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BLMLIBRARY 88070032 UNITEDSTATES DEPARTMENTOFTHE INTERIOR BUREAU OF LANDMANAGEMENT OilandGasSurfaceManagement Self-Assessment DivisionofFluidMinerals(WO-310) 2005-2006 TN 872 .A5 035 2006 Attachment1-1 IN \^zQ/x'hcn- TABLEOFCONTENTS '^WLp ExecutiveSummary 3 Background 5 EvaluationObjectives&Scope 5 Methodology 5 AreasofPositivePerformance 6 OpportunitiesforImprovement 7 AppendixI-Self-AssessmentQuestionnaire 14 AppendixII-QuestionnaireResults{Fig.1-5) 22 Attachment 2 ExecutiveSummary In2003,theBureauofLandManagement(BLM)WashingtonOffice(WO)Divisionof FluidMineralsincreaseditsoversightoftheBLM’sOilandGasSurfaceManagement Program,1310-PP. TheWashingtonOfficeinitiatedthedevelopmentofnewpolicy guidance,workshops,trainingcourses,handbooks,andoutreachmaterials. Aself- assessmentoftheOilandGasSurfaceManagementProgramwasconductedbythe Minerals,RealtyandResourceProtectionDirectorate(WO-300)duringFiscalYear(FY) 2005. TheobjectiveoftheassessmentwastodetermineiftheOilandGasSurface ManagementProgramprocessesarebeingconductedinaneffectivemannerandto identifyareasforfurtherprogramdevelopment. WashingtonOfficepersonneldevelopedanddistributedaprogramassessment questionnairetothefollowingBLMFieldOffices:Bakersfield,California;Glenwood Springs,Colorado;MilesCity,Montana;Carlsbad,NewMexico;Moab,Utah;and Rawlins,Wyoming. Thequestionnairewascompletedbyemployeesthatareinvolvedin theOilandGasSurfaceManagementProgram. Atotalof76responseswerereceived, averaging12.7responsesperoffice,sufficienttoobtainagoodcross-sectionofsurface programstaffineachoffice. Thescopeoftheassessmentfocusedonthefollowingareas:Generalinformation; PlanningandLeaseSaleParcelReview;ReviewandProcessingofApplicationfor PermittoDrill(APD)SurfaceUsePlans;SurfaceEnvironmentalInspections;Program GuidanceandTraining;andProgramManagement,Staffing,andWorkload. Themajorityoftheresponsesindicatethattheplanningandleasesaleparcelreview processisefficient. Forty-sevenpercentofrespondentsindicatedthattheFieldOffice landuseplanscontaincomprehensiveanddetailedexception,waiver,andmodification criteriaforleasestipulations,while21percentdidnotagree. Severalrespondentsstated thatthelanduseplansadequatelyaddressoilandgasleasing,althoughothersindicated thatthestateofsomelanduseplansmaynotbeadequatetosupportthecurrentinterestin leasing. Respondentsindicatedthatdatabaseshortcomingsslowtheprocessingofoilandgas leasesandstatedthatparcelreviewcouldbeautomatedandtherebymademoreefficient. Othersaresuggestingtheneedforanup-to-dateculturalresourcedatabaseaswell. Respondentsstatedthatconflictingguidancefromvariousprogramsarehamperingthe abilityofthestafftomaketimelyandadequatedecisions. Therespondentswerepositive aboutthesufficiencyofguidancethattheyhadreceivedfrombothWashingtonandthe StateOffices,withaslightlymorepositivefeelingabouttheWashingtonOfficeguidance thanthatfromStateOffices. ThereappearstobegeneralagreementacrossthestaffdisciplinesthatAPDprocessingis ahighpriority. Inaddition,about77percentofrespondentsconsidertheeffectivenessof thecurrentAPDprocesswithintheirofficeasgoodorexcellent.Employeeresponsesto Attachment1-3 questionsaboutspecificelementsofAPDprocessingshowthatapositiveapproachto