OISD-GDN-168
FOR RESTRRICTED
CIRCULATION
EMERGENCY PREPAREDNESS PLAN FOR MARKETING LOCATIONS OF OIL INDUSTRY
OISD-GDN-168
FIRST EDITION, JULY,1997
OIL INDUSTRY SAFETY DIRECTORATE
Government of India
Ministry of Petroleum & Natural Gas
OISD GDN-168
First Edition
July, 1997
FOR RESTRRICTED
CIRCULATION
EMERGENCY PREPAREDNESS PLAN FOR MARKETING LOCATIONS OF OIL INDUSTRY
OISD-GDN-168
FIRST EDITION, JULY,1997
PREPARED BY
COMMITTEE ON EMERGENCY PREPAREDNESS PLAN
OIL INDUSTRY SAFETY DIRECTORATE
2ND FLOOR, “KAILASH”
26, KASTURBA GANDHI MARG,
NEW DELHI - 110 001
NOTE
OISD publications are prepared for use in the oil and gas industry under Ministry of Petroleum & Natural Gas. These are the property of Ministry of Petroleum & Natural Gas and shall not be reproduced or copied and loaned or exhibited to others without written consent from OISD.
Though every effort has been made to assure the accuracy and reliability of the data contained in this standard, OISD hereby expressly disclaims any liability or responsibility for loss or damage resulting from their use.
This standard is intended to supplement rather than replace the prevailing statutory requirements.
FOREWARD
The Oil Industry in India is more than 100 years old. Because of various collaboration agreements, a variety of international codes, standards and practices have been in vogue. Standardisation in design philosophies, operating and maintenance practices at a national level was hardly in existence. This coupled with feed back from some serious accidents that occurred in the recent past in India and abroad emphasized the need for the Industry to review the existing state of art in designing, operating and maintaining Oil and Gas Installations.
With this in view, the Ministry of Petroleum and Natural Gas in 1986 constituted a Safety Council assisted by an Oil Industry Safety Directorate (OISD) staffed from within the Industry in formulating and implementing a series of self regulatory measures and aimed at removing obsolescence, standardizing and updating the existing standards to ensure safer operations. Accordingly, OISD constituted a number of Functional Committees of Experts nominated from the Industry to draw up standards and guidelines on various subjects.
The present document, " Guidelines on Emergency Preparedness Plan" (EPP) for Terminals, LPG bottling plants, Gas Processing Plants, Installations, Depots and Aviation Stations within the Marketing Outfits of the Oil Industry was prepared by the Functional Committee to deal with Emergency Control Measures and Preparedness under Section 41 b(4) of the Factories Act, 1948(amended in 1987) and Rule 13 of Manufacture, Storage and Import of Hazardous Chemical Rules 1989 (Amended in 1994). This document is based on the accumulated knowledge and experience of Industry members and the various National and International practices.
When it comes to the Marketing Outfits, comparisons are odious and each location is a class by itself and each location will have to endeavour to put this document into practice duly taking into consideration the environment in which they are placed and perfect the Emergency Preparedness Plan by regular mock exercises.
It is hoped that the provisions of this document when adopted will go a long way to improve the alacrity of every location to handle unforeseen accidents in the Oil Industry. Users of these guidelines are cautioned that no standard can be a substitute for the people to go through and live through a Emergency Preparedness Plan in order to perfect the same for all situations. This standard in no way supersedes the statutory regulations of Controller of Explosives, Factories Act, 1948 (as amended in 1987) or Hazardous Chemicals Rules, 1989 (as amended in 1994) or any other statutory regulations by Central Government or State Government. Only one Emergency Preparedness Plan shall be prepared and if any other format is made available by State/Central Government authorities, the EPP shall be prepared in such format.
