[Federal Register Volume 66, Number 54 (Tuesday, March 20, 2001)]
[Proposed Rules]
[Pages 15681-15684]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-6822]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration

49 CFR Part 195

[Docket No. RSPA-01-8663]
RIN 2137-AD56


Pipeline Safety: Hazardous Liquid Pipeline Accident Reporting 
Revisions

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

ACTION: Notice of proposed rulemaking; request for comments on revised 
form.

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

SUMMARY: This notice of proposed rulemaking would amend the pipeline 
safety regulations to lower the reporting threshold for hazardous 
liquid pipeline spills from 50 barrels to 5 gallons. We are also 
seeking comments on revisions to the hazardous liquid accident form to 
improve its usefulness. On the revised accident form, reporting for 
spills from 5 gallons to less than 5 barrels will require minimal 
information. The improvements to the hazardous liquid accident form are 
necessary to address known deficiencies in the current information 
collection. The improved information on failure cause categories and 
more detailed information about the impact of failed pipelines will 
improve pipeline safety statistics, increasing the overall usefulness 
of the data and making analysis more efficient and meaningful.

DATES: Comments on the subject of this proposed rule must be received 
on or before May 21, 2001.

ADDRESSES: You may submit written comments by mail or in person by 
delivering an original and two copies to the Dockets Facility, U.S. 
Department of Transportation, Room PL-401, 400 Seventh Street, SW., 
Washington, DC 20590-0001. Or, you may submit written comments to the 
docket electronically at the following Web address: http://dms.dot.gov. 
See the SUPPLEMENTARY INFORMATION section for additional filing 
information.

FOR FURTHER INFORMATION CONTACT: Roger Little by phone at (202) 366-
4569, by e-mail at [email protected], or by mail at the Office 
Of Pipeline Safety, Room 7128, 400 7th St. SW., Washington, DC 20590 
regarding the subject matter of this notice or to access comments in 
the docket.

SUPPLEMENTARY INFORMATION:

Filing Information, Electronic Access, and General Program 
Information

    The Dockets facility is open from 10:00 a.m. to 5:00 p.m., Monday 
through Friday, except federal holidays. All comments should identify 
the docket number of this notice, RSPA-01-8663. You should submit the 
original and one copy. If you wish to receive confirmation of receipt 
of your comments, you must include a stamped, self-addressed postcard. 
To file written comments electronically, after logging onto http://dms.dot.gov, click on ``Electronic Submission.'' You can read comments 
and other material in the docket at this Web address: http://dms.dot.gov. General information about our pipeline safety program is 
available at this address: http://ops.dot.gov.

Background

RSPA Pipeline Safety Mission

    RSPA's Office of Pipeline Safety has responsibility for assuring 
adequate safety and environmental protection for risks posed by the 
nation's approximately 2 million miles of natural gas and hazardous 
liquid pipelines. The OPS shares responsibility for inspecting and 
overseeing the nation's pipelines with state pipeline safety offices 
that also depend on the information RSPA collects.

RSPA Pipeline Safety Data

    To fulfill its safety mission, RSPA maintains a hazardous liquid 
pipeline accident database that is widely recognized as the nation's 
best source of such information. The information that RSPA collects on 
reportable hazardous liquid accidents provides an important tool for 
identifying safety trends in the hazardous liquid pipeline industry. 
RSPA has collected hazardous liquid pipeline accident information since 
the early 1970s, with only one revision to the accident collection 
procedures in July 1984. Under 49 CFR part 195, RSPA is authorized to 
develop regulations, inspect facilities, and ensure compliance with 
standards established to ensure safety and environmental protection 
from risks to the public and the environment that are posed by 
hazardous liquid pipelines. Operators are required to report accidents 
according to the procedures established in 49 CFR 195.50. The 
information is used to identify safety trends for regulatory purposes 
and to target inspections of hazardous liquid pipeline facilities based 
on risk.

