Deepwater oil production in the gulf, which started in 1979 but expanded much faster in the mid-1990s with new technology and federal incentives, is governed as much by exceptions to rules as by the rules themselves.
Under a process called “alternative compliance,” much of the technology used on deepwater rigs has been approved piecemeal, with regulators cooperating with industry groups to make small adjustments to guidelines that were drawn up decades ago for shallow-water drilling...
“The pace of technology has definitely outrun the regulations,” Lt. Cmdr. Michael Odom of the Coast Guard, who inspects the rigs, said last month at a hearing.
As a result, deepwater rigs operate under an ad hoc system of exceptions. The deeper the water, the further the exceptions stretch, not just from federal guidelines but also often from company policy.
So, for example, when BP officials first set their sights on extracting the oily riches under what is known as Mississippi Canyon Block 252 in the Gulf of Mexico, they asked for and received permission from federal regulators to exempt the drilling project from federal law that requires a rigorous type of environmental review, internal documents and federal records indicate...
As BP engineers planned to set certain pipes and casings for lining the well in place in the ocean floor, they had to get permission from company managers to use riskier equipment because that equipment deviated from the company’s own design and safety policies, according to internal BP documents obtained by The New York Times...
Its [the Mineral Management Service] safety inspections usually consist of helicopter visits to offshore rigs to sift through company reports of self-administered tests.
Even Ken Salazar, the interior secretary, who oversees the minerals agency, has said that oil companies have a history of “running the show” at the agency, a problem he has vowed to correct...
On the Deepwater Horizon, for example, the minerals agency approved a drilling plan for BP that cited the “worst case” for a blowout as one that might produce 250,000 barrels of oil per day, federal records show. But the agency did not require the rig to create a response plan for such a situation.
If a blowout were to occur, BP said in its plan, the first choice would be to use a containment dome to capture the leaking oil. But regulators did not require that a containment dome be kept on the rig to speed the response to a spill. After the rig explosion, BP took two weeks to build one on shore and three days to ship it out to sea before it was lowered over the gushing pipe on May 7. It did not work...
More broadly, regulators have not required technology and strategies for dealing with deepwater spills to be improved.
Engineers trying to control the blowout are using the same tactics they used in 1979 when the Ixtoc I well blew up in the Bay of Campeche off the coast of Mexico. In the earlier blowout, they first tried lowering a containment dome over the leak. When that failed, they unsuccessfully tried to inject golf balls and other material in a move called a junk shot, which was also tried and abandoned for the Deepwater Horizon...
Questions of oversight also came up in the New Orleans hearings last month. For example, Michael J. Saucier, an official with the Minerals Management Service, said that his agency “highly encouraged” — but did not require — companies to have backup systems to trigger blowout preventers in case of an emergency.
“Highly encourage?” Captain Nguyen of the Coast Guard asked. “How does that translate to enforcement?”
“There is no enforcement,” Mr. Saucier answered...
As early as June 2009, BP engineers had expressed concerns in internal documents about using certain casings for the well because they violated the company’s safety and design guidelines. But they proceeded with those casings...
More than five weeks before disaster, the rig was hit by several sudden pulsations of gas called “kicks” and a pipe had become stuck in the well. The blowout preventer, designed to seal the well in an emergency, had been discovered to be leaking fluids at least three times.
Dealing with these problems required teamwork, a challenge to the throng of different companies with responsibilities on the rig. Of the 126 people present on the day of the explosion, only eight were employees of BP. The interests of the workers did not always align.