task 7 anchorage assessment report...

Consulting Engineers Serving the Marine Community

Gateway Pacific Terminal Vessel Traffic and Risk Assessment Study

Task 7: Anchorage Assessment

Prepared for Pacific International Terminals, Inc. Prepared by

The Glosten Associates, Inc. in collaboration with

Environmental Research Consulting Northern Economics, Inc. File No. 12096.01 4 December 2012 Rev. P0

1201 Western Avenue, Suite 200, Seattle, Washington 98101-2921 TEL 206.624.7850 FAX 206.682.9117 www.glosten.com

Consulting Engineers Serving the Marine Community

Gateway Pacific Terminal Vessel Traffic and Risk Assessment Study

Task 7: Anchorage Assessment

Prepared for

Pacific International Terminals, Inc. Seattle, Washington File No. 12096.01 4 December 2012 Rev. P0

Prepared by

The Glosten Associates, Inc. Seattle, Washington

in collaboration with

Northern Economics, Inc. Anchorage, Alaska

PREPARED:

Capt. Nathaniel Leonard

CHECKED:

Rick D. Strong Project Manager

APPROVED:

David L. Gray, PE Principal-in-Charge

Gateway Pacific Terminal VTS Study i The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

Contents References ................................................................................................................. ii

Executive Summary .................................................................................................. iii

Scope of Work per Professional Services Agreement ........................................... v

Section 1 Background ............................................................................................ 1

Section 2 Current Anchorage Locations and Usage ........................................... 3

2.1 Cherry Point .................................................................................................................. 3

2.2 Saddlebag: Bellingham Bay and Vendovi Island ......................................................... 7

2.3 Guemes Channel: Anacortes ...................................................................................... 12

2.4 Juan de Fuca East: Port Angeles ................................................................................. 16

Section 3 Anchorage Activity Comparison......................................................... 21

Section 4 Herring Spawning Area Mitigation ...................................................... 26

4.1 Alternative Operations for the Local Maneuvering Area ........................................... 26

4.2 Alternative Operating Periods for Loading Bulkers ................................................... 26

4.3 Alternative Alignments for the GPT Wharf ............................................................... 26

4.4 Conclusion .................................................................................................................. 26

Section 5 Recommendations for Risk Reduction .............................................. 27

Gateway Pacific Terminal VTS Study ii The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

References

1. Port of Port Angeles, website, http://www.portofpa.com/marine-facilities/index.html, 4 November 2012.

2. Anchorage use data prepared at the request of Northern Economics, Inc., United States Coast Guard (USCG) Sector Puget Sound, September 2012.

3. Marine Exchange of Puget Sound, Northern Economics, Inc., August 2012.

4. “Navigation and Navigable Waters,” Code of Federal Regulations, Title 33 CFR 110.230 (b)(1).

5. “Ports and Waterways Activities,” US Coast Guard Marine Safety Manual, Volume VI.

6. Notice of Proposed Rule Making Docket No. USCG–2012–0159, Federal Register Vol. 77, No. 191, Tuesday, 2 October 2012.

7. “Puget Sound Anchorages,” Puget Sound Harbor Safety Plan, Puget Sound Harbor Safety Committee, Seattle, Washington, April 2012, p 61.

8. “Strait of Juan De Fuca and Georgia, Washington,” United States Coast Pilot 7, US Department of Commerce, National Oceanic and Atmospheric Administration, 44th Edition, Chapter 12, 2012.

9. Port Angeles, US Department of Commerce, National Oceanic and Atmospheric Administration, Washington, DC Chart No. 18468, Appendix l.

Gateway Pacific Terminal VTS Study iii The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

Executive Summary

This Vessel Traffic and Risk Assessment Study (VTS) is being conducted by The Glosten Associates (Glosten) for the proposed Gateway Pacific Terminal (GPT) to be located at GPT/Cherry Point in Washington State. The purpose of the study is to assess the potential risks posed by new bulk carrier traffic that the proposed terminal will bring to the Puget Sound. The area studied includes the designated Puget Sound vessel transit lanes, the maneuvering area near the planned GPT terminal at GPT/Cherry Point, the local anchorage areas, and the transit routes for tugs assisting GPT traffic. Terminal operators estimate 487 total annual visits for the anticipated GPT-bound traffic at full build-out. Of the total vessel calls, it is projected that there will be 318 Panamax and 169 Capesize (up to 250,000 DWT) vessels1.

The purpose of VTS Task 7 is to “review the adequacy of existing designated anchorages along the protected portion of the route and provide recommendations for risk reduction, such as enhancements to anchorage regulations, and establishment of additional anchorage capacity.” The eight primary anchorages used by shipping in the study area are located at Cherry Point, Bellingham Bay, Vendovi Island, Anacortes, and Port Angeles. While Bellingham Bay can accommodate six vessels, approximately half of the anchorage area available is less than 10 fathoms in depth. As a result, GPT-bound vessels are likely to use only three of the six available anchorage spots. In addition, the Cherry Point anchorage is only seasonally available due to high winds. Over the past two years, Cherry Point has recorded winds of over 10 m/sec (or 22 mph) for about 25% of the year.

