[Federal Register Volume 64, Number 166 (Friday, August 27, 1999)]
[Notices]
[Pages 46967-46968]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-22331]


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DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration


Directional Drilling and Other Trenchless Technology Operations 
Conducted in Proximity to Underground Pipeline Facilities

AGENCY: Research and Special Programs Administration (RSPA), DOT.

ACTION: Notice; issuance of advisory bulletin.

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SUMMARY: RSPA is issuing this advisory bulletin to owners and operators 
operators of natural gas and hazardous liquid pipeline systems to 
advise them to review, and amend if necessary, their written damage 
prevention program to minimize the risks associated with directional 
drilling and other trenchless technology operations near buried 
pipelines. This action follows several pipeline incidents involving 
trenchless technology operations which resulted in loss of life, 
injuries, and significant property damage. It also corresponds to 
National Transportation Safety Board (NTSB) Safety Recommendation P-99-
1, which suggests that RSPA

    * * * ensure that the operators' damage prevention programs 
include actions to protect their facilities when directional 
drilling operations are conducted in proximity to those facilities.

    This advisory bulletin emphasizes the importance of having 
procedures to mitigate the risks of directional drilling and other 
trenchless technology.

ADDRESSES: This document can be viewed at the Office of Pipeline Safety 
(OPS) home page at: http://ops.dot.gov.

FOR FURTHER INFORMATION CONTACT: Eben M. Wyman, (202) 366-0918, or by 
email at [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    RSPA revised its inspection form for hazardous liquid pipelines to 
examine how operators monitor directional drilling and other trenchless 
technology operations in the vicinity of underground pipelines. The 
pipeline safety regulations require pipeline operators to carry out a 
written damage prevention program for buried pipelines. The revised 
inspection form considers whether a pipeline operator's damage 
prevention program includes actions to protect their facilities when 
directional drilling operations are conducted in proximity to the 
pipeline. RSPA will make similar changes to the natural gas pipeline 
inspection form in its next revision. In light of recent accidents 
involving trenchless technology operations, RSPA is encouraging 
operators to carefully review their damage prevention program and make 
modifications as appropriate. RSPA also notes the importance of 
accurately locating underground piping and ensuring the qualifications 
of personnel performing this work.
    Additionally, NTSB Safety Recommendation P-99-1 (April 28, 1999) 
directs that RSPA

    [w]hen reviewing pipeline operator safety programs, ensure that 
the operators' damage prevention programs include actions to protect 
their facilities when directional drilling operations are conducted 
in proximity to those facilities.

    This recommendation reflects NTSB's investigation into the rupture 
of a natural gas pipeline near Indianapolis, Indiana. The ignition of 
the escaping gas caused a fatality and an injury. NTSB determined that 
the probable cause was the failure of the pipeline operator to ensure 
that safe directional drilling operations were conducted in proximity 
to underground facilities.
    RSPA believes that this Advisory Bulletin will encourage operators 
to recognize the dangers associated with directional drilling and other 
trenchless technology operations and to take appropriate action to 
ensure that underground facilities are adequately located and protected 
when these activities take place near pipelinethese facilities.

II. Advisory Bulletin (ADB-99-04)

    To: Owners and Operators of Hazardous Liquid and Natural Gas 
Pipelines
    Subject: Directional Drilling and Other Trenchless Technology 
Operations Conducted in Proximity to Underground Pipeline Facilities.
    Purpose: To ensure that pipeline operators take actions to 
recognize the dangers associated with directional drilling and other 
trenchless technology operations, and to ensure that underground 
pipeline facilities are adequately located and protected from 
inadvertent damage.
    Advisory: RSPA urges all owners and operators of gas and hazardous 
liquid pipelines to review their operations, maintenance, and damage 
prevention programs to include effective actions to protect their 
underground facilities from the dangers posed by directional drilling 
and other trenchless technology operations. Operators should take 
actions to ensure that both company and contractor personnel are 
following safe practices.
    Trenchless technologies, including directional drilling, are 
effective

[[Page 46968]]

excavating practices that can reduce the threat of third-party damage 
to gas and hazardous liquid pipelines. They can also mitigate 
environmental and other concerns associated with traditional trenching 
methods of pipe and cable installation.
    However, the potential exists for trenchless technology operations 
to damage underground facilities, sometimes with catastrophic results. 
Directional drilling and other trenchless technology operations employ 
a variety of cutting, jetting, boring, reaming, and jacking techniques. 
These techniques can result in rupture or damage to existing 
underground facilities, including oil and gas pipelines, electric 
cables and ducts, water and sewer pipes, telecommunications ducts, 
fiber optic cables, and cable television facilities.
    Usually, the exact depth of existing underground facilities is not 
known, even if the facilities are accurately located before directional 
drilling commences. In addition, many facilities are buried deeper than 
the minimums required by law and regulation. This can be caused by 
changes in the surface contours due to agricultural activities, 
landscaping, and road building.
    Damage to underground facilities can occur without any immediate 
indication to the operator. Sometimes a damaged underground facility 
will not fail for years after the completion of trenchless technology 
operations. Drilling equipment does not need to fully rupture a 
facility to create a hazardous situation. Damage to coatings and other 
corrosion prevention systems can increase the risk of a delayed 
corrosion failure. Escaping and migrating gas can create a safety issue 
for people living and working near these facilities long after the 
completion of directional drilling and other trenchless technology 
operations. Leakage from a damaged or ruptured hazardous liquid 
pipeline can create environmental and safety issues.
    The primary safety concern is ensuring that trenchless technology 
operations do not accidentally contact existing underground facilities. 
This can be averted by knowing the precise locations of all underground 
facilities in proximity to trenchless technology operations. In 
addition to full compliance with the one-call notification process, the 
operator should also consider thorough site surveys of the area of a 
proposed directional drilling or trenchless technology project to 
locate potential conflicts with underground facilities.
    Information on the safe conduct of trenchless technology operations 
is available from various trade associations and technical 
publications. In addition, the Gas Piping Technology Committee, a 
standards committee composed of experts on gas piping issues, publishes 
guidelines for planning and designing trenchless technology pipe 
installations in its Guide for Gas Transmission and Distribution Piping 
Systems, which is available from the American Gas Association.

    Issued in Washington, D.C. on August 23, 1999.
Richard B. Felder,
Associate Administrator for Pipeline Safety.
[FR Doc. 99-22331 Filed 8-26-99; 8:45 am]
BILLING CODE 4910-60-P