[Federal Register Volume 63, Number 247 (Thursday, December 24, 1998)]
[Notices]
[Pages 71334-71340]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-34145]


-----------------------------------------------------------------------

DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration (RSPA), DOT
[Docket No. RSPA-98-4450; Notice 17]


Pipeline Safety: Intent To Approve Project and Environmental 
Assessment for the Chevron Pipe Line Company; Pipeline Risk Management 
Demonstration Program

AGENCY: Research and Special Programs Administration, Office of 
Pipeline Safety, DOT.

ACTION: Notice of Intent to Approve Project and Environmental 
Assessment.

-----------------------------------------------------------------------

SUMMARY: As part of its Congressional mandate to conduct a Risk 
Management Demonstration Program, the Office of Pipeline Safety (OPS) 
has been authorized to conduct demonstration projects with pipeline 
operators to determine how risk management might be used to complement 
and improve the existing Federal pipeline safety regulatory process. 
This is a notice that OPS intends to approve Chevron Pipe Line Company 
(Chevron) as a participant in the Pipeline Risk Management 
Demonstration Program. This also provides an environmental assessment 
of Chevron's demonstration project. Based on this environmental 
assessment, OPS has preliminarily concluded that this proposed project 
will not have significant environmental impacts.
    This notice explains OPS's rationale for approving this project, 
and summarizes the demonstration project provisions that would go into 
effect once OPS issues an order approving Chevron as a Demonstration 
Program participant. OPS seeks public comment on the proposed 
demonstration project so it may consider and address these comments 
before approving the project. The Chevron demonstration project is one 
of several projects OPS plans to approve and monitor in assessing risk 
management as a component of the Federal pipeline safety regulatory 
program.

ADDRESSES: OPS requests that comments to this notice or about this 
environmental assessment be submitted on or before February 8, 1999, so 
they can be considered before project approval. However, comments on 
this or any other demonstration project will be accepted in the Docket 
throughout the 4-year demonstration period. Comments should be sent to 
the Dockets Facility, U.S. Department of Transportation, Plaza 401, 400 
Seventh Street, SW, Washington, DC 20590-0001, or you can E-Mail your 
comments to [email protected]. Comments should identify the 
docket number RSPA-98-4450. Persons should submit the original comment 
document and one (1) copy. Persons wishing to receive confirmation of 
receipt of their comments must include a self-addressed stamped 
postcard. The Dockets Facility is located on the plaza level of the 
Nassif Building in Room 401, 400 Seventh Street, SW, Washington, DC. 
The Dockets Facility is open from 9:00 a.m. to 5:00 p.m., Monday 
through Friday, except on Federal holidays.


[[Page 71335]]


FOR FURTHER INFORMATION CONTACT: Elizabeth Callsen, OPS, (202) 366-
4572, regarding the subject matter of this notice and environmental 
assessment. Contact the Dockets Unit, (202) 366-9322, for docket 
material. Comments may also be reviewed on line at the DOT Docket 
Management System website at http://dms.dot.gov/.

SUPPLEMENTARY INFORMATION:

1. Background

    The Office of Pipeline Safety (OPS) is the federal regulatory body 
overseeing pipeline safety. As a critical component of its mandate, OPS 
administers and enforces a broad range of regulations governing 
pipeline safety and environmental protection of pipelines. These 
regulations have contributed to a good pipeline industry safety record 
by ensuring that risks associated with pipeline design, construction, 
operations, and maintenance are understood, managed, and reduced.
    Preserving and improving this safety record is OPS's top priority. 
On the basis of extensive research, and the experience of both 
government and industry, OPS believes that a risk management approach, 
properly implemented and monitored, offers opportunities to achieve:
    (1) Superior safety, environmental protection, and service 
reliability;
    (2) Increased efficiency and reliability of pipeline operations; 
and
    (3) Improved communication and dialogue among industry, the 
government, and other stakeholders.
    A key benefit of this approach is the opportunity for greater 
levels of public participation.
    As authorized by Congress, OPS is conducting a structured 
Demonstration Program to evaluate the use of a comprehensive risk 
management approach in the operations and regulation of interstate 
pipeline facilities. This evaluation will be performed under strictly 
controlled conditions through a set of demonstration projects to be 
conducted with interstate pipeline operators. A Presidential Directive 
to the Secretary of Transportation (October 12, 1996) stated that in 
implementing the Pipeline Risk Management Demonstration Program: ``The 
Secretary shall require each project to achieve superior levels of 
public safety and environmental protection when compared with 
regulatory requirements that otherwise would apply.'' Thus, the process 
to select operators for the Demonstration Program involves a 
comprehensive review to ensure that the proposed project will provide 
the superior safety and environmental protection required by this 
Directive. OPS may exempt a participating operator from particular 
regulations if the operator needs such flexibility in implementing a 
comprehensive risk management program; however, regulatory exemption is 
neither a goal nor requirement of the Demonstration Program.
    This document summarizes the key points of this review for 
Chevron's demonstration project, and evaluates the safety and 
environmental impacts of this proposed project.

