[Federal Register Volume 83, Number 224 (Tuesday, November 20, 2018)]
[Rules and Regulations]
[Pages 58694-58720]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-24925]
[[Page 58693]]
Vol. 83
Tuesday,
No. 224
November 20, 2018
Part II
Department of Transportation
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Pipeline and Hazardous Materials Safety Administration
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49 CFR Part 192
Pipeline Safety: Plastic Pipe Rule; Final Rule
Federal Register / Vol. 83, No. 224 / Tuesday, November 20, 2018 /
Rules and Regulations
[[Page 58694]]
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DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration
49 CFR Part 192
[Docket No. PHMSA-2014-0098: Amdt. No. 192-124]
RIN 2137-AE93
Pipeline Safety: Plastic Pipe Rule
AGENCY: Pipeline and Hazardous Materials Safety Administration (PHMSA),
Department of Transportation (DOT).
ACTION: Final rule.
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SUMMARY: PHMSA is amending the Federal Pipeline Safety Regulations that
govern the use of plastic piping systems in the transportation of
natural and other gas. These amendments are necessary to enhance
pipeline safety, adopt innovative technologies and best practices, and
respond to petitions from stakeholders. The changes include increasing
the design factor of polyethylene pipe; increasing the maximum pressure
and diameter for Polyamide-11 pipe and components; allowing the use of
Polyamide-12 pipe and components; new standards for risers, more
stringent standards for plastic fittings and joints; stronger
mechanical fitting requirements; the incorporation by reference of
certain new or updated consensus standards for pipe, fittings, and
other components; the qualification of procedures and personnel for
joining plastic pipe; the installation of plastic pipe; and a number of
general provisions.
DATES: The effective date of these amendments is January 22, 2019. The
incorporation by reference of certain publications listed in the rule
is approved by the Director of the Federal Register as of January 22,
2019.
FOR FURTHER INFORMATION CONTACT:
General Information: Sayler Palabrica, Transportation Specialist,
by telephone at 202-366-0559 or by email at [email protected].
Technical Questions: Max Kieba, General Engineer, by telephone at
202-493-0595 or by email at [email protected].
SUPPLEMENTARY INFORMATION:
I. Executive Summary
A. Purpose of Regulatory Action
B. Summary of Regulatory Provisions
C. Costs and Benefits
II. Background
A. Notice of Proposed Rulemaking
B. Gas Pipeline Advisory Committee
III. Analysis of Comments and Proposed PHMSA Response
IV. Standards Incorporated by Reference
V. Regulatory Analysis and Notices
VI. Section-By-Section Analysis
List of Subjects and Amendments to Part 192
I. Executive Summary
A. Purpose of Regulatory Action
PHMSA is amending the Federal Pipeline Safety Regulations that
govern the use of plastic piping systems in the transportation of
natural and other gas. This final rule is comprised of amendments that
will improve safety, allow for expanded use of plastic pipe products,
and allow or require the use of certain materials and practices. The
use and availability of plastic pipe have changed over the years with
technological innovations in the products and best practices used in
plastic pipe installations. Progress in the design and manufacture of
plastic pipe and components has resulted in materials with higher
strength characteristics. Manufacturers are instituting new practices
related to traceability, and operators are incorporating these
practices. Together, these measures have the potential to improve
pipeline safety and integrity. The pipeline safety regulations have not
stayed current with some of these developments. Many of PHMSA's
stakeholders have petitioned PHMSA to codify measures from the progress
the industry has made; these petitions are detailed below. This final
rule amends the Federal Pipeline Safety Regulations (PSR) to
incorporate these changes to enhance pipeline safety, respond to
petitions for rulemaking, and accommodate innovations in plastic pipe
materials and designs.
PHMSA received several petitions for rulemaking under 49 CFR
190.331 regarding plastic pipe. Copies of these petitions are available
in the docket for this rulemaking (PHMSA-2014-0098) in addition to the
dockets initially established for the petitions. The amendments in this
rulemaking will address the following petitions:
American Gas Association (AGA)--(Docket No. PHMSA 2010-
0011)--Petition to increase design factor of PE pipe 0.32 to 0.4 and
incorporate updated ASTM International (ASTM) D2513 (standard for
polyethylene (PE) pipe and fittings).
Evonik Industries (Evonik) and UBE Industries (UBE)--
(Docket No. PHMSA 2010-0009)--Petition to allow use of Polyamide-12
(PA-12) pipe.
Arkema--(Docket No. PHMSA 2013-0227)--Petition to allow
use of Polyamide-11 (PA-11) pipe at higher pressures.
Gas Piping Technology Committee (GPTC)--Petition to allow
above-ground, encased plastic pipe for regulator and metering stations.
Federal and State inspectors have noticed issues related to plastic
pipe installation that should be addressed in the pipeline safety
regulations. For example, the National Association of Pipeline Safety
Representatives (NAPSR), an association of State pipeline safety
regulators, petitioned PHMSA to establish permanency requirements for
pipe markings in Resolution SR 2-01. Approved on September 27, 2001,
Resolution SR2-01 encouraged PHMSA OPS to amend 49 CFR 192.63 ``to
require marking of all pipe, fittings, and components in such a manner
that the markings last for a period of 50 years or the life of the
pipe, fittings, and components.''
B. Summary of Regulatory Provisions
To address these issues and petitions, PHMSA is amending the PSR in
49 CFR part 192 to update the plastic pipe regulations. This rulemaking
limits these changes to new, repaired, and replaced pipelines. The
changes include increasing the design factor of PE pipe; increasing the
maximum pressure and diameter for PA-11 pipe and components; allowing
the use of PA-12 pipe and components; new standards for risers; more
stringent standards for plastic fittings and joints; stronger
mechanical fitting requirements; new and expanded standards for the
installation of plastic pipe; the incorporation by reference of certain
the qualification of procedures and personnel for joining plastic pipe;
the installation of plastic pipe; new or updated consensus standards
for pipe, fittings, and other components; the qualification of
procedures and personnel for joining plastic pipe; the installation of
plastic pipe; and a number of general provisions. These amendments are
described in Part III of this document and in further detail in the
Notice of Proposed Rulemaking (NPRM) published May 21, 2015. See 80 FR
29263.
C. Costs and Benefits
In accordance with 49 U.S.C. 60102, Executive Orders 12866 and
13563, and U.S. DOT policy, PHMSA has prepared an assessment of the
benefits and costs of the rule as well as reasonable alternatives.
PHMSA released the initial Regulatory Impact Analysis (RIA) concurrent
with the NPRM for public review and comment. PHMSA developed the final
RIA by incorporating further internal review and input from public
comments. PHMSA has published the final RIA concurrent with this final
rule, and it is
[[Page 58695]]
available in the docket. PHMSA quantified positive net benefits of
$32.7 million, mostly from cost savings due to the change in the PE
design factor. Other changes enhance pipeline safety, expand
flexibility in pipe material choice, and incorporate more modern
technical consensus standards.
PHMSA quantified approximately $391,000 in annualized safety
benefits from the revisions to plastic pipe installation requirements.
This estimate is based on the historical frequency and consequences of
incidents on plastic pipe systems that could have been prevented by the
changes in the final rule. PHMSA also determined unquantified safety
benefits from enhanced standards for fittings and risers, prohibiting
the permanent use of temporary leak repair clamps, and other general
provisions. PHMSA estimated that the revised design factor for PE,
relaxed restrictions on PA-11, incorporation of PA-12, and updated
standards for all three materials would have negligible impacts on
pipeline safety. Overall, the rule improves the safety of plastic pipe
systems.
On the cost side, PHMSA quantified $32 million in cost savings for
the revision to the design factor of PE pipe from 0.32 to 0.40. The
change in design factor leads to pipe material cost savings as it
permits pipe to operate at higher pressures for a given pipe size and
wall thickness. PHMSA also determined that the provisions for expanded
use of PA-11 and incorporation of PA-12 materials would lead to
unquantified cost savings to operators from greater flexibility in
pipeline material choice. The other provisions have unquantified costs,
however PHMSA expects these to be minimal as they generally incorporate
existing industry best practices by incorporating by reference
technical consensus standards.
II. Background
A. Notice of Proposed Rulemaking
On May 21, 2015, PHMSA published the Plastic Pipe NPRM and
requested feedback and public comments on the proposed changes to the
natural gas pipeline safety regulations in accordance with the
Administrative Procedure Act, 5 U.S.C. 551 et seq. The comment period
closed on July 31, 2015. These comments and all other related
rulemaking materials are available in the electronic docket via
www.regulations.gov under Docket ID PHMSA-2014-0098. In section III of
this document, PHMSA has summarized the regulatory changes proposed in
the NPRM and the public's comments regarding those changes. PHMSA has
included a detailed response to the public's feedback and comments.
B. Gas Pipeline Advisory Committee
Under 49 U.S.C. 60115, the Gas Pipeline Advisory Committee (GPAC)
is a statutorily mandated advisory committee that advises PHMSA on
proposed safety standards, risk assessments, and safety policies for
natural gas pipelines. The Pipeline Advisory Committees were
established under the Federal Advisory Committee Act, Public Law 92-
463, 5 U.S.C. App. 1-16, and the Federal Pipeline Safety Statutes, 49
U.S.C. ch. 601. The GPAC consists of 15 members, with membership
equally divided among Federal and State agencies, the regulated
industry, and the public. The GPAC advises PHMSA on the technical
feasibility, practicability, and cost-effectiveness of each proposed
pipeline safety regulation.