This document will be reviewed periodically for improvements based on the new experiences and better understanding. Suggestions from industry members may be addressed to :
The Member Coordinator
Emergency Preparedness Plan
OIL INDUSTRY SAFETY DIRECTORATE
2ND FLOOR, “KAILASH”
26, KASTURBA GANDHI MARG,
NEW DELHI - 110 001
LIST OF FUNCTIONAL COMMITTEE MEMBERS
SR.NO. NAMEORGANISATIONPOSITION IN
COMMITTEE
1. C.T.ANANTHAKRISHNAN IOCL(RETD.)LEADER
2. S.K.JAIN BPCLMEMBER
3. G.S.WANKHEDEBPCLALTERNATE
LEADER
4. B.BALANHPCLMEMBER
5. MVR KRISHNASWAMY HPCLALTERNATE
MEMBER
6. S.K.RAY BPCL(RETD)MEMBER
7. S.C.GUPTA BPCLALTERNATE
MEMBER
8. A.C.KELKARIOCLMEMBER
9. R.REHMANHPCLMEMBER
10. R.K.JAINGAILMEMBER
11. S.S.MUNDLEADDL.DIRECTORMEMBER
OISDCOORDINATOR
EMERGENCY PREPAREDNESS PLAN FOR MARKETING LOCATIONS OF OIL INDUSTRY
CONTENTS
1.0 INTRODUCTION
2.0 SCOPE
3.0 STATUTORY REQUIREMENT
3.1 FACTORIES ACT - (As amended in 1987 latest)
3.2 MANUFACTURE, STORAGE AND IMPORT OF HAZARDOUS
CHEMICALS RULES (Amended in 1994).
3.3 RULES ON CHEMICAL ACCIDENTS (EMERGENCY
PLANNING, PREPAREDNESS AND RESPONSE).
4.0 NATURE,CAUSES AND CONSEQUENCES OF HAZARDS
5.0 RISK ASSESSMENT
5.1 HAZARD ANALYSIS
5.1.1 HAZARD IDENTIFICATION
5.1.2 VULNERABILITY ANALYSIS
5.1.3 RISK ANALYSIS
5.2. HAZARD ANALYSIS METHODS
5.2.1 HAZARD AND OPERABILITY STUDY (HAZOP)
5.2.2 ACCIDENT CONSEQUENCES ANALYSIS
5.2.3 FAILURE MODES, EFFECTS AND CRITICALITY
ANALYSIS(FMECA)
5.2.4 FAULT TREE ANALYSIS
5.2.5 EVENT TREE ANALYSIS
5.3. APPLICABILITY FOR MARKETING LOCATIONS
6.0 PREPARATION OF EMERGENCY PREPAREDNESS PLAN
6.1 BASIS OF PLAN
6.2 ACCIDENT PREVENTION PROCEDURE
6.3 EMERGENCY PREPAREDNESS PROCEDURES/MEASURES
6.4 RESPONSE PROCEDURES/MEASURES
6.4.1 ZONING AND MAPS
6.4.2 LAYOUT/FLOW DIAGRAM
6.4.3 MANPOWER
6.4.4 ORGANOGRAM AND THEIR RESPONSIBILITIES
6.4.5 RESOURCES (INTERNAL/EXTERNAL)
6.4.6 INFRASTRUCTURE
6.5 RECOVERY PROCEDURE
7.0 LIST OF ATTACHMENTS, SKETCHES ETC.
8.0 INFORMATION TO PUBLIC
9.0 ACTUATION OF ON-SITE EMERGENCY PLAN/
DECLARATION REGARDING OFF-SITE EMERGENCY PLAN
10.0 TESTING AND UPDATING OF ON SITE PLAN
ANNEXURES.
I.Statutory requirements
a) MSIHC Rules,
b) Factories Act
II. Resource Mobilisation
III. Meteorological data.
IV. Material Safety Data sheet format (Schedule 9 of MSIHC Rules).
1.0 INTRODUCTION
Petroleum Industry occupies an important segment of our economy and is a source of large benefit to the society. In recent years, there has been a rapid increase in volumes handled to meet the increasing demand. Petroleum products are highly flammable and Safety, which forms an integral part of the industry, has always been given paramount importance.