2. OPS Evaluation of Chevron Demonstration Project Proposal

    Using the consultative process described in Appendix A of the 
Requests for Application for the Pipeline Risk Management Demonstration 
Program (62 FR 14719), published on March 27, 1997, OPS has reached 
agreement with Chevron on the provisions for a demonstration project on 
a 330-mile portion of Chevron's Salt Lake Products Pipeline System.
    Company History and Record: The Salt Lake Products Pipeline System 
is, on average, 41 years old. It is composed of 706 miles of pipeline 
right-of-way that originates at Chevron's Salt Lake City refinery and 
distributes refined product (gasoline, diesel, jet fuel) throughout the 
States of Utah, Idaho, Oregon, and Washington. Construction of the 
first leg from Salt Lake City, Utah, to Twin Falls, Idaho, was 
completed in 1949. Expansion of the system in the 1950's and 1960's 
extended the system to Boise, Idaho; Pasco, Washington; and Spokane, 
Washington. Major lateral supply lines include lines to Pocatello, 
Idaho, and the Salt Lake City Airport. Chevron is proposing the 330-
mile portion of the system from Salt Lake City, Utah to Boise, Idaho as 
its demonstration site. Chevron is headquartered in San Ramon, 
California, and has a Salt Lake Products support office in Salt Lake 
City, Utah.
    Before entering into consultations with Chevron, OPS determined 
that Chevron was a favorable candidate for the Program after examining 
the company's safety and environmental compliance record, its accident 
history, and its commitment to working with OPS to develop a project 
meeting the Demonstration Program goals. The Salt Lake Products 
Pipeline System has experienced five reportable releases since 1990. 
Two of these releases were caused by damage from third parties 
excavating near the line; two events resulted from external corrosion; 
and the final release was due to a welding defect. The volume of 
product released from the line in each instance was relatively small--
the largest being a release of approximately 365 barrels of jet fuel 
that occurred after an excavator pierced the line. The other four 
releases ranged from 88 barrels to 200 barrels. OPS was satisfied with 
the remedial actions undertaken in response to the two corrosion 
accidents. One involved localized corrosion due to a casing under a 
highway crossing. Chevron replaced the corroded pipe and eliminated the 
casing to prevent future reoccurrence. The other resulted from general 
external corrosion. After conducting an internal inspection of the 
pipeline, Chevron replaced all corroded pipe in the vicinity of the 
leak. None of the five releases resulted in injuries to pipeline 
personnel or members of the public, or caused a fire or explosion. The 
environmental impacts in each case were localized. The sites were 
cleaned to the satisfaction of regulatory agencies, and caused no 
permanent environmental damage.
    The most recent significant accident on any Chevron pipeline 
occurred on the KLM Crude System on March 11, 1995. Four thousand 
barrels of crude oil were spilled into the Arroyo Pasajero near 
Kettleman City, California, when an upstream bridge collapsed during a 
100-year flood and the resulting debris damaged the pipeline. No deaths 
or injuries resulted from the pipeline accident, although crop damage 
did occur. Following its accident investigation, the California State 
Fire Marshal (acting as an OPS state agent) cited Chevron for failure 
of the pipeline controller to take timely action. Chevron has replaced 
the segment of pipeline, burying it over 20 feet beneath the bottom of 
the channel where it can not be affected by future flooding. Chevron 
has also modified training procedures and retrained appropriate 
personnel in response to the State Fire Marshal's findings.
    OPS believes that the actions Chevron has taken to address the 
specific causes of these accidents, together with Chevron's existing 
risk management program, are adequate responses to the incidents and 
demonstrate a continued commitment to safety. An important feature of 
Chevron's risk management program is the systematic approach Chevron 
employs to ensure that lessons-learned from any accident or unplanned 
event are considered in future risk assessments. Chevron begins its 
scenario based risk assessment of a pipeline system by considering a 
standard checklist of initiating events, which is constantly updated to 
reflect all known causes of accidents on any Chevron pipeline. In 
choosing risk control activities, Chevron carefully

[[Page 71336]]