On June 1-3, 2016, the GPAC met in Arlington County, VA. Seven
members of the GPAC were in attendance: One representing government,
three representing the public, and five representing industry. One
member representing the public, one representing industry, and one
representing government were absent; additionally, there were 3
vacancies for government representatives and one vacancy for a public
representative. During the meeting, the GPAC considered the regulatory
proposals of the NPRM, discussed the comments on the NPRM from the
public and the pipeline industry, and recommended changes to the NPRM.
The record of this meeting, including full transcripts, is filed under
Docket Number PHMSA-2016-0032, available at both regulations.gov and on
the PHMSA meeting page at https://primis.phmsa.dot.gov/meetings/MtgHome.mtg?mtg=113.
The GPAC, in a unanimous vote, found the NPRM, as published in the
Federal Register, and the Draft Regulatory Evaluation technically
feasible, reasonable, cost-effective, and practicable provided PHMSA
incorporated recommended amendments agreed upon by the committee. PHMSA
staff has reviewed and incorporated the GPAC's recommendations into
this final rule to the extent practicable. Part III of this document
summarizes these discussions and recommendations in greater detail
under the respective individual topics.
III. Analysis of Comments and PHMSA Response
In the NPRM published on May 21, 2015, PHMSA solicited public
comment on whether the potential amendments put forward in the NPRM
would enhance the safety of plastic pipe in gas transmission,
distribution, and gathering systems, and on the costs and benefits
associated with these proposals. PHMSA received comments on the NPRM
from 39 entities, including:
Fifteen pipeline operators;
Eight pipeline or manufacturer trade associations;
Six manufacturers;
Five private citizens;
Three consultants;
Two government entities, including an association of State
pipeline regulators;
One citizen group; and
One pipeline services company.
The following subsections summarize PHMSA's proposals, each of the
relevant issues raised by commenters concerning those proposals, and
PHMSA's response to those comments. Comments and corresponding
rulemaking materials received may be viewed at www.regulations.gov
under docket ID PHMSA-2014-0098.
A. Tracking and Traceability
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend Sec. 192.3 to define
``traceability information'' and ``tracking information'' and to amend
Sec. Sec. 192.321 and 192.375 to establish standards requiring
operators to properly and consistently track and trace pipe and
components within their system. The proposed tracking information
included the location of each section of pipe, the individual who
joined the pipe, and components within the pipeline. The proposed
traceability information included the location of pipe and components;
manufacturer; production; lot information; size; material; pressure
rating; temperature rating; and as appropriate, other information such
as type, grade, and model. PHMSA proposed to amend Sec. 192.63 to
require operators to adopt the tracking and traceability requirements
in ASTM F2897-11a, ``Standard Specification for Tracking and
Traceability Encoding System of Natural Gas Distribution Components
(Pipe, Tubing, Fittings, Valves, and Appurtenances),'' issued in
November 2011, (ASTM F2897-11a), and proposed that operators must
record the tracking and traceability data and retain it for the life of
the pipe.
(2) Comment Summary
PHMSA received comments supporting the proposed revisions from
NAPSR and Dr. Gene Palermo of Palermo Plastics Pipe (P3) Consulting
[[Page 58696]]
(Palermo). Palermo praised the tracking and traceability standards in
ASTM F2897-11a and noted that it would bring American operators more in
line with International Standards Organization (ISO) tracking and
traceability standards. Though the American Public Gas Association
(APGA) had specific concerns about technology and costs, it described
the collection of tracking and traceability information as ``a laudable
goal'' and further noted that ``operators no doubt wish this capability
existed when PHMSA issued advisory bulletins about brittle-like
cracking problems with Century Pipe, DuPont Adyl A piping manufactured
before 1973 and polyethylene gas pipe designated PE 3306.''
AGA, APGA, the Texas Pipeline Association (TPA), the Northeast Gas
Association, National Grid, AGL Resources, Atmos Energy Corporation,
CPs Energy, Questar Gas Company, National Fuel Gas Distribution
Corporation, SoCal Gas and San Diego Gas and Electric (SDG&E), NiSource
Incorporated, and Norton McMurray Manufacturing Company (NORMAC)
submitted comments suggesting that the plastic pipe tracking and
traceability provisions should be dropped entirely from the rulemaking.
Many operators echoed AGAs concern that a tracking and traceability
program would be economically significant, and that full consideration
of the costs, benefits, and alternatives that program would slow the
adoption and implementation of other portions of the rule.
Additionally, those commenters maintained that tracking and
traceability requirements should be considered in a separate rulemaking
for all material and system types, rather than piecemeal and only for
plastic pipe in this rulemaking. The commenters suggested that
consistent regulation of all system types would avoid regulatory
uncertainty. AGA, APGA, National Fuel, NiSource, SoCal Gas and SDG&E,
and Southwest Gas (SW Gas) all proposed convening a working group to
discuss options for moving forward with a separate, comprehensive
tracking and traceability rule. National Grid estimated a compliance
cost of $8.1 million a year for 14,968 plastic pipe miles, and SW Gas
estimated $10 million to $20 million in startup costs and $1 million to
$2 million in annual costs. APGA, the Plastics Pipe Institute (PPI),
NORMAC, R.W. Lyall and Company (Lyall), Thomas M. Lael, National Fuel
Gas, City Utilities, and TPA submitted comments, indicating that
markings should only have to be permanent up to the time of
installation. Commenters argued that truly ``permanent'' markings are
not currently technically feasible, stating that the information is
only needed at the time of installation; after the information has been
recorded into a recordkeeping system, the physical markings are no
longer necessary. PPI notes that with current technology and practice,
markings are designed to last only three years in an underground
environment
APGA commented that the proposal would be significantly burdensome
to small public operators and that it would be reasonable to expect
markings to remain intact 20 years after the pipe was made. Lyall
requested clarification about what was expected by the term ``permanent
markings'' and whether an operator's records were sufficient to meet
those requirements.
APGA suggested that if PHMSA did move forward with a tracking and
traceability program, it should only collect the data required by the
six fields prescribed under ASTM F2897-11a: Component manufacturer,
manufacturer's lot code, production date, material, type and size. Both
Lyall and Continental Industries concurred. PPI noted that deviating
from ASTM F2897-11a would require manufacturers to revamp their marking
systems away from the standard and would potentially require new
barcoding systems. SW Gas suggested that a tracking and traceability
working group could potentially revise ASTM F2897 to incorporate any
additionally-needed data fields in the future.
AGA, Northeast Gas Association (NGA), National Fuel Gas
Distribution Corporation (NFGDC), PPI, Lyall, and City Utilities
recommended that, regardless of the specific tracking and traceability
provision in the final rule, PHMSA should use a ``phased-in'' approach
for implementation. City Utilities commented that it was not opposed to
the recordkeeping of material data but requested an extended timeframe
to create an implementation plan that considered budget costs.
Commenters suggested three to five-year phase-in periods for tracking
and traceability recordkeeping requirements.
The GPAC discussed this topic at length and ultimately recommended
that PHMSA phase-in the tracking and traceability provisions by
establishing a compliance deadline of one year for ASTM F2897-11a-
compliant markings and a deadline of five years for recordkeeping
requirements. The GPAC further recommended that PHMSA limit the marking
and traceability requirements to the categories in ASTM F2897-11a and
revise the permanent marking standard to a requirement that markings on
plastic pipe and components be legible at the time of installation.
(3) PHMSA Response
In response to comments on the tracking and traceability
recordkeeping requirements proposed for Sec. Sec. 192.63, 192.321(j)
and 192.375(c), PHMSA is delaying final action on these proposals until
a later date. PHMSA expects to consider all the comments and the
recommendations of the GPAC related to tracking and traceability
recordkeeping after further evaluation of the costs and benefits of
this issue. These issues may be revisited in either a subsequent final
action or a new rulemaking project.
Plastic pipe must still be marked with the 16-character ASTM F2897-
11a markings, which are included in the 2012 editions of the material
standards for PE and PA-12 pipe. Incorporating the 2012 editions of the
material standards help narrow the gap between the regulations and the
latest consensus standards, and adopting the 16-character ASTM F2897-
11a markings within those materials standards will help to phase in
standardization to how component attributes are marked and eventually
captured in asset management systems. The final rule does not include
most of the additional marking performance regulations previously
proposed in Sec. 192.63(e), such as permanence requirements and
instead defers to the language in the material standards. PHMSA notes
that some of the standards incorporated by reference in this final rule
contain their own durability requirements which also vary on whether
the marking is on pipe, fitting or another component. For example,
section 7 for respective material specific standards (i.e. ASTM D2513-
12ae1 for PE, ASTM F2785-12 for PA-12 and ASTM F2945-12a for PA-11)
states that for pipe all required markings shall be legible, visible,
and permanent. The standards go on to say to ensure permanence,
markings shall be applied so it can only be removed by physically
removing part of the pipe wall, shall not reduce the wall thickness to
less than the minimum value of the pipe, not have any effect on the
long-term strength of the pipe, and not provide leakage channels when
elastomeric gasket compression fittings are used to make joints. The
marking section for fittings on the other hand does not have such
explicit requirements on durability or mention permanence. The standard
for plastic valves, ASME B16.40-2008, states that only certain markings
on valves must be
[[Page 58697]]
permanently affixed, while others can be made by any means.
