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Received Huntington Beach Energy Series JAN 8 1982 CALIFONIA COASTAL COMMISSION Report #3 Oil Spill Contingency Planning in Huntington Beach City of Huntington Beach Department of Development Services TD Planning [Division 427 P4 045 August, 1981 1981 no.3 CITY OF HUNTINGTON BEACH CITY COUNCIL Ruth Finley, Mayor Ron Pattinson, Mayor Pro Tern Ruth S. Bailey Jack Kelly Don MacAllister Bob Mandic John Thomas PLANNING COMMISSION Grace H. Winchell, Chairman Tim Paone, Vice-Chairman Wesley Bannister Ralph Bauer Beverly J. Kenefick Mark Porter Jean Schumacher Charles W. Thompson City Administrator HUNTINGTON BEACH ENERGY SERIES REPORT #3 OIL SPILL CONTINGENCY PLANNING IN HUNTINGTON BEACH CITY OF HUNTINGTON BEACH DEPARTMENT OF DEVELOPMENT SERVICES JAMES W. PALIN, DIRECTOR AUGUST,1981 TABLE OF CONTENTS PAGE FOREWORD 1 DEFINITIONS 2 1.0 INTRODUCTION 3 2.0 OIL SPILL PLANNINGt PREVENTION AND CLEAN-Up 7 2.1 Federal Role 7 2.2 State Role 9 2.3 Local Role 9 County Plan 10 Spill Plans in Huntington Beach 10 Cost Recovery 11 Bonds 12 2.4 Industry Role 12 2.5 Conclusions 13 3.0 OFFSHORE SPILLS 15 3.1 Spill Clean-up and Containment 16 Local Equipment Resources 17 Co-Op Equipment Resources 17 Disposal Sites 18 3.2 Sensitive Areas: Huntington Beach 18 Santa Ana River Estuary 18 Anaheim Bay/Huntington Harbour 19 Bolsa Bay/Bolsa Chica Ecological Reserve 19 Beaches 19 Southern California Edison Intake System 24 Conclusion 24 4.0 ONSHORE SPILLS 27 4.1 Spill Containment and Clean-up 27 4.2 Tank Farms 28 Dike Systems 29 Adjacent Areas 29 Storm Drains and Sanitary Sewers 31 Company Oil Spill Contingency Plans 31 Fire Department Reviews 32 Evacuation Plans 32 5.0 CONCLUSIONS/RECOMMENDATIONS 33 APPENDICES NOTES 35 BIBLIOGRAPHY 37 List of Figures and Tables Figures PAGE 1.1 Energy Facilities in Huntington Beach 4 2.1 Organizational Hierarchy for Oil Spill Planning 8 2.2 Community Services Organizational Chart 11 3.1 Boom Placement During an Oil Spill 16 3.2 Santa Ana River Boom Placement 20 3.3 Anaheim Bay Boom Placement 21 3.4 Beaches within Huntington Beach 23 3.5 Access Points to Beaches 25 4.1 Typical Street Dam 28 4.2 Environmentally Sensitive Habitats as Depicted by the' Department of Fish and Game 30 Tables 3.1 Alternatives in Oil Spill Containment and 22 Cleanup with Different Beaches Foreword This is another in a series of discussion papers on energy-related issues prepared by the Planning Division of the City of Huntington Beach. Huntington Beach is a center for many energy-related activities including onshore and offshore oil production, an e lee tric ity -generating power plant, and increasingly, solar and conservation technologies. The purpose of these reports is to help the City to accommodate the continued production of so vital a resource as energy while at the same time mitigating as much as possible any adverse impacts on the community that such activities might incur. Other reports in this series include the following: #1 Preserving Surface Access to Underground Oil Reserves in Developed Areas #2 Fiscal Impact of Oil Operations in Huntington Beach #4 Enhanced Oil Recovery Technology #5 Solar and Conservation Policies at the Local Level This publication was prepared with financial assistance from the U.S. Office of Coastal Zone Management, National Oceanic and Atmospheric Administration, under the provisions of the Federal Coastal Zone Management Act of 1972, as amended, and from the California Coastal Commission under the provisions of the Coastal Act of 1976. Definitions This report necessarily discusses some technical aspects of oil spill planning. Consequently, some terms are used wfiich may not be familiar to the reader. The following definitions section was prepared to help clarify the meaning of some of these terms. To ease reference, all words defined in this section are italicized the first time they appear in the report's text. Boo m - A mechanical device used to contain a spill on a water body by forming a Sarrier extending both above and below the surface. Cash Bond - A cash deposit that will transfer to the City in case an oil handling company fails to comply with the Municipal Code; the transferred monies would be used for remedying the violation of the Code. EstuEy - A water passage where the ocean tides meet a river current; the mouth of a river. Sewer - A pipe, conduit or other physical facility used to transport wastewater. Skimming - A process of recovering spilled oil from thesurface of the water. Storm drain - A pipe or conduit which carries storm water, surface water, and street wash, but excludes sewage and industrial wastes. Surety bond - A written contract between an oil company and a State licensed bond company to help guarantee the oil company's commitment to meeting the Municipal Code. If the oil company fails to comply with the Code, the bonding company is obligated to answer to the City and may be required to turn over all or party of the sum in the bond to pay for compliance with the Code. 1.0 Introductiort The Coastal Energy Impact Program (CEIP) Several small-scale spills from these provides federal funds to State and local facilities occur each year, and the continued governments to help them plan for and transportation, storage, and production of mitigate potential adverse impacts of petroleum and related products may result increased energy -production activities in in future spills which could have adverse the coastal zone. Among the most serious impacts on the City's shoreline. For potential impacts on the coastal zone are oil example, oil leaks or spills can impede spills. This report, wfiich is funded through recreational and economic activities in the CEIP, is concerned with oil spill contingency coastal zone. Environmentally sensitive planning in and near the coastal zone. areas, such as nesting areas for endangered species, could also be damaged. Residences Several major oil-related facilities are and commercial establishments could face .located in the City's coastal area (see the possible hazards of fires and fumes, and Figure 1.1). Oil production platforms have owners could experience related problems been built offshore on the Outer Continental such as the inconvenience of an evacuation Shelf (OCS) and in State tidelands. Oil in an emergency situation or of clean-up tankers unload their cargo at a nearshore operations after a spill. marine terminal, and oil is stored in tank Jarms within the City. Pipelines carrying The prevention, containment and clean-up gas, oil and refined products lie under the of oil spills involves all levels of government City. A large power plant Is located in the as well as oil companies. Each level of coastal zone, and another tank farm stores government has certain jurisdictional the fuel oil for that facility. Extensive responsibilities and authority concerning onshore oil production also exists in the spills and it is possible that the City's coastal zone.1 responsibilities overlap with another level of government. The goals of this report are L Separation Plant Tank Farm Principal Oil Producing Areas separation Plants Oil Islands Offshore Platforms Power Plant Mud Dump Marine Terminal Tank Farms Figure 1.1 Energy Facilities in Huntington Beach Source: City of Huntington Beach, Coastal Element huntington beach planning division 4 1) to clarify the roles, capabilities and Section 2.0 discusses, in general terms, the authority of federal, state and local roles usually expected of the different governments concerning oil spills, 2) to levels of government during an oil spill. review existing governmental oil spill Section 3.0, discusses offshore spills and contingency plans and identify, where includes the following topics: 1) appropriate, the role of the City's personnel containment and clean-up strategies for .and equipment, and 3) to recommend beaches and at-sea oil spills, 2) equipment improved measures, if necessary, to ensure available for clean-up activity, and 3) that important resources, including specific sensitive areas within Huntington recreational beaches, waterways, Beach. Section 4.0, discusses topics related residences, commerce and env ironmen tally to onshore spills, including 1) spill sensitive areas are adequately protected containment and clean-up strategies, 2) from spills. tank farms and adjacent areas, and 3) spill impacts on storm drains and sanitary se we rs. Section 5.0 presents some conclusions and recommendations. 