The Need for Pipeline Safety Data

    Accurate, meaningful pipeline safety incident information is needed 
for general trending of pipeline safety data and risk assessment, for 
deciding which pipelines need rehabilitation vs. replacement, for 
analyzing cost benefits, and for comparing individual operator 
performance with industry performance. This safety information is used 
by RSPA for daily decision making in RSPA's assessment of pipeline 
risks, regulatory development, and programmatic resource allocation. In 
addition to the need for information for safety trending and diagnosis, 
RSPA uses the information in monitoring industry performance and 
regulatory compliance, and for planning company standard safety 
inspections. State pipeline safety programs with hazardous liquid 
pipeline safety responsibility also use the information for these 
purposes. The information is also widely used by third-parties, 
including state governors, Congress, metropolitan planners, pipeline 
research engineers, industry safety experts, the media, and the public.

Why Revise the Hazardous Liquid Accident Report Form?

    In 1984, the RSPA hazardous liquid accident form was revised as a 
result of the Paperwork Reduction Act. The report has been in use since 
1984 without revision, providing 16 years of data upon which pipeline 
safety analysis has been extensively conducted. Over the years we 
became aware of shortcomings in the data collection that need 
improvement. In recent years, the usefulness of the hazardous liquid 
accident data collection has been found to be limited due to the level 
of detail and accuracy, and the quality of the collected data. 
Recognizing the limitations to effective pipeline safety analysis that 
these data deficiencies cause, the National

[[Page 15682]]

Transportation Safety Board, the DOT Office of the Inspector General, 
and others have urged RSPA to improve the collection of pipeline safety 
data.

Department of Transportation Inspector General Recommendation

    DOT's Office of the Inspector General, in a March 2000 audit report 
of RSPA's pipeline safety program, recommended that RSPA

    implement revisions in the collection and processing of pipeline 
accident data to expand accident causal categories for more detailed 
trend analysis, and to clarify accident form instructions so that 
operators will be more consistent and accurate in reporting accident 
causes.

National Transportation Safety Board Recommendation

    In its special investigation report PB96-917002 (January 23, 1996), 
the National Transportation Safety Board (NTSB) issued recommendation 
P-96-1 which directed the Office of Pipeline Safety (OPS) to develop

    a comprehensive plan for the collection and use of gas and 
hazardous liquid pipeline accident data that details the type and 
extent of data to be collected, to provide the Research and Special 
Programs Administration (RSPA) with the capability to perform 
methodologically sound accident trend analysis and evaluations of 
pipeline operator performance using normalized accident data.

Congressional Recommendations

    Recent significant pipeline accidents have focused the regulators, 
Congress, the media, and the public's attention on the need for better 
pipeline safety information. Congress has advised RSPA to seek quick 
action to improve the quantity, quality, and usefulness of safety 
information to better perform its safety mission.
    During the 106th Congress, the proposed Pipeline Safety Improvement 
Act of 2000 (S. 2438) was considered by both houses of Congress. The 
proposed bill included provisions to require RSPA to gather improved 
pipeline spill information for spills as small as five gallons:

    SEC. 10. IMPROVED DATA AND DATA AVAILABILITY.
    (a) IN GENERAL.--Within 12 months after the date of enactment of 
this Act, the Secretary shall develop and implement a comprehensive 
plan for the collection and use of gas and hazardous liquid pipeline 
data to revise the causal categories on the incident report forms to 
eliminate overlapping and confusing categories and include 
subcategories. The plan shall include components to provide the 
capability to perform sound incident trend analysis and evaluations 
of pipeline operator performance using normalized accident data.
    (b) REPORT OF RELEASES EXCEEDING 5 GALLONS.--Section 60117(b) is 
amended--
    (1) by inserting ``(1)'' before ``To''; 25
    (2) redesignating paragraphs (1) and (2) as subparagraphs (A) 
and (B);
    (3) inserting before the last sentence the following: ``(2) A 
person owning or operating a hazardous liquid pipeline facility 
shall report to the Secretary each release to the environment 
greater than five gallons of the hazardous liquid or carbon dioxide 
transported. This section applies to releases from pipeline 
facilities regulated under this chapter. A report must include the 
location of the release, fatalities and personal injuries, type of 
product, amount of product release, cause or causes of the release, 
extent of damage to property and the environment, and the response 
undertaken to clean-up the release.