Table 1 Anchorage Availability in North Puget Sound

Anchorage

Total Capacity

(number)

GPT size vessel

Capacity

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Capacity for GPT

(vessels

days)

Aver. Annual Availability for GPT vessels

2006 -2010

(vessel days (% of year))

Cherry Point 1 1 274 261 (95%)

Anacortes West 1 1 365

766 (70%) Anacortes Central 1 1 365

Anacortes East 1 1 365

Bellingham Bay 6 3 1,095

1,846 (84%) Vendovi Island East 4 4 1,460

Vendovi Island South 1 1 365

Port Angeles Harbor 5 5 1,825 1,290 (61%)

Total 20 17 6,114 4,647 (76%)

1 Panamax vessels are typically between 55,000 and 80,000 deadweight tons. Capesize vessels are typically between 80,000 and 180,000 deadweight tons.

Gateway Pacific Terminal VTS Study iv The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

Adjusting for these factors, the overall capacity of existing anchorages that could support GPT-bound vessels is 6,114 annual vessel days. The maximum utilization of all anchorages during the period of this study (2006-2010) was in 2007 with 1,444 vessel days, or 23.6% utilization.

Table 2 Vessel Days at Anchor by Subarea

2006 2007 2008 2009 2010

Juan de Fuca East 545.4 662.7 495.9 532.0 437.1

Guemes 251.3 354.7 282.2 393.1 363.0

Saddlebag 259.3 407.7 315.1 473.3 263.8

Cherry Point 15.3 19.0 14.4 12.8 5.9

Total 1071.4 1444.0 1107.6 1411.2 1069.8

Juan de Fuca East includes the Port Angeles anchorage. It is the busiest anchorage of the study subareas. Port Angeles has an annual capacity of 1,825 vessel days (5 sites available for 365 days a year). The maximum utilization of Port Angeles occurred in 2007 with 663 vessel days, or 36% utilization. Cherry Point, which can accommodate only one vessel at a time, is the least active of all of the anchorages and has an average utilization of 5%. The maximum utilization of Cherry Point was in 2007 at 19 vessel days.

Consequently, this analysis concludes that significant capacity exists in 2010 within the currently available anchorage sites. A particular anchorage may occasionally be at capacity, however, which would force a GPT-calling vessel to take a different anchorage or to re-schedule their arrival time at the proposed GPT terminal.

Forecasted demand for anchorage use in 2016 and 2026, both by non-GPT vessels and GPT-bound vessels, will be presented in the final report. Forecasted demand is currently under development.

Gateway Pacific Terminal VTS Study v The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

Scope of Work per Professional Services Agreement2

Reviews the adequacy of existing designated anchorages along the protected portion of the route and provide recommendations for risk reduction, such as enhancements to anchorage regulations, and establishment of additional anchorage capacity.

a. This review shall include collection and reporting of anecdotal data from pilots, mariners, and Coast Guard incident reports (if available) on incidents of dragged anchors and shall consider: (1) seasonal prevailing weather to assess trends and patterns: and (2) berthing contingencies Nos. 1,2,4,6, and 7 in Appendix C of the 1999 Settlement Agreement that may affect vessel movements for two alternative pier locations/configurations within the local maneuvering area. If, in the course of completing the VTS, the contractor determines that other facility operational constraints that would affect vessel traffic safety are likely, the review shall also consider those restrictions. However, any additional costs associated with review of those constrains, shall be subject to the approval of Pacific International Terminal Inc., which approval shall not be unreasonably withheld. It is acknowledged that anchorage grounds siting and approvals are the purview of the United States Coast Guard and outside the scope of this study. Therefore, while the study will assess and inform the need for additional anchorage capacity, the study will not include recommendations for siting of any additional anchorage grounds.

2 “Exhibit A, Scope of Services Task 7,” Professional Services Agreement between Pacific International Terminals, Inc. and The Glosten Associates, Gateway Pacific Terminal Vessel Traffic and Risk Assessment Study, Effective Date June 18, 2012.

Gateway Pacific Terminal VTS Study 1 The Glosten Associates, Inc. Task 7 Report, Rev. P0 DRAFT File No. 12096.01, 4 December 2012

Section 1 Background

A general anchorage is an area not designated specifically for anchoring for special purposes such as quarantine, lightering, or transferring explosives.

A designated anchorage is labeled as an anchorage on a NOAA chart. A non-designated anchorage is not labeled as an anchorage, however ships anchoring in a non-designated anchorage must still notify the USCG. The USCG controls reservations in both designated and non- designated anchorages.

Designated anchorages includes both general and special anchorages. A general anchorage is an area not designated specifically for anchoring for special purposes such as quarantine, lightering, or transferring explosives.

The eight (8) primary anchorages used by vessels in the study area are located at Cherry Point, Bellingham Bay, Vendovi Island, Anacortes, and Port Angeles. Table 3 (below) lists the Vessel Traffic System abbreviation, maximum capacity, and limitation of stay at each anchorage.