5 2.0 Oil Spill -Planning,,- Prevention and Clean-up Determining which agencies will be involved responsible for coastal and navigable waters in containing and/or cleaning a spill depends and the EPA is responsible for inland largely upon the severity of the spill and its spills.3 location. Figure 2.1 summarizes the general relationship among different levels of The National Plan divides the country government for responding to oil spills.2 geographically into regions for the purpose of spill planning. Within each region is a The following. sections describe the roles Regional Response Team (RRT) which and authority the different levels of develops its own Oil and Hazardous government assume in a spill emergency and Pollution Contingency Plan to provide a highlight haw local government may coordinated response by federal, state and interact with State and federal agencies. local agencies. The RRT's plan is activated when there is a major spill or when the 2.1 Federal Role potential for such a spill occurs. The team is comprised of representatives of federal The Federal Water Pollution Control Act and state agencies, and some local (FWPCA) includes provisions establishing governments. Each agency is allowed one the National Oil and Hazardous Pollution member and at least one alternate. The Contingency Plan (National Plan), a On-Scene Coordinator (OSC) designated by .nationwide system of regional contingency the RRT acts as the federal OSC for the plans and federal policies for oil spill spill incident in accordance with the containment and clean-up procedures. national plan. The RRT is jointly chaired by Under the national plan, an On-Scene the Coast Guard and EPA except during a Coordinator (OSC) from the Coast. Guard or spill emergency at which time the agency in Environmental Protection Agency (EPA) can whose jurisdiction the spill occurred will be sent to a spill to monitor and/or direct head the team. clean-up efforts. The Coast Guard is 7 IF SPILLER IS KNOWN: Spill is noticed by r --- on Shore ----- responsible party -------- Off Shore---- govlt agency or N4ify citizen NotIify I I OFS* Initial containment OEP* EPA Local Gov't and/or Crew on-scene Coast Guard I I I I at incident monitor Monitor Progress Progress L ----------- Clean-up by responsible party --------------- IF SPILLER IS NOT KNOWN: Spill is noticed by r---On Shore ----- a govlt agency or ........ Off Shore---- citizen Notify Notify Initial containment OFS Local Gov't an /or Coast Guard Oy EPA Clean-up by co-op or private CoastIGuard firm contracted by Coast Guard Monitor ------- or EPA --------- Mon tor Progress Progress *State Office of Emergency Services; they will notify other federal and state agencies Figure 2.1 organizational Hierarchy for Oil Spill Planning Source: Huntington Beach Planning Division huntington beach planning division 8 When not activated@ the RRT serves as a coordinate actions of State agencies and to standing committee to 1) review regional provide local governments, the public and emergency response operations and news media with information regarding the equipment to ensure preparedness, 2) spill. review the OSC's functions to ensure regional plans are developed and The State plan establishes a State coordinated with involved agencies, 3) Interagency Oil Spill Committee (SIOSC) promote coordination among all, levels of composed of several State agencies.6 government and private agencies, and 4) SIOSC designates a State Agency recommend and implement policy Coordinator (SAC) who is responsible for changes.5 administrating the State plan. The plan also establishes a State Operations Team (SOT), A revolving fund has been established by the headed by the SAC, which also consists of FWPCA to pay for expenses incurred during several state agencies.7 The SOT does clean-up operations when the spiller is not have funds available to clean a spill, but unknown or not taking appropriate clean-up personnel and equipment are available from action. The fund is under management of various state agencies during an emergency. the Coast Guard; federal OSC1sj whether Coast Guard or EPA, have access to the The State's operations team owns very little fund. Once the spill is cleaned, the clean-up equipment and relies on other responsible party, if known, is billed for the parties, such as the oil companies, other expenses. private contractors or, occasionally, federal and local agencies to conduct the actual "Strike Teams" am also available to the clean-up. The State Contingency Plan also OSC under the national plan to provide recognizes the importance of local assistance and technical advice as needed government involvement and encourages during a major spill. The teams include: 1) communities to prepare their own plan the National Strike Force established and which will coordinate with the State and maintained by the Coast Guard with national plans. The State plan acknowledges expertise in communications, dam age that the federal government is the lead control, oil and hazardous substance agency during the containment and clean-up removal, (the Pacific Strike Team, located process of a major spill. in San Francisco, is responsible for spills in California); 2) the Environmental Response California is currently revising this oil spill Team established by EPA with expertise in plan with funding from a Coastal Energy biology, chemistry, and engineering, and 3) Impact Program grant. The purpose of the Scientific Support Teams, organized by EPA revision is to clarify the State's and the National Oceanic and Atmospheric responsibility during a spill, to improve Administration to provide scientific coordination with local governments and to expertise in oceanography, locating establish better containment and clean-up environmentally sensitive areas, and procedures for spills of hazardous assessing environmental damage. Once substances other than oil. activated, a team can be on the scene of a major spill in this area within four to six 2.3 Local Role hours.4 The role of local governments in a spill 2.2 State Role emergency focuses on 1) discovery and evaluation of the spi% 2) immediate action California has an Oil Spill Contingency Plan to limit damage and protect the public, 3) that can operate simultaneously with or notification of appropriate state and federal independently from the national plan. The agencies, and 4) providing support for objectives of the State plan are to clean-up operations by private industry. 9 Both the federal and State plans stress the Services and Fire Departments. Generally, need for municipalities to initiate the Community Services is responsible for spills containment process, especially with involving the shoreline, the harbor or any onshore spills. On the other hand, saltwater area, and the Fire Department is municipalities are rarely involved with spills responsible for spills on land. Because of at sea and, if the spill does come ashore, the this division of responsibility, the City has local government may not have the needed two plans related to oil spills: the "Civil equipment for effective clean-up and may Defense/Emergency Services Plan" for have to wait for assistance from the Coast Community Services and an "Incident. Guard. Command System - Operational Guide" for the Fire Department. County Plan: The County of Orange has developed a Hazardous Material Response The Community Services' "Emergency Plan for oil and toxic chemical spills. The Services Plan" is compiled from various plan is intended to be a planning guide based operational plans for different emergency on the mutual aid concept, (that is, situations. O-Plan 16, "Major Oil Spills" providing the affected local jurisdiction outlines assignments, defines different with additional support from higher levels of categories of spills and establishes operating government and other municipalities as instructions for other departments within needed or requested). According to the the City, should they become involved. The plan, the spill is the responsibility of the Director of Community Services . is affected jurisdiction, and the local fire designated as the Incident Officer who department is assumed to be the lead oversees the entire incident within the agency in controlling the incident. City. He or she is responsible for assigning actions based on the situation and on If the fire department determines that the information provided by the Coast Guard, situation is beyond its scope and which is recognized as the coordinating capabilities, county support and resources agency for all offshore spills. will be requested. When the situation is beyond the scope of both the city and Spill situations are evaluated, to determine county, State and federal assistance will be which of the following responses are most requested. However, control will be appropriate: 1) to correct or eliminate the maintained by the jurisdiction where the cause of the spill, 2) to divert and/or incident occurred. minimize the effects of the spill and 3) to begin recovery operations. The term "control" is not defined in the county plan but it appears to mean "lead A simplified staff organizational chart is agency". Consequently, the county plan shown in Figure 2.2 which highlights the contrasts with the State and national plans responsibilities within the Department and which recognize either the EPA or Coast outside agencies notified in case of a spill. Guard as the lead agency for spill response. (Detailed operating instructions for other city departments are outlined in O-Plan 16 Spill Plans in Huntington Beach: The City's which is available upon request.) primary functions in case of a spill are to contain the spill, to ensure public safety and The Fire Department Incident Command to limit damage. The actual clean-up System (ICS) is a standardized system used process is usually undertaken by the for six emergency situations including all responsible party or a private firm. The hazardous materials spills. In conjunction City divides the responsibility of overseeing with the ICS, the department has an the containment and cleanup of oil and operation plan for Chemical/Hazardous hazardous spills between the Community Materials - Leaks and Spills (O-Plan 4). 