PHMSA is including language in Sec. 192.63(e) that markings must
be legible until time of installation based on public comments and GPAC
recommendations. The language is intended to provide clarity given the
confusion with how the marking portions of the material specific
standards (such as ASTM D2513-12ae1 for PE, ASTM F2785-12 for PA-12 and
ASTM F2945-12a for PA-11) are written and what the ultimate
requirements are. For example, it is not entirely clear in section 7.1
of ASTM D2513-12ae1, ``Standard Specification for Polyethylene (PE) Gas
Pressure Pipe, Tubing, and Fittings,'' issued on April 1, 2012, (ASTM
D2513-12ae1), whether all required markings (including the 16-character
ASTM F2897-11a markings in section 7.6) be ``legible, visible, and
permanent'' per the standards or if the permanence requirements only
apply to the more conventional print line information in place prior to
the 2012 version and the 16-character marking is an additional
requirement with different durability requirements. While manufacturers
also commented that it was not feasible to make ASTM D2897 markings
permanent and readable for several years after installation without
additional costs, it is certainly feasible to print markings legible
until the time of installation. This new regulatory language addresses
issues raised in public comments and by the GPAC concerning confirming
the durability of markings, and help ease any potential regulatory
burdens as a result of confusion with permanency and durability
requirements. Furthermore, PHMSA is still including a one-year
implementation period based on public comments and GPAC recommendations
to allow manufacturers additional time to incorporate the new
requirements, particularly for the 16-character marking. PHMSA
understands many manufacturers are already implementing the 16-
character marking but some have not yet, with many manufacturers on
both sides waiting to get clarity of expectations on durability.
In the interim, PHMSA expects all distribution operators to already
be collecting some form of tracking and traceability information, since
the Distribution Integrity Management Program (DIMP) regulations in
Sec. 192.1007(a)(5) require that operators capture and retain data on
the location where new pipeline is installed and the material of which
it is constructed.
B. Design Factor for PE
(1) PHMSA's Proposal
PHMSA proposed to amend the design pressure equation in Sec.
192.121 to increase the design factor (DF) for PE pipe from 0.32 to
0.40.
The design pressure for PE pipe and other thermoplastics are based
first on a Hydrostatic Design Basis (HDB) rating, which refers to the
categorized long term hydrostatic strength for a given material. The
HDB value is sometimes also considered a measure of the ultimate long
term strength of the material. Industries then apply an additional
design factor multiplier to the HDB rating to account for potential
long term effects based on engineering considerations of how the HDB of
the material was derived in conjunction with the behavioral properties
of the material, and the specific product they are transporting. The
allowable design pressure for plastic in Sec. 192.121 is based on a
number of factors, including the HDB rating, wall thickness and
diameter or standard dimension ratio (SDR), and design factor. An
increase in design factor allows for the use of slightly thinner wall
to achieve the same design pressure.
To illustrate how the design factor affects the design of plastic
pipe, examples using the design pressure calculation are shown below.
The design pressure formula in Sec. 192.121 is expressed in one of two
ways:
P = 2 x S x (t/(D-t)) x DF
or
P = 2 x (S/(SDR-1)) x DF
Where S = the HDB rating; t = specified minimum wall thickness; D =
specified outside diameter; DF is the design factor; and SDR the
standard dimension ratio (ratio of average specified outside
diameter to minimum specified wall thickness.)
A common pipe material is PE4710 which has an HDB rating of 1600 at
73 [deg]F. A common pipe size is 4-inch PE SDR 11 which has an average
specified outside diameter of 4.5 inches and specified minimum wall
thickness of 0.409 inches. If these values are applied to the first
equation above, the design pressure would be:
P = 2 x 1600 x (0.409/(4.5-0.409)) x 0.32 = 102.4
Applying them to the second equation above, design pressure would
be:
P = 2 x (1600/(11-1)) x 0.32 = 102.4 psi
If the design factor is changed from 0.32 to 0.40, it also changes
the result of the calculation in the design pressure formula. If an
operator wants to maintain an operating pressure of around 102.4 psi
with the new design factor, they could do so using a slightly thinner
wall pipe of SDR 13.5, or minimum specific wall of 0.333 inches. The
formulas below illustrate how the new design factor allows an operator
to use the same design pressure with thinner wall pipe.
P = 2 x 1600 x (0.333/(4.5-0.333)) x 0.4 = 102.3 psi
or
P = 2 x (1600/(13.5-1)) x 0.4 = 102.4psi
Alternatively, an increase of design factor with use of slightly
thinner wall pipe allows an operator to increase throughput and design
pressure if all other variables remain the same, as long as the design
pressure doesn't exceed the limitations called out in the regulations
(such as 125 psi and minimum wall thickness.)
The current design factors for thermoplastic pipe were established
decades ago based on general experience with materials at the time and
attempts at standardization. As an example, water used a 0.5 design
factor for decades. For gas pipe, additional safety factors (sometimes
also called strength reduction or derating factors) were applied to the
water DF: an additional 0.8 multiplier covers long term effects from
constituents in fuel gas, and another 0.8 multiplier compensates for
use at increased temperatures above 73 [deg]F. If those two multipliers
are applied on top of 0.5 DF for water (or 0.5 x 0.8 x 0.8) the
resulting DF is 0.32 for gas.
On August 14, 2009, PHMSA received a petition from AGA to allow for
a 0.40 design factor for PE pipe based on research and technical
justifications performed by the Gas Technology Institute (GTI; July 16,
2007) and to include certain limitations by type of material and wall
thickness.\1\ A primary justification for considering raising the
design factor is consideration of newer, better performing materials of
today and changes in other industries like water, but still applying
the same safety factors in place for gas. The water industry has
changed their safety factor from 0.5 to 0.63 in standards such as ANSI/
AWWA C901-08, Polyethylene (PE) Pressure Pipe and Tubing, \1/2\ in. (13
mm) through 3 in. (76mm), for Water Service (October 1, 2008.) The 2017
edition of PPI TR-4 allows a design factor of 0.63 for plastic water
pipe made of certain PE 4710 materials. Applying the same two derating
factor multipliers for gas to the newer DF for water (or 0.63 x 0.8 x
0.8) results in a DF of 0.4 for gas. There are
[[Page 58698]]
additional safety measures applied if operators want to use the 0.4 DF,
including the use of newer materials in place today, the application of
a minimum wall thicknesses by pipe size, and a maximum pressure of
125psi.
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\1\ Docket No. PHMSA-2011-0011, August 14, 2009.
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Since design pressure for plastic pipe is based on a number of
variables, including design factor and wall thickness, an increase in
design factor would allow for the use of PE pipe with thinner pipe
walls manufactured in accordance with ASTM D2513-12ae1 as long as it
doesn't go below the minimum wall thickness for a specific pipe size.
(2) Summary of Comments
The majority of commenters, including AGA, APGA, PPI, NGA, NAPSR,
NFGDC, TPA, Palermo, and SW Gas, supported this proposal, with several
suggesting that a higher design factor would incentivize the use of
plastic pipe and provide safety and economic benefits due to its low
cost and resistance to traditional corrosion risks. Palermo supported
the design factor increase to 0.40 and noted the safe operating history
of PE pipe operated to that specification in Canada. Palermo further
noted that increasing the design factor would make the material more
attractive for operators which it claims would have positive impacts on
pipeline safety, stating that going to a 0.4 design factor encourages
distribution operators to ``extend the use of plastic pipe systems and
displace the lower safety related performance of metal pipe with the
higher safety related performance of plastic piping system.'' Palermo
noted specifically that plastic pipe systems do not face corrosion
risks like metallic pipe systems do.
AGA, PPI, NGA, Evonik Industries, and the MidAmerican Energy
Company (MidAmerican) supported the proposal in general but were
opposed to restricting the diameter of PE pipe beyond the limitations
in ASTM D2513-14e1. The commenters suggested permitting pipe up to 24
inches as provided in the standard. Evonik Industries, a plastic pipe
manufacturer and one of the original petitioners, also requested that
PHMSA expand the PE, PA-11 and PA-12 minimum wall thickness tables in
Sec. 192.121 to include pipe sizes less-than-or-equal-to one-inch Iron
Pipe Size (IPS).\2\ MidAmerican further requested the inclusion of one-
inch Copper Tubing Size (CTS) (another size standard) as a pipe size.
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\2\ Iron pipe size (IPS) is a pipe size standard still used for
polymer pipe.
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AGA and TPA requested that the proposal for an increased design
factor for PE pipe should be applied retroactively to existing pipe
made of PE2708 and PE4710. ASTM introduced those compounds in 2008 in
ASTM D2513-08b ``Standard Specification for Thermoplastic Gas Pressure
Pipe, Tubing, and Fittings.''
