unece -管理自然灾害对危险设施的风险 Managing Risks from Natural Hazards to Hazardous Installations (Natech)

ManagingRisksfromNaturalHazardstoHazardousInstallations(Natech)

AGUIDEFORSENIORLEADERSININDUSTRYANDPUBLICAUTHORITIES

seriesonchemicalAccidents

AcollaborationbetweenOECD,ECJRCandUNECE

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Pleasecitethispublicationas:

OECD/EuropeanUnion(2024),ManagingRisksfromNaturalHazardstoHazardousInstallations(Natech):AGuideforSeniorLeadersinIndustryandPublicAuthorities,OECDSeriesonChemicalAccidents,OECDPublishing,Paris.

Photocredits:Cover©AlexanderJohnGlustrom.

©OECD/EuropeanUnion2024

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MANAGINGRISKSFROMNATURALHAZARDSTOHAZARDOUSINSTALLATIONS(NATECH)©OECD/EUROPEANUNION2024

Editorial

Thereisgrowingawarenessthatnaturalhazards,evencommononessuchaslightning,canhavesignificantimpactsonthesafetyofhazardousinstallations.Certainconditions,suchashighandlowtemperatures,thawingofpermafrost,landslides,earthquakesorfloodscanresultinaccidentswiththereleaseofhazardoussubstances,firesorexplosions.ThesearereferredtoasNaturalHazardTriggeredTechnologicalaccidents(orNatechaccidents).RecentNatechaccidentsaroundtheglobehavecausedmajordamagetohazardousinstallationswithoftendisastrouseffectsonhumanlives,theenvironment,infrastructure,regionalsecurityandeconomicdevelopment.In2017,thefloodingofachemicalplanthandlingorganicperoxidesintheUnitedStatesfollowingmassiverainfallfromHurricaneHarveytriggeredablackoutandlossofrefrigeration,resultingintheexposureoffirstresponderstotoxicfumesandnecessitatingevacuationovera1.5mileradius.In2011,amajorearthquakeinJapantriggeredmultiplefiresandexplosionsatarefinery’spetroleumgasstoragetankfarm.Firesburnedfor10daysandtherefineryreturnedtofulloperationonly2yearslater.Climatechangeisparticularlyrelevantinthiscontextasitaffectstheintensityandfrequencyofnaturalhazardswithpotentialunprecedentedandunexpectedimpactsontheseinstallations.

Leadersinindustryandpublicauthoritieshaveacriticalroletoplayinensuringtheappropriatedeliveryandgovernanceofthepreventionof,preparednessfor,andresponsetoNatechaccidents,especiallywithanincreasinglevelofriskduetoclimatechange.Awarenessraising,activeengagementandinformeddecision-makingcanhelpensuremoreeffectiveNatechriskmanagement.Futurechangesandadaptationsmustbeanticipatedwithamulti-disciplinaryapproachinvolvingmeteorologists,geologists,civil,mechanicalandchemicalengineers,firstresponders,workers,potentiallyaffectedcommunities,andprocesssafetyexperts.Theinvolvementofallrelevantstakeholdersmustbesupportedbywell-definedcommunicationandco-operationbetweenrelevantauthoritiesatthelocal,nationalandtransboundarylevels,aswellaswithindustry.

Forthepast12years,theOECDWorkingPartyonChemicalAccidents,theJointResearchCentreoftheEuropeanCommissionandtheUnitedNationsEconomicCommissionforEuropesecretariatoftheConventionontheTransboundaryEffectsofIndustrialAccidentshaveledeffortsinraisingawarenessofNatechrisksandsharinggoodpracticesforNatechriskmanagementacrosscountriesandtheirrespectiveconstituencies.Mostrecently,ourorganisationsjoinedforcestodevelopthisguidancetohelpinformseniorleadersinindustryandpublicauthoritiesofNatechriskandsupporttheminsettingdirectionforimplementingrespectivemeasures,includingtheintegrationofNatechriskmanagementintocorporategovernancestrategiesandnationalpolicies.WehopethatthisdocumentwillencouragecommitmentandhighstandardsforthegovernanceofNatechriskamongstleadersinindustryandpublicauthorities,thusensuringlong-termsustainabledevelopmentandtheachievementofahigherlevelofsafetyathazardousinstallations.