considers consequences of past accidents on other similar pipeline 
systems.
    Consultative Evaluation: During the consultations, a Project Review 
Team (PRT) consisting of representatives from OPS headquarters and 
Western Region, pipeline safety officials from Utah and Washington, and 
risk management experts met with Chevron to discuss Chevron's risk 
assessment, supporting analyses, proposed risk control activities, 
performance measures, and means of administering risk management within 
the company. The discussions addressed technical validation of all 
proposed activities, demographics and terrain along the demonstration 
segment, communications with outside stakeholders, and monitoring and 
auditing of results once the demonstration project is underway. These 
reviews were undertaken to ensure that the proposed Chevron 
demonstration project satisfies the three primary review criteria for 
the OPS Risk Management Demonstration Program:
    1. Whether Chevron's proposed risk management program is consistent 
with the Risk Management Program Standard and compatible with the 
Guiding Principles set forth in that Standard;
    2. Whether the proposed set of risk control alternatives is 
expected to produce superior safety, environmental protection, and 
reliability of service compared to that achieved from compliance with 
the current regulations;
    3. Whether Chevron's proposed risk management demonstration program 
includes a company work plan and a performance monitoring plan that 
will provide adequate assurance that the expectation for superior 
safety, environmental protection, and service reliability is actually 
being achieved during implementation.
    The demonstration project provisions described in this notice 
evolved from these consultations, as well as from any public comments 
received to date. An Environmental Assessment was completed as part of 
the Consultation process and is included as an Appendix to this Notice. 
Once OPS and Chevron consider and address comments received on this 
notice, OPS may issue an Order approving the Chevron demonstration 
project.

3. Statement of Project Goals

    The Salt Lake Products Pipeline System transports gasoline, diesel, 
and jet fuel, which are stable, flammable liquids. If released in 
sufficient quantities and under certain conditions, spills may result 
in property and environmental damage, injuries, and fatalities. 
Therefore, ensuring that pipeline leaks and ruptures do not occur is 
the highest priority for OPS, state agencies, and Chevron. Through risk 
management, Chevron intends to continuously improve the level of safety 
associated with operating this line.
    OPS and Chevron believe Chevron's demonstration project will 
improve safety by applying numerous risk control measures that exceed 
regulatory requirements on the pipeline segment. Chevron has completed 
two risk assessments on the entire Salt Lake Products Pipeline System: 
the first in 1995 and the second in April 1997. Based on the results of 
these risk assessments, Chevron has developed a set of risk control 
activities that address the areas of highest risk and are intended to 
result in reduced risk and superior safety and reliability on the 
pipeline system.
    For the Salt Lake Products Pipeline System, Chevron will supplement 
the required regulatory activities it now performs with numerous new 
and additional risk control activities resulting from the comprehensive 
risk assessments. Some of the more significant activities that will be 
added to existing measures to improve safety along the demonstration 
segment are a comprehensive in-line inspection program to address 
external corrosion, activities to minimize the potential impact of 
drain valve leaks at several locations, a geologic hazard assessment to 
identify areas vulnerable to seismic activity, scouring, and land 
movement, enhanced risk communication with Local Emergency Planning 
Committees, and improved approaches to identify and address risks in 
Unusually Sensitive Areas (USAs). (The USA definition will appear in 
American Petroleum Institute (API) guidance to be published during the 
first quarter of 1999. Examples of USA candidates would be public water 
systems and threatened and endangered species).
    Chevron is not requesting any exemptions from current regulations 
as part of its demonstration project. The set of risk control 
activities that Chevron identified from the risk assessments of the 
Salt Lake Products Pipeline System are intended to provide additional 
safety assurance. Chevron makes a strong case that the risk of a 
release on this system will be reduced, and superior safety and 
environmental protection will result.

4. Demonstration Project Pipeline Segment

    Salt Lake Products Pipeline System. The Salt Lake Products Pipeline 
System passes through Utah, Idaho, Oregon, and Washington. Construction 
of the first leg from Salt Lake City, Utah, to Twin Falls, Idaho, was 
completed in 1949. Expansion of the system in the 1950's and 1960's 
extended the system to Boise, Idaho; Pasco, Washington; and Spokane, 
Washington. Major lateral supply pipelines include lines to Pocatello, 
Idaho, and the Salt Lake City Airport. The portion of the system 
proposed for the Demonstration Program consists of two parallel 8-inch 
diameter pipelines from Salt Lake City to Boise--one line transporting 
all grades of gasoline, and the other line transporting petroleum 
distillates such as diesel and jet fuel. The remainder of the system 
from Boise to Spokane consists of only one pipeline. With upgrades 
planned for completion by early 1999, the Salt Lake Products Pipeline 
System will transport a total of 70,000 barrels per day. The pipeline 
route crosses a variety of terrains, including desert, farmland, 
mountains, wetlands, and several river crossings. The majority of the 
route is through sparsely populated areas, with the exception of Salt 
Lake City and Boise where the population growth has resulted in a 
moderate density of residences and businesses near the right-of-way 
(with some individual residences and businesses adjacent to the right-
of-way).

5. Project Description

    The following risk control and monitoring activities would be 
included in the Order OPS issues formally approving the Chevron 
demonstration project.