The Iowa Utilities Board (IAUB) stated that the wall-thickness
tables in the rule should use Standard Dimension Ratio (SDR) rather
than Dimension Ratio (DR) in the column heading to be consistent with
the design formula for plastic pipe in Sec. 192.121. Additionally, for
ease of use, IAUB recommended including a header on the PE and PA
tables in Sec. 192.121 indicating to what materials they apply.
DTE Energy (DTE) opposed the proposed 0.090-inch minimum wall
thickness for plastic pipe and suggested that PHMSA should retain the
current 0.062-inch minimum for PE pipe that they have used in Michigan
since 1967. DTE further commented that operators should be allowed to
apply the design formula in Sec. 192.121(a), based on the intended use
and operating pressure of the pipe, to dictate the minimum required
wall thickness.
The PVC Pipe Association, a trade group representing PVC pipe
manufacturers, submitted comments broadly opposing PHMSA's proposal to
modify the allowed design factor of PE Pipe. The Association opposed
the less-conservative design factor of 0.40 until operators could gain
more field experience with PE pipe operating at the higher factor. In
supporting documentation, the PVC Pipe Association hypothesizes that
certain high-density polyethylene (HDPE) pipe grade compounds can be
susceptible to microscopic crack propagation in high-pressure water
service, though it acknowledged that newer compounds may be more crack-
resistant.
The GPAC recommended minor changes to the minimum wall thickness
tables to add additional items, and that PHMSA research the procedural
possibility of incorporating the more recent ASTM D2513-14e1, which
allows PE pipe with a larger maximum diameter. The Committee further
requested that PHMSA research the possibility of applying the new
design factor retroactively to existing pipe with the same material
characteristics specified in the rule. Members of the Committee and
representatives of PPI and AGA commented that, except for the diameters
allowed currently, ASTM D2513-12ae1 is not significantly different from
either the editions issued before or after it. Therefore, allowing
previously installed pipe to operate at the increased design factor or
allowing the higher diameters permitted in the 2014 standard should be
acceptable.
(3) PHMSA Response
In consideration of the comments, PHMSA is revising the final rule
to include pipe sizes smaller than one-inch IPS and certain one-inch
CTS pipe sizes on the tables for each of the materials modified in the
final rule. Specifically, in this final rule, PHMSA has revised the
proposed PE wall thickness and the SDR table in Sec. 192.121(c)(iv)
for clarity and to include \1/2\' and \3/4\' IPS and CTS sizes. The
omission of these smaller-diameter specifications was an oversight;
PHMSA did not intend to restrict the use of small-diameter plastic
pipe. PHMSA will also revise the PE, PA-11, and PA-12 tables per the
recommendations of the IUB for consistency and ease of use.
In response to comments from DTE, PHMSA notes that the 0.090-inch
minimum wall thickness applies to pipes operating at the new 0.40
design factor. At 0.32, operators may still use the design formula in
Sec. 192.121 in accordance with the applicable standard. PHMSA is not
lowering the minimum wall thickness for 0.40 design factor pipe, as the
more conservative wall thickness is necessary to mitigate sidewall
fusion and tapping risks, among others, that exist at the higher design
factor.
PHMSA notes that while AGA and TPA are correct in their assessment
that the design requirements for PE2708 and PE4710 pipe under ASTM
D2513-08b are the same as the newly incorporated ASTM D2513-12ae1
edition, this subpart is non-retroactive, therefore, the previous
maximum design factor would still apply to existing pipelines.
PHMSA disagrees with comments from the PVC Pipe Association; the
supporting data provided in the AGA petition provides proper safety
justification for the revised maximum design factor. As described
further in the petition, a battery of tests was performed on pipe to
evaluate the combined influence of increased internal pressures and
other add-on stresses including effects of squeeze-off, rock
impingement, surface scratches, earth loading, and bending stresses on
the pipe wall. Various types of joints (butt heat fusion, saddle
fusion, electrofusion and mechanical joining) were also subjected to
long term sustained pressure testing at elevated temperatures. No
failures were observed. Both the petition and the final rule do provide
minimum wall thickness requirements for an added safety measure. The
Vinyl Institute's comments studying the history of legacy
[[Page 58699]]
plastic pipe materials in high-pressure water service is not directly
applicable to evaluating the operation of modern PE compounds in gas
service.
PHMSA has considered, as requested by the GPAC, the possibility of
incorporating a more recent edition of ASTM D2513 and permitting
retroactive applicability of the 0.40 design factor. PHMSA is not in
the position to adopt the more recent ASTM D2513-14e1, which includes
the increased maximum diameter, since this is beyond the scope of the
NPRM and PHMSA has not solicited comment on such a proposal. PHMSA will
evaluate the new standard and diameter revision for inclusion in future
rulemakings.
C. Expanded use of PA-11 Pipe
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend part 192 to allow pipelines
made of certain modern PA-11 compounds to operate at pressures up to
250 pounds per square inch gauge (psig) and permit installation of PA-
11 pipe with a diameter up to six inches. This would expand the
allowable uses of PA-11 from the current regulations which restrict the
use of PA-11 pipe to pressures up to 200 psig and nominal pipe sizes of
4 inches or less.
Arkema, the plastics manufacturer that petitioned for this change,
cited the growing history of safe operation of PA-11 pipe since 1999
either under special permit or the current restrictions. PHMSA is also
permitting arithmetic interpolation of the allowable pressure equation
for PA-11. This would allow consistency with how hydrostatic design
basis (HDB) \3\ is already determined for other thermoplastic pipe
materials in Sec. 192.121.
---------------------------------------------------------------------------
\3\ The HDB is a reflection of a plastic pipe's ability to
resist internal pressure over long periods of time.
---------------------------------------------------------------------------
Finally, PHMSA proposed incorporating two PA-11 specific standards
by reference. Currently, plastic pipe and fittings made of PA-11 must
be manufactured in accordance with the much older editions of ASTM
D2513 (1987 and 1999) that are referenced for thermoplastic materials
other than PE. Adopting ASTM F2945-12a incorporates over a decade of
PA-11 material and design advancements. The standard includes
requirements for material composition, design, manufacturing
tolerances, strength, crack resistance, and quality control for PA-11
pipe and fittings.
The final rule also incorporates ASTM F2600-09 as a listed
specification for electrofusion fittings on PA-11 pipe. An
electrofusion fitting is one with a built-in electric heating element.
Passing a current through the fitting bonds the pipe. With new material
specific standards being added for PA-11 and other standards being
added for components in this rule, there is a need to add F2600-09 for
Electrofusion PA-11 fittings, similar to how ASTM F1055 is currently
referenced for PE Electrofusion Fittings. Like the PE standard, ASTM
F2600-09 sets material and performance requirements for PA-11
electrofusion fittings. In order to meet this standard, a manufacturer
must demonstrate test a specimen for minimum hydraulic burst pressure,
sustained pressure, tensile strength, impact resistance, and joint
integrity.
(2) Summary of Comments
Nearly all commenters supported this proposal, including AGA, APGA,
PPI, NGA, TPA, TPA, NAPSR, Palermo, and Arkema. Arkema highlighted the
operating history of PA-11 pipe in offshore oil and gas use and in gas
systems in Australia.
A number of commenters requested additional entries on the minimum
wall thickness table for PA-11. AGA, NGA, and Arkema proposed including
\3/4\-inch pipe, and MidAmerican requested the inclusion of one-inch
CTS sized pipe in the PE, PA-11, and PA-12 tables. IAUB noted that the
rule references CTS pipe, but it is not present on the table.
The Board further stated that CTS values should be included in the
minimum wall-thickness table; if not, then references to CTS should be
removed from the final rule. The GPAC voted unanimously for these
additions to be added to the minimum wall-thickness table.
Palermo and Volgstadt and Associates recommended allowing the use
of PA32312 at higher pressures in addition to PA32316 under PA-11.
Volgstadt and Associates further noted that since the HDB of PA-11 is
180 [deg]F in PPI TR4, Sec. 192.121 should be revised to allow the
installation of pipe using the higher temperature rating. Volgstadt
noted that PA32312 could then be safely used in lower-pressure
applications where temperatures higher than 140 [deg]F are expected.
(3) PHMSA Response
As noted in the previous discussion on the new design factor for PE
Pipe, PHMSA agrees with commenters to revise the tables to include
additional sizes, including IPS smaller than one-inch diameter and one-
inch CTS. Specifically, PHMSA amended the table in the proposed Sec.
192.121 (d)(2)(iv) to add \1/2\' and \3/4\' IPS and CTS sizes, which
match those in the standard and those listed for PE pipe. PHMSA is not
including an HDB rating at 180 [deg]F, as not all compounds are rated
at that temperature, and inclusion could wrongly imply that operators
are permitted to operate any plastic pipe at that temperature.
Operators may still interpolate the design formula down from 180
[deg]F. PHMSA is not allowing the use of PA32312 at the higher
pressures permitted for PA32316. As explained in the NPRM, PHMSA found
it appropriate that operators use PA32316 for such higher-pressure
applications due to material characteristics, more specifically, an HDB
rating of 3150 psi at 73 [deg]F that can result in a design pressure of
250 psi using SDR 11 and 0.4 DF. The PA32312 material HDB rating of
2500 psi would correlate to a design pressure of 200 psi using the same
SDR and DF. Operators may install and use PA32312, but not at the
higher pressures permitted for PA32316.
