[Federal Register Volume 68, Number 172 (Friday, September 5, 2003)]
[Notices]
[Pages 52816-52817]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-22665]


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DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration


Pipeline Safety: Pipeline Industry Implementation of Effective 
Public Awareness Programs

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

ACTION: Notice; issuance of advisory bulletin.

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SUMMARY: RSPA's Office of Pipeline Safety (OPS) is issuing this 
advisory bulletin to owners and operators of hazardous liquid 
pipelines, gas transmission pipelines, gas distribution pipelines, and 
crude oil and gas gathering pipeline systems regulated under 49 CFR 
parts 192 and 195. The Pipeline Safety Improvement Act of 2002 (PSIA) 
requires that each owner or operator of a gas or hazardous liquid 
pipeline facility implement a continuing public education program. By 
December 17, 2003, each owner or operator must review its existing 
public education program for effectiveness and modify the program as 
necessary. RSPA/OPS is asking that each operator complete a self-
assessment of its public education program against the guidelines 
established in the recently-issued consensus standard, American 
Petroleum Institute's API RP 1162, ``Public Awareness Programs for 
Pipeline Operators,'' before December 17, 2003, to demonstrate 
compliance with the PSIA.

FOR FURTHER INFORMATION CONTACT: Jeff Wiese, (202)366-2036; or by e-
mail, [email protected]. This document can be viewed at the OPS 
home page at http://ops.dot.gov. General information about the RSPA/OPS 
programs may be obtained by accessing RSPA's home page at http://RSPA.dot.gov.

I. Advisory Bulletin (ADB-03-04)

To: Owners and Operators of Hazardous Liquid Pipelines, Gas 
Transmission Pipelines, Gas Distribution Pipeline Systems, and Crude 
Oil and Gas Gathering Pipeline Systems.
Subject: Pipeline Industry Implementation of Effective Public Awareness 
Programs.
Purpose: To advise owners and operators of hazardous liquid, gas 
transmission, gas distribution, and crude oil and gas gathering 
pipeline systems of the statutory requirement to review and maintain 
effective public education programs and to evaluate programs for 
effectiveness.

    Advisory: The (PSIA) requires that each owner or operator of a gas 
or hazardous liquid pipeline facility must carry out a continuing 
public education program. By December 17, 2003, each owner or operator 
must review its existing public education program for effectiveness and 
modify the program as necessary. RSPA/OPS is asking each operator to 
complete a self-assessment of its public education program against the 
guidelines established in the recently-issued, industry consensus 
standard, API RP 1162, ``Public Awareness Programs for Pipeline 
Operators.'' To assist in this process, RSPA/OPS is developing a self-
assessment system that operators can access and complete over the 
Internet. The self-assessment will help operators identify gaps in 
their public education programs and improvements needed to align their 
programs with the requirements of API RP 1162. In September 2003, RSPA/
OPS, the National Association of Pipeline Safety Representatives, and 
the pipeline industry are cosponsoring two public workshops to help 
operators understand the requirements of the law and the use of the 
self-assessment system. Operators should submit their self-assessments 
to RSPA/OPS no later than December 17, 2003.

SUPPLEMENTARY INFORMATION:

II. Background

    The Federal pipeline safety regulations at 49 CFR parts 192 and 195 
require operators of gas and hazardous liquid pipelines to establish 
continuing educational programs to enable customers, the public, 
government organizations, and persons engaged in excavation-related 
activities to recognize a pipeline emergency for the purpose of 
reporting it to the operator or the appropriate public officials. The 
regulations also require that operators implement written programs to 
prevent pipeline damage from excavation activities and establish public 
awareness liaison with emergency officials. Accordingly, pipeline 
operators have previously conducted public awareness programs with the 
affected public, emergency responders, and excavators along their 
routes.
    The PSIA requires that each owner or operator of a gas or hazardous 
liquid pipeline facility must carry out a continuing program to educate 
the public on the use of a one-call notification system prior to 
excavation and other damage prevention activities, the possible hazards 
associated with unintended releases from the pipeline facility, the 
physical indications that such a release may have occurred, what steps 
should be taken for public safety in the event of a pipeline release, 
and how to report such an event.
    The PSIA requires that by December 17, 2003 (not later than 12 
months after the date of its enactment), each owner or operator of a 
gas or hazardous liquid pipeline facility must review its existing 
public education program for effectiveness and modify the program as 
necessary. The completed program must include activities to advise 
affected municipalities, school districts, businesses, and residents of 
pipeline facility locations. The completed program must be submitted to 
the Secretary of Transportation or, in the case of an intrastate 
pipeline facility operator, the appropriate State agency, and shall be 
periodically reviewed by the Secretary or, in the case of an intrastate 
pipeline facility operator, the appropriate State agency.
    The PSIA also provides that the Secretary of Transportation may 
issue standards prescribing the elements of an effective public 
education program. The Secretary may also develop material for use in 
the program.
    In recognition of the importance of effective public awareness 
programs, outstanding recommendations from the National Transportation 
Safety Board and anticipated legislative action in this regard, an 
industry task force developed

