[Federal Register Volume 60, Number 26 (Wednesday, February 8, 1995)]
[Notices]
[Pages 7620-7623]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-3154]
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DEPARTMENT OF TRANSPORTATION
Research and Special Programs Administration
[Docket No. PS-132; Notice 2]
Office of Pipeline Safety; Risk Assessment Prioritization (RAP)
AGENCY: Research and Special Programs Administration (RSPA), DOT.
ACTION: Request for information.
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SUMMARY: RSPA, through the Office of Pipeline Safety (OPS), is
implementing a pipeline Risk Assessment Prioritization (RAP) process
and invites representatives of industry, government agencies,
environmental organizations, public safety organizations and other
members of the public to contribute information on solutions to
pipeline safety issues. The proposed solutions are a vital part in
developing the RAP process. Through the RAP process, the solutions will
be prioritized and will become a basis upon which OPS management will
decide how to commit available resources.
DATES: Responses to this request for information should be submitted on
or before April 10, 1995. Late-filed comments will be considered to the
extent practicable.
ADDRESSES: Send comments in duplicate to the Dockets Unit, Room 8421,
Research and Special Programs Administration, U.S. Department of
Transportation, 400 Seventh Street, SW., Washington, DC 20590. Identify
the docket and notice number stated in the heading of this notice. All
comments and docketed material will be available for inspection and
copying in room 8421 between 8:30 a.m. and 5 p.m. each business day.
FOR FURTHER INFORMATION CONTACT: Patrick J. Ramirez, (202) 366-9864,
regarding the subject matter of this notice. Contact the Dockets Unit,
(202) 366-5046, for docket material.
SUPPLEMENTARY INFORMATION:
Background on RAP
OPS prescribes and enforces the safety standards for the
transportation of gases and hazardous liquids by pipeline and for
liquified natural gas facilities. OPS frequently must allocate its
resources to address safety actions identified by authorities outside
of the agency, including Congress, the National Transportation Safety
Board, and the General Accounting Office, OPS believes that pipeline
safety resources can be most effectively utilized through analyzing and
prioritizing of potential pipeline safety actions based on risk
assessment.
The RAP process was developed following a thorough assessment of
OPS operations conducted in 1991 and the adoption in 1992 of a set of
goals necessary to enable OPS to respond most effectively to increasing
pipeline safety concerns. RAP is being developed as a management
process with which OPS may: identify pipeline safety and environmental
protection issues; identify potential solutions for these issues;
assess the relative impact of each solution on the likelihood or
consequences of pipeline accidents; estimate the cost to OPS and
industry of each proposed solution; and allocate available OPS
resources to the most cost-effective set of solutions.
It is likely that OPS will not have the resources necessary to
implement, in the near term, all of the solutions proposed by industry,
OPS and other stakeholders. However, the RAP process will help ensure
that OPS can assign available resources to solutions that will produce
the greatest reduction in pipeline risks and environmental risks.
Highlights of the RAP process
The RAP process will utilize basic risk-based prioritization and
resource allocation models to help structure and focus OPS management
decisions. In addition, the process will facilitate effective
communication and interactions with OPS stakeholders through a common
understanding of pipelines safety concerns.
The details of the RAP process are described in 58 FR 51402 dated
October 1, 1993. The sequence of steps in the RAP process is as
follows:
a. Chart Pipeline Safety Subjects.
b. Poll for Issues--Federal Register Notice dated Oct. 1, 1993.
c. Insert Mandated Issues.
d. Compile Issues List.
e. Poll for Solutions--Current stage in the process.
f. Insert Mandated Solutions.
g. Compile Solutions List.
h. Set Rating Criteria.
i. Rate Each Solution.
j. Estimate Economic Impact.
k. Assemble Rated Priorities.
l. Identify Mandates.
m. Estimate Resource Availability.
n. Assign Resources.
o. Issue Action Plan.
p. Monitor Performance.
q. Maintain Data Base.
r. Repeat Cycle.
Request for Information
The purpose of this notice is to solicit stakeholder participation
in the second data gathering step of the RAP process by collecting
solution statements associated with pipeline issues described in
Section B of this notice. After OPS has received and consolidated the
solutions, including solutions identified by OPS in connection with its
ongoing risk determination efforts (e.g., accident investigations,
special studies), OPS will hold a public meeting to ensure that
interested stakeholders have a thorough understanding of the issues and
solutions as well as the remainder of the RAP process. [[Page 7621]]
Form for a Solution Statement
To aid in processing solution statements, OPS suggests a standard
format. Section A information may be provided one time for all
solutions submitted from one responder. A solution statement should
contain:
A. The identification of the responder per Section A below.
B. The B-code designation of the issue being addressed, per Section
B below.