Risk Control Activities on the Salt Lake Products Pipeline System

    Chevron intends to demonstrate it operates more safely with a risk 
management program in place, providing a level of safety and 
environmental protection that exceeds protection afforded by pipeline 
safety requirements. The set of risk control activities that Chevron 
has identified from the risk assessments of the Salt Lake Products 
Pipeline System are intended to provide additional protection. Chevron 
is not requesting any exemptions from current regulations for its 
demonstration project.
    The risk control activities that Chevron identified from its 1995 
and 1997 risk assessments on the Salt Lake Products Pipeline System 
will be the focus of the demonstration project. The most significant 
risk control activities are the following:

[[Page 71337]]

     External corrosion. The Chevron corrosion maintenance and 
prevention program meets or exceeds all regulatory requirements and is 
consistent with good industry practices. As with all pipelines that 
have been operating for several years, there are some locations where 
the company is concerned about pipe coating condition and ensuring the 
adequacy of cathodic protection. To obtain better information about the 
current pipe condition, especially areas where corrosion might be 
occurring, the company intends to enhance its comprehensive internal 
inspection program by linking inspection results with identified 
sensitive environmental areas (discussed below). Chevron will run an 
inspection device through the pipe that will identify pipe geometric 
defects such as dents, gouges, and areas that are not perfectly round. 
Then a second ``intelligent'' pipe inspection tool will be used to 
identify locations where there has been metal loss due to corrosion. 
The output from these inspection tools will be used to identify pipe 
locations where corrosion or other problems might exist. The company 
will then excavate, examine, and, if appropriate, repair any damage 
that is discovered at these sites.
     Geologic hazards in the form of seismic, scouring, and 
land movement. Chevron identified these hazards in the 1995 risk 
assessment and remediated several key locations. However, the company 
still believes these risks need to be better defined and addressed. 
Chevron is proposing to conduct a geologic hazard assessment that 
identifies and obtains more data on the areas most vulnerable to 
geologic hazards. Chevron will use this information in its risk control 
and decision making process to identify risk control activities to 
address significant geologic threats.
     Mapping Sensitive Environmental Areas. Another feature of 
the Chevron risk management demonstration project is to develop 
improved approaches to identify and address risks in USAs. This effort 
will include mapping sensitive environmental areas adjacent to the line 
using the Global Positioning System and Geographic Information System. 
This information will support a more thorough investigation of 
environmental risks on the pipeline system as well as improving the 
allocation of resources to focus on potential problems in 
environmentally sensitive areas.
    Finally, as part of the demonstration project, Chevron will 
reassess the risks of the demonstration site every two years to update 
its understanding of risks. Chevron will consult with OPS and state 
agencies about how best to address the results of these risk 
assessments.

Monitoring Demonstration Project Effectiveness

    Chevron's Demonstration Project includes performance monitoring to 
assure the superior protection of public safety and achieve other 
project objectives. A key element of the performance monitoring plan is 
a set of performance measures that would track the risk reduction on 
the Salt Lake Products Pipeline System over time, track the growth and 
institutionalization of risk management within the company, measure the 
effectiveness of Chevron's risk control activities, and provide a basis 
for future improvement. Examples include:
     Risk reduction on the demonstration site over time. 
Chevron will analyze the results from the 1995, 1997, as well as future 
risk assessments to be conducted in 1999 and 2001, to see if risk is 
being reduced on the pipeline over time.
     Risk management program evolution from inception five 
years ago until present day and through the demonstration project. 
Chevron will document what has been done over time to make the program 
and processes more effective, and how the risk tools have evolved over 
time. For example, initially the scope of the Chevron program was 
assessing risk of pipeline systems, but the program has evolved to 
include evaluating all Chevron capital-funded pipeline projects as well 
as Chevron expense-funded pipeline projects. Risk management is even 
being employed in evaluating potential management system changes, such 
as automation and manpower requirements.
    Chevron will report performance measure data and project progress 
regularly to OPS throughout the four year demonstration period. This 
information, as well as periodic OPS audits, will assure accountability 
for improved performance.
    Section B of the Environmental Assessment provides more detail on 
Chevron's proposed project.

6. Regulatory Perspective

Why OPS Plans to Approve This Project?

    OPS is considering Chevron's proposed project for the Demonstration 
Program because, after extensive review, OPS is satisfied that the 
proposal:
    A. Provides superior protection for the demonstration segment. 
Chevron's risk control activities for the Salt Lake Products Pipeline 
System exceed current regulatory requirements to provide additional 
safety and environmental protection.
    B. Offers a good opportunity to evaluate risk management as a 
component of the Federal pipeline safety regulatory program. OPS 
believes the Demonstration Program could benefit from Chevron's 
participation, given some of the distinguishing features of its 
proposed demonstration project, including:
     Chevron has a strong corporate commitment to risk 
management, and has already established an integrated and comprehensive 
risk management program. This project will provide insights into how a 
company effectively integrates a risk management program into its on-
going business practices.
     Chevron has already completed two risk assessments of the 
entire proposed demonstration project system, and has already developed 
a set of projects to address the areas of highest risk. Chevron 
believes it can demonstrate superior performance by showing that the 
risk management program is an effective addition to the current 
regulations.
     Chevron's proposed project includes using risk assessment 
to develop improved approaches to identify and address risks in 
sensitive environmental areas (e.g., public water systems, sole source 
acquifers, and habitats of critically imperiled, and threatened and 
endangered species). This project may provide useful insights into 
OPS's current multi-agency efforts to define USAs.
     Chevron is not requesting any regulatory exemption. This 
project will demonstrate how a company can use risk management to 
achieve superior performance and continued improvement without avoiding 
required activities.
     This project will demonstrate how a quantitative, 
scenario-based approach to risk assessment can be effective in 
identifying and addressing pipeline risks.
     Chevron is one of the few companies that has truly 
integrated risk consideration into the annual capital budget process. 
The process and its evolution should provide OPS useful insights into a 
truly integrated and effective risk management program.