[[Page 52817]]

a consensus standard establishing guidelines for pipeline operators on 
development, implementation, and evaluation of public awareness 
programs for operating pipeline systems, API Recommended Practice (RP) 
1162, ``Public Awareness Programs for Pipeline Operators''. The task 
force included representatives from gas and liquid petroleum 
transmission companies, local distribution companies, crude oil and gas 
gathering systems, and industry trade associations. Comments were also 
solicited from local public officials, the public and interested 
parties was solicited. Representatives from RSPA/OPS and the National 
Association of Pipeline Safety Representatives observed and provided 
input into the development of the standard.
    API RP 1162 is currently in the final stages of the balloting 
process, following the guidelines of both API and the American National 
Standards Institute. After appropriate revisions to address comments, 
it is expected to be published as a national consensus standard in the 
fall of 2003.
    RSPA/OPS considers that ``public education programs,'' as used in 
the PSIA, and ``public awareness programs,'' as used in API RP 1162, 
are the same. The level of public education and awareness regarding 
operating pipelines and pipeline safety can only be increased through 
education and communication programs that are demonstrated to be 
effective. Therefore, RSPA/OPS is considering incorporating all or 
portions of API RP 1162 into the pipeline safety regulations. Of 
particular interest to RSPA/OPS is the operator's evaluation of its 
program implementation and program effectiveness.
    RSPA/OPS has evaluated the PSIA requirements that operators review 
and modify their public education programs and submit their completed 
programs to Secretary of Transportation. We have determined that the 
intent of the requirements can be met and pipeline safety be best 
served in the short-term by having pipeline operators complete a formal 
self-assessment of their public education programs against the 
guidelines provided in API RP 1162.
    RSPA/OPS is developing an Internet-based self-assessment that 
operators can complete electronically. These self-assessments will help 
operators identify gaps in their public education programs and 
improvements needed to align their programs with the requirements of 
API RP 1162. We ask all operators to submit self-assessments of their 
public education programs to RSPA/OPS no later than December 17, 2003, 
to meet the deadline established in the PSIA. This will ensure that 
operators have complied with the PSIA and will be used in targeting 
technical assistance workshops to ensure development of effective 
public education programs.
    In 2004, operators will be required to submit their public 
education program plans to the RSPA/OPS for review. Time frames for 
submission will be determined by RSPA/OPS and operators will be 
notified. These plans will need to identify how the operators will 
address gaps and make improvements in their public education programs. 
RSPA/OPS will inspect these public education programs as an ongoing 
part of the pipeline operator inspection program.
    RSPA/OPS is co-sponsoring with NAPSR and the pipeline industry 
trade associations (API, INGAA, AOPL, AGA, APGA) two workshops to 
facilitate these operator self-assessments. The first workshop will be 
held on September 4-5, 2003, in Houston, TX. The second workshop will 
be held on September 16-17, 2003, in Baltimore, MD. On August 14, 2003, 
RSPA/OPS issued a notice providing specific locations and times for the 
public education workshops (68 FR 48659). Operators of hazardous liquid 
and gas transmission pipelines, gas local distribution systems and 
crude oil and gas gathering systems are urged to attend. Each workshop 
will provide an industry-facilitated review of API RP 1162 and a panel 
discussion of successful public education practices. RSPA/OPS will 
describe the self-assessment process and will facilitate sessions on 
techniques of effective program evaluation.
    RSPA/OPS will conduct breakout sessions during these workshops for 
the hazardous liquid and gas transmission pipeline operators. The 
breakout sessions will provide a more in-depth overview of the self-
assessment process and attempt to gauge the current status of public 
education programs for the transmission pipeline operators by 
completion of informal self-assessments in advance of the formal self-
assessment requested by December 17, 2003.

    Issued in Washington, DC on August 29, 2003.
Stacey L. Gerard,
Associate Administrator for Pipeline Safety.
[FR Doc. 03-22665 Filed 9-4-03; 8:45 am]
BILLING CODE 4910-60-P