C. The complete proposed solution description. See Section C below
for discussion of a solution statement.
D. The type of solution that is being proposed, per Section D
below.
E. The kind of facility affected, selected from Section E below.
As a guide for preparing solution statements, the following
examples are provided.
Example 1.
A. Responder identification
B. B4.3 (Internal Corrosion)
C. A regulation requiring the periodic use of smart pigs
D. D3
E. E2 (Liquid transportation lines)
Example 2.
A. Responder identification
B. B4.3 (Internal Corrosion)
C. Financial support of research to improve smart pigs
D. D9 (Support research and development)
E. E2 (Liquid transportation lines)
Section A. Responder Identification
A1 Responder name
A2 Responder position or title
A3 Responder organization
Responder organization type (Operators indicate all applicable)
A4a Operator, hazardous liquid, gathering
A4b Operator, hazardous liquid, transportation
A4c Operator, gas, gathering
A4d Operator, gas, transmission
A4e Operator, gas, distribution
A4f Operator, LNG facility
A4g Pipeline industry association
A4h Pipeline contractor
A4i Pipeline supplier
A4j Environmental organization
A4k Consumer safety organization
A4l Government, federal
A4m Government, state
A4n Government, municipal
A4o Public
A4p Other (Please specify)
A5 Address
A6 Contact name (If other than responder)
A7 Contact phone number
A8 Contact facsimile number
Section B. Consolidated Issues List
The following consolidated issues list represents the key elements
of the issues that the respondents provided to RSPA's request for
information, 58 FR 51402; October 1, 1993. OPS analyzed over 400
responses, converted proposed solution statements into issues
statements, and to an appropriate degree, consolidated variations of
similar issue statements. In preparing proposals for solutions,
respondents are encouraged to give their widest interpretation to any
of the 189 issues listed below. A solution statement may apply to more
than one issue provided each issue being addressed is listed using the
designated issue code (i.e., B1, B2, etc).
The consolidated list is organized into five categories of issues
contributing to the probability of pipeline accident occurrence; five
categories of issues contributing to the consequence of pipeline
accidents and one category that includes issues directed at identifying
and managing risks. The five categories for probability and consequence
are, Design, Construction, Operations and Maintenance, Corrosion and
Outside Force.
B1 DESIGN ISSUES CONTRIBUTING TO THE PROBABILITY OF ACCIDENT
OCCURRENCE DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B1.1 Allowable maximum operating pressure
B1.2 Breakout tanks
B1.3 Materials selection
B1.3.A --Steel pipe toughness
B1.3.B --Steel pipe weldability
B1.4 Obsolescent technology
B1.5 Obstacles to instrumented internal inspection
B1.6 Offshore pipelines
B1.7 Railroad rights-of-way
B1.8 Thin wall, high strength pipe
B1.9 Underwater hazards to navigation
B1.10 Valve definitions
B2 CONSTRUCTION ISSUES CONTRIBUTING TO THE PROBABILITY OF ACCIDENT
OCCURRENCE DUE TO;
or DUE TO LACK OF;
or DUE TO INADEQUATE;
B2.1 Hydrostatic testing
B2.1.A --Errors
B2.1.B --Procedures
B2.2 Inspection
B2.2.A --for errors and flaws
B2.2.B --of girth welds
B2.2.C --for rock impingement
B2.2.D --of welded split sleeves
B2.3 Maps and records
B2.4 Material and equipment noncompliance
B2.4.A --pre-1970 (low frequency) ERW pipe
B2.4.B --railroad transportation fatigue cracks
B2.5 Plastic pipe electrofusion joints
B2.6 Plastic pipe fusion joints
B2.6.A --dissimilar materials
B2.7 Specifications
B2.8 Tracer wire wraps around plastic pipe
B3 OPERATIONS AND MAINTENANCE ISSUES CONTRIBUTING TO THE
PROBABILITY OF ACCIDENT OCCURRENCE DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B3.1 Accident investigations
B3.2 Allowable maximum operating pressure
B3.2.A --Exceeding
B3.2.A.1 >grandfathered pipelines
B3.2.B --Low safety margin relative to test pressure
B3.2.B.1 >in Class 1 locations
B3.2.C--Reduction following an incident
B3.3 Branch service lines
B3.4 Breakout tanks
B3.5 Baypass lines/direct sales lines/farm taps
B3.6 Control systems
B3.6.A --Excessive false alarms
B3.7 Customer owned gas lines
B3.8 Drug and alcohol abuse
B3.9 Equipment failure
B3.10 HVL facilities
B3.10.A --Two phase flow
B3.11 Hydrostatic testing
B3.11.A --Exemption from
B3.11.B Periodic
B3.12 Inspections
B3.12.A --Third party construction activity
B3.12.B --Encroachment
B3.12.C --Dents and gouges
B3.12.D --Cased crossings
B3.12.E --Minimum cover
B3.12.F --Obstacles to instrumented internal inspection
B3.12.G --Reporting requirements after voluntary use of
instrumented internal inspection
B3.12.H --Requirements for instrumented internal inspection
B3.12.I --Technical variability among instrumented internal
inspection.