JoTyndall

Director

EnvironmentDirectorate

OECD

MarcoKeiner

Director

EnvironmentDivision

UNECE

MatthiasOel

Director

DirectorateforSocietalResilienceand

Security

EuropeanCommissionJointResearch

Centre

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MANAGINGRISKSFROMNATURALHAZARDSTOHAZARDOUSINSTALLATIONS(NATECH)©OECD/EUROPEANUNION2024

Tableofcontents

Editorial3

Backgroundtotheguidance5

Notes6

1Natechriskandleadership7

Notes9

2Riskawarenessandgovernance:understandingvulnerabilitiesandrisks11

3PreventingNatechaccidents13

Informationonnaturalhazards13

Riskassessment14

Sitingandland-useplanning17

Designandconstruction17

Adaptationtoclimatechange17

Learningfrompastaccidents18

Notes19

4Emergencypreparednessandresponse20

Preparingemergencyplans20

Respondingtonaturalhazardimpacts21

Earlywarningsystemsandalertsystems21

5CommunicationofNatechrisksandincaseofNatechaccidents23

Generalconsiderations23

Communicationwithemployeesathazardousinstallations23

Communicationbetweenindustryandpublicauthorities24

Communicationwiththepublicandcommunities25

6Leadershipofamultidisciplinaryteam26

7Internationalandtransboundaryconsiderations27

8Self-assessmentchecklist29

9Forfurtherreading34

Boxes

Box1.ExamplesofpastNatechaccidents9

Box2.ChallengesofNatechRiskManagement12

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Backgroundtotheguidance

ThisguidanceiscomplementarytotheThirdEditionoftheOECDGuidingPrinciplesforChemicalAccidentPrevention,PreparednessandResponse.ItsdevelopmentisbasedonpreviousworkdonebytheOECDProgrammeonChemicalAccidents,inparticular:

•TheAddendumtotheSecondEditionoftheGuidingPrinciplesonChemicalAccidentPrevention,PreparednessandResponseonNatechRiskManagementpublishedin2015whichprovidesspecificguidanceonhowtoconsiderNatechinthepreventionof,preparednessforandresponsetochemicalaccidents;

•Twomajorinternationaleventsorganisedin2012inDresden(Germany),whichinvestigatedthespecificitiesofNatechRiskManagement,andinPotsdam(Germany)in2018,whichcollectedgoodpracticesforNatechRiskManagementacrossOECDandnon-OECDcountries;

•ArecordofgoodpracticesforNatechriskmanagementissuedin2020.Itincludesmorethan40examplesofNatechriskmanagement-relatedactivitiesacrosscountriesandfromdifferentstakeholders,presentedineasy-to-readfactsheets.TherecordhasbeendevelopedandishostedbytheGermanEnvironmentAgency.

ThisguidanceisalsorelevantinthecontextoftheOECDDecision-RecommendationconcerningChemicalAccidentPrevention,PreparednessandResponse.

ThisguidancebuildsonexpertiseoftheJointResearchCentreoftheEuropeanCommissiononNatechriskmanagement.IthasdevelopedeNATECH,anonlinedatabasetofacilitateexchangeoflessonslearnedfromNatechaccidentsandnearmisses,aswellastheweb-basedRAPID-NtoolforrapidNatechriskanalysisandmapping.In2020,theJRCpublishedNatechinspectionscriteriaforSevesoinspectorsandin2022technicalguidanceonNatechriskmanagementforoperatorsofhazardousindustrialsitesandfornationalauthorities.

ThisguidancealsotakesaccountoflegalinstrumentssuchastheEuropeanUnionSevesoDirectiveonthecontrolofmajor-accidenthazardsinvolvingdangeroussubstances,whichinitsAnnexII,article4,requiresNatechtobeincludedinthesite’ssafetymanagementsystem,andtheUNECEConventionontheTransboundaryEffectsofIndustrialAccidents(IndustrialAccidentsConvention)whichsetsoutobligationstopreventandmitigateNatechevents,amongotherindustrial/chemicalaccidents.ItbuildsontheconclusionsofthejointUNECE/OECDSeminaroneffectivemanagementoftechnologicalrisksofaccidentstriggeredbynaturalhazards(Genevaandonline,29November2022).PartiestotheIndustrialAccidentsConventionhavealsoadoptedDecision2022/1onStrengtheningNatechriskmanagementintheUNECEregionandbeyond,atthetwelfthmeetingoftheConferenceoftheParties.Throughthisdecision,PartiescommittedtopreventingNatecheventsandtheirdisastrouseffectsonhumanlives,theenvironment,infrastructure,regionalsecurityandeconomicdevelopment,andtoenhancingtransboundarycooperationtothateffect.ItalsousesexperienceandguidancedevelopedbycountriesandbyotherinternationalagenciesthatarerelevanttoNatechriskmanagement1.