How Will OPS Oversee This Project?

    After Chevron's risk management demonstration project is approved, 
the PRT consisting of OPS headquarters and regional staff and state 
pipeline safety officials who have been reviewing the proposal, will 
monitor the project. The PRT is designed to be a more

[[Page 71338]]

comprehensive oversight process that draws maximum technical experience 
and perspective from all affected OPS regional and headquarters 
offices, and from any affected state agencies that would not normally 
provide oversight on interstate transmission projects.
    The PRT will conduct periodic risk management audits to observe 
company performance of the specific terms and conditions of the OPS 
Order authorizing this demonstration project. OPS is developing a 
detailed audit plan, tailored to the unique requirements of the Chevron 
Demonstration Project. This plan will describe the audit process (e.g., 
types of inspections, methods, and their frequency), as well as 
specific requirements for reporting information and performance measure 
data to OPS.
    OPS retains its full authority to administer and enforce all 
regulations governing pipeline safety. Chevron is not requesting any 
regulatory exemptions. The Salt Lake Products Pipeline System will be 
subject to routine OPS inspection to ensure compliance with the 
applicable Federal Pipeline Safety Regulations.

Information Provided to the Public

    OPS has previously provided information to the public about the 
Chevron project, and has requested public comment, using many different 
sources.
    1. OPS aired several electronic ``town meetings'' enabling viewers 
of the two-way live broadcasts to pose questions and voice concerns 
about candidate companies (including Chevron).
    2. An earlier Federal Register notice (62 FR 53052; October 10, 
1997) informed the public that Chevron was interested in participating 
in the Demonstration Program, provided general information about 
technical issues and risk control activities to be explored, and 
identified the geographic areas the demonstration project would 
traverse.
    3. Since August 1997, OPS has used an Internet-accessible data 
system called the Pipeline Risk Management Information System (PRIMIS), 
available via the OPS Home Page at http://ops.dot.gov to collect, 
update, and exchange information about all demonstration candidates, 
including Chevron.
    4. At a November 19, 1997, public meeting OPS hosted in Houston, 
TX, Chevron officials presented a summary of the proposed demonstration 
project and answered questions from meeting attendees. (Portions of 
this meeting were broadcast on December 4, 1997, and March 26, 1998).
    5. OPS is providing a prospectus, which includes a map of the 
demonstration pipeline segment, to State officials and community 
representatives who may be interested in reviewing project information, 
providing input, or monitoring the progress of the project.
    At this point, OPS has received no public comment on Chevron's 
proposal. This notice is OPS's final request for public comment before 
OPS intends to approve Chevron's participation in the Demonstration 
Program.

    Issued in Washington, DC on December 18, 1998.
Richard B. Felder,
Associate Administrator for Pipeline Safety.

Appendix: Environmental Assessment

A. Background and Purpose

    A Presidential Directive to the Secretary of Transportation 
(October 12, 1996) stated that in implementing the Pipeline Risk 
Management Demonstration Program: ``The Secretary shall require each 
project to achieve superior levels of public safety and 
environmental protection when compared with regulatory requirements 
that otherwise would apply.'' Thus, the process to select operators 
for this Demonstration Program involves a comprehensive review to 
ensure that the proposed project will provide the superior safety 
and environmental protection required by this Directive. This 
document summarizes the key points of this review for Chevron Pipe 
Line Company's (Chevron's) demonstration project, and evaluates the 
safety and environmental impacts of this proposed project.
    This document was prepared in accordance with section 102(2)(c) 
of the National Environmental Policy Act (42 U.S.C. 4332), the 
Council on Environmental Quality regulations (40 CFR Parts 1500-
1508), and Department of Transportation Order 5610.1c, Procedures 
for Considering Environmental Impacts.