10 City Administrator Dir ector I Deputy,Director ------------- ----------- I--------- Calif. Regional SC-PCO U.S. Calif. Dept. City of Huntington Water Quality or Coast Fish & Game Beach, Dept. of Control Board CCW Guard Civil Defense Harbor and Ocean Beach Communication Oil Field Coordinator Coordinator Coordinator Inspector Boat Lifeguard Personnel Personnel ------ lines of communication lines of authority Fi gure 2.2 Community Services organizational Chart Source: Department of Community Services City of Huntington Beach O-Plan 4 provides a formalized check sheet Cost Recovery: The spiller, if known, is for procedures to minimize adverse impacts financially responsible for containment and from leaks or spills of chemical or clean-up of spills. If the spiller is not known hazardous materials, including oil. or does not respond quickly enough, the City will begin containment of the spill. In such .Although the department informs other casesp the responsible party is billed later agencies of a spill, it generally operates for the City's. time and services. To date, independently from the county, state and establishing responsibility for onshore spills federal agencies during the containment or collecting payments for City services has process. The Fire Department assumes not been a problem.8 responsibility for these kinds of emergency situations within the City as a part of their In order to be reimbursed through the day-to-day duties. If the Fire Department national revolving fund for services related cannot contain the spill, assistance is to containment and/or clean-up of an requested through the county's mutual aid onshore spill or an offshore spill that washes system. ashore, the municipality must notify the federal OSC of its request. Before monies may be drawn from the revolving fund, the OSC must determine that the following however, it is possible to apply the bond to conditions have been met: 1) oil has been any section of the Municipal Code, including discharged into U.S. waters or an adjoining spill prevention and clean-up. A problem shoreline, and 2) the responsible party has with surety bonds is that unless the operator been given legal notification of improper or agrees to the charges of wrongdoing, the inadequate action and has failed to City must sue the operator in Superior voluntarily conduct adequate clean-up Court to collect money from the surety action, or the spiller is unknown. company. This can be a lengthy process. Individuals who suffer dam.age to personal Alternatives to surety bonds which the City property and businesses losing earning may want to consider are caAbori& This capacity as a direct result of the spill may system would require operators of oil wells be eligible for compensation. Damages for to have an agreed upon sum of cash to which intangible losses, such as aesthetics, are the City would have access in case a restricted to real property owners whose violation in the Municipal Code were not property interests were physically harmed. corrected or eliminated. A major problem with cash bonds is that requiring large sums Requests or reimbursement must be of money to be held in escrow accounts may submitted to the OSC or SAC. Requests be too burdensome for small independent must be clearly and completely documented operators. By using surety -bonds these and directly related to costs incurred during operators arrange with bond companies to the clean-up operation. "insure" them for the required sum. If cash bonds were required, each operator would Following the Santa Barbara oil spill in have to put up that sum independently. 1969@ several lawsuits concerning reimbursement for loss of business earning 2.4 Industry Role capacity, damage to property, and intangible losses were filed. Some Although the focus of this discussion is on interesting findings resulted from these government spill contingency plans and on cases. Damages for recovery of economic the role of the local government in spill loss were limited to waterfront property emergencies, it should be recognized that directly affected by the spill; businesses the oil companies themselves have the most which had a decline attributable to the spill, significant role in spill prevention and but which were not physically affected by clean-up. The 11spiller,11 that is the private it, were not able to recover the loss of company which owns the facility from which profits. State and local governments were the accidental spill originates, is usually able to recover damages for loss of responsible for containment and clean-up, proprietary income, such as fees paid by and is liable for direct damages caused by park visitors, concessionaire and leasehold the spill. The federal government also income. However, the right of governments requires the operators of major oil handling to recover damages for marine environment facilities to have a Spill Prevention Control andtax revenue losses were contested.9 and Countermeasure (SPCC) plan if oil could be discharged into navigable waters or Bonds adjoining shorelines; (these are discussed again in section 4.0). The City of Huntington Beach requires a suretybond of $10,000 for each oil well These plans typically include information on within the City. The purpose of the bond is the types of oil handling facilities on-site, to secure the City against all costs, charges the kinds and amounts of fluids that might and expenses incurred if the oil company be spilled in an accident, containment does not fully comply with the Huntington equipment and procedures, and requirements Beach Municipal Code. for notifying public agencies involved in monitoring containment and clean-up To date, bonds have only been used f or safely plugging improperly abandoned wells; 12 operations. Many plans also require periodic 2.5 Conclusion drills to ensure that containment, clean-up and notification procedures are effective. In most cases, the responsible company will Some plans discuss the resource areas that contain and clean the spill. In additiong all might be affected by 'a spill and prescribe three levels of government may be involved, special protection measures for especially each having two or three agencies sensitive areas. representing the interest of a particular functional area (e.g., water, air, or marine All of the major oil companies in Huntington life). The location of the spill, amount Beach have SPCC plans. Aminoil's plan spilled, the potential danger and the covers their onshore lease areas as well as threatened resources will often be deciding their offshore platform. Chevron has a plan factors for determining which . agencies for their onshore production areas. Gulf has become involved. Most of the agencies do two plans, one for its offshore tanker not actually assist with clean-up activity, unloading terminal and one for its onshore rather they observe to ensure that the tank farm. Union and Shell also have SPCC interest they are responsible for overseeing plans for their offshore platf orms., is adequately protected. Southern California Edison stores and Municipalities have several options available transports considerable quantities of fuel to recover expenditures related to spills. oil. The Huntington Beach generating These include: 1) billing the responsible station site is broken into two major party, 2) using the national revolving fund components, the System Fuel Oil Facility if the OSC has determined that the and the Generating Station proper. SPCC requirements for tapping this fund have plans exist for both areas. The Edison been. met, and 3) attempting to collect on facility is discussed further in Section 4.0. surety bonds. In Huntington Beach, the City has billed the responsible party f or excessive costs related to containment and clean-up, a practice that has generally been effective in recovering such costs. 