D. Incorporation of PA-12
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend Sec. 192.121 to allow the use
of PA-12 pipe in response to a petition for rulemaking from Evonik and
UBE (Docket No. PHMSA-2010-0009) at pressures up to 250 psig and for
pipe sizes up to 6 inches in diameter, subject to wall thickness
limitations described in the petition. These restrictions are
consistent with the proposed requirements for PA-11, another polyamide
material. The petitioners stated that material testing and experience
in pipeline service under special permit have ``amply validated'' the
strength and durability of PA-12 against known threats and failure
mechanisms.
PHMSA also proposed to incorporate by reference a number of
standards applicable to PA-12 pipe. PA-12 pipe and fittings used under
part 192 must be manufactured in accordance with ASTM F2785-12,
``Standard Specification for Polyamide 12 Gas Pressure Pipe, Tubing,
and Fittings.'' The standard defines: Material properties;
manufacturing tolerances; test methods and requirements, marking
requirements; and minimum quality control program requirements.
Manufacturers must comply with these requirements in order to sell pipe
as ASTM F2785-12 compliant.
ASTM F2767-12 establishes specifications for electrofusion fittings
on PA12 systems. An electrofusion fitting is one with a built-in
electric heating element. Passing a current through the fitting bonds
the pipe. With new material specific standards being added for PA-12
and other standards
[[Page 58700]]
being added for components in this rule, there is a need to add F2767
for Electrofusion PA-12 fittings, similar to how ASTM F1055 is
currently referenced for PE Electrofusion Fittings.
(2) Summary of Comments
NAPSR, AGA, APGA, Evonik, NGA, PPI, TPA, and Palermo all expressed
support for the proposal. Palermo commented that ``PA-12 is very
similar to PA-11 and both materials are being used very successfully
for gas operations internationally.'' Palermo further noted that the
material has been successful in limited trial use in oil and gas
operations in the United States. A number of commenters requested the
addition of sizes smaller than one-inch IPS and one-inch CTS for PA-12
similar to those requests made for PE and PA-11.
Evonik commented that the language in the preamble of Section D
references to ``allow a minimum wall thickness of at least 0.90
inches.'' The commenter stated that this is a typographical error. A
value of 0.090 inches would be consistent with the original petition
and the proposed wall thickness tables in Sec. 192.121 for all of the
proposed materials. Correcting this error would significantly reduce
the required wall thickness for PA-12 pipe. Continental Industries
recommended that the material designation code ``PA 42316'' be included
in the PA-12 design requirements in Sec. 192.121(e). The GPAC
concurred with this comment.
(3) PHMSA Response
As for PA-11 and PE, PHMSA agrees with the commenters and has
revised Sec. 192.121(e)(4) in the final rule to clarify the table by
adding \1/2\' and \3/4\' IPS and CTS sizes. In response to comments
from Evonik Industries and Continental Industries regarding the
typographical error, PHMSA has corrected the minimum wall thickness to
0.090 inches, to conform to the initial petition and includes the
material designation code in Sec. 192.121(e).
E. Risers
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to add a new Sec. 192.204 to part 192,
to establish specific requirements for the design and construction of
risers for plastic pipe. PHMSA also proposed to incorporate by
reference ASTM F1973, ``Standard Specification for Factory Assembled
Anodeless Risers and Transition Fittings in Polyethylene (PE) and
Polyamide 11 (PA11) and Polyamide 12 (PA12) Fuel Gas Distribution
Systems'' ASTM F1973, which prescribes design requirements for factory-
assembled anodeless risers.\4\ This specification covers requirements
and test methods for the qualification of factory assembled anodeless
risers and transition fittings for use in PE pipe sizes through Nominal
Pipe Size (NPS) 8, and for PA-11 and PA-12 sizes through NPS 6. No
version of this standard is currently in the CFR. The final rule uses
this standard to establish the specifications for the design and
specimen testing of factory assembled anodeless risers. The standard
also provides a definition for Category 1 fittings on plastic pipe.
This item will be added as a Listed Specification in Appendix B to Part
192-Qualification of Pipe and Components.
---------------------------------------------------------------------------
\4\ An anodeless riser is metal-encased plastic pipe carrying
gas to a gas meter.
---------------------------------------------------------------------------
(2) Summary of Comments
AGA, APGA, NAPSR, NGA and P3 Consulting supported GPTC's petition
to allow the use of anodeless plastic risers above ground to meter and
regulator stations. A number of commenters opposed the structural
support requirements for risers in the NPRM as being too prescriptive.
Specifically, those commenters opposed the requirement for a three-foot
horizontal base leg on risers. AGA, PPI, NGA, TPA, NORMAC, Lyall,
Volgstadt and Associates, and Avista Utilities all suggested either
deleting the requirement altogether or applying some type of
performance standard. AGA, PPI, TPA, NORMAC, and Lyall & Co. proposed
language requiring operators to ensure that risers do not bear external
loads and are secured against lateral movement. Volgstadt and DTE
supported deleting all references to the horizontal base leg. Other
commenters supported performance standards in general. The GPAC
unanimously voted to recommend removing the requirement for a three-
foot horizontal base leg.
A number of commenters representing manufacturers and third party
consultants expressed concerns that the exclusive reference to ASTM
F1973, which exclusively applies to factory-assembled risers, would
effectively prohibit the use of field-assembled risers that are
constructed in accordance with ASTM F2509, ``Standard Specification for
Field-assembled Anodeless Riser Kits for Use on Outside Diameter
Controlled Polyethylene and Polyamide-11 (PA11) Gas Distribution Pipe
and Tubing'' (ASTM F2509). PPI, Lyall, Volgstadt, and Continental
Industries therefore recommended incorporating ASTM F2509 into the
final rule. NORMAC also recommended incorporating ASTM F1948-15,
``Standard Specification for Metallic Mechanical Fittings for Use on
Outside Diameter Controlled Thermoplastic Gas Distribution Pipe and
Tubing'' (ASTM F1948-15) since, as in many cases, ASTM F2509 riser
fittings may have identical requirements to standard fittings under
ASTM F1948-15. The IAUB, the Gas Processors Association (GPA), and TPA
commented that, as written, the proposed revision could be interpreted
to require that all risers be plastic anodeless risers. These
commenters suggested the NPRM should either address other types of
risers or the title of the section should be written as to explicitly
only apply to anodeless risers.
AGA noted that this requirement should not be applicable to risers
installed before the effective date.
IAUB requested clarification on whether anodeless risers will be
allowed on structures other than metering and regulating stations, such
as pressure recording stations or other installations. IAUB further
commented that this scenario might be addressed if the riser is
considered a main. NORMAC recommended deleting Sec. 192.204(b),
arguing that it is duplicative of the proposed Sec. 192.281(e)(4). If
not, it suggested ASTM F2509 be incorporated to allow for field-
assembled risers.
NiSource commented that the use of the word ``rigid'' in Sec.
192.204 is unclear and that, specifically, ``rigid'' typically refers
to an ``anodeless riser rigid riser casing'' as defined in ASTM F1973.
The company argued that if this was PHMSA's intent, then Sec.
192.204(c) should be revised to require anodeless risers to have a
rigid riser casing. Additionally, NiSource suggested PHMSA revise Sec.
192.375(a)(2) to permit the use of anodeless flex riser casings.
The GPAC voted unanimously to incorporate this provision if the
requirement for a three-foot base leg is removed and PHMSA clarifies
that the standards do not apply retroactively.
(3) PHMSA Response
PHMSA concurs with the comments and GPAC recommendations requesting
the removal of the requirement for a three-foot horizontal base leg in
Sec. 192.204(c) and has therefore removed this requirement from Sec.
192.204(c). PHMSA is retaining, however, the requirement that risers be
rigid. As noted by one commenter, PHMSA's intent is to require a rigid
riser casing for anodeless risers used to attach plastic mains to
regulator stations, and so paragraph (c) has been revised to
[[Page 58701]]
reflect that intent. PHMSA subject matter experts believe that risers
to regulator and metering stations must be rigid and secure to ensure
safety, noting that unsecured risers are already prohibited per Sec.
192.321. Finally, these requirements are not retroactive and the final
rule has been revised to make that clear.
PHMSA has also resolved a number of other issues regarding
anodeless risers. The intent of the proposed revision is neither to
prohibit field-assembled risers nor to imply that all risers must be
anodeless risers. Therefore, in this final rule, PHMSA has revised
Sec. 192.204(b) to specify that it applies only to factory assembled
anodeless risers. For reasons described in the incorporation by
reference portion of the final rule, PHMSA has not added a field-
assembled riser standard in this final rule. Operators may still
install field-assembled anodeless risers, but PHMSA will consider
incorporating relevant standards in future rulemaking efforts.
Regardless of riser type, Sec. 192.204(a) still applies.
In response to the IAUB, the revised amendments permit anodeless
risers for use outside of metering and regulating stations provided
they meet the minimum general requirements of Sec. 192.204(a) and (b).
In response to NORMAC, the riser design requirements in Sec.