B3.13 Liquefied natural gas/petroleum gas (LNG/LPG)
systems
B3.13.A --Dense gas dispersion model
B3.13.B --Mobile LNG facilities
B3.14 Pipeline Marker destruction
B3.15 Obsolescent technology
B3.16 Offshore pipelines
B3.17 Operator qualification
B3.17.A --Excavator
B3.17.B --Pipeline
B3.17.C --Master meter system
B3.17.D --Liquid petroleum gas [[Page 7622]] distribution system
B3.18 Pipeline age
B3.19 Pipeline realignment
B3.20 Plans and procedures
B3.21 Protection of pipeline employees
B3.22 Railroad rights-of-way
B3.23 Records and reports
B3.23.A --Annual
B3.23.B --Incident
B3.24 Reduced operating staff
B3.25 Repairs/rehabilitation
B3.25.A --Casing shorts
B3.25.B --Cast iron pipe
B3.25.B.1 >Aging
B3.25.B.2 >Graphitization
B3.25.B.3 >Movement
B3.25.C --Pipe support during
B3.26 Small gas distribution systems
B3.27 Training
B3.28 Underground utility location
B3.29 Underwater hazards to navigation
B4 CORROSION ISSUES CONTRIBUTING TO THE PROBABILITY OF ACCIDENT
OCCURRENCE DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B4.1 Atmospheric
B4.2 External
B4.2.A --Bare steel pipe
B4.2.B --Cathodic protection
B4.2.B.1 >Inconsistent regulations
B4.2.B.2 >Test points
B4.2.B.3 >Surveys
B4.2.C --Coating
B4.2.C.1 >Condition
B4.3 Internal
B4.4 Tank bottom
B5 OUTSIDE FORCE DAMAGE TO BURIED PIPELINES ISSUES CONTRIBUTING TO
THE PROBABILITY OF ACCIDENT OCCURRENCE DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B5.1 Digging with power mechanical equipment instead of
hand digging in close proximity to facilities
B5.2 Natural forces
B5.3 Operator personnel
B5.3.A --Pumping stations
B5.4 Public activity
B5.4.A --Gas distribution facilities
B5.5 Third party operations
B5.5.A --Mandatory state one-call system
B5.5.B --Universal/uniform one-call system
B5.5.C --Statutory one-call enforcement authority
B5.5.D --Without using available one-call system
B5.5.E --One-call system public education
B5.5.F --While exempt from available one-call systems
B5.5.G --Incorrect operator one-call marks
B5.5.H --Ignoring one-call marks
B5.5.I --One-call marks are altered/removed
B5.5.J --Violation of one-call laws (inadequate penalties/
enforcement)
B5.5.K --Incorrect construction marks
B5.5.L --Pipeline markers are inadequate
B5.5.M --Public right-of-way
B5.6 Unreported or unrecognized damage
B5.7 Vandalism or sabotage
B6 DESIGN ISSUES CONTRIBUTING TO THE CONSEQUENCES OF ACCIDENTS THAT
OCCUR DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B6.1 Allowable maximum operating pressure
B6.1.A --High risk areas
B6.2 HVL facilities
B6.3 Proximity to inhabited buildings
B6.4 Uncontrolled leaks
B6.4.A --Service lines
B6.5 Valve remote control
B6.6 Valve location
B7 CONSTRUCTION ISSUES CONTRIBUTING TO THE CONSEQUENCES OF
ACCIDENTS THAT OCCUR DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B7.1 Environmental damage
B8 OPERATIONS AND MAINTENANCE ISSUES CONTRIBUTING TO THE
CONSEQUENCES OF ACCIDENTS THAT OCCUR DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B8.1 Allowable maximum operating pressure
B8.1.A --High risk areas
B8.2 Check valve malfunction
B8.3 Emergency response
B8.3.A --Environmentally sensitive areas
B8.3.A.1 >Definition
B8.3.B --Highly populated areas
B8.3.C --Water supplies
B8.4 Hazardous concentrations of hydrogen sulfide
B8.5 HVL facilities
B8.6 Leaks
B8.6.A --Undetected, in Service lines
B8.6.B --Unrecognized
B8.6.B.1 --During unsteady operations
B8.7 Protection of pipeline employees
B9 CORROSION ISSUES CONTRIBUTING TO THE CONSEQUENCES OF ACCIDENTS
THAT OCCUR DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
The issues received were not appropriate for this category. The
responder may submit issues and solutions for this category.