Several Government Authorities, both at the Centre and State levels, such as Inspectorate of Factories, Department of Explosives etc. are entrusted with the responsibility of ensuring Safe handling and accident prevention measures. Inspite of the measures, possibility of accidents either due to human errors and / or due to equipment/systems failures cannot be ruled out. On some occasions, the accidents have led to grave disasters e.g. Bhopal gas tragedy (Toxic release, 1984), Mexico Disaster (BLEVE, 1984), accident in LPG bottling Plant, Shakurbasti, Delhi (1983). The lessons learnt from the disasters all over the world made it essential to draw an Emergency Preparedness Plan (EPP) to negotiate such eventuality. The imperatives of Emergency preparedness to minimise the adverse effects due to any unfortunate accident occuring in Manufacture, Storage, Import and Transport of any hazardous substance is thus well recognised by all concerned. An Emergency Preparedness Plan is essential to obviate such an eventuality by providing the measures to contain the incident and minimise the after affects. To assist the Marketing Locations of the oil Industry , it is considered essential to provide the guidelines for preparing such plans based on the interactions within the oil industry.
2.0 SCOPE
The purpose of the guidelines in brief is to assist the owners/ occupiers of oil Industry marketing units (POL/LPG & other Locations) in preparation of the On-Site emergency plan as required under relevant Acts and Rules.
The Emergency Preparedness Plan for Petroleum Locations shall provide the measures to contain and minimise the effects due to
(a) spillage of petroleum products during storage and handling within the premises.
(b) release or escape of flammable /toxic gases;
(c) fire or explosion.
The necessary preventive and protective steps that are required to be taken before, during and after the accident need to be worked out as detailed in this document.
The guidelines detail :
a) Statutory Requirements.
b) Nature, causes, consequences of hazards
c) Hazard analysis.
d) Basic elements of the on-site Emergency Preparedness Plan
e) Key personnel and their duties during an emergency.
f) Steps to be taken before, during and after emergency.
g) Response Evaluation and updation of the plan.
The Guidelines are aimed to be a supportive document for the Marketing Locations in the oil Industry and concerned authorities /agencies in preventing as well as dealing with an emergency or accident while handling petroleum products. The guidelines should thus be treated as supplementary and advisory in nature only.
It shall be noted that no two locations are identical with respect to layout, surroundings, products, storage quantities, meteorological data etc. Therefore Emergency Preparedness Plan will be location specific and no effort be made to replicate the Emergency Preparedness Plan of another location.
3.0 STATUTORY REQUIREMENTS
3.1 Factories Act - 1948 (as amended in 1987).
Handling highly flammable liquids and gases fall under the category of hazardous processes under First Schedule of the Factories Act, Section 41-B (4) of the Factories Act - 1948 ( amended in 1987), requires that an "On-site Emergency Plan" wih detailed disaster control measures shall be drawn by every occupier of an Installation involving hazardous process.
3.2 Manufacture, Storage and Import of Hazardous Chemicals Rules,1989 (amended in 1994) [ MSIHC ] :
Under the MSHIC Rules hazardous chemical/ substance means -
(i) any chemical which satisfies any of the criteria laid down in Part I of Schedule I and is listed in Column 2 of Part II of the Schedule.
(ii) any chemical listed in Column 2 of Schedule 2;
(iii) any chemical listed in Column 2 of Schedule 3.
