Legislature(2019 - 2020)BUTROVICH 205
02/01/2019 03:30 PM Senate RESOURCES
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| Audio | Topic |
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| Start | |
| Overview: Alaska Oil & Gas Conservation Commission | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| + | TELECONFERENCED | ||
| + | TELECONFERENCED |
ALASKA STATE LEGISLATURE
SENATE RESOURCES STANDING COMMITTEE
February 1, 2019
3:30 p.m.
MEMBERS PRESENT
Senator Chris Birch, Chair
Senator John Coghill, Vice Chair
Senator Cathy Giessel
Senator Lora Reinbold (online)
Senator Scott Kawasaki
Senator Jesse Kiehl
MEMBERS ABSENT
Senator Click Bishop
COMMITTEE CALENDAR
OVERVIEW: ALASKA OIL & GAS CONSERVATION COMMISSION
- HEARD
PREVIOUS COMMITTEE ACTION
No previous action to record
WITNESS REGISTER
DAN SEAMOUNT, Commissioner
Alaska Oil and Gas Conservation Commission
Anchorage, Alaska
POSITION STATEMENT: Provided an overview of the commission.
CATHY FOERSTER, Commissioner
Alaska Oil and Gas Conservation Commission
Anchorage, Alaska
POSITION STATEMENT: Provided an overview of the commission.
ACTION NARRATIVE
3:30:27 PM
CHAIR CHRIS BIRCH called the Senate Resources Standing Committee
meeting to order at 3:30 p.m. Present at the call to order were
Senators Kiehl, Coghill, Giessel, Kawasaki, Reinbold (online),
and Chair Birch.
^OVERVIEW: Alaska Oil & Gas Conservation Commission
OVERVIEW: Alaska Oil & Gas Conservation Commission
3:31:15 PM
CHAIR BIRCH announced that the committee will hear an overview
from the Alaska Oil and Gas Conservation Commission (AOGCC). He
detailed that AOGCC oversees oil and gas drilling, development
and production, reservoir depletion, and metering operations. He
said AOGCC is the agency that acts on behalf of the state to
prevent waste, to protect correlative rights, improve ultimate
recovery, and protect underground freshwater.
3:32:31 PM
DAN SEAMOUNT, Geologic Commissioner, Alaska Oil and Gas
Conservation Commission (AOGCC), Anchorage, Alaska, addressed
slide 2 in AOGCC's overview, "AOGCC has oversight over oil and
gas projects everywhere except Denali National Park." He said
AOGCC's main office is in Anchorage, a field office for the
inspectors on the North Slope at Deadhorse, and inspectors'
residential offices in the Kenai Peninsula for Cook Inlet
inspections.
He explained that there are two basins in Alaska that are
currently producing, the Cook Inlet and the Colville Basin on
the North Slope. He emphasized that Alaska has over 20 basins
that have oil and gas potential with little activity due to the
state's remoteness. He said there are a lot of future potential
in hydrocarbons for Alaska.
3:34:59 PM
He referenced slide 3 in AOGCC's overview presentation, "Quasi-
judicial state regulatory agency, mainly sub-surface" as
follows:
• AOGCC Mission: To protect the public interest in
exploration and development of Alaska's valuable oil, gas,
and geothermal resources through the application of
conservation practices designed to ensure greater ultimate
recovery and the protection of health, safety, fresh ground
waters, and the rights of all owners to recover their share
of the resource. Exception to sub-surface oversight is the
proving of metering so allocation of production is fairly
distributed.
• Funded by industry receipts of $7,468,600 for FY2019. AOGCC
takes no money out of the general fund. The Legislature
approves the AOGCC budget and represents the people of the
State of Alaska who AOGCC works for.
• Small amount from the United States Environmental
Protection Agency (EPA) for managing Underground Injection
Control (UIC) program: $119,000 for FY2019. UIC takes up
one third of AOGCC's budget and the commission is
underfunded.
• Extremely technical, arbitrary interpretation of law
regarding AOGCC decisions difficult.
• Statute (title 31), regulations, and science is very tight.
• Jurisdiction over private and public lands, adjudicate
disputes between resource owners.
• Thirty-two total staff members: 3 commissioners, 2
geologists, 6 engineers, 9 field inspectors, 2
statisticians, 2 IT, 8 administrative.