B. Description of the Proposed Action

    As a result of a comprehensive review of the risk management 
demonstration project Chevron has proposed, the Office of Pipeline 
Safety (OPS) proposes to approve this project for participation in 
the Demonstration Program.
    The Chevron project would involve the following pipeline 
segment:
    (1) The 330-mile portion of the Salt Lake Products Pipeline 
System from Salt Lake City, Utah to Boise, Idaho.
    The OPS Project Review Team that conducted this review has 
concluded the Chevron project will:
    (1) Provide superior safety and environmental protection for the 
pipeline segment proposed for the demonstration project; and
    (2) Offer a good opportunity to evaluate risk management as a 
component of the Federal pipeline safety regulatory program.
    The Project Review Team evaluated the project according to 
review protocols and criteria available on PRIMIS. This evaluation 
is documented in ``OPS Project Review Team Evaluation of Chevron 
Demonstration Project.'' As a candidate for the Pipeline Risk 
Management Demonstration Program, Chevron has conducted thorough and 
systematic risk assessments to identify hazards and risks associated 
with operating the demonstration segment. The process used for 
performing these risk assessments is described in ``OPS Project 
Review Team Evaluation of Chevron Demonstration Project''.
    Chevron has a strong, fully institutionalized risk management 
program that it has developed and refined through five years of 
application on all of its pipeline systems. The foundation of the 
Chevron program is a very systematic risk assessment process. This 
investigative process involves a comprehensive examination of the 
entire pipeline looking for possible sources of risk, modeling 
potential accident scenarios represented by these threats, and 
quantifying the relative importance of the risks. The examination of 
potential consequences includes public and worker safety as well as 
health effects, impacts on the environment, and maintaining service 
to Chevron's customers. The Chevron risk management program 
incorporates a well documented Risk Management Program Manual which 
includes a comprehensive set of risk management implementing 
procedures. Chevron effectively involves experienced field personnel 
in the risk management process. This comprehensive approach to risk 
management typically discovers risks that might not have been 
addressed through compliance with existing regulations.
    Chevron is not requesting exemptions from current regulations 
for its proposed demonstration project. The set of risk control 
activities that have been identified from the risk assessments of 
the Salt Lake Products Pipeline System (described below) go beyond 
current pipeline safety requirements to provide additional 
protection. Chevron intends to demonstrate it operates more safely 
with a risk management program in place, providing a level of safety 
and environmental protection that exceeds current regulations.
    Chevron has completed two risk assessments on the Salt Lake 
Products Pipeline System: the first in 1995 and the second in April 
1997. Based on the results of these risk assessments, Chevron has 
developed a set of risk control activities that address the areas of 
highest risk. The following are the most significant activities that 
will be applied to the 330-mile demonstration segment and will be 
the focus of the Chevron demonstration project:
     External corrosion. The Chevron corrosion maintenance 
and prevention program meets or exceeds all regulatory requirements 
and is consistent with good industry practices. As with all 
pipelines that have been operating for several years, there are some 
locations where the company is concerned about pipe coating 
condition and ensuring the adequacy of cathodic protection. To 
obtain better information about the current pipe condition, 
especially areas where corrosion might be occurring, the

[[Page 71339]]

company intends to enhance its comprehensive internal inspection 
program by linking inspection results with identified sensitive 
environmental areas (discussed below). Chevron will run an 
inspection device through the pipe that will identify pipe geometric 
defects such as dents, gouges, and areas that are not perfectly 
round. Then a second ``intelligent'' pipe inspection tool will be 
used to identify locations where there has been metal loss due to 
corrosion. The output from these inspection tools will be used to 
identify pipe locations where corrosion or other problems might 
exist. The company will then excavate, examine, and, if appropriate, 
repair any damage that is discovered at these sites.
     Geologic hazards in the form of seismic, scouring, and 
land movement. Chevron identified these hazards in the 1995 risk 
assessment and remediated several key locations. However, the 
company still believes these risks need to be better defined and 
addressed. Chevron is proposing to conduct a geologic hazard 
assessment that identifies and obtains more data on the areas most 
vulnerable to geologic hazards. Chevron will use this information in 
its risk control and decision making process to identify risk 
control activities to address significant geologic threats.
     Mapping Sensitive Environmental Areas. Another feature 
of the Chevron risk management demonstration project is to develop 
improved approaches to identify and address risks in Unusually 
Sensitive Areas (USAs). (The USA definition will appear in American 
Petroleum Institute (API) guidance to be published during the first 
quarter of 1999. Examples of USA candidates would be public water 
systems and threatened and endangered species.) This effort will 
include mapping sensitive environmental areas adjacent to the line 
using the Global Positioning System and Geographic Information 
System. This information will support a more thorough investigation 
of environmental risks on the pipeline system as well as improving 
the allocation of resources to focus on potential problems in 
environmentally sensitive areas.
    Finally, as part of the demonstration project, Chevron will 
reassess the risks of the demonstration site every two years to 
update its understanding of risks. Chevron will share the results of 
these risk assessments with OPS.