ThisguidancewasjointlydevelopedbytheOECD,theUnitedNationsEconomicCommissionforEurope(UNECE),theJointResearchCentreoftheEuropeanCommission(JRC)andtheGermanEnvironment

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Agency(Umweltbundesamt).Inpreparingtheguidance,thedraftinggrouphadguidancefromasteeringgroupofexpertsfromthedelegationsofColombia,CzechRepublic,France,Germany(leadcountry),Japan,Netherlands,Norway,Switzerland,UnitedKingdom,theUnitedStates,theJRC,theInternationalLabourOrganisation(ILO),theUnitedNationsEnvironmentProgramme(UNEP)/UNOfficefortheCoordinationofHumanitarianAffairs(OCHA)JointEnvironmentUnit,theUNECE,andtheEuropeanEnvironmentalBureau(EEB).TheBureauoftheOECDWPCAandBureauoftheUNECEConventionontheTransboundaryEffectsofIndustrialAccidentsalsoreviewedthedraftguidanceandprovidedinputsoverthecourseofitsdevelopment.

Notes

1Referencesandlinkstoallthedocumentsmentionedaboveareavailableinthe“Forfurtherreading”section.

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1

Natechriskandleadership

Naturalhazards,forexamplelightning,highandlowtemperatures,landslides,earthquakes,floods,winds,storms,wildfires,andpermafrostthawing,caninitiateadverseeventswhichchallengethesafetyandoperationofhazardousinstallationsandcanresultinaccidents.TheseaccidentsarereferredtoasNaturalhazardtriggeredtechnologicalaccidentsorNatechaccidents.

RecentNatechaccidentsaroundtheglobedemonstratethesignificantimpactsaccidentstriggeredbynaturalhazardscanhaveonpeople,theenvironment,infrastructureandbusinesscontinuity(seeBox1).

LeadersinindustryandpublicauthoritiesneedtoacttoensuretheappropriategovernanceandmanagementofNatechrisk.Thisleadershipcombinedwithappropriatetechnicalassessmentwillenablelong-termoperabilityandsustainabledevelopmentathazardousinstallations,includingwherethethreatlevelchangesduetoclimatechange.

ThecaseforNatechriskmanagementisstrongforbothbusinessesandpublicauthorities:

•Considerationofthepotentialimpactsfromnaturalhazardsatthesitingandland-useplanningstagecanreduceimpactsonthesiteanditssurroundings,bothinmagnitudeandfrequency.Forexample,choosingandpermittingasitethatislocatedhigherthanthefloodplain,maymeanthatfloodingislessofaconsideration.However,allNatechrisksshouldalwaysbeconsidered.

•Considerationofthepotentialimpactsfromnaturalhazardsatthedesignandconstructionstagecanleadtomorerobustbuildingsandinfrastructure,whichwillreducerisksandmitigatedamageintheeventofaNatechaccident.Retro-fittingexistingsitesisalsoimportantsincesomenaturalhazardsmaynothavebeenconsideredinthepastandduetotheincreasinglyfrequentandsevereimpactsofclimatechange.Sinceretro-fittingcanbemoreexpensive,itishoweverkeytoconsidernaturalhazardsintheoriginaldesignsofsitesmovingforward.

•ConsiderationofthepotentialimpactsfromnaturalhazardsatasafetymanagementandemergencyplanningstagecanmeanthattheemployeescanbepreparedtotakethenecessarymeasuresearlyontopreventNatecheventsandmitigatedamageshouldtheyoccur,includingtopreventdamagetoinstallations,releasesofhazardouschemicals,harmtothenaturalandbuiltenvironment,injuriesofemployeesandnearbypopulationsandbeyond.Preventionandpreparednessaremorecosteffectivethatrespondingtoanemergencyunderpressure.