    Although this proposed Act did not achieve final passage in the 
last Congress, we believe the intention to require improved data 
collection is apparent.

White House Memorandum

    In a letter to the Secretary of Transportation, the President 
(November 3, 2000) asked the Secretary of Transportation to provide for

    collection of more complete and detailed information on the 
causes of accidents, thereby facilitating better trends analysis and 
helping to prevent future accidents. Specifically, you should 
improve accident reporting forms as soon as possible for both 
hazardous liquid and natural gas pipelines by expanding causal 
categories and clarifying instructions so that data submissions are 
more consistent and accurate.

Industry Recognition of the Need for Better Information

    The pipeline industry has recognized the need to improve the 
usefulness of the hazardous liquid pipeline data. In recent years, the 
American Society of Mechanical Engineers (ASME) B31.4 committee 
conducted annual reviews of hazardous liquid pipeline accident data 
collection to evaluate the usefulness of the information. The ASME 
B31.4 committee developed an extended set of pipeline failure causes. 
The findings of the ASME committee have been made available to OPS and 
others for additional scrutiny as part of the ongoing effort to seek 
improvements in data usefulness. The ASME causes have been widely 
recognized and have gained industry and government acceptance.

Joint Industry/State/Federal Data Team

    RSPA has been working with a joint industry/State/Federal team 
since 1997 to examine hazardous liquid pipeline accident data needs. 
The team determined that standardization of accident causes based on 
the causes proposed by the ASME B31.4 committees would be the best way 
to address accident reporting deficiencies. The team determined that 
the American Petroleum Institute (API) could develop and collect 
additional hazardous liquid pipeline data with a voluntary reporting 
system. API developed the data collection scheme in a system known as 
the Pipeline Performance Tracking Initiative (PPTI), and is now pilot-
testing the system using calendar year 1999 data.

Standardization of Accident Data Across Industry

    RSPA plans to implement the recommendations of the NTSB, the DOT's 
Office of the Inspector General, Congress, and the White House by 
clarifying and standardizing the accident cause categories, and 
collecting better information for both natural gas and hazardous liquid 
pipeline accidents. Furthermore, the natural gas pipeline transmission 
industry has recently accepted the expanded ASME B31.4 accident cause 
categories.
    RSPA acknowledges the need for consistent pipeline information for 
both natural gas and hazardous liquid pipeline accidents. Plans are 
currently underway to similarly revise natural gas transmission 
incident pipeline information. RSPA also plans to adopt a similar 
failure cause scheme for natural gas distribution pipeline incidents 
later in 2001. By adopting recognized industry proposed failure causal 
categories for natural gas and hazardous liquid pipeline incidents, we 
are taking a step toward further standardization of pipeline safety 
statistics for all pipeline types, increasing the overall usefulness of 
the data, and making analysis more efficient and meaningful.

Identified Shortcomings in RSPA Pipeline Safety Data

    Some key deficiencies that have been identified and which are being 
addressed in the current proposed revision are: insufficient 
information about spills below 50 barrels and spills in water; absence 
of complete information; oversimplification of the failure cause 
categories on the current accident form (including a high percentage of 
causes reported in the ``OTHER'' category where accident cause does not 
fit into the three causes provided); and insufficient accident 
consequence and cause subelements for proper analysis.

