[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