•UnderstandingandaddressingNatechriskscanmeanthatcompaniesaremoreresilienttoreturntoproductionafteranaturalhazardeventwithlessdisruptionandwithoutlossofreputation.Repairingdamagedinstallationsandharmtopeopleandtheenvironmentcanbecostlyandtimeconsuming.Alongperiodofbusinessinterruptioncanleadtolossofcustomersandgoodwillanddamagetheeconomicviabilityofthecompany.

•Failuretoaddressthepotentialimpactsfromnaturalhazardscanleadtosignificantcosts,damagetopeopleandthenaturalandbuiltenvironment,injury,businessinterruption,lossofreputationandultimatelytothefailureofthecompany.

Thisguidance,partofaseriesofNatechguidancenotesfromtheOECD1,aswellaspartoftheNatechriskmanagementworkstreamsoftheUnitedNationsEconomicCommissionforEurope(UNECE)2andtheJointResearchCentreoftheEuropeanCommission(JRC),isspecificallyaimedatsupportingsenior

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leaderssetdirectionforimplementingNatechprevention,preparednessandresponsemeasures.Itwillchallengeseniorleadersinindustry3andpublicauthorities4toconsiderquestionssuchas:

•WhatshouldIdotoensuregoodgovernanceofNatechrisk?

•HowdoIgatherandorganisethecapabilitiesandcompetencestodoit?

•HowdoIensurethatmyorganisationcontinuestoadapttoachangingenvironment?

Thisdocumentwillaidseniorleaderstobeabletoself-assesshowpreparedtheirorganisationisinmanagingNatechriskseffectively.

“ThisguideformanagingNatechaccidentriskprovidesanexcellentoverviewandriskmanagementguidanceforchemicalaccidentsthatmayresultfromnaturalhazards.SeniorleadersinthechemicalindustrywillbenefitfromtheguidancedesignedtomakeusersawareandmanagethevulnerabilitiesandrisksofNatechaccidents.Thisguidance,supplementedbyguidanceissuedfromNatechrelatedinvestigationsbytheUSChemicalSafetyBoardandrequirementsfromtheUSEnvironmentalProtectionAgencytoaccountfornaturalhazardsinitsriskmanagementplanningrequirements,providesacompleteapproachtomanagingNatechaccidentrisk.”

AmericanChemistryCouncil

ThisGuidanceisapplicabletofixedinstallationsatwhichhazardoussubstancesareproduced,processed,handled,storedordisposedofinsuchaformandquantitythattheremightbeariskofoccurrenceofachemicalaccident(called“hazardousinstallations”or“installations”inthispublication).Thisincludespipelinesandtransportinterfacessuchasmarshallingyardsandportareas.

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Box1.ExamplesofpastNatechaccidents

•InAugust2022,alightningstrikehitanoilstorageterminalinCuba,triggeringamajorfireandexplosionsthateventuallyinvolvedfourlargestoragetanks.Seventeenfirefighterslosttheirlivesintheattempttokeepthefirefromescalatingandavoidadominoeffect.Internationalaidwasneededtocontrolthefire.

•InAugust2017,massiverainfallfromHurricaneHarveyledtothefloodingofachemicalplanthandlingorganicperoxidesintheUSA.Thefloodtriggeredablackout,resultinginthelossofallrefrigerationsystemson-site.Theorganicperoxidesdecomposedandcombusted,exposingfirstresponderstothetoxicfumesandnecessitatingevacuationovera1.5mileradius.

•InDecember2011,alandslidecausedthefull-boreruptureofagasolinepipelineinColombia.Gasolinespilledintoariver,leadingtowatercontamination,andinthesubsequentignitionandexplosion32peoplediedandover80wereinjured.Theexplosionalsocausedstructuraldamagetoresidentialareas.

•InMarch2011,amajorearthquakeshookanLPGstoragetankfarmatarefineryinJapan.Onetankcollapsed,severingpipesandcausingthereleaseofLPGwhichignited.Theresultingfireandexplosionsdestroyedall17LPGtanks.Debrisfromtheexplosionsdamagedadjacentasphalttanksandtriggeredfiresintwoneighbouringpetrochemicalinstallations.Thefireburnedfor10days.