Table 3 Anchorages in North Puget Sound (Reference 7)

General Anchorages Abbreviation Number of Vessels

Accommodated Maximum Stay

Cherry Point CP 1 30 Days

Bellingham Bay BB 6 30 Days

Anacortes West ANW 1 6 Days

Anacortes Central ANC 1 10 Days

Anacortes East ANW 1 10 Days

Non-Designated Anchorages

Vendovi Island East VIE 4 10 Days

Vendovi Island South VIS 1 10 Days

Port Angeles Harbor PA 5 10 Days The United States Coast Guard (USCG) is the authority in charge of the Puget Sound anchorages. The USCG has been delegated the authority to establish, administer, and enforce anchorage areas pursuant to 49 CFR 1.46. Authority is then re-delegated to the USCG district commanders under 33 CFR 1.05-1(e)(1) (Reference 5).

In 1976, Puget Sound Area Anchorages rulemaking defined 11 general and explosive anchorages within the greater Puget Sound area. These areas were described using geographic points of land and bearings and ranges as the boundaries.

On October 2, 2012, the United States Coast Guard (USCG) posted a notice of proposed rulemaking in the Federal Register to make changes to the anchorages in the study area. The USCG proposed administrative changes that would rename 33 CFR 110.230, reorganize it by incorporating 33 CFR 110.229, and modify the descriptions of four general anchorages. These changes clarified to the general public the boundaries and requirements of anchorages, and


enhanced safety by ensuring good order and predictability within the anchorages of the Captain of the Port (COTP) Puget Sound zone.

This rule also updated existing anchorages to describe areas using points of latitude and longitude, which, with the advent of Global Positioning System (GPS), is much more practical and accurate for the mariner. Additionally, changes to shoreside infrastructure, safety and security zones, and environmentally sensitive areas made some of the anchorage boundaries impractical, such that the listed boundaries no longer reflect the actual anchorages as used currently. For example, although Port Angeles is one of the busiest anchorages in Puget Sound and has been used as a General Anchorage for many years, it was never codified in the Code of Federal Regulations. This rulemaking would bring the Port Angeles Anchorage into line with the other anchorages in Puget Sound.

This rule making also contained a USCG proposal to update the following anchorages’ datum from North American Datum (NAD) 27 to NAD 83 for the Cherry Point General Anchorage and the Bellingham Bay General and Explosives Anchorages.

The proposed rule would rename 33 CFR 110.230 to ‘‘Anchorages, Captain of the Port Puget Sound Zone, WA’’ to better describe the area which is incorporated by this regulation. Additionally, the proposed rule would incorporate into § 110.230 the non-anchorage area contained in 33 CFR 110.229, and update the coordinates to datum NAD 1983. Having two separate regulations for the same COTP zone created unnecessary redundancy and confusion that will be eliminated by incorporating all anchorages into one regulation (Reference 6).


Section 2 Current Anchorage Locations and Usage

The following section is divided into study subareas. Each section describes the relevant anchorages within the particular subarea, including both physical conditions and their current patterns of use.

2.1 Cherry Point

Cherry Point General Anchorage is managed by Vessel Traffic Service (VTS) Puget Sound on behalf of Sector Seattle and the COTP Puget Sound. The Cherry Point General Anchorage encompasses waters within a circular area with a radius of 0.8 nautical miles, having its center at 48°48'30"N., 122°46'00"W. This general anchorage will accommodate one (1) ship with a maximum stay of 30 days.

Figure 1 Cherry Point Anchorage

The western edge of the Cherry Point anchorage is .9 nm east of Alden Bank and is exposed to all wind and seas except from the East-Northeasterly quadrant (Figure 1). In the open waters of Georgia Strait, winds are usually either northwesterlies (17.6% of the time) or southeasterlies (32.5% of the time). Winds from the Southerly quadrant occur more in the winter months from October through March and can reach speeds in excess of 45 knots, (Figures 6-9), and the anchorage is generally undesirable for use during this period.

Cherry Point anchorage is best suited for summer use (May-September) following the Anchoring Standards of Care established in the Puget Sound Harbor Safety Plan (April 2012).


The Cherry Point anchorage bottom consists of primarily mud, sand, and shells, and offers a fair holding ground in good weather. In summer, winds in the Rosario and Haro Straits are usually southwesterlies. Summer breezes are variable and baffling in the San Juan Islands. Gales are uncommon, particularly in mid-summer, when storm activity diminishes. (Reference 8).

The two types of vessels currently anchoring at Cherry Point are tankers and bulk vessels (Figure 2). Tankers include both crude and product vessels destined for the Cherry Point and Ferndale refineries. Bulk vessels are typically those calling at the Alcoa Intalco Works at Ferndale for alumina shipments.

Source: Northern Economics, Inc. using USCG 2012 and Marine Exchange of Puget Sound 2012

Figure 2 Use of Cherry Point Anchorage by Vessel Type, 2006–2010

Bulk11%

Tankers 89%


From 2006–2010, annual vessel days at the Cherry Point Anchorage declined from a high of 19 in 2007 to a low of 6 in 2010. This trend follows a corresponding drop in vessel calls to Cherry Point and Ferndale docks from a high of 530 in 2007 to a low of 460 in 2010 (Figure 3).


Figure 3 Vessel Days at Anchor and Vessel Calls, Cherry Point Subarea (2006–2010)

Cherry Point is typically used as a short-term anchorage. As previously noted, the anchorage can accommodate only one vessel at a time, and is often exposed to harsh wind in the winter.