3.2.1 All Marketing locations fall under the category of isolated storage which comes under Schedule 2 of MSIHC Rules and threshold storage quantities for applicability of various rules is as under :
PetroleumThreshold Storage ProductQuantities
Rules 4,5,Rules
7,8,9, 10 to 15
Flammable Gases:* 50 MT 300 MT
Highly 10,000 MT 100,000 MT
Flammable Liquids :**
*Chemicals which in the gaseous state at normal pressure and mixed with air become flammable and the boiling point of which at normal pressure is 20 deg.C ( like Propane, Butane, LPG etc. )
**Chemicals which have a flash point lower than 23 deg.C and the boiling point of which at normal pressure is above 20 deg.C ( like MS, Naptha, Hexane, Toluene, Solvent, Butadiene, etc. )
3.2.2. Under MSIHC Rules various chemicals, compounds have been identified which are subject to general or low level, medium level and high level controls and accordingly, it is obligatory for an occupier to comply with the requirements under the appropriate rules depending on the threshold storage quantities as stipulated in 3.2.1. Generally Rule Nos. 4,5,7,8,9& 10 to 15 are applicable depending upon threshold quantities.
3.2.3 The gist of the above referred rules are given below for the reference. However, for details, refer Annexure I.
a) Rule 4 - General responsibility of the occupier.
b) Rule 5 - Notification of major accident.
c) Rule 7,8,9 - Notification of site and updation of same (following changes).
d) Rule 10 - Preparation of safety reports.
e) Rule 11 - Updating of Safety Reports
f) Rule 12 - Providing additionalinformation (as required by concerned authority).
g) Rule 13 - Preparation of On-site Emergency Plan (By occupier).
h) Rule 14 - Preparation of Off-site Emergency Plan (By concerned authority).
i) Rule 15 - Information to public likely to be affected.
3.3 Rules on Chemical Accidents (Emergency Planning, Preparedness and Response ) :
The proposed rules on "Chemical Accidents (Emergency Planning, Preparedness and Response) compliments the set of rules on accident prevention and preparedness notified under the Environment (Protection) Act, 1986 in 1989 entitled "Manufacture, Storage and Import of Hazardous Chemicals Rules" and envisages a 4-tier crisis management system in the country. The 4-tier crisis management system consists of following crisis group :
1. Central Crisis Group
2. State Crisis Group
3. District Crisis Group
4. Local Crisis Group
For the details about the formation of the crisis groups and their roles, the original gazette document on "Rules on Chemical Accidents (Emergency Planning, Preparedness and Response" shall be referred. However, the gist of the concerned rule is given below :
The rules provide a statutory back-up for setting up of a Crisis Group in districts and states which have Major Accident Hazard Installations (MAH) and providing information to the public. The rules define the major accident hazard installations which include industrial activity, transport and isolated storages at a site handling hazardous chemicals in quantities specified. As per the rules, the Government of India is to constitute a Central Crisis Group for the management of chemical accidents and set up an alert system within 30 days of the notification. The Chief Secretaries of all the States are to constitute Standing State Crisis Groups to plan and response to chemical accidents in the state and notifiy the same in gazette within 45 days. The District Collector shall not only constitute a District Crisis Group (DCG) but also constitute Local Crissi Groups (LCGs) for every industrial pocket in the district within 60 days.
The SSCG will review all the District Off-site Emergency Plans for its adequacy. The guidance for which is available in the amendments of October 1994 to the Manufacture, Storage and Import of Hazardous Chemical Rules in Schedule-12. The District Collector shall be the Chairman of the DCG and the DCG will serve as the apex body at the district level and shall meet every 45 days. This group shall review all on-site Emergency Plans prepared by the occupiers of the Major Accident Hazard installations for preparation of a District Off-site Emergency Plan, which shall also include hazard due to the transportation of hazardous chemicals both by road and by pipeline. The rules will enable preparation of an Off-site Emergency Plan, updation and conduct of mock-drill.
4.0 NATURE, CAUSES AND CONSEQUENCES OF HAZARDS.
4.1 NATURE
In handling the petroleum products, the accidents leading to an emergency may be one or the combination of following events:
a) Release of flammable liquids or gases resulting in vapour clouds/ fire/ explosion and consequent thermal radiation and smoke.
b) Spillages on ground or into water resulting in pollution / contamination of air, water etc.
c) Emergency arising from neighbourhood.