APDprocessingisbeingundertakenbytheFieldOffices. Amajorityfeltthattheoffice metwiththeoperatorspriortofilingNoticesofStakingandAPDsandamajorityfeltthat theofficeencouragedoperatorstofilemultiple-wellAPDpackages. Therespondents seemknowledgeableofthetimerequiredtoprocessAPDs. Therespondentsfeltthat delaysintheapprovalofAPDswerenotbecauseofinefficientstafforprocess,butthe heavyworkload,incompleteAPDssubmittedbyoperators,oruntimelywildlifeand culturalinventoriessubmittedbyoperators. ThemostcommoncommentwastheneedforimprovedAPDsubmissionsfromthe operatorsandotheroperator-relatedissuessuchasspeculativeAPDsubmissions,lackof earlycontact,andchangingoperatordevelopmentplans. Thesubmissionofonly completeandnecessaryAPDswouldfurtherreduceBLM’sworkloadandexpeditethe process. NearlyallrespondentswhowereawareoftheAutomatedFluidMineralsSupportSystem (AFMSS)documentationrequirementsagreedthatmostsurfaceandenvironmental inspectionsarebeingdocumentedinAFMSS. Frequentsystemshutdownsarehavingan effectontimelydataentry. Nearly70percentstatedthattheyhaveattendedsufficienttrainingorworkshopsto performtheirsurfacemanagementduties. Ahighpercentageofrespondents(95percent) statedthattheirsupervisorssupportedtheircareerdevelopmentandtrainingneeds. AmajorityofrespondentsindicatedthattheFieldOfficeshaveapersondedicatedtothe OilandGasSurfaceManagementProgram,butthemajoritydidnotknowwhetherthe StateOfficesdidtoo. Eighty-ninepercentoftherespondentsindicatedthattheyenjoy theirwork. Recommendationsforcorrectingtheabovedeficienciesinclude: • TakingstepstoensureWashingtonandStateOfficeissuedguidanceisconsistent withintheprogramandbetweenthevariousprogramstheBLMmanages; • Keepingdatabasesandlanduseplanscurrenttoensureanefficientmineral leasinganddevelopmentprocess; • IssuingWOpolicytofurtherclarifytheuseofleasestipulationexceptions, waivers,andmodifications; • DistributionofthenewlyrevisedOilandGasGoldBooktooperatorstoassistin improvingthequalityofAPDs; • Conductingaworkflowanalysistodeterminespecificbottlenecksinoffices whereparticularstaffingandworkloadproblemsarenoted; • ConsideringappropriateenvironmentalBestManagementPractices(BMPs) duringonsitesandinNationalEnvironmentalPolicyAct(NEPA)documentsto mitigateanticipatedimpactstosurfaceresources; • DedicatingapersonineachStateOfficetooversightoftheFluidMinerals SurfaceManagementProgram; Attachment1-4 • Institutingstatewideworkshops,training,andlisteningsessionswiththeBLM, operators,localgovernments,andthepublic; • EncouragingemployeestoattendtheBLM’sdiversesurfacemanagement-related trainingcoursesdevelopedbytheNationalTrainingCenter(NTC)including SurfaceManagementofFluidMinerals,ConstructionandReclamation;Visual ResourceManagementforFluidMinerals,Planning,NEPA,Inspectionand Enforcement. Background TheOilandGasSurfaceManagementProgramincludes; landuseplanningforoiland gasminerals;preleasingreview;permitreview;NEPAanalysis,mitigationdevelopment, anddocumentation;permitapproval;compliance;andtraining. Thelanduseplanning processdetermineswhatlandsareavailableforoilandgasleasingandwhatrestrictions maybeplacedonspecificleases(basedonprotectionofotherresourcesvalues). Lessees ortheiroperatorsmustfileNoticesofIntentorSundryNoticestoconductgeophysical