192.204(b) are broader than the joint standards specified in Sec.
192.281(e)(4).
F. Fittings
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend Sec. 192.281(e) to require
operators to use only mechanical fittings or joints that are designed
and tested to provide a ``seal plus resistance'' to lateral forces so
that a large force on the connection would cause the pipe to yield
before the joint does. PHMSA proposed that such joints, fittings, and
connections must meet the requirements of a ``Category 1'' joint as
defined in ASTM F1924-12, ``Standard Specification for Plastic
Mechanical Fittings for Use on Outside Diameter Controlled Polyethylene
Gas Distribution Pipe and Tubing'' (ASTM F1924-12), ASTM F1948-12, ASTM
F1973-13, or ASTM D2513-12ae1 as appropriate.
PHMSA also proposed adding a new paragraph (g) to Sec. 192.455 to
clarify that operators must cathodically protect and monitor
electrically isolated metal alloy fittings in plastic pipelines that do
not meet any of the exemptions in paragraph (f) of that section.
Applying cathodic protection to metal fittings on plastic pipe systems
helps to control corrosion on those components and therefore reduces
the risk of incidents caused by corrosion.
(2) Summary of Comments
NAPSR and Palermo approved of the revisions proposed for this
section. Palermo noted that there is ``no reason for a gas operator to
use anything but a Category 1 mechanical fitting.'' APGA submitted
comments supportive of the requirements to use specified fittings and
the cathodic protection requirements, further noting that, ``in fact,
some fitting manufacturers ship their fittings already pre-coated, with
a sacrificial anode attached.'' On the other hand, though APGA
submitted comments supporting cathodic protection requirements in
general, it opposed the cathodic protection monitoring requirements for
isolated metal fittings. APGA noted that it would require a test
station for each fitting, and operators would incur significant costs.
APGA further stated that isolated metal fittings do not face the same
corrosion risks since they are isolated by the plastic pipe and don't
have significant variances in soil conditions that a long metal pipe
system does, therefore burdensome monitoring requirements are often not
justified.
TPA, GPA, Norton McMurray, Continental Industries, and GE Dresser
Pipeline Solutions (GE) submitted comments encouraging the installation
of Category 1 fittings but noted that they are not available in the
large diameters frequently found in transmission line service.
TPA and GPA suggested revising the requirement to use Category 1
joints to distribution lines only. Norton McMurray and Continental
Industries commented that the justification for requiring Category 1
fittings on higher-diameter lines is unsupported and that Category 2
and 3 joints under ASTM D2513, F1924, F1948, or F1973 should be
permitted.
AGA, NGA, and TPA argued that the requirement for Category 1
fittings and cathodic protection should only be for newly installed
fittings or those uncovered during maintenance. All three commented
that a search and replace program would be very costly, with little
corresponding safety benefit.
AGA and NFGDC recommended revising Sec. 192.455 to require
monitoring every 10 years rather than the proposed requirement to
survey 10 percent of the system each year.
After a lengthy discussion, the GPAC recommended replacing the
cathodic protection monitoring requirement for certain electrically
isolated metal fittings. Instead, the committee recommended that PHMSA
mandate a maintenance requirement consistent with operators' integrity
management plans. This means that instead of imposing explicit
prescriptive monitoring requirements, PHMSA would expect operators to
maintain electrically isolated fittings based upon the on a risk posed
by the fitting.
(3) PHMSA Response
In this final rule, PHMSA amends the PSR to require Category 1
joints on all regulated plastic gas pipelines as originally proposed.
PHMSA and State inspectors, and the incident history described in PHMSA
Advisory Bulletin ADB-08-02, issued in March 2008, titled ``Pipeline
Safety: Issues Related to Mechanical Couplings Used in Natural Gas
Distribution Systems'' have shown that inadequate joints are a safety
risk on plastic pipelines. Requiring the use of Category 1 joints
significantly reduces the risk of mechanical joints or fittings
loosening over time or getting pulled out. Large-diameter lines are not
exempt from this requirement. The fact that Category 1 mechanical
joints are not available is not sufficient justification to use weaker
Category 2 or 3 mechanical joints since other effective joining methods
that don't require mechanical fittings are available, such as heat
fusion.
PHMSA acknowledges that there may be issues with only mentioning
the three specifications in Sec. 192.281(e)(4), specifically ASTM
F1924-12, ASTM F1948-12, or ASTM F1973-13. There are other fittings
standards also included in this rule and listed in Sec. 192.7 and
Appendix B that would be applicable for other material types. For
example, ASTM F2145 ``Standard Specification for Polyamide 11 (PA 11)
and Polyamide 12 (PA12) Mechanical Fittings for Use on Outside Diameter
Controlled Polyamide 11 and Polyamide 12 Pipe and Tubing'' is
applicable for PA-11 and PA-12 mechanical fittings. Rather than adding
more standards into the regulatory language Sec. 192.281(e)(4) and
potentially missing others, PHMSA is instead revising the language in
the final rule to say ``. . . must be Category 1 as defined by a listed
specification for the applicable material . . .'' PHMSA has also
clarified the final rule to state explicitly that this provision does
not apply retroactively. While all new fittings must be cathodically
protected, and meet Category 1 requirements, operators do not have to
search for and remove existing mechanical fittings that are non-
compliant with the new requirements. Therefore, PHMSA has amended
Sec. Sec. 192.281(e) and 192.367 to state in the headings for those
sections that they only apply to plastic pipe
[[Page 58702]]
fittings installed after the effective date of the rule. This change
should alleviate any concerns raised in comments related to the cost
and complexity of replacing or cathodically protecting existing
fittings.
In response to comments and the recommendations of the GPAC, PHMSA
is revising the cathodic protection requirements to reference paragraph
Sec. 192.455(g) in paragraph (a) of the same section and is modifying
the monitoring requirement in Sec. 192.455(g). PHMSA amended the
proposed Sec. 192.455(g) to require that all newly installed
electrically isolated metal fittings be cathodically protected, and
maintained in accordance with the operator's integrity management plan,
rather than comply with a prescriptive monitoring requirement. PHMSA
notes that the existing Sec. 192.455(a)(2) still applies unless an
isolated metal fitting meets any of the conditions in paragraphs (b),
(c), or (f) of that section.
G. Plastic Pipe Installation
The NPRM proposed several revisions to part 192 regarding the
installation of plastic pipe. A summary of each of these topics is
presented below along with a summary of public comments and PHMSA's
response.
(1) Installation by Trenchless Excavation
(a) PHMSA's Proposal
The NPRM proposed adding new Sec. Sec. 192.329 and 192.376 to the
PSR to include new minimum requirements for trenchless excavation.
PHMSA and the States are aware of a number of incidents related to
cross-boring, where plastic pipe installed via trenchless excavation
has come in contact with or been installed right through another
underground utility, such as a sewer line. These conflicts can damage
both the pipeline and the other underground structure. PHMSA therefore
proposed that operators must ensure that the excavation path for
installation and maintenance activities will provide sufficient
clearance from other underground utilities and structures.
Additionally, PHMSA proposed that operators be required to use a ``weak
link'' device for plastic pipe through the ground during installation
to prevent unnecessary, excessive stresses on the pipeline.
(b) Summary of Comments
Nearly all commenters broadly supported the proposed revisions to
the trenchless excavation requirements. DTE and PPI supported the
proposal, as did NAPSR, AGA, APGA, TPA, Avista Utilities, and SW Gas
with reservations about specific provisions or with suggestions for
modifications. Avista recommended ``a Weak Link to be used on
trenchless installations on mains and services'' though it suggested
that the type of weak link would be up to the discretion of the
operator to define based on sound engineering practices. Like other
commenters, Avista specifically referenced using a segment of smaller
diameter pipe as a weak link method. PPI supported PHMSA's requirement
for a weak link and noted that ``a properly selected breakaway swivel
provides added assurance against damaged pipe and is good engineering
practice.'' NAPSR recommended requiring operators to pull through an
additional 10 feet beyond the exit of the ground during trenchless
excavation. If that segment of pipe shows any damage exceeding 10
percent of wall thickness, NAPSR suggested that the operator should be
required have to replace the installed segment. Additionally, NAPSR
recommended requiring the use of a tracer wire, though it may be
installed on an existing steel pipe if its use on the plastic pipe is
not feasible.
A member of the public associated with trenchless technology
associations suggested alternative language in the trenchless
excavation requirements at Sec. 192.329 to require positive
identification of other underground structures prior to trenchless
installation. Specifically, he suggested requiring operators to ensure
that the excavation path ``has provided'' sufficient clearance rather
than ``will provide.'' He noted that modern best practices and
technologies, such as closed-circuit television (CCTV) and robotic CCTV
could assure positive identification of other underground
infrastructure.
AGA, APGA, TPA, PPI, GPA, Avista, DTE, and SW Gas were all
supportive of the use of a ``weak link'' in trenchless excavation but
expressed concern that the use of the word ``device'' could limit
operators to commercially available discrete devices. Some operators
commented that they use a piece of weaker pipe or an internal lab-
designed device as a weak link. The commenters proposed that PHMSA
clarify the language so as not to inadvertently prohibit alternative
technologies. The GPAC voted unanimously to support these comments.