3:37:24 PM
CATHY FOERSTER, Commissioner, Alaska Oil and Gas Conservation
Commission (AOGCC), Anchorage, Alaska, addressed the UIC
program's budget and noted that AOGCC would be doing the work
anyway as part of the commission's oversite, so the commission
is saving the federal taxpayers money by eliminating a
redundancy. The only added work is the paperwork that is
required.
She referenced slide 4, "Quasi-judicial state regulatory agency,
mainly sub-surface," as follows:
• Protect human safety on rigs.
• Protect fresh water:
o Down to one-quarter mile:
o Manage Class II UIC program.
• Prevent physical waste of energy resources:
o 0.5 to 5.5 miles drilled depth,
o 3 miles vertical depth deep.
• Promote greater ultimate recovery:
o 0.5 to 5.5 miles drilled depth,
o 3 miles vertical depth deep.
• Protect correlative rights.
• Intense inspection and enforcement.
3:42:20 PM
CHAIR BIRCH asked how a well is plugged.
COMMISSIONER FOERSTER answered that wells are plugged on a case-
by-case basis. Plugging methods are determined by the well's
geometry. The objective of plugging a well is to secure any
hydrocarbon-bearing zone or any other zone that could produce
hazardous fluid from coming to the surface or from commingling
with another underground resource. Plugging can be done by
cement, bridge-plugs, or a combination from total depth up to
the surface. When a well is plugged, the wellhead is cutoff, the
top five feet of the casing is cutoff, a marker-plate is placed
on top and welded into place in case of future excavation.
CHAIR BISHOP asked if the plugging method Commissioner Foerster
described would allow for access in the future.
COMMISSIONER FOERSTER answered no. She explained that the
plugging method makes going back into the well cost prohibitive.
3:44:30 PM
COMMISSIONER SEAMOUNT addressed slide 5, "AOGCC primary
services," as follows:
• Regulate, monitor, and inspect all subsurface activities
directly related to oil and gas exploration and production
including the design and integrity of wells, well control
procedures and equipment, reservoir management plans, and
proposed underground injection programs:
o Hold hearings.
o Issue pool rules and other conservation orders.
o Approve and monitor plans for reservoir development
and enhanced oil recovery.
o Approve permits for initial drilling, re-drill,
sidetrack, and remedial well operations; this includes
the evaluation and approval of proposed designs for
drilling fluids, well control, casing, cementing, and
well completion operations.
o Inspect drill rigs and wells to insure compliance with
AOGCC regulations.
o Witness safety valve, mechanical integrity, and
blowout preventer tests.
o Witness meter-proving, calibration, and oil quality
tests.
o Enforce well spacing rules.
o Monitor production rates, injection well pattern,
gas/oil/water ratios, and pressure maintenance
efforts.
o Monitor and evaluate gas flaring.
o Collect and maintain all oil and gas production
records.
o Collect and maintain all well history files and well
log records.
o Administer Alaska's Underground Injection Control
(UIC) program and the annular waste disposal program
(protection of drinking water).
SENATOR KAWASAKI noted that Commissioner Seamount had said that
AOGCC does not have enough inspectors.
COMMISSIONER FOERSTER opined that AOGCC does have enough
inspectors.
COMMISSIONER SEAMOUNT explained that AOGCC has very aggressive
performance measures.
COMMISSIONER FOERSTER specified that she routinely asks her
inspectors if AOGCC has an adequate number of inspectors and
their answer is always "yes." She said inspectors go to every
rig every month or two, and frequency is increased if a rig is
having a problem passing a blowout preventer (BOP) test or other
concerns. She added that inspectors try to witness mechanical
integrity test on injection wells with a set frequency.
COMMISSIONER SEAMOUNT added that Alaska is in a very fortunate
position that the state has some very good operators. He said he
did not know of any incidences where the operators have not self
reported a problem.
3:47:49 PM
SENATOR KAWASAKI asked if AOGCC anticipated a need for more
inspectors with the North Slope's anticipated growth.
COMMISSIONER SEAMOUNT answered that AOGCC will deal with the
anticipated increase in activities when needed.
COMMISSIONER FOERSTER added that AOGCC has asked the Legislature
for additional positions in the past when activity increased.