13 3.0 Offshore Spills Oil spills and leaks in offshore waters are 3. Marine mammals and fish usually avoid impossible to predict. The cause of a spill is the spill, and therefore are not severely not always known, especially with the affected. Increased hydrocarbon smaller spills of one or two bar Jrels. Sources concentrations in fish food chains may of spills include equipment failure, oil and affect some species; the eggs and larva gas well blowouts, tanker operations, of fish tend to be killed. The extent of pipeline leaks, accidents caused by human adverse effects on plankton and error and by natural phenomena such as invertebrates is not clear. However, earthquakes and. storms. these impacts tend to be short term and localized. Oil spills can adversely affect several important resources. The following briefly 4. Birds, for the most part, will avoid describes the principal impacts which could spills. However, certain species which occur in Huntington Beach. normally catch fish by swimming or diving into the ocean are particularly 1. Air quality is affected when susceptible. These include grebes, hydrocarbons evaporate f rom the loans, cormorants, and alcids. Their surface of the spill. This impact tends feathers can be coated with oil which to be short term, disappearing when the impedes their swimming and flying oil sinks or is cleaned up. ability. Birds may also be poisoned when attempting to clean the oil from 2. Water quality is degraded when their feathers. hydrocarbons float on the surface and the oil mixes through the water, usually a short term impact., 15 .5. Habitat areas used by b.irds and other wildlife could be affected. Their food may be contaminated by the spill and breeding habitats disturbed by the noise from equipment used to contain and clean the spill. These impacts could be long term. DOMINANT 6. Beaches would be affected in two WIND OR' ways: 1) recreation activities may be CURRENT curtailed and 2) intertidal sand habitat for crabs, clams, and worms may be damaged. These impacts would generally be short term. Several documents discuss these impacts in detail and should be referred to for further information.10 3.1 Spill Clean-up and Containment Containment and Clean-up Methods: The method used to contain and clean-up offshore spills will depend on several variables such as: 1) location, size and BOOM source of the spill, 2) weather conditions, and 3) currentsand tides. The f irst priority is to contain the spill or Figure 3.1 Boom Placement During mitigate its effects at sea. The techi@jques an Oil Spill commonly employed are boomingt skimming and, occasionally, the use of chemical Source: Huntington Beach Planning dispersants. A boom is a floating barrier, extending both above and below the water surface, wbich corrals and confines the spill (see Figure 3.1). Booms perform most effectively when the wind and ocean are to be removed from the water. These calm. Choppy waters and strong winds tend skimmers employ a disc, drum or continuous to push portions of the oil slick over the belt and are less susceptible to wave action boom barrier, reducing its effectiveness. than the weir and suction types. However, they are generally more expensive, harder Skimming is a process of recovering spilled to obtain and rejiu ire highly trained oil from the water once it has been personnel to operate. contained. There are three general types of skimmers: 1) Weir skimmers that depend on In some cases, chemical dispersants are used gravity to drain oil off the water surface to slow the movement of the oil and to into a sump below the surface; these are reduce its volatility or toxicity. Dispersants simple to use and extremely mobile, but break down the oil so it can mix vertically the ir efficiency decreases in choppy through the water column, thus decreasing waters. 2) Floating suction skimmers which its toxicity and mobility. Because of the employ a suction pump as opposed to controversy concerning the effects of gravity; these are adjustable and can be dispersants, California and federal calibrated to operate - just at the water/oil authorities have adopted regulations interface. Again, their effectiveness is restricting, but not prohibiting, their reduced in choppy waters. 3) Sorbent use.12 Approval is required from the 3*1 Boom P lacement During an 0 il Sp i 11 H@ntlngton Beac h P1 anning surface skimmers, which provide a surface California Department of Fish and Game to which the oil can adhere, allowing the oil and the EPA or Coast Guard before chemicals can be used. If the spill cannot be contained at sea, oil the arrival of specialized personnel and may drift toward the shore. In these equipment, and can assist responsible circumstances diversion boominc -- that is, parties involved in the clean-up operation, 9 using booms to divert the oil to a section of even in the case of a major spill. the shoreline where damage is minimal and access for clean-up is good -- may be In the event of an oil spill, City equipment employed. Generally speaking, it is normally used for day-to-day operations in preferable to divert the spill to a sandy Fire, Police, Community Services, and beach with good access, while avoiding Public Works Departments will be made rocky areas, wetlands, and areas that lack available upon request. Equipment includes: access for clean-up equipment and workers. Section 3.2 discusses the areas in - a fleet of cars, pickups, vans, jeeps and Huntington Beach where spilled oil should trucks not be landed if at all possible., as well as - tractors, trailers, caterpillers, and those areas where adverse impacts can be vacuum sweepers minimized and clean-up can be performed - police mobile command unit bus and more easily. helicopter - rakes and discs used for discing oil on If the spill lands on shore, discing, plowing sandy beaches and turning over the oily sand may be performed. The oil may also be removed by Co-Op Equipment Resources absorbents and adsorbents. Absorbent materials soak up oil while adsorbents The National Plan requires the party provide surfaces for the sticky oil to cling responsible for the oil spill to undertake the to,. allowing subsequent removal. Straw, clean-up operation under the supervision of foamed plastics, cotton waste, talc and the U.S. Coast Guard. Oil companies are dried volcanic rock are often used to help required by federal regulation to have clean up oil from the shoreline.13 These booms and skimmers available at offshore materials reduce the amount of oil in the drilling sites and platforms with the sand and assist with the discing technique. capability to contain small (less than 238 After a large spill, however, discing is barrels) and medium (less than 2,381 barrels) usually ineffective and the sand may have to size spills. For any spill beyond the be removed. This method is therefore used capacity of on-site containment equipment, primarily for small spills. oil company cooperatives have been established to clean-up major spills. In Huntington Beach, the affected beach area is not closed to the public after a spill Thirteen West Coast cooperatives have been unless there is a high concentration of oil, established to prevent, contain, and clean or unless heavy equipment poses a hazard to spilled oil. Clean Coastal Waters (CCW) and public safety. In most cases the Community the Southern California Petroleum Services Department uses mobile units to Contingency Organization (SC-PCO) are the inform beach patrons of the spill, advising cooperatives for the Los Angeles-Orange them to avoid the impacted area until County shorelines. Members of the co-ops clean-up is completed. generally include offshore producers and other potential spillers. They pay an annual Local Equipment Resources fee based on their level of offshore activity. The funds am. used to purchase The City of Huntington Beach has specific specialty equipment not expected to be equipment that could be used in the event of owned by individual member companies and a minor offshore oil spill that washes to train industry personnel to use the onshore. Although it does not have the equipment. In the event of a spill, the equipment or manpower to conduct a major cooperative will deliver any equipment clean-up operation, the City can provide requested. initial containment and protection prior to 17 The equipment is also available to Bolsa Bay/Bolsa Chica Ecological non-member companies upon request from Reserve the Coast Guard, and a fee is charged to the - Beaches within Huntington Beach and non-member company. the Municipal Pier - Southern California Edison Cooling The available offshore equipment includes Water Intake System (offshore) boats, booms, che mical dispersants, aircraft, skimmers and other vessels. Santa Ana River Estuary Disposal Sites The Santa Ana River empties into the ocean between Huntington Beach and Newport The disposal of recovered oil and Beach. A flood control channel also oil-contaminated materials can pose discharges into the ocean, parallel to the immediate and long range problems. Santa Ana River. A lowland, marsh-like Occasionally, oil/water mixtures can be area extends upstream along the flood separated in treatment tanks at local oil control channel. A debate has ensued over production facilities and the recovered oil whether or not this area is a functional sent to a refinery. wetland. Further study and a f inal determination by the Coastal Commission In most cases, however, the disposal of oil may be necessary. and contaminated debris is more complicated. Legal requirements for Marshes and wetlands provide both disposal are established by the California economic and environmental benefits. They Regional Water Quality Control Board. Oil provide shelter and food for migratory birds contaminated wastes cannot be burned, but as well as nesting and habitat for residential must be buried safely on land in Class I species. Some lowlands and estuaries. are disposal sites. breeding grounds for commercial fish and invertebrates. Wetlands may also protect According to the Board, Orange County does against flooding to some extent by trapping not have a Class I site which would be excess storm waters and thereby recharging impermeable to stored oil. The nearest