Figure 4 illustrates both the average number of days at anchor and the average number of monthly reservations as reported by the USCG database. By dividing the number of days at anchor by the number of reservations for any given month, it is possible to derive the average stay at anchor per vessel. On average, vessels anchor at Cherry Point for only 12 hours (0.5 vessel days) over the course of a year.

The number of monthly reservations at the Cherry Point Anchorage peaks in November. July and December are typically months of low reservation counts. The pattern of days at anchor is similar to that of reservations in that November is also the peak month for vessel time at anchor. In contrast to the reservation count, however, the data shows that the fewest vessel days at anchor occurs in October and December—which each have an average of half of one vessel day over the five years included in our analysis.

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Source: Northern Economics, Inc. using USCG 2012

Figure 4 Average Number of Reservations and Vessel Days at Cherry Point Anchorage, by Month (2006–2010)

This means that while fewer vessels call at the anchorage in the summer months, the vessels that do call tend to stay longer than those which call in the winter. This is consistent with the study team’s overview of anchorage suitability, which notes that winds in the winter months (October through March) make the anchorage less desirable.

On an annual basis, records of anchorage use in Cherry Point tell us that between 2006 and 2010, an average of 13.5 vessel days is spent at anchor. Cherry Point Anchorage can accommodate only one vessel at a time; assuming there are 365 vessel days available for use, Cherry Point Anchorage is used only 3.6 percent of the time.

It should be noted that total possible anchor time and actual available time differ significantly for Cherry Point. According to local pilots, weather in the Cherry Point area frequently prevents use of the anchorage. Figure 5shows maximum daily recorded gusts and wind speeds at Cherry Point in 2011, and shows that for a considerable portion of the year, daily winds blow in excess of 10 meters per second, or about 20 knots.

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Figure 5 Daily Wind Speed at Cherry Point, 2011

According to NOAA records, maximum wind speeds (not including gusts) at Cherry Point were in excess of 10 meters per second for 93 days in 2011, or 26 percent of the year. Adjusting for this factor increases actual use of the anchorage to five percent between 2006 and 2010 (13.5 vessel days divided by 272 available days). In addition, factors such as lack of protection from wind and seas paired with poor holding ground also limit use of the anchorage.

2.2 Saddlebag: Bellingham Bay and Vendovi Island

Bellingham Bay and Vendovi Island3 are the two anchorages located within the Saddlebag subarea.

The Bellingham Bay General Anchorage is capable of accommodating up to six ships for a period of 30 days and is managed by Vessel Traffic Service (VTS) Puget Sound on behalf of Sector Seattle and the COTP Puget Sound. The predominant weather pattern for most of the year in that area are Southerly winds occurring 40% of the time with speeds of 20 knots or less making up about one-half that amount. The strongest winds occur during the winter months (December-March) when the Southerly winds above 20 knots occur 01.3% of the time.

Bellingham Bay lays in the North/South direction and thus allows winds from the South the greatest fetch into the Bay. Anchorage may be obtained almost anywhere in the bay south of the flats; the depths, over the greater portion, range from 6 to 15 fathoms. Because of the mud

3 Vendovi Island East and Vendovi Island South are separate anchorages, however, the USCG database does not distinguish between the two; consequently we look at them collectively as ‘Vendovi Island’.

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bottom, vessels are apt to drag anchor in heavy weather. The bottom in the anchorage is a thin accumulation over hardpan, and is not good holding ground in heavy weather (Reference 8).

The Bellingham Bay General Anchorage encompasses waters of Bellingham Bay within a circular area with a radius of 2,000 yards, having its center at 48°44'15", 122°32'25" (Figure 6).

Figure 6 Bellingham Bay Anchorage

The Vendovi Island South Anchorage is an area directly south of Vendovi Island; it is the width of the island and extends into the waterway about half the distance to Jack Island (.75 nm) (Figure 7). The depths in the anchorage range from 35 fathoms in the north near the Island, to 16 fathoms at the southern end. There is good holding ground for anchoring ships with a shell and pebble bottom.

The southern anchorage area is well protected by the nearby land masses of Guemes Island to the south, Cypress and Sinclair Islands to the west, and Blanchard to the east, and is out of the way of vessels transiting Bellingham and Padilla Bays. The anchorage is suited for year around use following the Anchoring Standards of Care established in the Puget Sound Harbor Safety Plan (Reference 7).

The Vendovi South General Anchorage: (VIS) encompasses all waters shoreward of a line beginning at 48°36′40″N, 122°36′51″W; thence to 48°35′34″N, 122°36′51″W; thence to 48°35′34″N, 122°35′53.62″W; thence to 48°36′31.38″N, 122°35′53.62″W. This general anchorage will accommodate one ship with a maximum stay of 10 days and is managed by Vessel Traffic Service (VTS) Puget Sound on behalf of Sector Seattle and the COTP Puget


Sound. The Vendovi Anchorages are mainly used by tanker traffic waiting for a berth at one of the nearby refineries.