SENATOR KIEHL asked who sets the performance measures and how
were they derived.
COMMISSIONER SEAMOUNT answered that the performance measures
were set a long time ago and have been adjusted. He added that
the original measures have not been changed.
3:49:56 PM
COMMISSIONER SEAMOUNT addressed slide 6, "AOGCC permits and
decision /orders, 2009-2018" as follows:
• Permits to drill: 1,605.
• Drilling completed: 1,658 wells and branches.
• Well work activity reports: 8,401.
• Orders and decisions: 717:
o Aquifer exemption,
o Area injection,
o Disposal,
o Enhanced recovery,
o Metering,
o Pool rules,
o Production and other topics:
square4 Major orders: 59,
square4 Amendments: 539,
square4 Well spacing exceptions: 119.
• Special development considerations are "many."
3:52:29 PM
COMMISSIONER FOERSTER addressed slide 7, "Major issues of 2018"
as follows:
• Growing inventory of old and idle wells:
o Ensuring mechanical integrity;
o Plugging wells with no future utility;
o Annual review of idle wells and operators' intentions.
• Operator bankruptcies, orphan wells:
o Liability falls back on the landowner if bankrupt
operator cannot plug its wells;
o State of Alaska is the landowner for the majority of
wells;
o CIRI exercised its contractual right to have the
previous operator pay for well plugging.
• Well bonding adequacy.
• Bureau of Land Management (BLM) legacy, also known as the
"Travesty Wells:"
o Started with 126 wells to be plugged, down to
approximately 40 wells that need to be addressed.
o Wells are prioritized and nearby wells are also
plugged.
o BLM will have to go back to Congress to get more money
to plug the remaining wells.
• New operators:
o Challenges in adapting to Alaska's cold environment
and AOGCC's regulations.
COMMISSIONER FOERSTER pointed out that there are trade-offs
regarding idle-well plugging. She noted that if AOGCC made
Arco/BP plug all their Prudhoe Bay wells that were not being
used 30 years ago, present day horizontal and coil-tubing-
sidetrack technologies, and multi-laterals would not have had
mother-well bores to take advantage of.
SENATOR COGHILL asked Commissioner Foerster to quantify the
number of idle wells.
COMMISSIONER FOERSTER replied that there are 1,300 idle wells in
Alaska.
3:56:41 PM
She addressed bankruptcy impact on plugging idle wells. She said
fixes for plugging bankrupt wells include:
• Decrease idle wells via annual review with producers.
• Bonding regulations were passed last year to increase the
bonding to help cover the cost of plug-and-abandon (P&A)
wells:
o Regulation change is sitting on the lieutenant
governor's desk, but the lieutenant governor has been
advised not to sign any regulation change for its
possible impact on the administration's, "We're open
for business" approach.
o The regulation will certainly hurt the, "We're open
for business" approach.
• Landowner needs to put assurances in place to protect
themselves:
o The best assurance the state can put into place is the
ability to go back on the prior operator.
4:08:48 PM
She addressed "Likely issues of 2019" and referenced as follows:
• All the 2018 issues.
• Aggressive exploration season:
o 12 Conoco wells,
o 1 Eni extended reach well,
o 1 Great Bear well,
o 4 Oil Search wells.
• Conoco development work at Willow and Greater Moose's
Tooth.
• Unanticipated crises and challenges.
4:10:30 PM
COMMISSIONER FOERSTER addressed "Offtake allowables for North
Slope major gas sales" as follows:
• [Prudhoe Bay] (PBU) offtake: 3.6 [billion cubic feet per
day] (BCF/D), including fuel usage:
o CO2 utilization study;
o Oil acceleration study.
• Point Thomson offtake:
o 1.1 BCF/D, including fuel usage;
o 5 years of pilot performance demonstrating full scale
cycling not viable.
• Both offtakes were granted assuming a defined window of
opportunity for [master gas system] (MGS).
• Oil losses will occur. "Later is better" and "Less is
better."
4:16:56 PM
SENATOR COGHILL asked what the distance is between the pilot
injection well and the recovery well.
COMMISSIONER SEAMOUNT estimated that the distance between wells
is approximately four miles.
COMMISSIONER FOERSTER explained that the further apart the wells
are the better the condensate-rich gas "sweep" is attained
because injecting into well "radiates" rather than moving in a
"straight line."