the groundwater table. suitable landfill is in West Covina, approximately 50 miles from Huntington The dominant vegetation in the lowlands .Beach. The lack of suitable disposal sites near the Santa Ana River is pickleweed, may be a very serious impediment to although other plant species are present. effective oil spill clean-up in this area. Portions of the lowlands are used for nesting by the Belding's Savannah Sparrow, an 3.2 Sensitive Areas: Huntington Beach endangered species. This lowland area does not have direct tidal flushing, and this limits Many resources can be affected by offshore its biological productivity. However, spills. Although the entire coastline is improvement measures could be taken to susceptible to oil spill damage, certain areas increase productivity. The river mouth are more susceptible and sensitive to itself is the feeding area for, the California damage because of environmental impacts, Least Tern, also an endangered species. economic and recreational disruption, or difficulty with clean-up operations. Protection of the Santa Ana River and flood control channel are a high priority. This section discusses the following areas Booming will be the most effective method which may be impacted by offshore oil spills of protection. Separate booms will be in Huntington Beach. needed for the river and the flood control channel. Placement of the boom will be - Santa Ana River Estuary inland of Pacific Coast Highway because - Anaheim,Bay/Huntington Harbour wave action near the ocean entrance will 18 reduce the effectiveness of the booms. The Reserve is valuable because it provides Vehicle access is available on service roads 1) breeding and "nursery" areas for marine (see Figure 3.2). If clean-up is necessary, species with commercial and recreational low pressure water flushing is value, 2) habitat for various wildlife recommended.14 species, including rare and endangered species, 3) natural flood control, and 4) Small boat access is possible from the aesthetic amenities. The protection of shorelines of Huntington State Beach or scarce ecosystems is recognized in the Newport Beach. California Coastal Act as an important greater-than-local goal. At this time, the Anaheim Bay/Huntington Harbour/Bolsa Reserve is not likely to be affected by an Bay/Bolsa Chica Ecological Reserve of fshore spill because of its distance from an ocean entrance. However, the County of Anaheim Bay lies just northwest of Orange Local Coastal Plan (LCP) has Huntington Beach (see Figure 3.3). proposed a channel which.would open the Channels from the Bay connect the Seal Reserve to the ocean waters. If this plan Beach Wildlife Preserve, Sunset Aquatic were pursued, the Reserve would be much Park and Huntington Harbour. Huntington more susceptible to offshore spills and Harbour is an 860-acre residential would warrant the highest priority of development oriented around a network of protection. manmade water channels. It is adjacent to the Seal Beach Wildlife Refuge and Bolsa If the oil cannot be completely contained by Bay. Protection of this area is a high the primary boom located,at the entrance to priority. Anaheim Bay, clean-up may be necessary in other sections of the bays and channels. The entrance to Anaheim Bay is always Booms and skimmers may be used to collect open; therefore, its protection should be a oil spreading into Anaheim Bay and high priority. Boom placement across the Huntington Harbour. Many clean-up channel can serve as the! primary techniques in the marshes themselves may containment measure; see Figure 3.3. be more environmentally detrimental than However, secondary booms may be needed the oil itself due to destruction of wildlife at the entrances to Huntington Harbour and habitat by mowing and trampling. Low Seal Beach Wildlife Refuge if the oil is not pressure water flushing with small boats fully contained by the first boom. may be an acceptable, if not highly effective, technique for removing some of The north bank can be reached by an the oil entering the marsh.15 unnamed , road into the Naval Weapons Station via Seal Beach Boulevard, south of Beaches Pacific Coast Highway. The south bank may be reached by Pacific Coast Highway. Each The City's shoreline stretches over nine approach requires passage through a gate miles, encompassing approximately 380 controlled by the Navy, and allows ample acres of beaches. Sandy areas are used year room f or storage of equipment and round for swimming, sunning, fishing, supplies.15 surfing, clamming and camping. A major spill reaching the shoreline would disrupt Bolsa Bay, located southwest of Huntington these numerous recreational activities. Harbour, is connected to Anaheim Bay by a Spill containment and clean-up strategies narrow channel. Within the bay is Bolsa are explained in Table 3.1. The following Chica Ecological Reserve which consists of section describes the beaches within 563 acres adjacent to the City's coastal Huntington Beach beginning with the north zone, inland from Bolsa Chica State Beach. end of the City (see Figure 3.4) and Sections of the marsh have been reflooded discusses a priority for protection in case an in an effort to restore the wetlands habitat. offshore spill must be diverted to the shoreline. 19 4J (D @4 ra 0 r-4 0 0 0 0 00 0 -SI C, .:Edison Plant Li ............. .............. :@*i:@:i:@:i:!:ie.,::,.:.i:i:i,:,!:.*,:@:i,:i,@:j.@l:le ....................... ....... ........ .... ....................... Xdlx. ................ ... ........ ....... flood control channel -"x Zl@ftft ij ............ 4 xxxx-2., 0 service ....... 4s, CO road ..................... *IXI . . ....... ..... *jx. .................... *:*K: qCb service ....................... ............ ......................... road ........ . .............. .......... . ........ I -IN -1. . ......... ................ ......... .. ......... jj- ........... ........ :::::::K*K'X::':: Newport . . .................... ............ Beach ................. *.R. ........... x..... -21, NX, .. ...... 'Y'X - --- --------- X.N.N. ............ . ...... ------- -- - ----- :X:X;I -x- ............. .. ... Figure 3.2 Santa Ana River Boom Placement Source: Huntington Beach Planning Division huntington beach planning division 20 ... ....... H U@A GTON i:ii HARBOUR T AQUATIC IN h PACIFIC COAST ............... HIGHWA ........... ...... ... .... ............ 41@ ...... tONOLSA SAY .............., ......... ..................... .... .. ........ ......... ............. BA NSET BEACH ............. ...... .......... ............. ......... ... ............. ............ . .......... Figw@v. 3.3 Anaheim Bay Boom Placement Sourcvt Southern California-Petroleum Contingency organization huntington beach planning division to TABLE 3.1 ALTERNATIVES IN OIL SPILL CONTAINMENT AND CLEANUP WITH-DIFFERENT BEACHES PROTECTIVE STRATEGY BEACH FIRST SECOND THIRD FOURTH FIFTH CRITERIA FOR COMPLE- TYPE PREFERENCE PREFERENCE PREFERENCE PREFERENCE PREFERENCE TION OF CLEANUP Rock Face Prevent strand- Disperse off- Mop up stran- Displace by high pres- Permit Remove gross con- ing. Contain shore before ded oil with sure (1000 lb/in2) natural tamination (resi- and skim or stranding absorbent pads cold water; start at weather- dual stain per- contain and di- or materials low tide and work up ing and missible) vert to sand as tide floods; mop dispersal beaches at strand line as tide recedes Sand Prevent strand- Disperse off- Rake up Bury by disc or Permit Remove all visually ing. Contain shore before stranded oil suitable tech- natural evident traces of and skim or stranding or capture nique to cover oiled weather- sand on beach or contain and di- with pads sand ing and bury to prevent vert to sand dispersal exposure beaches Wetlands, Prevent entry If oil enters Only in extra- Cleanup where pos- Bays, Estu- with booms or these areas, ordinary cir- sible and not dis- aries by containment it may be con- cumstances would ruptive of natural tained and burial be resources stranded on considered the most ap- propriate beach Acceptable cleanup of spilled oil will result in a gradation from visually evident residual contamination to no apparent contamination. Every effort must be made to keep oil from stranding on rocky areas and to quickly clean it from sandy areas. Birds contaminated with oil must be isolated, boxed, and transported to cleanup and rehabilitation facilities, e.g. Marineland, Department of Fish and Game, Municipal or County Animal Shelter, the Orange County and Los.Angeles Zoos. SOURCE: County of Los Angeles, Oil Spill Contingency Plan W FADDEN \< , BOLSA CHICA STATE BEACH BLUFF ROCK FAC MUNICIPAL PIER HUNTINGTON CITY BEACH HUNTINGTON STATE BEACH SANTA ANA RIVER Figure 3.4 Beaches Within Huntington Beach Source: Huntington Beach Planning Division lop hunfington beach planning division Z3 Bolsa Chica State Beach includes six miles nearby could disrupt the nesting behavior of of shoreline between Warner Avenue and the this endangered species. Diversion booming Municipal Pier. Approximately three miles should be used to keep the oil as far away as are developed with recreation facilities and possible from the preserve. If a spill were further development is planned. The beach