The Vendovi Island East Anchorage lays 1.17 nm east of Vendovi Island near Samish Bay. Depths in the anchorage range between 8 fathoms in the north east to 23 fathoms in the southwest corners. The bottom consists of primarily mud with some mud and shells in the southwest corner and offers suitable holding ground. The anchorage is generally protected by land mass in all but the northern quadrant where almost ten miles of fetch from Bellingham Bay exists. The anchorage is well for year around use following the Anchoring Standards of Care established in the Puget Sound Harbor Safety Plan (April 2012) and can accommodate four ships for a period of up to 10 days.

The Vendovi East General Anchorage: (VIE) encompasses all waters in an area beginning at 48°37′20″N, 122°34′07″W; thence to 48°37′20″N, 122°31′37″W; thence to 48°35′43″N,122°31′37″W; thence to 48°35′43″N, 122°34′07″W; thence to point of origin.

Figure 7 Vendovi Island Anchorages

The Saddlebag anchorages are used almost exclusively by tanker vessels (Figure 8). Vendovi Island is used by crude and product tankers while Bellingham Bay is used by Articulated Tug-Barges (ATBs), which typically require a shallower anchoring depth.



Figure 8 Use of Saddlebag Anchorages (Vendovi and Bellingham Bay) by Vessel Type, 2006–2010

Bellingham Bay is the largest anchorage included in our analysis; with a 2,000 yard radius, it can accommodate up to six vessels at a time. However, while wide, the anchorage is shallower than most, ranging in depth from 36 to 90 feet. In addition, the anchorage’s soft mud bottom makes it unsuitable for holding ground in heavy weather. Vendovi Island, which can accommodate up to five vessels at a time, has greater depths ranging from 48 to 210 feet. The benefits of using Vendovi Island are confirmed by the USCG database; Bellingham Bay accounts for only two percent of all days at anchor in Saddlebag over the five year period. Vendovi Island accounts for the remaining 98 percent (Figure 9).

Tankers 100%

All Other<1%



Figure 9 Vessel Days at Anchor, Saddlebag Anchorages, 2006–2010

Our data shows that the majority of traffic at Vendovi Island anchorage is related to activity in the Cherry Point subarea. Of the vessels anchored at Vendovi Island between 2006 and 2010, approximately 36 percent recorded their last port of call as Cherry Point or Ferndale, and 74 percent recorded their next port of call as Cherry Point or Ferndale. Note that many vessel trips show both last port and next port as Cherry Point; these vessels shifted from Cherry Point to anchor at Vendovi Island, then returned. Several factors can account for these moves including wind and wave conditions at the docks, and the refineries’ needs to adjust the flow of crude oil and petroleum products through their facilities.

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Reservations at the Saddlebag anchorages remain consistent throughout the year, averaging between 6 and 10 each month. Vessel days at anchor show greater variation, with peaks in the spring and fall accompanied by dips in the winter and summer (Figure 10). On average, vessels at the Saddlebag anchorages spend 3.5 days at anchor; this is nearly seven times the amount of time spent at the Cherry Point anchorage.


Figure 10 Average Number of Reservations and Vessel Days at Saddlebag Anchorages, by Month (2006–2010)

Between 2006 and 2010, a total of 494 reservations were made at Saddlebag anchorages; these vessels spent a total of 1,719 days at anchor. When averaged out, annual days at anchor are estimated at 344. As previously noted, Bellingham Bay is not suitable for most deep-draft vessels anchoring in the study area, and accounts for only a small fraction of the Saddlebag vessel days at anchor. To have a more accurate gauge of anchorage availability, the Bellingham Bay days at anchor are removed from the total, leaving an annual average of 337. Assuming that Vendovi Island anchorages are accessible 365 days a year, average anchorage use is approximately 18 percent.

2.3 Guemes Channel: Anacortes

Guemes Channel anchorages are comprised of Anacortes East, Anacortes Center, and Anacortes West. The Coast Guard established these three general anchorages on June 2, 2005,

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to reduce the risk of collisions, provide a more orderly movement of tanker traffic in and out of nearby oil refineries, and keep the approaches to Guemes Channel open to transiting traffic.

These three general anchorage areas are located North of March Point and will accommodate one ship each for a period of 6 days. They are managed by Vessel Traffic Service (VTS) Puget Sound on behalf of Sector Seattle and the COTP Puget Sound. The anchorages are mainly used by tanker traffic waiting for a berth at one of the nearby refineries.

These anchorages lie east of Anacortes and southeast of Guemes Island and remain well protected from both Southerly and Northerly winds in the winter months. The anchorage is suited for year around use following the Anchoring Standards of Care established in the Puget Sound Harbor Safety Plan (April 2012).

The holding ground consists mainly of a combination of sand with some shells; the bottom is more than adequate for an anchorage of this type.

Anacortes East Anchorage Area: (ANE) encompasses the waters within a circular area with a radius of 600 yards, having its center at 48°31'27"N., 122°33'45"W. This general anchorage will accommodate one ship with a maximum stay of 10 days.

Anacortes Center Anchorage Area: (ANC) encompasses the waters within a circular area with a radius of 600 yards, having its center at 48°30'54"N., 122°34'06"W. This general anchorage will accommodate one ship with a maximum stay of 10 days.