[[Page 15683]]

RSPA's Approach for Improving Hazardous Liquid Accident Data

New Reporting Threshold
    This notice proposes to lower the existing threshold for accident 
reporting for operators of hazardous liquid pipeline systems subject to 
RSPA regulations under Part 195. The existing threshold of 50 barrels 
would be lowered to the new threshold of 5 gallons. RSPA believes the 
consequence of spills as small as 5 gallons does not warrant full 
reporting to the extent justified for larger spills. Consequently, RSPA 
proposes to minimize the reporting burden for small spills by 
collecting only minimal information for spills from 5 gallons to less 
than 5 barrels, except where a spill of 5 gallons or more occurs in 
water. Spills between 5 gallons and less than 5 barrels that occur 
during normal maintenance activities are exempt if they are confined to 
the operator's property or pipeline right-of-way and they are cleaned 
up without delay. A spill of 5 or more barrels, or any accident 
reportable by the already existing criteria specified in section 195.50 
will, as at present, require complete reporting.
    In addition, because of the proposed reduction in the minimum spill 
reporting threshold, the requirement in Sec. 195.50(c) for reporting 
highly volatile liquid (HVL) releases as small as 5 barrels is no 
longer needed. The proposed rule requires reporting of all releases 
down to 5 barrels, including HVLs. Therefore, we propose to delete 
Sec. 195.50(c).
Improved Cause and Consequence Information
    RSPA proposes to further improve the usefulness of the information 
collected on the hazardous liquid accident form RSPA F 7000-1 by 
strengthening the cause and consequence detail information. For details 
on the proposed changes, see the proposed form RSPA F 7000-1 and the 
proposed Instructions for Completing Form RSPA F 7000-1 in Docket No. 
RSPA-01-8663. The proposed accident report form revision will enhance 
safety and environmental protection from risks that hazardous liquid 
pipelines pose to people and the environment by helping RSPA to better 
identify safety trends and issues, target solutions, and monitor 
effectiveness and compliance.

Rulemaking Analyses

Executive Order 12866 and DOT Policies and Procedures

    RSPA does not consider this proposed rulemaking to be a significant 
regulatory action under section 3(f) of Executive Order 12866. RSPA 
also does not consider this proposed rulemaking to be significant under 
DOT regulatory policies and procedures (44 FR 11034; February 26, 
1979).
    A copy of the Draft Regulatory Evaluation is available for review 
in the docket. This section summarizes the findings of the draft 
regulatory evaluation. This proposed rulemaking addresses the problems 
with the data collection of hazardous liquid pipeline accidents.
Introduction
    In recent years, the usefulness of the hazardous liquid accident 
data collection has been found to be limited due to the level of detail 
and accuracy and the quality of the data collected. Recognizing the 
limitations to effective pipeline safety analysis that these data 
deficiencies cause, the National Transportation Safety Board, the 
Department of Transportation Office of the Inspector General, and 
others have urged RSPA to make the pipeline safety data which RSPA 
collects more useful.
    This proposal amends the pipeline safety regulations to lower the 
reporting threshold for hazardous liquid pipeline spills from 50 
barrels to 5 gallons, with an accompanying revision to the hazardous 
liquid accident form to improve its usefulness. On the revised accident 
form, reporting for spills from less than 5 barrels down to 5 gallons 
will require reporting minimal information, whereas any spill in water 
of 5 gallons or more, any spill of 5 barrels or more, or where 
otherwise reportable according to existing reporting criteria as 
outlined in 49 CFR 195.50, will require completion of the entire new 
proposed accident report. Additionally, RSPA proposes to further 
improve the usefulness of the information collected on the hazardous 
liquid accident form RSPA F 7000-1 by strengthening the cause and 
consequence detail information on the accident report.
Benefits
    Accurate, meaningful pipeline safety incident information is needed 
for general trending of pipeline safety issues and for risk assessment 
applications, for deciding which pipelines need rehabilitation vs. 
replacement, for analyzing cost benefits, and for comparing individual 
operator performance with industry performance. This safety information 
is used by RSPA for daily decision making in RSPA's assessment of 
pipeline risks, regulatory development, and programmatic resource 
allocation. RSPA also uses the information in monitoring industry 
performance and regulatory compliance, and for planning company 
standard safety inspections.
Costs
    RSPA estimates that it will take each operator 1 hour to complete 
the short form, and estimates the long form will take each operator 7 
hours to complete.
    Based on a survey by the American Petroleum Institute (API), RSPA 
estimates the number of incidents reported annually will be 1,839. Of 
these reports, RSPA estimates that 427 will require the long form and 
1,412 will require the short form.
    Below is RSPA's estimate for the new requirements and an estimate 
of the former requirement for comparison purposes.