to land in this area during the nesting experiences heavy . recreational use ..season, adverse effects of clean-up activity throughout the year. Entrance to the State on the nesting birds should be assessed prior Beach is from Pacific Coast Highway. to permitting such activity. Vehicle access is available along a road inside the State Beach;, the beach itself Both State Beaches and the City beach can connects with Sunset Beach and access is be used, if necessary, to launch small boats afforded via the sand. Further vehicle for spill containment. access is possible from Pacific Coast Highway (see Figure 3.5.). Southern California Edison Cooling Water Intake Syste Within the State Beach beginning at Goldenwest Street and extending The Southern California Edison generating approximately one mile north, steep bluffs plant collects ocean water for cooling rise above a narrow sandy beach. During purposes through a pipe which extends the high tide, water washes against the approximately 1.3 miles offshore, twenty bluffs which would limit access for clean-up feet below the surface. equipment. Cleaning a rock face is much more difficult than a sandy shoreline. For The ocean water remains in the pipe through these reasons, the rocky areas should be the entire cooling process, and does not mix avoided in case of an oil spill. with the plant's own water. The purpose of the ocean water is to cool vapors and Huntington City Beach includes condense them back to a liquid. The cooling approximately one mile of sandy shoreline water is used once and then returned to the between the Municipal Pier and Beach ocean. Boulevard. Recreational intensity and economic activity are high and warrant The City has discussed with the Edison priority protection measures. The municipal Company the possibility that oil spilled pier is located on this beach. The area offshore might be drawn into the cooling immediately surrounding the pier is heavily system, fouling the mechanisms and forcing used for recreational purposes, such as closure of the plant. Edison officials agreed swimming, surfing and fishing. Due to the that a potential problem exists. They have large amount of recreational use and the explained that if the quantity of oil difficulty of cleaning the pilings, the pier entrained is small, no immediate effects should be especially protected in case of a may be noticed. However, continuous spill. exposure to oil would foul the heat exchange and associated equipment, requiring partial Huntington State Beach encompasses the or total shutdown of the generating station two mile area between Beach Boulevard and to perform clean-up activities. the Santa Ana River. Vehicle access is possible along a road inside the State Beach, Conclusion entered at the intersection of Pacific Coast Highway and Beach Boulevard. If an offshore oil spill which cannot be contained at sea threatens an area which is This beach includes a five-acre California sensitive or difficult to clean, diversion Least Tern nesting preserve adjacent to the booming, if possible, should be used to river. The sensitivity of the nesting direct, the spill to another shoreline preserve warrants a high priority location. In most circumstances, the oil protection. Even if the oil does not directly slick will do the least damage if it lands at a reach the nesting area, the clean-up activity sandy beach with good vehicle access. 24 A. a parking lot for Sunselt Beach, but access is available to Bolsa Chica State Beach via the sand B. a traffic signal for the entrance of Bolsa Chica State Beach7 a road extends along the length of the beach and parking is available C. the sand extends to Coast Highway; access is possible to the bluffs at low tide D. a service road extends to the sand until 21st Street E. a service road extends to the sand; close to the pier F. parking lots to the north and south; vehicle access available at the south lot '4" G. a parking lot with access to the sand WARNER A 0 H., entrance to Huntington State Beach7 a road extends to the south along the length of the beach; parking is available 0 1. two wide gates can be opened to the % I B road inside the State Beach7 close to the Santa Ana River. In October 1982, t, it is scheduled to be opened as one of the State Beach entrances C J. scheduled to be a State Beach entrance in October 1983 4: K. scheduled to be a State Beach entrance in October 1982 () C*1 E-4 V el A 1 0 1;* *1Y C? z C, J- 411 Figure 3.5 Vehicular Access Points to Beach Source: Huntington Beach Planning Division hunting-ton beach planning division 25 The highest priority for protection should be the municipal pier because of its high given to the Least Tern nesting preserve and recreation use and the rocky bluffs because estuaries because of their wildlife habitat of the difficulty with their clean-up. value. Next in priority for protection are 26 4.0'-Onshore Spills Onshore spills include all spills and leaks an In the event of an oil spill, human safety land. There am numerous facilities in takes precedence over all other concerns. If Huntington Beach which store, transport and needed, the City's evacuation plan will be process oil and related fluids. Accidents, implemented through the Fire Department - human error and equipment or material Civil Defense. Rapid and effective failures can result in spills from these containment of the spill and subsequent facilities. Approximately three such spills clean-up is the best way of protecting public or leaks are reported in Huntington Beach safety. each year. Most of these are very small, amounting to less than a barrel. Oil that threatens a sensitive area may have to.be diverted before it is contained and 4.1 Spill Containment and Clean-up cleaned up. A spill may be diverted down a side street or into a ditch by constructing a An onshore oil spill in urbanized areas street diversion barrier (see Figure 4.1). presents a potential hazard to hum an When selecting a diversion area, ease of safety. Prior to initiating control, recovering the oil and the comparative protection, or containment actions in an safety of the area must be considered. urbanized area, the following factors must Diversion areas may be flooded with water be considered: for two reasons: 1) it may be possible to skim the oil floating on the water, and 2) thepresenceof volatile hydrocarbons water may result in less oil actually the potential hazard a spill presents to contacting the street surface, making individuals and their safety clean-up easier. Also, where there is no the potential sources of oil ignition pavement the amount of oil reaching such as running automobiles, pilot. subsurface soil layers will be reduced, lights, and sparks. thereby minimizing groundwater contan-tination. 27 oil ... ........ din Wool Figure 4.1 Typical Street Dam Source: Huntington Beach Planning Division 4.2 Tank Farms The Gulf Oil Company operates a marine terminal (an oil tanker unloading f acility) There are two major tank farms in or near off the shore of the City. Oil unloaded the City's coastal zone, each of which store there is transported by pipeline to a tank hundreds of thousands of barrels of oil. farm north of Hamilton Avenue and west of They are located adjacent to vacant Newland Street where it is temporarily lowlands, flood control channels and stored until it can be piped to Gulf's residential areas. Spills. or leaks at these refinery in Santa Fe Springs. The tank farm tank f arms are rare, and no major spill has consists of three large tanks, each holding occurred. However, because large amounts 164,000 barrels of oil, and five smaller tanks of oil are stored, so near valuable coastal with capacities ranging from 10,000 to resources, the possible impacts from tank 53,000 barrels. This facility is not located farm spills and related accidents warrant within the coastal zone, but is situated on detailed analysis. the coastal zone boundary. The Southern California Edison Company Although there has not been a major spill at operates a power plant in the coastal zone the Huntington Beach tank farms, there are near Newland and Magnolia Streets. Several rare events which could result in a serious large storage tanks hold the fuel oil used in spill: major. earthquake, violent storms9 the boilers of the power plant. Four fuel oil f loods, and liquefaction. tanks, each with a capacity of 230,000 barrels, a jet fuel tank (used for certain Severe seismic activity could 1) "slosh" the turbine units) with a capacity of 21,225 liquids in a tank so that the roof is damaged barrels, and an ammonia tank (used for and the materials spill out, 2) stretch or pollution control devices) containing 14,650 strain tank materials, perhaps shearing gallons, are located immediately adjacent to bolts, 3) shear pipelines or, 4) collapse the power plant. East of the flood control structures. This type of damage has channel are three larger tanks holding fuel occurred in past California earthquakes, oil, each with a capacity of over 500,000 sometimes resulting in spills or leaks. barrels. All of these tanks are in the coastal zone. 28 arms are The Huntington Beach tank f, Fortunately, construction crews working on located near active