COMMISSIONER SEAMOUNT explained that geology plays a big part in
injections.
COMMISSIONER FOERSTER summarized that oil loses will occur and
"later is better."
4:18:55 PM
SENATOR GIESSEL asked what the pressures are at Point Thomson
and the kind of equipment required for reinjecting.
COMMISSIONER FOERSTER replied that Point Thomson's pressure is
around 10,000 pounds. To reinject the injection must push
against the 10,000 pounds of pressure. She said the required
equipment is not common and there are only one or two other
places in the world where compressors work to the capacity
required at Point Thomson. She conceded that ExxonMobil is
struggling to get the complicated injection equipment to perform
at Point Thomson.
SENATOR GIESSEL asked about the off-take allowance that was
under consideration for Point Thomson. She asked that
Commissioner Foerster refresh the committee on the Point Thomson
settlement. She noted that the lease went to litigation and
there was a settlement that required Point Thomson to be brought
into gas production at some point. She asked Commissioner
Foerster to talk about the elements of the settlement that might
have come into play pertaining to the off-take allowance.
COMMISSIONER FOERSTER answered that she did not consider the
off-take allowance and referenced the regulations and statutes
that the commission enforces.
COMMISSIONER SEAMOUNT suggested that Senator Giessel's question
be directed to the Department of Natural Resources (DNR).
SENATOR COGHILL noted that ExxonMobil has been working at Point
Thomson for a couple of years and noted that they "have some
equipment." He asked to confirm that ExxonMobil's bore integrity
has been pretty good.
COMMISSIONER FOERSTER replied that ExxonMobil has done a great
job of being an operator. She noted that the wells are not cheap
and not easy to drill.
4:22:43 PM
COMMISSIONER SEAMOUNT stated that Senator Coghill's question on
the distance between the injector and producer is a good
question and he will get back to the committee with an answer.
SENATOR COGHILL noted that the settlement must be taken into
consideration as to whether the producers have been asked to do
something that was practical or beyond practical.
COMMISSIONER SEAMOUNT replied that AOGCC is trying to do the
same and added, "That's what the pilot project is all about."
COMMISSIONER FOERSTER noted that ExxonMobil's work in the pilot
project included wells that were drilled that could be used no
matter what ends up being the outcome. She added that the
compressors ExxonMobil's is using are not cheap.
COMMISSIONER SEAMOUNT noted that the only place in the world
that he has seen the pressures mentioned with injectors was at
the Tengiz oil and gas field in Kazakhstan. He said the
injection process is very complicated.
4:24:22 PM
He addressed "Alaska oil activity and production" regarding
statistics on production, permitting, and numbers of wells
drilled. He said he would conclude AOGCC's presentation on new
development and discoveries, and possible impact on the
commission's workload.
He addressed slide 11, "Alaska's average daily oil and natural
gas liquids (NGL) production rate 1957-2018." He noted that the
chart shows a decline from 2.2 million barrels of oil per day
(BOPD) to 553,000 BOPD; however, recent activity may have
stabilized production and the latest discoveries may increase
production substantially.
4:28:23 PM
He addressed slide 12, "Alaska's statistics" as follows:
• Permits to drill since 1901: 9,302.
• Wells with completion dates: 8,614.
• Hydraulically fractured wells:
o Number: 2,026;
o Percent: 23.50.
• Oil and NGL production for November 2018, barrels per day:
553,670.
• Cumulative production totals since 1901:
o Oil (barrels): 18,630,391,970;
o NGL (barrels): 766,342,357;
o Total (barrels): 19,396,734,327;
o Gas (cubic ft): 111,273,536,534,000;
square4 Includes re-injected and miscible injection gas.
He addressed slide 13, "Alaska's statistics, oil and NGL
production, November 2016-2018. He summarized that there has
been virtually no decline over the last two years. He said AOGCC
predicts that production will increase, especially if producers
explore the state's other basins.