City Utilities suggested that requiring operators to have written
procedures for mitigating and preventing cross-bore incidents would be
sufficient to ensure safety.
AGA suggested that these requirements should not apply to service
lines below 1.25-inch IPS if an analysis of incidents shows that no
relevant incidents have occurred.
NGA noted that there are other tools available to operators to
avoid damage to pipelines installed by trenchless excavation, and that
requiring weak link technologies is shortsighted. NGA recommended that
PHMSA host a workshop of operators and industry experts to explore
trenchless excavation best practices.
A number of operators had concerns about the proposed requirement
that operators ensure that the excavation area is clear of other
underground structures. AGA, TPA, and NFGDC proposed that operators
only be responsible for providing sufficient clearance from
underground-structures known at the time of installation. TPA suggested
that if an underground-structure owner does not respond to a one-call
notification, the plastic pipe operator has no means to ensure
appropriate clearance. GPA recommended that PHMSA either drops the
requirement or provide operators with a list of specific steps to
achieve compliance. The GPAC voted unanimously in favor of revising the
language of this section to require operators to take ``practicable
steps'' to maintain adequate clearance from other underground
structures in accordance with ``best practice'' documents.
(c) PHMSA Response
In this final rule, PHMSA has made a number of changes recommended
by commenters and the GPAC. PHMSA has revised Sec. Sec. 192.329(a) and
192.376(a) to specify that operators must take practicable steps to
provide sufficient clearance for installation and maintenance
activities from other underground utilities and/or structures at the
time of installation. Additionally, PHMSA revised the definition of
``weak link'' in Sec. 192.3 to include ``a device or method,'' which
should provide operators more flexibility. These changes address the
concerns raised by commenters regarding the flexibility of weak-link
options and the need for clarity of an operator's responsibilities.
PHMSA has not provided an exception, however, for small-diameter
service lines, since small-diameter lines face many of the same risks
as larger mains. Additionally, any hazard reduction due to a smaller-
diameter pipe is offset by the fact that service lines are typically
closer to dwellings and other inhabited structures. PHMSA notes that
CCTV technologies may be useful for positive identification of other
underground-structures, but the specific recommendations involving CCTV
technology have not been subject to
[[Page 58703]]
notice and comment or cost-benefit analysis. PHMSA may analyze this
issue in a future rulemaking after considering the benefits and
limitations of CCTV technologies.
Similarly, PHMSA has not implemented the enhanced requirements
recommended by NAPSR, but is open to enhancing these requirements in
future rulemakings and possibly hosting a public workshop on weak links
and trenchless excavation. More information on this topic is available
in a white paper titled ``Meta-Analysis: Cross Bore Practices'' issued
by the PHMSA/NAPSR Plastic Pipe Ad Hoc Committee on July 10, 2014.\5\
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\5\ http://primis.phmsa.dot.gov/dimp/docs/MetaAnalysis_Cross_bore_practices_07102014%20final%20R3.pdf.
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(2) Joining Plastic Pipe
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed amending Sec. 192.281 to clarify
language related to joining plastic pipe. The proposed revisions
included clarifying that solvent cement requirements in ASTM D2564-12,
``Standard Specification for Solvent Cements for Poly(Vinyl Chloride)
(PVC) Plastic Piping Systems'' (ASTM D2564-12), apply only to PVC pipe,
clarifying that the joining requirements in Sec. 192.281(c) apply to
both the pipe and components, requiring heat fusion joints to comply
with ASTM F2620-12, ``Standard Practice for Heat Fusion Joining of
Polyethylene Pipe and Fittings,'' issued on August 1, 2012, (ASTM
F2620-12), and adding a new paragraphy (e)(3) to require that each
fitting used to make a mechanical joint meets a listed specification in
Appendix B of part 192.
(b) Summary of Comments
AGA and NFGDC opposed requiring all types of heat fusion joints to
comply with ASTM F2620-12. AGA commented that ASTM F2620-12 is
primarily intended for saddle-fusion joints on live pipes. AGA also
stated that compliance with ASTM F2620-12 would require operators to
re-qualify a number of proven joining procedures and eliminating those
that differ from the standard. Those two commenters were specifically
concerned about the prohibition of methods differing from the standard,
particularly with respect to the use of different heater temperatures.
TPA requested that PHMSA allow the continued use of existing qualified
joining procedures.
APGA supported PHMSA's proposal to require heat-fusion joints to
comply with ASTM F2620-12 and the proposed revisions to Sec.
192.281(d), which require all mechanical joints and fittings to be
classified as Category 1 as defined in ASTM F1924-12, ASTM F1948-12, or
ASTM F1973-13.
Arkema commented that since ASTM F2620-12 is specific to PE only,
the regulatory language should refer to this standard for only PE heat-
fusion joints. Volgstadt and Associates' comments echoed the concerns
of Arkema. Volgstadt also noted electrofusion is not covered under ASTM
F2620-12 and suggested that Sec. Sec. 192.281(c) and 192.285(b) be
corrected so ASTM F2620-12 only applies to PE hot plate fusion and not
to either electrofusion or PA-11. Volgstadt further recommended either
revising Sec. 192.281(c) to replace ``plastic pipe'' with ``PE pipe''
to avoid requiring an incompatible standard, or revising future
editions of ASTM F2620 to include electrofusion methods and PA-11
materials. APGA, TPA, PPI, NAPSR, PPI, and City Utilities opposed the
prohibition of socket-fusion joints above a certain diameter. APGA
noted that PHMSA has not provided a rationale for prohibiting socket-
fusion on any size of plastic pipe and that the cost of butt-fusion or
electrofusion equipment is prohibitive for small operators. APGA
further proposed allowing socket-fusion for plastic pipe of four-inch
diameter or less. PPI, TPA, NAPSR, and City Utilities concurred. The
GPAC voted unanimously to recommend adoption of the comments requesting
removal of the socket-fusion diameter restriction.
NORMAC requested clarification as to whether the proposed Sec.
192.281(e) requires manufacturers of factory-assembled anodeless risers
to meet a listed specification as Sec. 192.271(b) states that the
requirements do not apply to joints made during the manufacture of a
product.
NORMAC also proposed that the requirement for qualifying joining
procedures by operators must be separate from the qualification of
designs for manufacturers' joint and fitting specifications. ASTM D2513
should not be applied to mechanical joint manufacturing regulations as
it is a standard specification rather than a testing performance
criterion. NORMAC further suggested deleting Sec. 192.281(e)(1) as it
is not written in performance language and is unnecessary as there is
no evidence of material incompatibility of plastic materials. It
further commented that Sec. Sec. 192.281(e)(2) and 192.281(e)(3) are
duplicative. NORMAC also strongly opposed implying that elastomers in
mechanical fittings and joints can loosen or degrade over time. NORMAC
stated that PHMSA must provide publicly cited evidence that elastomer
degradation has been a systemic problem or retract unsupported
statements on mechanical joints from the docket and elsewhere.
(c) PHMSA Response
PHMSA disagrees with AGA's proposal to restrict ASTM F2620-12 to
saddle-fusion joint procedures only. The standard includes procedures
for other types of joints.
Regarding concerns on whether operator joining procedures that may
differ from ASTM F2620-12 may not be acceptable and would have to be
requalified, it would depend on how exactly they differ. PHMSA would
expect that if an operator can demonstrate the differences are sound
and provide an equivalent or better level of safety compared to ASTM
F2620-12 it could be found acceptable. However, if operator procedures
are found to be lacking in any way, such as a heating temperatures
used, fusion pressures or cooling times, they may not be acceptable.
PHMSA agrees with commenters that noted ASTM F2620-12 is a PE only
standard and does not cover electrofusion. PHMSA has made revisions for
clarification. For electrofusion, it is not explicitly listed in the
code language in Sec. Sec. 192.281 or 192.285, but electrofusion
fittings and joints would ultimately need to comply with requirements
of ASTM F1055, a listed specification for electrofusion.
PHMSA supports Volgstadt's suggestion to consider revising ASTM
F2620-12 to include electrofusion and other thermoplastic material
types (including PA-11), but defers to the ASTM process on how best it
should be handled and ultimately vetted.
PHMSA's intent regarding socket-fusion joints was not to prevent
the common use of safe components. Therefore, PHMSA has removed the
diameter restrictions for socket-fusion joints from Sec.
192.281(c)(2). Such fittings must still comply with the listed
specification, which may have their own diameter restrictions.
In response to comments from NORMAC, PHMSA notes all parts of
factory assembled risers must comply with the appropriate listed
specifications. PHMSA disagrees that Sec. 192.281(e)(2) is duplicative
with Sec. 192.281(e)(3) that is incorporated by this final rule; Sec.
192.281(e)(3) requires that newly installed mechanical fittings must
meet a listed specification, while Sec. 192.281(e)(2) is a general
requirement that applies to all mechanical joints on plastic pipe
regardless of the applicable material. Further comments regarding
[[Page 58704]]
the appropriateness of existing code language regarding gasket material
compatibility or comments on past advisory bulletins related to
observed wear of elastomers are not within the scope of the rulemaking.