explorationandAPDstodeveloptheirleases. TheAPDscontaindetailedsurfaceuse plansthatareevaluatedbytheBLMoranotherinvolvedsurfacemanagementagency, anddevelopsite-specificConditionsofApproval(COA),tomitigatesurfaceandresource impacts. SubsequentfieldoperationsareinspectedbytheBLMorothersurface managementagenciestoassurethattheoperationsfollowleasestipulationsandCOAs. Complianceinspectionsareconductedbefore,during,andafterdevelopmenttoensure compliancewiththeapprovedpermit. EvaluationObjectiveandScope Aself-assessmentwasconductedduringFY2005oftheBLMOilandGasSurface ManagementProgramtodetermineiftheprogramprocessesarebeingconductedinan effectivemannerandinaccordancewithpolicyandregulations. Aself-assessment questionnairewasdevelopedbytheWashingtonOffice,FluidMineralsGroup(WO-310) andtheDivisionofEvaluationsandManagementService(WO-830). Thequestionnaire wasdistributedelectronicallytothefollowingBLMFieldOffices: Bakersfield, California;GlenwoodSprings,Colorado;MilesCity,Montana;Carlsbad,NewMexico; Moab,Utah;andRawlins,Wyoming. Methodology Aself-assessmentquestionnaire(Appendix1)fortheOilandGasSurfaceManagement Programwassentelectronicallytoalimitednumberofprogramoffices. The questionnairewascompletedbyemployeesinvolvedintheOilandGasSurface 9 Attachment1-5 ManagementProgram. Atotalof76responseswerereceived. Thequestionnairewas dividedintothefollowingsixgeneralareas: GeneralInformation; PlanningandLeaseSaleParcelReview; ReviewandProcessingofAPDSurfaceUsePlans; SurfaceEnvironmentalInspections; ProgramGuidanceandTraining;and ProgramManagement,Staffing,andWorkload. Eachtopicareacontainedaseriesofquestionsoftenpromptinga“yesorno”answeror requestedanarrativeresponse. Followingthisseriesofquestionstherespondentswere askedtoprovidecommentsinanopenformat. Priortoadministeringtheself-assessmentsurvey,theWashingtonOfficepersonnel conductedtelephoneinterviewswiththreefieldofficesinordertobetterrefinethesurvey questions. TheVernal,Utah;Price,Utah;andFarmington,NewMexicoFieldOffices wereselectedtoparticipateintheinitialtelephoneinterviews. Thetelephoneinterviews wereconductedwithonesupervisoryandtwononsupervisorypersonnel. AreasofPositivePerformance PlanningandLeaseSaleParcelReview Themajorityofthegeneralresponsesindicatethattheplanningandleasesaleparcel reviewprocessisefficient. ReviewandProcessingofAPDSurfaceUsePlans Thegeneralresponseswerepositiveinthatallrespondentsfeltthatahighprioritywas placedonAPDprocessing. AmajorityfeltthattheofficemetwiththeoperatorspriortofilingNoticesofStakingand APDsandamajorityfeltthattheofficeencouragedoperatorstofilemultiple-wellAPD packages. TherespondentsseemknowledgeableofthetimerequiredtoprocessAPDs. ThetimetoprocessAPDsreportedbytheFieldOfficescloselymatchestheBLM’sAPD processingstatistics. TheBLMhasrevisedtheOilandGasGoldBookandisrevisingOnshoreOilandGas OrderNo.1. ThiswillhelpimprovethequalityofAPDsfiledbyoperatorsandwill encourageearlycontactbytheoperatortoidentifyandresolveissuesearlyintheprocess. SurfaceEnvironmentalInspections Ahighpercentageofrespondentsindicatedthattheirofficesarerequiringrecontouringto originalcontouroracontourthatblendswiththesurroundingtopographyforlocations. Attachment1-6 roads,andpipelines. Recontouringtotheoriginalcontouroronethatblendswiththe