4:31:23 PM
He addressed slide 14, "Alaska 2018: permits to drill approved
by AOGCC" pie chart as follows:
• Producer-Oil, Arctic Slope: 105:
o Note: Arctic Slope totals include wells and wellbores
on state and private lands and in state waters within
the Beaufort Sea;
• Service-Arctic Slope: 25;
• Producer-Oil, Cook Inlet: 22;
• Exploratory-Oil, Arctic Slope: 17;
• Producer-Gas, Cook Inlet: 2;
• Service-Cook Inlet: 2;
• Exploratory-Gas: Arctic Slope: 1;
• Exploratory-Oil: Cook Inlet: 1;
• Total: 175 wells drilled.
COMMISSIONER SEAMOUNT said 2019 will be an active exploration
season.
CHAIR BIRCH asked if Doyon, Limited has been drilling in
Interior Alaska.
COMMISSIONER FOERSTER answered no.
COMMISSIONER SEAMOUNT replied that Doyon is interested and noted
that he would not be surprised if they do some drilling in the
future. He said there is oil and gas potential in the basin that
Doyon is exploring.
CHAIR BIRCH remarked that Doyon would be talking to AOGCC if
they were interested in drilling.
COMMISSIONER FOERSTER replied that AOGCC has not heard from
Doyon.
COMMISSIONER SEAMOUNT reiterated that he would not be surprised
if AOGCC heard from Doyon.
He addressed slide 15, "Exploratory (wildcat/delineation) wells
and well branches statewide, oil and gas: completed, suspended
or abandoned, 2004-2018." He pointed out that ConocoPhillips has
drilled most exploration wells. He said there is not much
correlation between oil prices and exploratory drilling.
4:34:20 PM
He addressed slide 16, "Development and service wells and well
branches statewide, oil and gas: completed, suspended or
abandoned, 2003-2017." He said the graph shows that activity has
remained stable. He noted that oil production has gone up due to
longer, horizontal wells and bigger fracturing jobs. He pointed
out that ConocoPhillips is the "big driller" and BP runs a close
second.
CHAIR BIRCH asked if AOGCC keeps track of rig counts.
COMMISSIONER SEAMOUNT answered that AOGCC keeps track of drill
counts. He noted that oil and gas journals are inaccurate and
misleading because they only count the wells that are being
drilled at the time, not the wells that are moving from one
location to another.
COMMISSIONER FOERSTER replied that AOGCC does not keep count of
rigs that are "stacked," strictly what rigs are active.
COMMISSIONER SEAMOUNT said AOGCC can get the number. He noted
that the number of rigs were down, but the production was
holding.
4:36:30 PM
He addressed slide 17, "Workover activities, 2003-2017,
statewide: conventional oil and gas only." He summarized that
the graph shows that nothing stands out. Activity was shown to
increase when the price of oil increased. He noted that
"repairs" and "enhancements" were indicators of production. He
explained that "repairs" indicated wells being put back into
production and "enhancements" include perforating, acid jobs,
and fracturing jobs. He said there were over 1,000 workovers in
2017. AOGCC spends a lot of time with workover applications.
He addressed slide 18, "Alaska oil and gas activity, AOGCC
oversight, 1958-2018," and detailed as follows:
• Number of approved permits:
o 1960: Swanson River, went up to 50 wells.
o 1960-1970: Swanson River plus offshore platforms, over
100 well permits.
o Trans-Alaska Pipeline: Up to over 300 oil wells.
o Early 1980s: Oil boom crashed.
o Permits rose when oil prices increased.
o 1999 was the only correlation with oil prices,
resulting in a drop in well activity.
o Current activity: 175 wells permitted in 2018.
• Active wells:
o Active well definition: One that AOGCC must spend
money on to send an inspector on site.
• Number of "pools" that AOGCC has regulated over time:
o 150 oil and gas pools.
COMMISSIONER FOERSTER said she defines "active well" as a well
that is active, a well that is producing or injecting. She noted
that Commissioner Seamount includes idle wells in his
definition. She said she does see how a well can be both active
and idle. She disclosed that 1,300 wells are currently idle.
4:41:59 PM
COMMISSIONER SEAMOUNT addressed slide 19, "Announced Alaska
North Slope discoveries." He said there have been some huge
announcements made for the following:
• Pikka;
• Smith Bay: could be well over 10 billion barrels;
• Moose's Tooth: currently has two pads and will be making
about 100,000 barrels per day.
• Willow: has 300 million barrels reported.
• Great Bear: currently in risky exploration phase.