faults, as is the entire the channel downstream from the tank farm C ity. Although no earthquake induced were notified, and the gasoline was accidents have been recorded at these contained before further damage could facilities, the potential exists. result. Both of the City's tank farms are located in It should be noted that both the crude and low-lying areas which are considered to be the fuel oils stored at the tank farms within susceptible to flooding. Although it is very Huntington Beach are much less volatile and unlikely, severe flooding could damage these flammable and are more viscous than f acilities. gasoline. Spilled oil will not flow quickly unless it is set afire, thus reducing the These tank farms are also sited in areas hazard that could result from an accidential with known liquef action potential. spill. Because of the potential seriousness Liquefaction refers to the collapse of of one of these types of rare accidents, unconsolidated soils causing surface however, areas adjacent to the tank farms depressions. Clearly, structures an the were reviewed to determine what protection collapsing surface could be damaged, and is available to them in case of an accident. this could result in spills. Adjacent Areas Dike Systems Both tank farms are situated within the If an unusual event did lead to a major spill, flood plain of the Santa Ana River, land that nearby areas would most likely be protected was once an extensive salt water marsh. by dike systems wbich surround both tank (See Figure 4.2). As discussed earlier, large farms. These dikes range in height from expanses of the vacant lowlands adjacent to four to 10 feet and are generally made of these sites may be viable wetlands. These mounded and compacted soil. A dike areas support several wildlife species, surrounding a tank or tanks containing crude including the endangered California Least petroleum with boil-over characteristics Tern and the Belding's Savanna Sparrow. must be able to contain 100 percent of the County flood control channels run between contents. For all other tanks, the dike must the tank farms and through the lowlands to be able to contain 100 percent of the largest the Santa Ana River, from just above its tank and the volume of the smaller tanks mouth to the ocean. These channels and the below the height of the diked area.16 river are important feeding and nesting areas for water bird species. The edges of A concern raised in the preparation of the these channels are surrounded by dikes Local Coastal Plan was that an unusual several feet high. Although the primary event wfiich damaged a large tank would purpose of these dikes is to contain have the potential of breaking the dike floodwaters in the channel, they would also system as well. This type of spill potential act as barriers to any spilled oil. Thus, even can be illustrated in the case of a tank farm if a major spill and damage to the tank farm accident in Rialto. A pump hose system were to occur, the oil would malfunction at this tank farm erroneously probably not enter the waterway because of transferred gasoline into a storage tank that the dikes surround ing the channels. was already full. As a result, 90,000 gallons Similarly, the lowlands an the oceanside of of gasoline overflowed into the holding area the f lood control channel would be surrounded by a dike. Subsidence and protected from spills from the Gulf and erosion from recent rains had weakened the Edison facilities. Fuel oil escaping from the base of the dike, wohich in turn collapsed older tanks at the Edison plant, however, from the weight and volume of the spill. could conceivably reach the lowlands south Fires ignited as the gasoline flowed freely of Newland and west of Magnolia. .into a nearby flood control channel. 29 U-) C> LIEGEND GOASTALIALT UAW COASTAL 2"T FLAT FAMMANtACKMINATIM WFAMAN AMU CrANDING WAT90 AND nOOD awr"OL DIKU WISTORADIA IL 0 WNW HAVIR FILM AIMM CLIAMW On ANW*wvft TwO T am@ COASTAL 79 1 BOUNDARY CAUF. LEAIT TERM E-ACRE 10 L NML AIQCTUARY ,10 -R AP CF.* MEACm CF-R sure CF-F? PeNCED NUT Figure 4.2 Environmentally Sensitive Habitats as Depicted by the Department of Fish and Game Source: City of Huntington Beach, Coastal Element huntington beach planning division Damage to lowlands from spilled oil can be 100 feet of the dikes. In both cases, the catastrophic. Clean-up is very difficult potentially vulnerable areas are downslope because of the moist soils and sensitive from the tanks and dike systems, with the vegetation. Afterward, the habktats may be containment dikes acting as the only barrier seriously, if not permanently, harmed. Fuel in case of a major spill. In the case of the oil is generally more toxic and damaging residences, however, the spilled oil would then crude oil to the species inhabiting have to cross an open field and a street wetlands. before reaching them. Thus, there would be opportunities to contain a spill before the As discussed earlier, a study conducted as oil reached structures. part of the Local Coastal Program suggested that the biological and aesthetic Storm Drains and Sanitary Sewers potential of these lowlands might be improved if active tidal flushing were If at all possible, spills should not enter restored. Flushing would most likely be Storm drains or sanitary sewers. In a accomplished by opening culverts or pipes confined sewer, explosive concentrations of from the flood control channels to the hydrocarbons may be ignited and flash back lowlands. Brackish water would then flow in along the sewer line. Also, in most sewage and out of the low-lying land with the ebb treatment plants, oil can severely disrupt and flow of the tide. If this improvement the process by clogging the system or killing were undertaken, the channel and the the bacteria used in the treatment plant. lowlands would be much more susceptible to oil spills than they are now because the If a spill enters a storm drain, it may not be culverts or pipes would provide a conduit for possible to prevent the spill from entering the oil to reach these areas. In that case, the ocean. There are no shut-off valves all the lowland areas and the mouth of the within the storm drains, and if water is Santa Ana River could be seriously impacted present within the drain, the spill will be by a major spill. Any plans to restore tidal carried out to the ocean. For this reason, it flushing should include consideration of a is important to protect the openings to valve system by which culverts or pipes storm drains in the area where the spill could be closed off in the case of a major occurs. spill with damage to the tank farm dike system. Company Oil Spill Contingency Plans Some industrial and residential areas may The FWPCA requires operators of oil also be vulnerable in an uncontrolled spill. storage or processing facilities to prepare a The residential area northeast of the Gulf Spill Prevention Control and tank farm is very close to the dike wall, but Countermeasure (SPCC) Plan if a spill could is separated from the dike by a six-foot conceivably reach a waterway and if the masonry. wall. This barrier -would help aggregate capacity of the facility is over protect the nearby houses even if the dike 1,320. gallons or if any tank holds 660 gallons system failed. Similarly, it is u-ilikely that or more (this applies only to facilities with leaks from the dikes around the newer unburied tanks). The purpose of the plan is Edison tanks would reach any homes, due to to ensure that personnel respond quickly and the nature of surrounding uses and effectively during a spill. The SPCC plan topography. must include an inventory of potential spill sources, estimates of the anticipated Between the flood control channel and quantities which could spill from each Edison Avenue immediately northwest of source, probable direction of f low, Edison tank farm are mixed industrial uses. containment systems and equipment Immediately adjacent to the northeast inspection procedures. corner of Gulf's tank farm is another residential area, with houses located within Presently, oil spill plans for tank f arms recognize the usb of a dike system for 31 containment, but they do not explicitly and the location of access points and on-site acknowledge the importance of protecting fire-fighting equipment. The Fire land uses in susceptible adjacent areas. All Department requires these facilities to spill plans should include specific procedures meet minimum standards for building for protecting these areas in the case of a materials, dike system capacities, access threatening spill. provisions, and the presence of on-site hoses, hydrants and other fire prevention A considerable amount of controversy exists and containment equipment. over whether the lowlands adjacent to the tank farms are potential wetlands. The Evacuation Plans California Coastal Commission may be required to make the final determination on Even if a major spill were contained in the whether or not these lowlands are able to dike systems, nearby areas could be support a productive wetland habitat. seriously threatened if the oil were to ignite or explode. The heat and burning debris If the lowlands are found to be wetlands, the