinating these comments,” noted Linda Swiss, the Council’s project manager for contingency planning. The three volumes that make up the oil spill contingency plan for the Valdez Marine Terminal contain over 1,000 pages in total.
What’s in a contingency plan?
Oil spill contingency plans contain details about the steps to be taken before, during, and after an oil spill.
Before: what’s being done to prevent an oil spill
During: how the industry will respond to an oil spill, including where the equipment and personnel would come from
After: plans are updated to reflect lessons learned from previous spills
“These plans are a good way for stakeholders to understand how their resources and livelihoods are protected,” Swiss says.
Oil spill contingency plans are prepared by the operators of Alyeska’s marine terminal and oil tankers and are subject to state approval.
There are separate plans for spills from the Valdez Marine Terminal and from the tankers that load crude oil at the terminal. Plans undergo an update, review, and approval process approximately every five years.
Liners under crude oil storage tanks still of concern
The crude oil storage tanks at the Valdez Marine Terminal are surrounded by massive asphalt-lined cells that are designed to contain oil in case of a spill from a tank. The cell walls can be seen in this photo. Photo by Linda Robinson.
One of the central issues the Council is concerned about is an asphalt liner surrounding the large oil storage tanks.
Each tank holds approximately 23 million gallons of oil. If a tank were to leak oil, the liners act as a backup system that is supposed to contain the oil until it can be cleaned up and before it can contaminate ground water or Port Valdez. The backup or “secondary containment” system consists of a huge bowl-shaped area around the tank. The area is lined with asphalt, which is buried under several feet of gravel.
Why does the Council care about this liner?
The Exxon Valdez oil spill taught the lesson that a certain amount of equipment and trained personnel must be on hand to respond quickly.
The amount of response equipment and personnel varies according to the storage capacity. At the terminal, this is based on the maximum amount one of the oil storage tanks can hold, which is approximately 23 million gallons.
Alyeska receives a 60% “prevention credit” for various prevention measures. Most of that 60% is for having the asphalt liner around the tanks. This means they plan for a spill of 40% of the total volume of one tank, which is 8.5 million gallons. If more than 8.5 million gallons is spilled, they would still be responsible for cleaning it up, however, more equipment would be needed than is currently listed in the plan.
Is the liner still intact?
This liner was installed when the terminal was built and is approaching 50 years old. From time to time, sections of the gravel layer over the liner have been removed when work is done for other projects. When this is done, cracks and holes are often found in the liner.
“There are crude oil storage tanks holding half a million barrels of oil sitting on a steep slope above Port Valdez within a secondary containment system with known integrity issues,” the Council noted in their comments.
Testing the liner
Because the liner is buried under gravel, it is expensive and time-consuming to dig it up for a visual examination. Excavation could also damage the liner. In 2022, the Council conducted a study of methods to evaluate the liner without removing the gravel. Alyeska is planning to conduct a pilot test this summer using an approach similar to the method recommended in that report.
What is a prevention credit? Spilled oil can never be completely recovered, so regulations are designed to encourage companies to prevent spills from happening in the first place. One way to do this is to give “credit” for prioritizing spill prevention.
In Alaska, the amount of equipment and personnel that an oil company must keep on hand to respond to a spill depends on the potential size of a spill. If a company takes actions to prevent or reduce the risks of a spill, they can qualify for such a credit. This allows the company to keep less equipment and personnel on hand to respond, because a spill is less likely.
Additional issues
The Council noted several issues aside from the liner, including:
The length of time between internal inspections of the storage tanks.
A lack of detail about the training to prevent oil spills.
Documents containing plan information that were not made available as part of the public review.
In 1989, the few measures in place were inadequate to prevent the Exxon Valdez oil spill and the available response resources were insufficient to contain and clean it up. Congress found that complacency among the oil industry, and the regulatory agencies responsible for monitoring the operation of the Valdez Marine Terminal and vessel traffic in Prince William Sound, was also a contributing factor in the disaster.
In the years following the spill, regulatory agencies, industry, and citizens worked together to make sure the painful memories and hard lessons of the Exxon Valdez were not forgotten. Changes were enacted to reduce the chances of another spill and to prepare for an effective cleanup if another should occur.
Much has improved in the intervening decades, but there are lingering concerns.
Both federal and state laws now require more comprehensive prevention measures and planning for larger spills and require more spill response equipment to be immediately available.