He addressed slide 20, "Major recent Brookian discoveries" that
addressed the Smith Bay, Willow, and Pikka/Horseshoe
discoveries. He said the total expected production per day is
420,000 barrels. He said if the Moose's Tooth discovery is
added, the total is approximately 500,000 barrels per day. He
said producers have said they will get Smith Bay and Pikka going
by 2024 or 2025, a timeline target that he finds hard to
believe.
He addressed slide 21, "Development timeline for North Slope oil
fields" that shows discovery to regular production. He pointed
out that the average time from discovery to regular production
is nine and a half years. He noted that Smith Bay and Pikka are
saying discovery to regular production will take five to six
years.
4:44:42 PM
He addressed slide 22, "Cook Inlet exploration, exploration
immaturity" as follows:
• Cook Inlet is similar in size to Lower 48 basins.
• Cook Inlet's 14,000 square mile area is the same as the San
Juan Basin, located in New Mexico and Colorado.
• Cook Inlet has less than 400 exploratory wells and less
than 1,400 total wells versus more than 28,000 wells in the
San Juan Basin with more discoveries occurring.
• United States Geological Survey (USGS) has said that only
two to four percent of the oil generated in Cook Inlet has
ever been identified.
• Additional oil in Cook Inlet is in zones below the present
producing zones and has migrated up. Only 53 wells have
been drilled into the "pre-Tertiary" formation. He said the
best potential is in the "Jurassic" formation. He opined
that there could be another 140 billion barrels of oil in
Cook Inlet.
4:46:20 PM
COMMISSIONER SEAMOUNT summarized that he got his start in the
San Joaquin Basin of California in the 1970s which are oil
fields discovered in 1900 where wells were down to one-half acre
spacing. He said he came to Alaska and noted that due to
technology, Prudhoe Bay's spacing was two miles. He revealed
that with current technology, drilling is out five to seven
miles and remarked that Prudhoe Bay could be developed with only
five pads, a technological advancement that could have positive
implications on developing the Arctic National Wildlife Refuge
(ANWR).
SENATOR GIESSEL asked if AOGCC has jurisdiction over pipelines.
She referenced a situation where ultra-cold temperatures caused
gas in a pipeline to become hydrates.
COMMISSIONER SEAMOUNT answered no. He explained that AOGCC has
jurisdiction over "waste" if something happens before the gas is
metered and "everyone gets their fair share." He said afterwards
the gas belongs to somebody and another department or entity has
jurisdiction.
4:49:12 PM
SENATOR GIESSEL asked how often gas pipelines freezes up.
COMMISSIONER FOERSTER answered that she has never heard of gas
pipelines freezing.
COMMISSIONER SEAMOUNT noted that he was aware of "gathering
lines" and not "transmission lines" freezing up in Wyoming when
temperatures reached 40 below.
COMMISSIONER FOERSTER queried why a freeze-up would occur when
temperatures are a lot colder in Prudhoe Bay.
CHAIR BIRCH said many were looking forward to the lease sale in
ANWR and the coastal plain. He said if all goes well with the
lease sale in ANWR, what will AOGCC's role be.
COMMISSIONER FOERSTER answered that AOGCC has regulatory
authority for all wells drilled within Alaska, whether on state
land, private land, or federal land.
CHAIR BIRCH noted that Senator Reinbold was online during the
presentation.
SENATOR REINBOLD thanked the commissioners for an excellent
presentation.
CHAIR BIRCH thanked Commissioner Foerster and Commissioner
Seamount for their presentation.
4:52:15 PM
There being no further business to come before the committee,
Chair Birch adjourned the Senate Resources Standing Committee
meeting at 4:52 p.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| AOGCC Overview 2-1-19.pdf |
SRES 2/1/2019 3:30:00 PM |
|
| Hydraulic Fracturing In Alaska White Paper 2015.pdf |
SRES 2/1/2019 3:30:00 PM |
|
| North Slope Gas Sales white paper (7-31-06).pdf |
SRES 2/1/2019 3:30:00 PM |
|
| Point Thomson white paper (7-31-06).pdf |
SRES 2/1/2019 3:30:00 PM |
|
| Prudhoe Bay Gas Offtake white paper (7-31-06).pdf |
SRES 2/1/2019 3:30:00 PM |