C. Purpose and Need for Action

    As authorized by Congress, OPS is conducting a structured 
Demonstration Program to evaluate the use of a comprehensive risk 
management approach in the operations and regulation of interstate 
pipeline facilities. This evaluation is being performed under 
strictly controlled conditions through a set of demonstration 
projects being conducted with interstate pipeline operators. Through 
the Demonstration Program, OPS will determine whether a risk 
management approach, properly implemented and monitored through a 
formal risk management regulatory framework, achieves:
    (1) Superior safety and environmental protection; and
    (2) Increased efficiency and service reliability of pipeline 
operations.
    In June, 1997, Chevron submitted a Letter of Intent to OPS 
asking to be considered as a Demonstration Program candidate. Using 
the consultative process described in Appendix A of the Requests for 
Application for the Pipeline Risk Management Demonstration Program 
(62 FR 14719), published on March 27, 1997, OPS is satisfied that 
Chevron's proposal will provide superior safety and environmental 
protection, and is prepared to finalize the agreement with Chevron 
on the provisions for the demonstration project.

D. Alternatives Considered

    OPS has considered three alternatives: approval of the Chevron 
risk management demonstration project as proposed in Chevron's 
application; denial of the Chevron demonstration project; or 
approval of the project with certain modifications to Chevron's 
application.
    OPS's preferred alternative is to approve the Chevron 
demonstration project. OPS is satisfied that the proposal will not 
significantly affect the surrounding environment. OPS expects the 
project will lead to superior levels of safety and environmental 
protection than provided under current regulatory requirements, 
because of the identification and analysis of effective risk control 
activities. Increased sharing between OPS and Chevron about 
potential pipeline risks will increase OPS's knowledge and awareness 
about potential pipeline threats, provide earlier opportunity to 
consider appropriate risk control options, and thereby support a 
more effective regulatory role in improving safety and environmental 
protection.
    If OPS denied the project, it would lose valuable information 
concerning the sources of risks to Chevron's pipeline system and the 
most effective means of managing these risks. Denial would also 
significantly diminish OPS's ability to evaluate the effectiveness 
of an institutionalized, integrated, and comprehensive risk 
management program in producing superior performance, and would 
hinder OPS's ability to satisfy the objectives of the Risk 
Management Demonstration Program, and the requirements of the 
previously mentioned Presidential Directive.
    All of the issues raised by OPS, state regulators, and other 
stakeholders about Chevron's proposed project have been discussed 
within the consultative process, resolved to OPS's satisfaction, and 
reflected in Chevron's application. Thus, we do not see any need to 
modify Chevron's proposal.

E. Affected Environment and Environmental Consequences

    The Salt Lake Products Pipeline System is composed of 706 miles 
of pipeline right-of-way that originates at Chevron's Salt Lake City 
refinery and distributes refined product (gasoline, diesel, jet 
fuel) throughout the States of Utah, Idaho, Oregon, and Washington. 
Chevron has proposed the 330-mile portion of the system between Salt 
Lake City, Utah and Boise, Idaho as its demonstration project. The 
transported products meet the 49 CFR part 195 definition of 
petroleum products in that they are flammable, toxic or corrosive. 
This means that the highest priority for OPS and Chevron is ensuring 
that pipeline leaks and ruptures do not occur. Through risk 
management, Chevron intends to continuously improve the level of 
safety and environmental protection associated with operating this 
system.
    Gasoline, diesel, and jet fuel are stable, flammable liquids. 
However, under rare circumstances, spills may result in the 
accumulation of highly flammable, heavier than air vapors in low 
areas. These vapors may also spread along the ground away from the 
spill site. Ignition of the vapor trail may occur if an ignition 
source is present. Localized damage created by a fire in the 
vicinity of the release could occur. These products form carbon 
oxides and various hydrocarbons which are dispersed into the 
atmosphere when burned. These products will also float on water, and 
large spills have been known to result in kills of fish and other 
aquatic life.
    The Salt Lake Products Pipeline System has experienced five 
relatively small reportable releases since 1990. Two of these 
releases were caused by damage from third parties excavating near 
the line; two events resulted from external corrosion; and the final 
release was due to a welding defect. The volume of product released 
from the line in each instance was relatively small--the largest 
being approximately 365 barrels of jet fuel that occurred after an 
excavator pierced the line. The other four releases ranged from 88 
barrels to 200 barrels. None of these releases resulted in injuries 
to pipeline personnel or members of the public, or caused a fire or 
explosion. The environmental impacts in each case were localized, 
cleaned to the satisfaction of regulatory agencies, and caused no 
permanent environmental damage.
    Chevron is not requesting any exemptions from current 
regulations. The set of risk control activities that have been 
identified from the risk assessments of the Salt Lake Products 
Pipeline System (previously mentioned) go beyond the requirements of 
existing regulations to provide additional protection.
    During the course of the consultation, Chevron presented the 
results of its risk control and decision support process that 
identified the risk control activities it proposes to implement on 
its proposed demonstration site. The OPS Project Review Team 
carefully reviewed these activities and has concluded that superior 
protection would be provided. As stated previously, all of these 
risk control activities go beyond the existing regulations in 
providing additional assurance of safety. The OPS review looked for 
potentially negative, unintended outcomes from the proposed 
activities but did not identify any significant negative impacts. 
OPS has concluded that Chevron's proposed risk control activities 
when combined with the existing company practices (which comply with 
and in some cases exceed 49 CFR part 195 requirements) will reduce 
the likelihood and consequences of pipeline accidents and leaks 
along the demonstration segment.