could threaten life and set nearby structures City should petition the EPA to require tank on fire. The smoke and fumes could cause farm facilities to prepare SPCC plans that serious property damage and would certainly include the following provisions: be a - health hazard. A tank farm fire in Torrance in December 1979 killed three A written commitment to expedite people, including one person driving in a car containment and clean-up of any oil near the conflagration. The fire raged for discharged. two days, forcing the evacuation of 300 nearby residences before the dangerous Recognition of adjacent areas that are situation was safely under control. especially sensitive to spill damage: 1) Santa Ana River mouth and flood Residences and public roads are just as close control channel; 2) the wetlands and to the tanks in Huntington Beach as they are res! den tial/industrial areas; and 3) in Torrance, although most of the storm and sanitary sewers. substances stored here, such as crude oil, are significantly less flammable. A topographical map outlining the direction oil would flow should a dike Clearly, a major concern if such an accident system fail. were to occur would be the evacuation of nearby residents. The City's Civil Defense A diversion system that would prevent Division, in cooperation with the Fire and oil or any harmful substance from Police Departments, has a general reaching the flood control channel, evacuation contingency plan which would be wetlands, or sewer lines in the event of employed if a fire or explosion threatened an uncontrolled spill. surrounding areas. Provision for detailed inspection of the The Planning Division consulted with the diked areas following heavy rains to Civil Defense Division -- which has assure impermeability of the dikes and expertise in emergency planning -- on to verify functional operation of runoff whether evacuation plans specific to the valves. tank farm sites should be developed. Their conclusion was that such plans would be no Fire Department Reviews more effective than the existing plan, which is sufficient to safely evacuate those areas. The City Fire Department reviews the site .plans for the tank farms which identify the types of substances stored in each tank 32 5.0 Conclusions and -Recommendations 5.1 Conclusions The dike systems around the tanks provide the primary source of protection should a Local governments have significant tank accident occur. Even if a dike system involvement with the containment and should f ail, nearby residential and clean-up of spills, particularly smaller commercial areas have additional protection onshore spills. Often, the Fire Department from masonry walls and topography. The will be the first agency to respond to the high viscosity and low flammability of most incident. Once the spiller is identified and of the liquids stored in the facilities reduces notified, the company usually assumes the hazard potential. Existing evacuation responsibility f or containment and plans were reviewed and found to be clean-up. But, if the spiller is not known, adequate in case of an emergency. the Fire Department may actually contain the spill and will determine if assistance 5.2 Recommendations from higher levels of government is needed. The City is continually working on ways to Existing oil spill plans in Huntington Beach improve the spill protection afforded its am generally adequate for spills which resources. The following recommendations occur onshore or wash ashore. The City is are based on the research and analysis prepared to respond to such spills and to conducted in this project. initiate . the containment process if necessary. If a spill remains at sea, the Communication should be improved responsible party or Coast Guard will among levels of government and assume responsibility as discussed in Section agencies involved in containing and 2.3. 33 cleaning a spill. The City should disposal sites for spilled oil and other support efforts to revise the State Spill hazardous substances as discussed in Plan to increase state-local Section 3.1. coordination in Spill emergency planning and, as much as possible, Protection priorities for offshore spills participate in such efforts. should be established an a regional basis since it is possible that a major spill Periodic drills for mock emergencies will affect more than one jurisdiction's should be included in the City's offshore shoreline. The priorities may include spill plan. diversion booming as discussed in Section 3.2, and preferred areas to land To date, a major spill has not washed the oil. ashore on a City beach. Periodic drills would ensure that the plan can be The City should petition EPA to require effectively carried out in the event of a SPCC plans for the tank farms near major spill. lowland areas and storm drains, especially if restoration programs in Industry and co-op spill contingency those lowlands are undertaken. plans should recognize the protection priority for diff erent shore line The City should restrict new resources discussed in Section 3.0. development near tank farms unless secondary barriers and other protective The Coastal Commission should be rheasures are incorporated, as requested to require that the State spill necessary. plan address the problem of inadequate 34 NOTES 1 Huntington Beach Planning Division, Coastal Energy Impact Program, 1980. 2 The actual process for notification may be different given the size and location of the spill. 3 EPA does not have the personnel to send a representative to the location of every inland spill in this area; (EPA's office is located in San Francisco). Thus, for spills under 10,000 gallons, EPA requests the Coast Guard to represent them as the first federal agency an scene. If the spill is over 10,000 gallons, or if it is small but severe, the EPA will usually send its own representative. 4 Marvin Waterstone, "Oil Spills: Legal and Technical Response", New Jersey Department of Energy, Coastal Energy Impact Program, 1981. 5 The regional response plan for this area is the U.S. Coast Guard's "Los Angeles, Long Beach Oil and Hazardous Pollution Contingency Plan". 6 Attorney General California Highway Patrol California National Guard Department of Conservation Department of Fish and Game Department of Health Department of Transportation Department of Parks and Recreation Department of Water Resources Department of Forestry Office of Emergency Services State Lands Division State Water Resources Control Board 7 Attorney General California Department of Forestry California Highway Patrol Calif ornia National Guard Department of Fish and Game Department of Health Department of Transportation Department of Parks and Recreation Department of Water Resources Division of Oil and Gas Office of Emergency Services Regional Water Quality Control Board State Lands Division Representatives of other governmental agencies as appropriate. Representatives of industry as appropriate. 35 Oral communication, Huntington Beach Fire Department. 9 State of California, Office of Planning and Research, Offshore Oil and Gas Development: Southern California, 1977 10 Coastal Energy Impact Program, op.cit. and Offshore Oil and Gas op.cit. Waterstone, op.cit. 12 Offshore Oil and Gas op.cit. 13 Waterstone, op.cit. 14 Southern California - Petroleum Contingency Organization, Response Measures for Selected Economic and Biologically Sensitive Areas. 15 Ibid. 16 As required, by the Huntington Beach Fire Code. 36 BIBLIOGRAPHY Coastal Energy Impact Progra City of Huntinton Beach Planning Division, 1980. Offshore Oil and Gas Development: Southern California, State of California, Office of Planning and Research, 1977. Oil Spill Contingency Plan, Department of Beaches, County of Los Angeles, 1979. Oil Spill Contingency Plan Stateof Calif ornia, 1977. Oil Spill Contingency Plan, Beta Unit Complex, San Pedro Bay, Shell Oil Company, 1980. Oil Spill Response Plan, California Regional Water Quality Control Board, Santa Ana Region, 1975. "Oil Spills: Legal and Technical Response", Marvin Waterstone, New Jersey Department of Energy, 1981. Region IX, Oil and Hazardous Substances Pollution Contingency Plan, United States Coast Guard. Response Measures for Selected Economic and Biologically Sensitive Areas Southern Calif ornia - Petroleum Contingency Organization. 37 DEPARTMENT OF DEVELOPMENT SERVICES Planning Division June W. Catalano, Deputy Director Project Director - Michael Multari, Associate Planner Principal Author Denise Garcia, Planning Intern Other Contributors Dan Gafney, Planning Intern H. Diane Border, Planner Hal Simmons, Assistant Planner Special Assistance Rick Grunbaum, Fire Prevention Specialist George Thyden, Civil Defense Word Processing Patti Schwartz, Word Processing Coordinator Deborah Espinoza, Word Processing Senior Sharon Hojo, Word Processing Specialist Deborah Pledger, Word Processing Senior Caren Winant, Word Processing Senior Graphics Michael Adams, Assistant Planner Denise Garcia, Planning Intern Robert Sigmon, Planning Draftsman CITY OF HUNTINGTON BEACH P.O. BOX 190 DEPARTMENT OF DEVELOPMENT SERVICES CALIFORNIA92648 BUILDING DIVISION (714) 53"241 PLANNING DIVISION (714) 536-6271 3 6668 14109 6257