[Federal Register Volume 65, Number 84 (Monday, May 1, 2000)]
[Rules and Regulations]
[Pages 25284-25285]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-10592]
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DEPARTMENT OF THE INTERIOR
Minerals Management Service
30 CFR Part 250
Oil and Gas and Sulphur Operations in the Outer Continental
Shelf--Update of Revised/Reaffirmed Documents Incorporated by Reference
AGENCY: Minerals Management Service (MMS), Interior.
ACTION: Technical amendment.
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SUMMARY: This document makes technical amendments to regulations that
were published in a final rule on December 28, 1999 (64 FR 72756), and
which listed all documents incorporated by reference in regulations
governing oil and gas and sulfur operations in the Outer Continental
Shelf (OCS). This amendment incorporates Supplement 2 to the 21st
Edition of American Petroleum Institute (API) Specification 6D (SPEC
6D). The rulemaking of December 28, 1999, incorporated API SPEC 6D,
21st Edition, but not the supplement.
EFFECTIVE DATE: May 31, 2000.
The incorporation by reference of publications listed in the
regulation is approved by the Director of the Federal Register as of
May 31, 2000.
FOR FURTHER INFORMATION CONTACT: Carl W. Anderson at (703) 787-1608.
SUPPLEMENTARY INFORMATION:
Background
Early in 1998, API requested that MMS incorporate by reference
Supplements 1 and 2 (dated December 1996 and December 1997,
respectively) to API SPEC 6D. (Supplement 2 actually fully incorporates
and expands upon Supplement 1.) For metal-to-metal seated valves, the
Supplements changed from a ``no visible leakage'' standard to
``allowable internal leakage rates'' according to valve size. This
raised two concerns for MMS with regard to its regulatory program.
First, once an attempt has been made to purge a pipeline of all
contents and close its valves, how can an operator be sure that the
pipeline is properly isolated and free of combustibles or pressure
during repairs? (Cutting into an existing pipeline in preparation to
repair it is considered among the most hazardous operations conducted
offshore.) Second, how can MMS be sure that out-of-service pipelines
isolated by block valves are really shut down?
MMS issued Notice to Lessees and Operators on the Outer Continental
Shelf (NTL) No. 98-16N in October 1998 rejecting Supplements 1 and 2 as
documents incorporated by reference. MMS needed more time to discuss
the issues with API and to consider the ramifications of the
``allowable internal leakage'' standard for the OCS regulatory program.
MMS reasoned:
It may well be that the ``no visible leakage'' standard contained in
the 21st and previous editions of API SPEC 6D is an unreasonably
high standard for metal-to-metal seats. Metal-to-metal seats are
non-deforming compared to non-metal-to-metal seats; therefore, it
may be reasonable to expect that some leakage would occur between
facing metal surfaces. Nevertheless, there appears to be no data or
agreed-upon formula for predicting an acceptable leakage rate.
The MMS made a concerted attempt with API to collect data on this
question and held further discussions with industry. In February 1999,
MMS proposed a research project on leakage rates to API and asked them
to survey their members on their perceptions of the ``allowable leakage
rates'' and willingness to participate in the research project. Only 25
of 250 potential respondents replied. Their answers indicated that few
valve suppliers believe that the ``no visible leakage'' standard is
realistic, other than for special-purpose, non-off-the-shelf (i.e.,
expensive) valves. Support for new research was very limited.
Industry representatives maintained that there is little formal
data on leakage rates. They explained, however, that most
correspondence on this subject focuses on leakage rates contained in
International Standards Organization Standard 5208, Rate D. These rates
are incorporated into Supplements 1 and 2. The API SPEC 6D workgroup
generally agrees that these leakage rates are reasonable and in line
with their experience.
Further discussions with the API SPEC 6D workgroup revealed that
participants almost unanimously agree that all pipeline valves leak
after they have been in service for a short time due to operational
residues and abrasion.
[[Page 25285]]
This indicates that initial leakage rates for new valves are irrelevant
by the time a pipeline is in need of repair or placed out-of-service.
Therefore, measures in addition to ``closed valves'' are needed to
protect workers and to ensure ``isolated pipelines'' during pipeline
repairs.
The MMS's own pipeline workgroup conferred on these issues. They
decided that rejecting the new allowable internal leakage rates would
be unrealistic in light of what MMS had learned from its discussions
with industry. Moreover, the maintenance of an unrealistic ``no visible
leakage'' standard would not address the real regulatory dilemma that
regardless of initial internal leakage rates, eventually all pipeline
valves will leak internally. The MMS workgroup reasoned that since
internal leakage occurs in pipeline valves regardless of initial
leakage rates, MMS must address this concern in its inspection and
maintenance procedures. Therefore, the MMS workgroup recommended
canceling NTL 98-16N and adopting Supplement 2 as a document
incorporated by reference. They also recommended two additions to
Subpart J that would address the problems posed by leaking pipeline
valves. The first would add a requirement for operators to submit a
work plan detailing the measures they intend to take and procedures
they intend to follow to ensure the safety of their employees during
any pipeline repair. The second would add a requirement for placing a
blind flange on lateral lines taken out-of-service. The MMS intends to
propose both of these requirements in a separate rulemaking.
MMS has reviewed Supplements 1 and 2 to the 21st Edition of API
SPEC 6D in light of the above considerations and determined that they
will not impose undue cost on the offshore oil and gas industry.
Moreover, further discussions with API confirm that Supplement 2
completely replaces Supplement 1. (Thus, parties that order copies of
the 21st Edition of API SPEC 6D from API receive only Supplement 2 in
addition to the primary document.) Therefore, we are incorporating
Supplement 2 according to the authority in 30 CFR 250.198(a)(2).
Upon the effective date of this technical amendment, NTL No. 98-16N
is cancelled.
List of Subjects in 30 CFR Part 250
Continental shelf, Environmental impact statements, Environmental
protection, Government contracts, Incorporation by reference,
Investigations, Mineral royalties, Oil and gas development and
production, Oil and gas exploration, Oil and gas reserves, Penalties,
Pipelines, Public lands--mineral resources, Public lands--rights-of-
way, Reporting and recordkeeping requirements, Sulphur development and
production, Sulphur exploration, Surety bonds.
Accordingly, 30 CFR part 250 is amended by making the following
technical amendments:
PART 250--OIL AND GAS AND SULPHUR OPERATIONS IN THE OUTER
CONTINENTAL SHELF
1. The authority citation for part 250 continues to read as
follows:
Authority: 43 U.S.C. 1331 et seq.
2. In Sec. 250.198, in the table in paragraph (e), revise the entry
for API SPEC 6D to read as set forth below.
Sec. 250.198 Documents incorporated by reference.
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(e) * * *
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Title of documents Incorporated by reference at
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* * * *
* * *
API Spec 6D, Specification for Pipeline Sec. 250.1002(b)(1).
Valves (Gate, Plug, Ball, and Check
Valves), Twenty-first Edition, March
31, 1994, including Supplement 2,
December 1, 1997, API Stock No. G03200.
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Dated: April 21, 2000.
Joseph R. Levine,
Acting Chief, Engineering and Operations Division.
[FR Doc. 00-10592 Filed 4-28-00; 8:45 am]
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