427 long forms  x  7 hours = 2,989 hours.
1,412 short forms  x  1 hour = 1,422 hours.
1,839 forms total; 4,411 hours total.

    If the average cost is $40 per hour, the total industry cost 
annually is $176,440 (4,411  x  $40).
    The previous cost to industry was 166 reports  x  6 hours = 996  x  
$40 = $39,840. The net increase of the proposed change in the reporting 
threshold and the proposed changes to the forms is $136,600 annually.
Conclusion
    RSPA believes that the additional cost of $136,600 annually is a 
relatively modest burden on the hazardous liquid pipeline industry. The 
benefits accruing to RSPA and the pipeline industry through the 
increase in the number of reports and the more detailed data should 
easily outweigh this modest cost. This increase in information received 
should allow RSPA and the hazardous liquid pipeline industry to 
identify safety issues and trends in the present state of pipeline 
safety, and to provide information that will allow operators to make 
changes to procedures and practices that will ultimately reduce 
pipeline accidents and improve pipeline safety.

Regulatory Flexibility Act

    Dividing the incremental cost increase of $136,600 by the 
approximately 200 hazardous pipeline operators shows the average 
incremental cost increase of this proposal is $683 per operator. Based 
on this small increase in costs to the industry of this proposed 
rulemaking, I

[[Page 15684]]

certify, pursuant to section 605 of the Regulatory Flexibility Act (5 
U.S.C. 605), that this proposed rulemaking would not have a significant 
impact on a substantial number of small entities. If you have any 
information that this conclusion about the impact on small entities is 
not correct, please provide that information to the public docket 
described in the Filing Information, Electronic Access, and General 
Program Information section of the preamble.

Paperwork Reduction Act

    This rule contains information collection requirements. As required 
by the Paperwork Reduction Act of 1995 (44 U.S.C. 3507 (d)), the DOT 
has submitted a copy of the Paperwork Reduction Act Analysis to the 
Office of Management and Budget (OMB) for its review. The name of the 
information collection is ``Transportation of Hazardous Liquids by 
Pipeline: Recordkeeping and Accident Recordkeeping and Reporting 
Requirements (2137-0047).'' A copy of the Paperwork Reduction Act 
analysis is available for review in the docket. This paperwork burden 
is an amendment to an already existing information collection that 
includes additional information requirements that are not a part of 
this rulemaking.
    The approximately 192 hazardous liquid pipeline operators will be 
required to submit approximately 1,839 incident reports annually. The 
total hour burden will be 4,411 hours costing $176,440 annually.
    Organizations and individuals desiring to submit comments on the 
information collection should direct them to the addresses listed in 
the ADDRESSES section of the preamble. Comments must be sent within 60 
days of the publication of this notice.
    The OMB is specifically interested in the following issues 
concerning the information collection:
    1. Evaluating whether the collection is necessary for the proper 
performance of the functions of the DOT, including whether the 
information would have a practical use;
    2. Evaluating the accuracy of the DOT's estimate of the burden of 
the collection of information, including the validity of assumptions 
used;
    3. Enhancing the quality, usefulness and clarity of the information 
to be collected; and
    4. Minimizing the burden of collection of information on those who 
are to respond, including through the use of appropriate automated 
electronic, mechanical, or other technological collection techniques or 
other forms of information technology (e.g., permitting electronic 
submission of responses).
    The Paperwork Reduction Act of 1995 does not require a person to 
respond to a collection of information unless a valid OMB control 
number is displayed. The valid OMB control number for this information 
collection will be published in the Federal Register after it is 
approved by OMB. For more details, see the Paperwork Reduction Analysis 
available for copying and review in the public docket.

