Sakhalin oil development and countermeasures for prevention and combating oil spills in Japan

Worst-case scenarios for accidents involving the Sakhalin oil development have been examined and necessary countermeasures adopted at the national level for possible impacts on the environment and disaster prevention. However, it is still considered necessary to collect useful information, establish necessary institutional systems and organizations, implement studies and training and to actively work on reviews regarding each of these, while not being complacent that these countermeasures are sufficient and with a basic conviction that "large-scale oil spill accidents will inevitably occur."

1. Japan's oil spill countermeasures

In the recent history of disasters caused by oil spill accidents in Japan, the Nakhodka oil spill accident of January 1997 is worthy of special mention. The accident received considerable attention from the public at the time and had a great impact on the way subsequent oil spill accidents were responded to. It was an important issue for the then national government to identify problems in responding to this accident and to make efforts toward the prevention of a similar occurrence. As countermeasures thought necessary, the following were identified and those that could be adopted were:

• Promotion of port state control (PSC) and the provision of double hull tankers as countermeasures to prevent reoccurrences
• Establishment of a government system for quick responses, the provision of materials and equipment for the prevention and combating of oil spill and large oil recovery vessels for use on open seas
• Establishment of a system for efficient responses in cooperation with related countries and the implementation of joint training with the North-West Pacific Action Plan (NOWPAP) for the establishment of an international cooperative system for the prevention of marine pollution

2. Current status of countermeasures for the prevention and combating of oil spill from the oil development off the Sakhalin coast

With regard to the development of oil resources on the continental shelf off the Sakhalin coast of Russia, approximately nine projects are underway. Of these, the Sakhalin II Project began commercial production of crude oil in July 1999. Because no crude oil has ever been produced on a large scale near Japan, those related to fisheries and other industries in Hokkaido near the site of production are deeply concerned about domestic damage that might be caused if an oil spill accident occurs.
On the other hand, the operating body of the project, Sakhalin Energy Investment Company Ltd.(SEIC), formulated "an Oil Spill Contingency Plan" to respond to oil spill accidents that may occur near its facilities. Though the plan does not take into account oil spill accidents that may affect Japan, the Japanese government has been making efforts to deepen the relationship between related organizations and the project operator, to collect information and to take the following measures in preparation for accidents like the Nakhodka oil spill, in which stormy weather made response difficult.

• "A liaison conference with related ministries and agencies with regard to preparation for, and response to oil pollution incidents" that comprises related government organizations ("the liaison conference" hereafter) is to be held as the need arises.
• In the liaison conference held in February 2000, mutual agreement ("the agreement" hereafter) was obtained with regard to "related government organizations' concrete preparation for, and response to oil spill accidents in the production facilities of the Sakhalin II Oil Development Project." The agreement was subsequently revised.
• In May 2000, "countermeasures for oil spill accidents in the oil fields off the coast of Sakhalin" were added to "Regional Contingency Plan for oil spill in coastal waters near Hokkaido" in accordance with the law.
• Large equipment for collecting spilled oil was placed mainly in the First Regional Maritime Safety Headquarters by the end of 2000.
• In July 1996, a liaison was set up among the First Regional Maritime Safety Headquarters of the Japan Coast Guard, other Japanese government organizations, and State Marine Rescue Co-ordination Centre,Moscow.
• In 2001, joint training in preparation for a major accident of oil spill from facilities related to the Sakhalin oil fields was implemented, and cooperation for training will be continuously made in the future.

At present, a system is being established to provide information from SEIC to relevant government organizations and others on a step-by-step basis when oil is spilled from related facilities into the sea - even if only a single cup of oil is spilled.

3. Further development of the Sakhalin Project

As mentioned above, only the Sakhalin II project currently produces oil on a commercial basis. In the future, it is expected that both the Sakhalin I and II Projects will be developed further.
Of the activities related to crude oil development which are cause for concern, production is planned to start from the end of 2005 under the Sakhalin I Project, in which crude oil produced in the oil fields will be transported through pipelines across the northeastern part of Sakhalin to Dekastoly on the mainland, and then shipped by tanker from an oil export base. As for the Sakhalin II Project, which has so far only been producing crude oil during summer (phase 1), it is planned to start transporting crude oil produced in the oil fields through pipelines across Sakhalin Island, and ship it by tanker from an oil export base in Prigorodonoe in the southern part of the island in 2006 (phase 2).

4. Future countermeasures

The members of the liaison conference, including the relevant departments and agencies of the Japan Coast Guard, Cabinet Secretariat and the Agency for Natural Resources and Energy, have been endeavoring on a daily basis to obtain new information that is necessary to evaluate the impact on Japan in light of the developing conditions of the Sakhalin Project as mentioned in section 3. Because damage estimated by the project operator has not been finalized at the present time, and for other reasons, no agreement on how to respond to a situation caused by the new development of the projects in an emergency or in normal circumstances has been reached among related government organizations. However, in order to make the most reliable possible system for the prevention and combating of oil spill from facilities related to the Sakhalin Project, relevant organizations have been continuously collecting pertinent information in cooperation with each other, and an agreement on necessary countermeasures has been made among the relevant parties so that they can be promptly implemented.

5. Conclusion

Once a natural disaster or an accidental disaster occurs, its great impact on communities, the economy, and the environment draws attention, and countermeasures are immediately demanded. As the saying goes, "Great natural disasters occur when we have forgotten the last one," and we should never forget to prepare for disasters because "disasters will inevitably happen."
Fortunately, with regard to oil spill accidents, no major accident has occurred near Japan since the Nakhodka oil spill accident. However, we should again realize that oil spill accidents are an important issue in terms of risk management for Japan. Therefore, I believe that efforts should be made to collect necessary information, to establish necessary systems and organizations, to implement necessary training and to provide necessary equipment, and that each of these items should be actively reviewed without ever being satisfied that preparations are sufficient, as "largescale oil spill accidents will inevitably occur."
I also believe that the feelings of hopelessness experienced when shocking news is frequently reported in various parts of the world, such as people using a ladle to scoop up spilled oil or birds that have been caught up in spilled oil and are not able to move, are shared by all of humankind and that none of us want to witness such scenes ever again