[[Page 71340]]

F. Environmental Justice Considerations

    In accordance with Executive Order 12898 (Federal Actions to 
Address Environmental Justice in Minority and Low-Income 
Populations), OPS has considered the effects of the demonstration 
project on minority and low-income populations. As explained above, 
this project will not result in any significant environmental 
impacts, because Chevron will be complying with current applicable 
pipeline safety regulations. Residents along the segment will have 
the same level of protection that they presently have, regardless of 
the residents' income level or minority status. Therefore, the 
proposed project does not have any disproportionately high or 
adverse health or environmental effects on any minority or low-
income populations near the demonstration facility.

G. Information Made Available to States, Local Governments, and 
Individuals

    Since August 1997, OPS has used an Internet-accessible data 
system called the Pipeline Risk Management Information System 
(PRIMIS), available via the OPS Home Page at http://ops.dot.gov, to 
collect, update, and exchange information about all demonstration 
candidates, including Chevron. OPS has made the following documents 
publicly available through PRIMIS, and incorporates them by 
reference into this environmental assessment:
    (1) ``Demonstration Project Prospectus: Chevron Pipe Line 
Company'', available by contacting Elizabeth M. Callsen at 202-366-
4572. Includes a map of the demonstration segment. Purpose is to 
reach the public, local officials, and other stakeholders, and to 
solicit their input about the proposed project. The prospectus has 
been mailed to Local Emergency Planning Committees (LEPC) and other 
local safety officials, Regional Response Teams (RRT) representing 
other federal agencies, state pipeline safety officials, conference 
attendees, and members of public interest groups.
    (2) ``Chevron Pipe Line Company--Application for DOT-OPS Risk 
Management Demonstration Program''.
    (3) ``OPS Project Review Team Evaluation of Chevron 
Demonstration Project''.
    (4) Notice of Intent to Approve Project, published concurrently 
with this environmental assessment.
    OPS has provided additional information to the public about the 
Chevron project, and has requested public comment, using many 
different sources. OPS aired four electronic broadcasts (June 5, 
1997; September 17, 1997; December 4, 1997; and March 26, 1998) 
reporting on demonstration project proposals (including Chevron's 
proposal). An earlier Federal Register notice (62 FR 53052; October 
10, 1997) informed the public that Chevron was interested in 
participating in the Demonstration Program, provided general 
information about technical issues and risk control activities to be 
explored, and identified the geographic areas the demonstration 
project would traverse.
    At a November 19, 1997, public meeting OPS hosted in Houston, 
TX, Chevron officials presented a summary of the proposed 
demonstration project and answered questions from meeting attendees. 
(Portions of this meeting were broadcast on December 4, 1997 and 
March 26, 1998.)
    No issues or concerns about Chevron's proposal have been raised.

H. Listing of the Agencies and Persons Consulted, Including Any 
Consultants

Persons/Agencies Directly Involved in Project Evaluation

Stacey Gerard, OPS/U.S. Department of Transportation
Tom Fortner, OPS/U.S. Department of Transportation
Elizabeth Callsen, OPS/U.S. Department of Transportation
Bruce Hansen, OPS/U.S. Department of Transportation
Edward Ondak, OPS/U.S. Department of Transportation
Joseph Robertson, OPS/Western Region/U.S. Department of 
Transportation
Kent Evans, Utah Department of Commerce
Dennis Lloyd, Washington Utilities and Transportation Commission
Steve Rieger, Washington Utilities and Transportation Commission
Robert Brown, Cycla Corporation (Consultant)
Jim Quilliam, Cycla Corporation (Consultant)

Persons/Agencies Receiving Briefings/Project Prospectus/Requests for 
Comment

    Regional Response Team (RRT), Regions 8 & 10, representing the 
Environmental Protection Agency; the Coast Guard; the U.S. 
Departments of Interior, Commerce, Justice, Transportation, 
Agriculture, Defense, State, Energy, Labor; Health and Human 
Services; the Nuclear Regulatory Commission; the General Services 
Administration; and the Federal Emergency Management Agency (RRT Co-
Chairs: Doug Skie, EPA Region 8; Cdr. Ed Stanton, Coast Guard 8th 
District; James Everts, EPA Region 10; and Capt. James Morris, Coast 
Guard 13th District).

I. Conclusion

    Based on the above-described analysis of the proposed risk 
management demonstration project, OPS has determined that there are 
no significant impacts associated with this action.

[FR Doc. 98-34145 Filed 12-23-98; 8:45 am]
BILLING CODE 4910-60-P