Executive Order 13084

    The proposed rules have been analyzed in accordance with the 
principles and criteria contained in Executive Order 13084, 
``Consultation and Coordination with Indian Tribal Governments.'' 
Because the proposed rules would not significantly or uniquely affect 
the communities of the Indian tribal governments and would not impose 
substantial direct compliance costs, the funding and consultation 
requirements of Executive Order 13084 do not apply.

Unfunded Mandates Reform Act of 1995

    This proposed rulemaking would not impose unfunded mandates under 
the Unfunded Mandates Reform Act of 1995. It would not result in costs 
of $100 million or more to either State, local, or tribal governments, 
in the aggregate, or to the private sector, and would be the least 
burdensome alternative that achieves the objective of the rule.

National Environmental Policy Act

    We have analyzed the proposed rules for purposes of the National 
Environmental Policy Act (42 U.S.C. 4321 et seq.). Because the proposed 
rule parallels present reporting requirements and practices, we have 
preliminarily determined that the proposed rule would not significantly 
affect the quality of the human environment. Generally, collection of 
information does not constitute an environmental impact. A final 
determination on environmental impact will be made after the end of the 
comment period. If you disagree with our preliminary conclusion, please 
submit your comments to the docket as described above.

Executive Order 13132

    The proposed rules have been analyzed in accordance with the 
principles and criteria contained in Executive Order 13132 
(``Federalism''). The proposed rule change does not propose any 
regulation that (1) has substantial direct effects on the States, the 
relationship between the national government and the States, or the 
distribution of power and responsibilities among the various levels of 
government; (2) imposes substantial direct compliance costs on State 
and local governments; or (3) preempts state law. Therefore, the 
consultation and funding requirements of Executive Order 13132 do not 
apply. Nevertheless, during our review of the existing hazardous liquid 
reporting requirements, representatives of state pipeline safety 
agencies gave us advice both in private sessions and in the form of 
formal recommendations for pursuing improved accident information. In 
addition, our pipeline safety advisory committees, which include 
representatives of state governments, have been briefed on our plans 
for improving accident data.

List of Subjects in 49 CFR Part 195

    Anhydrous ammonia, Carbon dioxide, Incorporation by reference, 
Petroleum, Pipeline safety, Reporting and recordkeeping requirements.

    In consideration of the foregoing, we propose to amend 49 CFR Part 
195 as follows:

PART 195--TRANSPORTATION OF HAZARDOUS LIQUIDS BY PIPELINE

    1. The authority citation for part 195 continues to read as 
follows:

    Authority: 49 U.S.C. 5103, 60102, 60104, 60108, 60109, 60118; 
and 49 CFR 1.53.

    2. Amend Sec. 195.50 to revise paragraph (b), to remove paragraph 
(c), and to redesignate paragraphs (d) through (f) as paragraphs (c) 
through (e), to read as follows:


Sec. 195.50  Reporting accidents.

* * * * *
    (b) Release of 5 gallons (19 liters) or more of hazardous liquid or 
carbon dioxide, except that no report is required for a release of less 
than 5 barrels (0.8 cubic meters) if the release is:
    (1) Not one described in Sec. 195.52(a)(4);
    (2) Attributable to a pipeline maintenance activity;
    (3) Confined to company property or pipeline right-of-way; and
    (4) Cleaned up promptly.
* * * * *

    Issued in Washington, D.C. on January 17, 2000.
Stacey L. Gerard,
Associate Administrator for Pipeline Safety.
[FR Doc. 01-6822 Filed 3-19-01; 8:45 am]
BILLING CODE 4910-60-P