landscapeisakeyaspectofreclamationasoutlinedintheGoldBook,4*^Edition. ProgramGuidanceandTraining Arelativelyhighpercentageoftherespondentsindicatedthattheyarereceiving sufficientguidanceontheSurfaceManagementProgramfromtheWashingtonOffice. Fifty-sevenpercentindicatedthattheywerereceivingsufficientprogramguidance, training,andsupportfromtheStateOffices. Nearly70percentofrespondentsstatedthattheyhaveattendedsufficienttrainingor workshopstoperformtheirsurfacemanagementduties. Ahighpercentageof respondentsstatedthattheirsupervisorssupportedtheircareerdevelopmentandtraining needs. ProgramManagement,Staffing,andWorkload Eighty-twopercentofrespondentsindicatedthattheFieldOfficeshaveaperson dedicatedtotheoilandgassurfacemanagementprogram. Eighty-ninepercentofthe respondentsindicatedthattheyenjoytheirwork. OpportunitiesforImprovement PlanningandLeaseSaleParcelReview Finding: Thisassessmentrevealedthatconflictingguidancefromvariousprogramshampersthe abilityofthestafftomaketimelyandadequatedecisions. Onecommenterfeltthatthe BLMhascreated“animpressivearrayofconflictingguidancefromallprogramsrelated totheissue...” Recommendation: TheDivisionofFluidMineralsandStateOfficesshoulddevelopnewoilandgassurface managementguidancethroughaprocessoffullycoordinatingwiththeStateOfficesand otherresourceprogramsthatareaffected. FederalpolicyestablishedbytheWashington OfficeandStateOfficesthroughInstructionMemoranda(IM)onproceduresregarding leasing,permitting,andsurfacemanagementshouldbeinclearandunambiguous language,andmustbeimplementedbybureauoffices. Finding: Thisassessmentrevealeddatabaseshortcomingsthatareslowingtheleaseprocess. Forexample,theculturalresourcesFieldOfficedatabasesmaynotbesufficientlyup-to- dateinalloffices,andaccesstothedatabasemaybetoolimitedtoensureanefficient CulturalResources,NEPA,andAPDreviewprocess. Attachment1-7 : Recommendation AllFieldOfficedatabasesshouldbekeptup-to-datetoensurescience-basedNEPA documentationandefficientprocessingofpermits. StateOfficesshouldencourage databaseupdatesastimeandfundingallow. Thisactioniscurrentlybeingimplemented bymanyFieldOfficesandshouldcontinueinallFieldOffices. Finding: Thisassessmentrevealedthat,insomecases,landuseplansarenotadequateorup-to- datetosupportthecurrentleasingactivity. Recommendation: FieldOfficesshouldkeeplanduseplanscurrentthrougharegularprogramofplan maintenance,amendment,andrevisiontoavoiddeferringordelayingleaseparcels. Finding: Thecriterionfordeterminingwhenorifexceptions,waivers,andmodificationswillbe grantedforleasestipulationsisnotwelldefined. Recommendation: Landuseplansshouldoutlineclearcriteriaforconsideringandapprovingappropriate exceptions,waivers,andmodificationsofleasestipulations. TheWashingtonOffice shouldissueanInstructionMemorandumcontainingpolicyforthedevelopmentof criteriafortheappropriateuseofexceptions,waivers,andmodifications. Thistask shouldbeimplementedbytheDivisionofFluidMineralsandtheDivisionofPlanning andSciencePolicytosupplementexistingguidance. ReviewandProcessingofAPDSurfaceUsePlans Finding: ThisassessmentrevealeddelaysinprocessingofAPDSurfaeeUsePlansduetothe submissionofincompleteAPDs,latesubmissionofwildlifeandculturalinventories, speculativeAPDfilings,lackofearlycontact,andchangingplansbyoperators. Recommendation: Whenoperatorssubmit“complete”APDsandonlyproposalsthatarelikelytogetdrilled, theapprovalprocessismoreefficientandtheBLMcanprocesspermitsmorequicklyand atlesscost. TheBLMhasrevisedtheOilandGasGoldBookandisrevisingOnshore OrderNo.1toencourageoperatorstousebestbusinesspracticestofacilitatetimelyAPD processing.ThisrevisedguidanceshouldhelpoperatorsimprovethequalityofAPDs filedandwillencouragetheoperatortocontacttheBLMearly-onforplanningpurposes. TheWashingtonOfficehasrecommendedinIM2006-071ProcessImprovementforOil, Gas,Geothermal,Geophysical,andRelatedRightsofWay’ApprovalsthatFieldOffices workmorecloselywithoperators,especiallyearlyintheprocesstoidentifyandplanfor futuredevelopmentneedsratherthanallowingdevelopmenttooccurinalessstructured manner. TobeimplementedbytheFieldOffices. Attachment1-8 ; Finding: SplittingorsharingtheprocessingofindividualAPDsandinspectionsbetweendifferent officescancreateinconsistencyandcommunicationlapsesifstaffsdonotcoordinate closely. Recommendation: Wheredownhole,surface,andadjudicationprocessesaresplitbetweenFieldOffices,the respectivestaffandmanagersshouldworkcloselytoensureanefficientandwell- coordinatedprocess. Toreducestaffingcosts,twoadjacentFieldOfficesmaychooseto splittheAPDpermittingandinspectiontasks,especiallywhenoneoftheofficeshas limitedAPDprocessingorinspectiondemandoralackofscarceskills. AllFieldOffices sharingAPDpermittingorwellinspectionsareencouragedtocoordinateand communicateregularlythroughshortmeetings,phonecalls,e-mails. Thistaskistobe implementedbytheFieldOffices. Finding: Thisassessmentrevealedthatthird-partyNEPAdocumentscanbeaconcern. Recommendation Third-partyNEPAdocumentsmustcomplywiththeNEPAandBLMpolicyand standardsincludingconsiderationofenvironmentalBMPsandanalysisofarangeof reasonablealternativesinEnvironmentalImpactStatements. TheBLMisresponsiblefor ensuringallthird-partyNEPAdocumentscomplywiththeNEPAandBureaustandards. FieldOfficesshallcomplywithWashingtonOfficepolicy,asestablishedinIM2004-194 andconsiderincorporationofappropriateenvironmentalBMPsintoNEPAdocumentsto mitigateanticipatedimpactstosurfaceandsubsurfaceresources. FieldOfficesareto encourageoperatorstoactivelyconsiderincorporatingBMPsintotheirAPDsinorderto simplifytheNEPAanalysis. TheQualityAssuranceTeams,conductedbytheDivision ofFluidMinerals,concludedinIM2006-071ProcessImprovementforOil,Gas, Geothermal,Geophysical,andRelatedRightsofWayApprovalsthatusageofthe DocumentationofNEPAAdequacyworksheets[andthenewSection390Categorical Exclusions]shouldbeincreasedbywritingmoresite-specific“fielddevelopmenf’ EnvironmentalAssessments(EA)andEnvironmentalImpactStatements(EIS). ImplementationofproceduresassetforthbyIM2006-071andIM2005-247National EnvironmentalPolicyActComplianceforOil,Gas,andGeothermalDevelopmentcan assistinimprovingtheNEPAprocessanddocumentsdevelopedbyoperatorsandthe reviewprocessbyBLMstaff. ThistaskwillbeimplementedbytheFieldOffices. SurfaceEnvironmentalInspections Finding: Officesarecontinuingtoevaluatestaffingneedstoensurethereisabalancebetween permittingandinspectionneeds. Recommendation: StaffingshouldbesufficientformeetingtherequirementsoftheInspectionand EnforcementStrategy. AsmandatedbytheEnergyPolicyActof2005,pilotofficeshave Attachment1-9