4.2 CAUSES
The common causes for the above events are :
Man-made
a) Equipment failure
b) Design deficiency
c) Unsafe Acts/operations
d) Inadequate maintenance
e) Emergency in neighbourhood
Natural
a) Storm
b) Earthquake
c) Floods
Extraneous
a) War
b) Terrorism
c) Sabotage
4.3 CONSEQUENCES :
The consequences of an accident may be confined within the premises or may spill off-site triggering cascading effects. The occurence is considered On-site when the accident occurs within and effects are confined to the premises involving only the people working in the unit. The consequences of an accident are fire explosion, deflagration, blast waves, fast spreading flames resulting in direct effects like damage to buildings/property, burns, fatalities. However, an accident in the neighbourhood may sometimes cascade into an on-site emergency.
5.0 RISK ASSESSMENT
5.1 HAZARD ANALYSIS
Assessing the hazard potential of an installation is the first step in planning for emergencies. To analyse and to assess the potential hazards and safety of an installation, hazard analysis should be caried out covering the following areas :
a) Which substance in the installation constitutes major hazard ?
b) Which design deficiency can contribute to a hazard ?
c) What failures or errors could cause abnormalities leading to an accident ?
d) Measures for preventing the accident.
e) Consequences of a major accident on the workers, people in neighbourhood and the environment.
f) Mitigation of the consequences of an accident.
The three basic steps of hazard analysis are :
a) Hazard Identification
b) Vulnerability analysis
c) Risk analysis.
These steps should be followed sequentially though the level of detail vary from location to location.
5.1.1 HAZARD IDENTIFICATION :
Hazard identification is the first step in the hazard analysis and entails the process of collecting information on –
a) The types and quantities of hazardous substances stored, handled and disposed in the location ;
b) The location of storage tanks & other facilities.
c) Potential hazards associated with the spillage and release.
Various components of hazard identification are -
a) CHEMICAL IDENTITY & NATURE OF HAZARD - The substance can be identified by the UN No. and the substance shall be classified as toxic, flammable or explosive.
b) QUANTITY - The estimation of quantity of each hazardous substance at a location should include the maximum quantity likely to be stored on site. This should also include following :
(i) Any vehicle (TW/TT) used as a storage vessel either on the site or within 500 Metres of site.
(ii) Any pipeline used for transfer of product within the premises or within 500 Metres from the site.
(iii) Quantity stored in any neighbouring site within 500 Metres of the boundary handling same hazardous materials.
c) LOCATION AND STORAGE CONDITION -
The location, configuration and condition under which the hazard substances are stored, handled greatly help in risk analysis step of hazard analysis. The inter-distances play an important role as far as passive protection is concerned.
5.1.2 VULNERABILITY ANALYSIS :
Vulnerability analysis is the second step of hazard analysis and provides estimation of the zones of influence or vulnerable zones. The process of estimation of zone of influence comprises of the following :
a) The maximum single storage of hazardous substance, should be identified and then probable maximum loss scenario should be determined.
b) Considering the probable maximum loss scenario, the vulnerable zone(s) that will be affected by the effect/consequences of the accident should be considered.
To estimate the effects of the accident and draw evacuation plan, the population statistics, the facilities and the environment encompassed within the vulnerable zone should be available with the occupier.
5.1.3 RISK ANALYSIS :
Risk analysis is the third step of hazard analysis process, which provides a relative measure of the likelihood and severity of various possible hazardous events and enable the emergency plan to focus on the greatest potential risk.
Risk : Risk is defined as follows :
Risk = Consequence x Probability
One method of characterising the equipment failure is to assume that the failure is "worst possible" failure, the failure that would produce the largest hazardous zone which is often called catastrophic failure and includes such events as a tank collapse, rupture of vessels etc. This approach will be useful in emergency response planning i.e. to determine the maximum area required for evacuation. Catastrophic events are often least likely to occur. Therefore, the hazard assessment that includes only catastrophic event may not address the failures that will expose the public at the greatest risk.