[Federal Register Volume 59, Number 154 (Thursday, August 11, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-19560]
[[Page Unknown]]
[Federal Register: August 11, 1994]
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DEPARTMENT OF TRANSPORTATION
Research and Special Programs Administration
49 CFR Part 195
[Docket No. PS-121; Amdt. 195-51A]
RIN 2137-AB46
Pressure Testing Older Hazardous Liquid and Carbon Dioxide
Pipelines
AGENCY: Research and Special Programs Administration (RSPA), DOT.
ACTION: Final rule; partial withdrawal.
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SUMMARY: RSPA recently published a final rule requiring the hydrostatic
pressure testing of certain older hazardous liquid and carbon dioxide
pipelines that were never pressure tested to current standards. The
final rule also disallowed the use of petroleum as a pressure test
medium. Because the prohibition on petroleum as a test medium was not
specifically proposed, RSPA indicated it would withdraw that
prohibition if it received comments that the prohibition was not in the
public interest. RSPA received comments objecting to the prohibition
and is therefore withdrawing the prohibition and allowing the use of
petroleum as a test medium under specified conditions.
EFFECTIVE DATE: August 11, 1994.
FOR FURTHER INFORMATION CONTACT: Albert C. Garnett, (202) 366-2036,
regarding the subject matter of this notice, or the Dockets Unit, (202)
366-4453, regarding copies of this rule or other material in the docket
that is referenced in this rule.
SUPPLEMENTARY INFORMATION:
Background
On June 7, 1994, RSPA published a final rule, ``Pressure Testing
Older Hazardous Liquid and Carbon Dioxide Pipelines,'' (59 FR 29379).
The final rule prohibited the transportation of hazardous liquids or
carbon dioxide in certain steel pipelines that were constructed before
specified dates, unless those pipelines had been pressure tested
hydrostatically according to current standards or are operated at 80
percent or less of a qualified prior test or operating pressure.
Pressure testing subjects a pipeline to a higher pressure than is
experienced during normal operating conditions. A qualified pressure
test will disclose physical defects, if any, that are large enough to
cause pipeline failure during normal operations. The requirements for
pressure testing are intended to ensure an adequate safety margin
between the test pressure and the maximum operating pressure to prevent
pipeline accidents.
Although most pipelines are pressure tested with water, previous
Sec. 195.306 allowed the use of liquid petroleum under specified
conditions, to be used as the test medium for onshore pipelines. This
provision was adopted in January 1971, when the requirements for
hydrostatic testing only applied to newly constructed pipelines and
existing pipelines that were relocated, replaced, or otherwise changed.
In the final rule published June 7, 1994, RSPA was concerned that
if there were widespread testing of older pipelines with petroleum and
ruptures occurred, some of the spilled petroleum might create an
environmental problem. To preclude this possibility, the final rule
disallowed the use of petroleum as a test medium. RSPA had not
specifically proposed this prohibition on the use of petroleum in the
notice of proposed rulemaking (NPRM) published May 22, 1991 (56 FR
23538). In the preamble to the final rule, RSPA sought comments as to
whether the prohibition was in the public interest. RSPA indicated that
it would withdraw the prohibition if it received comments that the
prohibition of petroleum as a test medium was not in the public
interest.
Discussion of Comments
RSPA received 14 public responses to the final rule published on
June 7, 1994. Although one pipeline operator stated that the
prohibition would not significantly affect its operations, comments
from 11 pipeline operators and a Petition for Reconsideration from the
American Petroleum Institute opposed the prohibition. Williams Pipe
Line Company, which submitted comments in opposition to the
prohibition, also submitted a Petition for Reconsideration asking that
RSPA exclude certain terminal piping systems from the requirements for
pressure testing. This rule addresses only the immediate issue of
whether the prohibition on testing with petroleum should be withdrawn.
In the near future, RSPA intends to address the other issues in the two
Petitions for Reconsideration.
Six commenters recommended that petroleum should continue to be
allowed for pressure testing piping in pump stations, tank farms, and
other low pressure facilities where the location of the piping, often
aboveground on property controlled by the operator, allows for close
monitoring during the test. The commenters also stated that the typical
manifold configurations at these facilities do not facilitate drainage
of test water and residual water in piping after completion of the
testing can contaminate the petroleum products.
Four commenters stated that disallowing testing with petroleum
creates the need for large volumes of test water and equal volumes of
polluted water. The commenters stated that, for those pipelines without
ready access to a refinery, operators would be forced to use truck
transportation to a facility for treatment of the polluted water, and
that this increases the cost and time required for pressure testing.
One of these commenters also stated that RSPA had not considered the
unavailability of test water in arid, remote locations. Another
commenter stated that the inability to retain flexibility to utilize
petroleum as a test medium in appropriate situations would create an
unreasonable and unnecessary expense that ultimately would be
shouldered by the general public.
Six commenters stated that operators are not issued the necessary
permits from regional and state agencies for the acquisition and
disposal of test water in a timely manner and may not be able to
schedule the pressure testing to meet the compliance deadlines. Two
commenters argued that they had insufficient opportunity for comment
because the NPRM did not propose to limit the use of petroleum as a
test medium.
Two other commenters urged the withdrawal of the blanket
prohibition and establishment of a reasonable set of criteria that
might include: location of pipeline, size of pipe, valve spacing, limit
on stress level, operating history or results of an inspection tool
survey. Another commenter, also opposed to the blanket prohibition,
recommended the establishment of a risk assessment process to determine
which pipelines could be tested with petroleum, and suggested the
process consider such factors as: age of pipeline, leak history,
nearness to environmentally sensitive areas and populated areas,
corrosion history, and results of runs with instrumented internal
inspection devices (smart pigs).
The commenters pointed out these and other problems to illustrate
their opposition to the prohibition of the use of liquid petroleum, in
appropriate situations, as a test medium.
Action
The commenters have raised concerns that should be addressed in an
NPRM. Because of these concerns, RSPA finds it is not in the public
interest to keep the prohibition on petroleum as a test medium in place
at this time. Therefore, the revision to Sec. 195.306(b), published on
June 7, 1994, as Amendment 195-51, is hereby withdrawn. In the near
future, RSPA intends to issue an NPRM addressing the use of liquid
petroleum as a pressure test medium.
List of Subjects in 49 CFR Part 195
Anhydrous ammonia, Carbon dioxide, Petroleum, Pipeline safety,
Reporting and recordkeeping requirements.
In consideration of the foregoing, RSPA amends part 195 of title 49
of the Code of Federal Regulations as follows:
PART 195--[AMENDED]
1. The authority citation for part 195 is revised to read as
follows:
Authority: 49 U.S.C. 60102, 60104, 60108, 60109; 49 CFR 1.53.
2. The introductory text of Sec. 195.306(b) is revised to read as
follows:
Sec. 195.306 Test medium.
* * * * *
(b) Except for offshore pipelines, liquid petroleum that does not
vaporize rapidly may be used as the test medium if--
* * * * *
Issued in Washington, DC, on August 4, 1994.
Ana Sol Gutierrez,
Acting Administrator, RSPA.
[FR Doc. 94-19560 Filed 8-10-94; 8:45 am]
BILLING CODE 4910-60-P