•InDecember2002,lowtemperaturecoupledwiththedeactivationofsteamtracingcausedthebreakingofacyclohexanemanifoldinachemicalplantinFrance.1200tonsofcyclohexanewerereleasedandenteredthesoilandgroundwater.Duetoahighriskofpollutingthecommunity’sdrinkingwaterreservoirsandagriculturalpumpingstations,prolongedclean-upandremedialactionshadtobetaken.

•InAugust2002,floodingoftheElbeRiverledtotheinundationofachemicalplantintheCzechRepublic,floatingitsliquidchlorinetanksandrippingoffthesafetyvalvesfromatankfilledtocapacity.Over80tonsofchlorinewerereleased,resultinginenvironmentaldamageandeconomiclossesinagriculture.

Notes

1PastreportsdevelopedbytheOECDonNatechriskmanagementareavailableat:

/chemicalsafety/chemical-accidents/risks-from-natural-hazards-at-hazardous-

installations.htm

2MoreinformationonNatechriskmanagementundertheUNECEConventionontheTransboundaryEffectsofIndustrialAccidentsisavailableat:

/industrial-accidents-convention-and-

natural-disasters-natech

3Forthepurposeofthisdocument“Industry”refersto:enterprisesoperatinghazardousinstallationsatwhichhazardoussubstancesareproduced,processed,handled,storedordisposedof.

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MANAGINGRISKSFROMNATURALHAZARDSTOHAZARDOUSINSTALLATIONS(NATECH)©OECD/EUROPEANUNION2024

4Forthepurposeofthisdocument“PublicAuthorities”refersto:publicauthoritiesatalllevelsthatareinvolvedinthemanydisciplinesinherentinchemicalaccidentprevention,preparednessandresponse(e.g.environment,publichealth,occupationalhealthandsafety,civildefence,industrialdevelopment,internationalrelations).Thisguidanceisrelevanttoregulatory/enforcementauthorities(atthenational,regionalandlocallevels),emergencyresponsepersonnel,publichealthauthorities,medicalprovidersandothertypesofgovernmentagencies.

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2

Riskawarenessandgovernance:

understandingvulnerabilitiesand

risks

OneofthemainelementsneededtointegrateNatechriskintoprocesssafetyinacommercialorpublicsettingisriskawarenessatalllevels,ledfromthetop.

SeniorleadersinindustryshouldbeawareoftheNatechriskattheirhazardousinstallations.Theyshould:

•Beawareofthefullspectrumofnaturalhazardsofrelevanceforaspecificsite,theimpactstheymayhaveontheriskofchemicalaccidentsandhowtheywillaffectprocesssafety(seeBox2);

•Driveawarenessofthisriskthroughtheorganisationandensureimplementationofastrategyforgoodgovernanceandcompliancewithapplicablelawsandpolicies,includingintegrationofNatechconcernsinoccupationalsafetyandhealthmanagementsystems;

•Clearlycommunicatetoallrelevantemployees,includingcontractors,thevulnerabilitiestonaturalhazardsandassociatedNatechrisksattheirinstallation,andthemeasuresbeingtakentoaddressthem;

•DrivetheintegrationofNatechriskmanagementintochemicalaccidentprevention,preparednessandresponseatthegiveninstallation,evenifNatechaccidentshaveneveroccurredbefore;

•Beawarethatclimatechangecouldaffecttheintensity,frequencyandlocationofnaturalhazardsandassessandupdateriskmanagementmeasuresasmoreinformationbecomesavailable.Thisshouldbecomeanintegralpartofthesafetymanagementsystem.

Similarly,seniorleadersinpublicauthoritiesshould:

•TakeNatechriskintoaccountinrelevantregulatoryaction,policydevelopmentandstandards;

•EnsurethatNatechaccidentsaresufficientlyintegratedintoclimatechangeadaptation,disasterriskreduction,environmentalprotectionandsustainabledevelopmentactionplansandstrategies;

•AddressNatechriskaspartofexistinggovernanceandpolicyprocessesatthenationalandlocallevel,includingcoordinationwithindustryandstakeholders;

•IncludeNatech-relatedquestionswithininspectionsandaudits.Informationandexperienceexchangeamongstinspectionpersonnel(attheregional,nationalorinternationallevel)isessential;