Anacortes West Anchorage Area: (ANW) encompasses the waters within a circular area with a radius of 600 yards, having its center at 48°31'09"N., 122°34'55"W.

Figure 11 Anacortes Anchorages


While the majority of vessels using the Guemes Channel anchorages are tankers moving crude and petroleum products to and from local refineries, some bulk and general cargo vessels also make use of the Anacortes anchorages (Figure 12).


Figure 12 Use of Anacortes Anchorages by Vessel Type, 2006–2010

Bulk1% General

Cargo/Container1%

Tankers 97%

All Other1%


The two main drivers of traffic at the Anacortes anchorage are the Anacortes and March Point refineries. Annual vessel days at anchor in Guemes Channel fluctuated between a low of 250 in 2006, to a high of nearly 400 in 2009. While not exactly in line with anchor days, vessel calls at the Anacortes and March Point Docks show a similar shift in magnitude, from a low of 442 in 2010 to a high of 562 in 2007 (Figure 13).


Figure 13 Vessel Days at Anchor and Vessel Calls, Guemes Channel Subarea (2006–2010)

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On a monthly basis, reservations at the Anacortes anchorages remain within a four reservations band, from a low of 14 to a high of 18. However, monthly days at anchor demonstrate greater volatility, spiking nearly every other month (Figure 14), and ranging from 19 days to 35 days.


Figure 14 Average Number of Reservations and Vessel Days at Guemes Channel Anchorages, by Month (2006–2010)

Between 2006 and 2010, a total of 905 reservations were made at Guemes anchorages. These vessels spent a total of 1,644 hours at anchor. Annual days at anchor are estimated at 328; on average, each vessel spent 1.8 days at anchor.

Annual vessel days at anchor in Guemes Channel are similar when compared to vessel days at Saddlebag anchorages. However, it should be noted that nearly twice the number of reservations are made in Guemes, but that vessels stay at anchor in Guemes nearly half the amount of time that they spend in Saddlebag anchorages.

2.4 Juan de Fuca East: Port Angeles

Port Angeles is the busiest anchorage included in the study area as measured by both reservations and total days at anchor, as ships await berth availability in Puget Sound, bad weather or bunkers; the Port also offers ship repair, crew transportation and general cargo facilities. Located in Juan de Fuca East, Port Angeles is the first full-service operating port

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available to eastbound ships on the Strait of Juan de Fuca (Port of Port Angeles 2012), and the last port to bunker before they depart westbound to sea.

Port Angeles Anchorage is located between Ediz Hook to the north and the Port Angeles land mass to the south. The harbor is about 2.4 nm long with the anchorage extending east an additional 1.3 nm past Ediz Hook light for a total length of 3.7 nm. It is protected in all quadrants but the east, and the harbor is protected from all except easterly winds, which occasionally blow during the winter. During South East winter gales, the wind is not usually felt, but some swells are generated in the Strait and roll into the anchorage. The depths are greatest on the north shore and decrease from 30 to 15 fathoms in the middle of the harbor; from the middle, the depths decrease regularly to the south shore, where the 3-fathom curve in some places in the East part is nearly 0.2 mile from the beach (Reference 9). The bottom of the anchorage is primarily sand but turns into mud and shells in the west end near the lagoon.

The anchorage is suitable for year around use following the Anchoring Standards of Care established in the Puget Sound Harbor Safety Plan (April 2012) and can accommodate five ships for a period of up to 10 days with a sixth ship in the eastern most anchorage when approved by the Captain of the Port for inspection or other emergent need during good weather. The Port Angeles Harbor Anchorage Area (PA) (Reference 9) encompasses all waters in Port Angeles Harbor that lie west of a line drawn from Ediz Hook, 48°08′23″N, 123°24′02″W; to 48°08′23″N, 123°22′07″W; thence to 48°07′42″N, 123°22′07″W; thence to 48°07′42″N, 123°24′08″W; thence to 48°07′14.9″N, 123°24′28.2″W.

Figure 15 Port Angeles Anchorage


Most vessels anchoring in Port Angeles are tankers, however both bulk and general cargo vessels also frequent the anchorage (Figure 16).


Figure 16 Use of Port Angeles Anchorage by Vessel Type, 2006–2010

Traffic data from the Marine Exchange show that vessels stop to berth or anchor at Port Angeles while transiting both east and west in the Strait. Each year more than 30 percent of the vessels calling at Port Angeles are coming from Cherry Point and Guemes Channel; these vessels are likely tankers transiting through the Strait of Juan de Fuca on their way out to sea. Another 40 percent are from Alaska or other US ports, transiting the Strait in the opposite direction and destined for a Washington port of call (Table 4).

Table 4 Recorded Last Port of Call before Port Angeles, 2006–2010

Region of Last Port of Call

2006 2007 2008 2009 2010

Percent

Cherry Point and Guemes Channel 31 31 30 35 32

Alaska and Other US 37 43 40 39 41

Puget Sound 5 7 7 5 6

Foreign 20 14 20 18 16

Other 7 6 3 4 4

Total 100 100 100 100 100

Source: Marine Exchange of Puget Sound, 2012

Bulk7% General

Cargo/Container1%

Tankers 92%

All Other<1%


In addition to bunkering, vessels may anchor at Port Angeles while they wait for better weather at sea, or to undergo mechanical repairs. Port Angeles anchorage is occupied for more than 400 vessel days each year (Figure 17).