An unlikely alliance of regulators, politicians, oil industry executives, and international spill response experts came together after the spill to reimagine oil spill preparedness and response in Prince William Sound. More: How Alaskans redefined oil spill prevention and response
Prevention: The most effective protection
Modern technology means weather buoys can stream real-time weather conditions to help make better operational decisions. Photo by Rob Campbell.
No oil spill can ever be completely cleaned up. Preventing an oil spill is the most effective way to protect human health, local communities and economies, and the environment. Since 1989, improvements have drastically reduced the risk of oil spills.
Double hulls
All tankers transporting oil through Prince William Sound are now double hulled. Double hulls, basically two steel skins separated by several feet of space, can reduce or eliminate spills that result from groundings or collisions.
Alyeska’s Ship Escort Response Vessel System
The Ship Escort Response Vessel System, known as SERVS (SERVS’ website), was developed after the Exxon Valdez spill. SERVS’ mission is to prevent oil spills by helping tankers navigate safely through Prince William Sound and to begin an immediate response if there is a spill.
Improved tanker escorts
A major component of SERVS are the powerful tugs that escort tankers safely through our waters. Two tugs accompany each laden tanker out of Prince William Sound. These tugs can assist should the tanker experience a malfunction and begin immediate spill response if needed. SERVS also keeps trained response crews on duty around the clock and has spill response equipment ready.
Cleaning up a spill: Must be quick and effective
In 2018, Alyeska began work with their new spill prevention and response contractor, Edison Chouest Offshore. These services include operation of escort tugs, oil recovery storage barges, and associated personnel. These resources are key oil spill prevention and response assets for Prince William Sound. To fulfill their contract, Edison Chouest built new purpose-built tugs, such as the Elrington above; and spill response barges, such as the new OSRB-5. These vessels represented a significant improvement for the oil spill prevention and response system. In some cases, new general-purpose tugs replaced conventional tugs that were over 40 years old. Photo by Jeremy Robida.
While prevention measures are the best way to avoid damage from oil spills, even the best system cannot remove all risks. Alyeska’s SERVS has implemented many improvements since 1989, creating the world-class oil spill prevention and response system in place today.
In 1989, there were only 13 oil-skimming systems in Alyeska’s response inventory; today, 90 are available. Only 5 miles of oil spill boom were available in 1989; today, around 40 miles are on hand. Alyeska had only one 500,000-gallon barge at that time to store recovered oil and the water that comes with; today, storage capacity is now 37 million gallons.
Concerns remain
Although there have been many improvements, there are still many areas of concern, meriting the continued attention and sustained efforts from the Council. A few of these include:
Risks and safety culture at the terminal: In 2023, the Council released an assessment of risks and safety culture at the Valdez Marine Terminal, concluding that there is currently an unacceptable safety risk present, although Alyeska has been working to address the concerns outlined in the report.
Aging infrastructure: The terminal is over 40 years old and still moving large volumes of crude oil. Constant vigilance of this aging infrastructure is needed to ensure that the necessary inspection and maintenance is performed to assure continued safe operations. A recent example the Council has been focusing on is the potential degradation and/or damage to the secondary containment liner system at the terminal.
Tim Robertson is a member of the Council’s Oil Spill Prevention & Response Committee. The committee works to minimize the risk and impacts associated with oil transportation through research, advice, and recommendations for strong and effective spill prevention and response measures, contingency planning, and regulations.
Growing up in western North Carolina, over 3,000 miles away from Alaska, Tim Robertson and his brothers Roy and Andy knew all about the 49th state. His dad was obsessed.
“If there was a TV show or a movie or anything about Alaska, he drug the whole family to see it,” Robertson says. All three brothers ended up moving here.
These days Tim splits his time between Alaska and Hawaii. At first glance, it might seem like the two states are very different, but Tim’s values are present in both.
“I’m a small-boat guy on big water,” he says. “There’s the same connection with the ocean. A lot of mornings I watch the sun rise from the water. It’s a big part of what I am.”
Robertson spent his first few years in Alaska working in an oil-related field, first as a research biologist for Alaska Department of Fish and Game, then for an oil field service company.
He dreamt of a different career though. Robertson acquired land in Seldovia in 1985, and partnered with another family to build Harmony Point Wilderness Lodge, an ecotourism business. They had only been in business a few short years when the Exxon Valdez ran aground.
“The first time I ever heard of ICS [Incident Command System] was when we had a community meeting after the spill,” says Robertson.