B10 OUTSIDE FORCE ISSUES CONTRIBUTING TO THE CONSEQUENCES OF
ACCIDENTS THAT OCCUR DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
The issues received were not appropriate for this category. The
responder may submit issues and solutions for this category.
B11 ISSUES THAT AFFECT OPS'S AND INDUSTRY'S ABILITY TO IDENTIFY AND
MANAGE RISKS DUE TO:
or DUE TO LACK OF:
or DUE TO INADEQUATE:
B11.1 Accident investigations
B11.1.A --Confidentiality of information
B11.2 Conflicting responsibilities among conformance
authorities
B11.2.A --Interstate pipelines
B11.2.B --Marine transfer pipelines
B11.2.C --Setback requirements
B11.3 Federal/State
B11.3.A --Accident investigation coordination
B11.3.B --Facility inspection
B11.3.B.1 >frequency
B11.3.B.2 >of master meter systems
B11.3.C --Inspector
B11.3.C.1 >competence
B11.3.C.2 >corrosion control training
B11.3.C.3 >staff size
B11.3.D --Non-uniform regulatory enforcement
B11.4 Fines and penalties
B11.5 Incident reporting thresholds
B11.6 Maps, records and reports
B11.6.A --Analysis
B11.6.B --Annual
B11.6.C --Incident
B11.6.D --High risk areas
B11.7 Public education
B11.8 Regulation ambiguities
B11.9 State highway non-uniformity in design requirements
B11.10 Unregulated
B11.10.A --Gathering pipelines
B11.10.B --Low stress pipelines
B11.10.C --Underground storage
Section C. Solution Statement
A SOLUTION is one of a number of remedies to one or more issues from
[[Page 7623]] Section B listed above. The respondent's proposed
solution statement should be complete and specific, but reasonably
concise. See examples above in Form for a Solution Statement.
Section D. Type of Solution
To aid in consolidating the actions being proposed by each solution
statement, select an action or actions for each solution from the
listing below:
D1. A new or revised regulation that requires changes in industry
design practices
D2. A new or revised regulation that requires changes in industry
construction practices
D3. A new or revised regulation that requires changes in industry
operational and maintenance practices
D4. A new or revised regulation that requires changes in industry
reporting policies
D5. A new or revised OPS enforcement policy concerning and existing
regulation
D6. A new or revised OPS audit or inspection practice
D7. A research activity to improve OPS/industry knowledge
concerning the causes and effects of pipeline accidents
D8. A research activity to improve OPS/industry knowledge
concerning the effects of proposed risk-reduction technologies
D9. Other (Please specify)
Section E. Type of Facility
E1 Hazardous liquid gathering pipelines.
E2 Hazardous liquid transportation pipelines.
E3 Two-phase pipelines.
E4 Gas gathering pipelines.
E5 Gas transmission pipelines.
E6 Gas distribution pipelines.
E7 Gas master meter systems.
E8 LPG distribution systems.
E9 LNG facilities.
E10 All liquid pipelines.
E11 All gas pipelines.
E12 All pipelines.
E13 Other (Specify)
Authority: 49 U.S.C. Sec. 60101 et seq.; 49 CFR 1.53.
Issued in Washington, DC on February 2, 1995.
George W. Tenley, Jr.,
Associate Administrator for Pipeline Safety.
[FR Doc. 95-3154 Filed 2-7-95; 8:45 am]
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