Figure 17 Vessel Days at Anchor, Juan de Fuca East Anchorage, 2006–2010

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The number of vessels calling Port Angeles anchorage stays close to 30 per month. These vessels tend to stay at anchor longer in the winter months, perhaps due in part to winter weather delays at Washington destinations (Figure 17). Vessels calling Port Angeles between 2006 and 2010 stayed for an average of 1.5 days per visit.


Figure 18 Average Number of Reservations and Vessel Days at Juan de Fuca East Anchorage, by Month (2006–2010)

Port Angeles can accommodate up to five vessels at anchor at one time. Assuming all five anchorages are available each day each year, the anchorage operates at approximately 30 percent of its capacity.

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Section 3 Anchorage Activity Comparison

In order to assess the use of anchorages in North Puget Sound, the study team contacted U.S. Coast Guard (USCG) Sector Puget Sound. USCG Sector Puget Sound is designated as the Captain of the Port’s authorized representative. According to applicable regulations, no vessel shall anchor in any of the general anchorages examined in this study without prior permission from either the Captain of the Port or his authorized representative. In addition, regulations state that all vessels should seek permission at least 48 hours prior to arrival at the anchorage area in order to avoid unnecessary delays (33 CFR 110.230 (b)(1)), effectively creating a reservation system. USCG Sector Puget Sound maintains a database of these anchorage reservations; the study team believes that these data serve as the most accurate and consistent record of activity at North Puget Sound anchorages, and uses them as the basis for our analysis.

Upon request, USCG Sector Puget Sound provided the study team with a history of vessels at anchor for 2006–2010. The data provided by the USCG show several fields; those used for our analysis are shown below in Table 5. For each record, the study team noted the anchorage (area), name of the vessel, actual time of arrival, and actual time of departure.

Table 5 Sample of USCG Anchorage Data

Area Vessel Name Actual Time of Arrival Actual Time of Departure

PA ALASKAN EXPLORER 1/15/2006 2:16:00 PM 1/19/2006 1:28:00 AM Note: PA=Port Angeles


The USCG database does not contain information regarding vessel type, and also omits any unique identifier such as International Maritime Organization number or Maritime Mobile Service Identity number, which would allow a user to accurately identify the vessel through independent sources. To assess anchorage use by vessel type, the study team utilized data purchased through the Marine Exchange of Puget Sound (Marine Exchange). Vessel names in the USCG database were paired with those in the Marine Exchange data; vessel type was assigned based on this association. It should be noted that some vessel names in the two databases did not match-up due to what the study team believes to be clerical error. Data clean-up was required to resolve likely misspellings, differences in capitalization, punctuation, and spacing.

In addition to assigning vessel type, the study team assigned study area location using the mapping shown in Table 6. Note that there are no designated anchorages in two of the subareas, Rosario Strait and Haro Strait-Boundary Pass.


Table 6 Anchorages Assigned to Study Subareas

General Anchorages Study Subareas Location

Cherry Point Cherry Point

Bellingham Bay Saddlebag

Anacortes West Guemes Channel

Anacortes Central Guemes Channel

Anacortes East Guemes Channel

Non-Designated Anchorages

Vendovi Island South Saddlebag

Vendovi Island East Saddlebag

Port Angeles Harbor Juan de Fuca East Source: Northern Economics, Inc.

Table 7 shows how the information sourced from the USCG (Table 4) was transformed for the purpose of the GPT study.

Table 7 Example of Anchorage Data Used for Analysis Study Area Location Year Vessel Type Days at Anchor

Juan de Fuca East 2006 CRUDE CARRIER 3.47 Source: Northern Economics, Inc.

As previously noted, the USCG database contains data for 2006–2010. Using the approach outlined above, the study team summarized anchorage activity in each of the study subareas for the five years available. Results of this analysis are summarized in Figure 19 and Table 8.



Figure 19 Vessel Days at Anchor by Subarea (2006–2010)

Juan de Fuca East, which includes Port Angeles anchorage, is the busiest of all of the study subareas. Cherry Point, which can accommodate only one vessel at a time, is by far the least active of all of the anchorages.

Table 8 Vessel Days at Anchor by Subarea (2006–2010)

SubArea 2006 2007 2008 2009 2010

Cherry Point 15.3 19.0 14.4 12.8 5.9

Saddlebag 259.3 407.7 315.1 473.3 263.8

Guemes 251.3 354.7 282.2 393.1 363.0

Juan de Fuca East 545.4 662.7 495.9 532.0 437.1

Total 1071.4 1444.0 1107.6 1411.2 1069.8Source: Northern Economics, Inc. using USCG 2012

The two variables which determine total time at anchor are the number of anchoring vessels, and the duration each of these vessels anchor. As shown in Figures 20 and 21, anchorages which record the highest number of vessels each year do not necessarily report the longest duration of time at anchor.

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Figure 20 Annual Number of Anchoring Vessels, by Subarea (2006–2010)


Figure 21 Average Vessel Days per Anchor, by Subarea (2006–2010)

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Table 9 At-Anchor Times by Vessel Type and Year, by Subarea

Vessel Type/Year

Anchorage

Juan de Fuca West

Juan de Fuca East

Haro Strait-

Boundary Pass Guemes

Saddle-bag

Rosario Strait

Cherry Point Total

Tanker

2006 0.00 489.85 0.00 243.81 253.42 0.00 14.71 1001.78

2007 0.00 620.58 0.00 340.45 405.80 0.00 16.25 1383.09

2008 0.00 446.13 0.00 278.29 314.03 0.00 12.98 1051.43

2009 0.00 442.42 0.00 384.52 465.92 0.00 12.40 1305.26

2010 0.00 375.32 0.00 347.77 261.14 0.00 3.32 987.55

Grain Bulk

2006 0.00 6.27 0.00 0.00 0.00 0.00 0.00 6.27

2007 0.00 2.93 0.00 0.00 0.00 0.00 0.00 2.93

2008 0.00 17.44 0.00 0.00 0.00 0.00 0.00 17.44

2009 0.00 19.20 0.00 0.00 0.00 0.00 0.00 19.20

2010 0.00 20.00 0.00 4.29 0.00 0.00 0.00 24.30

Other Bulk

2006 0.00 14.89 0.00 6.94 0.45 0.00 0.62 22.90

2007 0.00 15.35 0.00 0.22 1.85 0.00 2.74 20.15

2008 0.00 13.24 0.00 0.00 0.00 0.00 1.45 14.69

2009 0.00 39.14 0.00 1.71 0.59 0.00 0.37 41.80

2010 0.00 16.95 0.00 2.87 0.00 0.00 2.55 22.37

Container

2006 0.00 5.04 0.00 0.00 0.00 0.00 0.00 5.04

2007 0.00 2.21 0.00 0.00 0.00 0.00 0.00 2.21

2008 0.00 7.37 0.00 0.00 0.00 0.00 0.00 7.37

2009 0.00 3.93 0.00 0.00 0.00 0.00 0.00 3.93

2010 0.00 5.43 0.00 0.00 0.00 0.00 0.00 5.43

Gen Cargo

2006 0.00 16.24 0.00 0.58 0.00 0.00 0.00 16.82

2007 0.00 12.95 0.00 2.64 0.00 0.00 0.00 15.59

2008 0.00 8.48 0.00 1.29 0.00 0.00 0.00 9.77

2009 0.00 21.22 0.00 6.91 0.00 0.00 0.00 28.13

2010 0.00 15.52 0.00 1.89 0.00 0.00 0.00 17.41



Section 4 Herring Spawning Area Mitigation

Concern exists that the operation of the GPT terminal will adversely affect the spawning habitat of the Cherry Point herring stock. A herring monitoring program has been proposed in Appendix C of the 1999 Settlement Agreement that suggests several alternative operating procedures for the maneuvering area near the proposed GPT terminal, the alignment of the wharf, and the operating periods for loading Bulkers calling at GPT.

This report will focus on evaluating the feasibility of the alternative operations suggested in the 1999 Settlement Agreement on the terminal operations, but will not review the cost implications of the alternatives.

4.1 Alternative Operations for the Local Maneuvering Area

If the result of surveys performed by the Washington Department of Fish and Wildlife (WDFW) demonstrate that GPT vessel movements within the local maneuvering area disrupt the herring migration, then during the period of April 26 through May 27, Appendix C suggests that a small vessel be used to evaluate whether the local maneuvering area is essentially clear of pre-spawner schools of herring before the calling bulker is berthed. If the presence of pre-spawner herring is discovered, then the calling bulker must wait until the local area is clear. Operationally, this can be accomplished with an increased focus on scheduling bulker arrival and departure times. Local anchorages may be used if it is anticipated the presence of pre-spawner herring will be of considerable duration.

4.2 Alternative Operating Periods for Loading Bulkers

If monitoring by the WDFW during the period of April 10 through May 20 indicates that loading operations near the wharf adversely impact herring migration, Appendix C recommends that loading activities be minimized to adhere to an “8 hours on, 8 hours off” schedule. This can also be accomplished operationally, although it may have an impact on schedule

4.3 Alternative Alignments for the GPT Wharf

If the WDFW determines that the proposed wharf alignment overlaps a preferred nearshore migration corridor or schooling area, then Appendix C suggests that berthing activity be prohibited from one hour after the beginning of the flood tide to one hour after the beginning of the ebb tide during April 10 through April 20. Operationally, this can be accomplished through scheduling bulker arrival times or the use of local anchorages. Alternatively, a different wharf alignment may be considered.

4.4 Conclusion

Advance scheduling and availability of local anchorages addresses virtually every operational constraint posed by the potential impact of berthing operations upon pre-spawning herring. If it is discovered that berthing operations do impact pre-spawning herring during the period of April 10 through May 20, an opportunity exists for wharf and equipment maintenance until normal operations can commence.


Section 5 Recommendations for Risk Reduction

This section reserved for the completion of Task 6 Risk Reduction Measures.

When the VTS is completed, the project team will identify and address any other facility operational constraints that might affect vessel traffic safety and outline those restrictions.

task 7 anchorage assessment report...

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