(3) Qualifying Joining Procedures
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend Sec. 192.283(a)(1)(i) to
incorporate an updated version of ASTM D2513-12ae1 for PE pipe and the
new joining standards applicable to PA-11 and PA-12 pipe in ASTM F2945-
12a and ASTM F2785-12 respectively when determining the sustained
pressured test or minimum hydrostatic burst test. PHMSA also proposed
to remove Sec. 192.283(d), which permitted operators to use pipe or
fittings manufactured prior to July 1, 1980, if they are joined in
accordance with procedures that the manufacturer certifies will produce
a joint as strong as the pipe. Together these changes will codify
modern joining procedures for PE, PA-11, and PA-12 pipeline systems.
(b) Summary of Comments
NAPSR supported PHMSA's proposal.
NORMAC commented that the three listed specifications in Sec.
192.281(e)(4) do not contain language for qualifying operator joining
procedures, unlike the existing provisions in Sec. 192.283. NORMAC
further recommended revision of Sec. 192.283 to separate the
specification and testing requirements for manufacturers from the
regulatory performance standards for operator procedures currently in
the PSR.
(c) PHMSA Response
PHMSA believes NORMAC may have incorrectly interpreted the NPRM
proposed language in Sec. 192.281(e)(4) and Sec. 192.283(b) related
to mechanical joints and applicable pipe standards for qualifying
joining procedures. However, PHMSA can see reasoning for the confusion
and believes there is the possibility that others could misinterpret as
well. The three specifications that were named in Sec. 192.281(e)(4),
specifically ASTM F1924-12, ASTM F1948-12, or ASTM F1973-13, were
included only to help provide references for the definition for
Category 1 depending on the specific type/material of fitting involved,
since PHMSA doesn't have an explicit definition for Category 1. The
language in Sec. 192.283 (b) that talks about being ``qualified in
accordance with a listed specification based upon the pipe material''
is referring to a listed specification in Appendix B for pipe depending
on the material (for instance ASTM D2513-12ae1 for PE, ASTM F2785-12
for PA-12, or ASTM F2945-12a for PA-11.) PHMSA believes each of those
material specific standards or the standards they reference for
mechanical fittings (for instance the PA-11 and PA-12 material
standards require mechanical fittings to conform to ASTM F2145) provide
suitable language related to testing that can help qualify joining
procedures. Since each of the standards is written slightly differently
and in some cases have additional material specific considerations
compared to what was written in Sec. 192.283 previously, PHMSA
believes it is appropriate to defer to the listed specification. As
mentioned in the PHMSA response in Sec. 192.281(e)(4) and given the
confusion between the language in Sec. 192.283 (b), the three listed
specifications in Sec. 192.281(e)(4), and considering there are
additional listed specifications in Appendix B that also contain
material specific considerations and can help with definition for
Category 1, PHMSA is editing Sec. 192.281(e)(4) to more generically
point to a listed specification. This would also make Sec. Sec.
192.281(e)(4) and Sec. 192.283 (b) more consistent with how the
language is written related to listed specifications.
(4) Qualifying Persons To Make Joints
(a) PHMSA's Proposal
The NPRM proposed amending Sec. 192.285 by modifying the
requirements for qualifying persons to make joints. PHMSA proposed to
add reference to ASTM F2620-12 to the joiner qualification requirements
in Sec. 192.285 (b)(i) as an option for PE pipe. ASTM F2620 provides
information on what constitutes a visual acceptable or unacceptable
joint.
(b) Summary of Comments
NAPSR supported PHMSA's proposal. The PPI supported the
incorporation of ASTM F2620-12 but noted that certain standards it had
developed, including PPI TR-33 and TR-41, were equally sound procedures
and should also be incorporated. Arkema opposed deleting the joint-
testing details from Sec. 192.285. Arkema commented that ASTM F2620-12
is limited only to PE and that Sec. 192.285 should instead refer to
ASTM F2620-12 for only PE heat-fusion joints while other joining
qualification tests could be regulated under the existing Sec. 192.285
language. Volgstadt and Associates' comments echoed these concerns.
Volgstadt also suggested that Sec. Sec. 192.281(c) and 192.285(b) be
corrected as ASTM F2620-12 only applies to PE hot plate fusion and
applies to neither electrofusion nor PA-11. Volgstadt recommended
either revising Sec. 192.281(c) to replace ``plastic pipe'' with ``PE
pipe'' to avoid requiring an incompatible standard, or revising a
future ASTM F2620 edition to include electrofusion methods and PA-11
materials.
SoCal Gas and SDG&E jointly commented that ASTM F2620-12 does not
address a number of safety concerns that have been incorporated into
qualified heat-fusion procedures. They proposed that PHMSA continue to
allow the use of procedures qualified under the testing performance
standard in Sec. 192.283. They argued that the existing testing
standards under Sec. 192.283 are more stringent than the proposed ASTM
F2620-12 and should not be eliminated. The commenters proposed that
Sec. 192.285 should use more general language that allows the option
of relying on sound engineering requirements developed by an operator's
own lab testing.
(c) PHMSA Response
The NPRM did not propose to delete any of the testing requirements
in the existing Sec. 192.285. ASTM F2620-12 is being incorporated as
an additional minimum standardized practice for PE materials to address
many gaps and inconsistencies seen through the years with the joining
procedures. Regarding concerns on whether operator joining procedures
that may differ from ASTM F2620-12 may not be acceptable, it would
depend on how they differ. PHMSA would expect that if an operator can
demonstrate through an inspection of the procedures that the
differences are sound and provide an equivalent or better level of
safety compared to ASTM F2620-12 it could be found acceptable. However,
if operator procedures are found to be lacking in any way when
comparing the operator procedures to ASTM F2620-12, and reviewing
results of testing results used to qualify the procedures, they may not
be acceptable.
PHMSA agrees with commenters that noted ASTM F2620-12 is a PE only
standard and does not cover electrofusion; PHMSA has made revisions for
clarification. For electrofusion, it is not explicitly listed in the
code language in Sec. Sec. 192.281 or 192.285 but electrofusion
fittings and joints would ultimately need to comply with requirements
of ASTM F1055, a listed specification for electrofusion.
PHMSA supports Volgstadt's suggestion to consider revising ASTM
F2620-12 to include electrofusion and other thermoplastic material
types (including PA-11) but defers to the
[[Page 58705]]
ASTM process on how best it should be handled and ultimately vetted.
(5) Bends
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed to revise Sec. 192.313 to prohibit
bends in plastic pipe less than the minimum radius specified by the
manufacturer. While plastic pipe is somewhat elastic, a bend radius
that is too small may compromise the structural integrity of the pipe.
(b) Summary of Comments
AGA and NAPSR supported PHMSA's bend-specification proposal. PPI
and GPA noted a typographical error in the proposed Sec. 192.311(d),
stating that PHMSA most likely intended to prohibit bends less than the
minimum radius specified by the manufacturer rather than the maximum.
(c) PHMSA Response
PHMSA agrees with the commenters about the typographical error and
has corrected Sec. 192.313 to prohibit bends smaller than the minimum
radius specified by the manufacturer.
(6) Installation of Plastic Pipe
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend Sec. 192.321 to increase the
minimum wall thickness of all plastic pipe to 0.090 inches (2.29
millimeters), to require that operators protect plastic pipe from
damage when installing it within a casing, to establish backfill
requirements during excavation, and to allow operators to terminate
plastic mains aboveground under certain conditions.
(b) Summary of Comments
APGA supported the proposals to require protecting encased plastic
pipe from damage at casing entrance and exit points in Sec.
192.321(f), and to allow certain plastic mains to terminate above
ground in Sec. 192.321(i).
NAPSR, AGA, APGA, PPI, SW Gas, TPA, and NFGDC submitted the
following comments critical of the proposed backfill requirements in
this section:
The commenters generally concurred with AGA's critique
that the phrase ``properly compacted'' inadvertently added a
prescriptive requirement that required further clarification. AGA
commented that including the phrase ``properly compacted'' requires
operators to quantify soil compaction, but does not define what is an
acceptable level of quantification.
SW Gas commented that PHMSA must clearly specify
compaction and documentation requirements.
AGA recommended simply requiring that lines be properly
supported.
NAPSR proposed removing the phrase ``such as rocks of a
size exceeding those established through sound engineering practices''
from Sec. 192.321(i)(1).
SW Gas argued that backfill requirements are typically
prescribed and enforced by the construction permitting agency and
therefore, a PHMSA specification was unnecessary.
PPI recommended that PHMSA clarify the requirements
through the incorporation of ``PPI Handbook for PE Pipe, Chapter 7--
Underground Installation of PE Pipe.''
As for the proposed change in the minimum wall thickness
requirement for new and replaced pipe, three entities submitted
comments:
APGA noted that the proposed requirement for a minimum
wall thickness of 0.090 inches for plastic pipe might be inconsistent
with the proposed Sec. 192.121(b)(3), which established a minimum
plastic pipe thickness of 0.062 inches.
APGA did not have a strong opinion either way but
recommended that the rule be revised to remain consistent.
DTE strongly opposed any change from the current minimum
wall thickness of 0.062 inches.
The GPAC recommended approval of all the proposed changes in the
NPRM, provided that PHMSA removed the enhanced backfill requirements.
(c) PHMSA Response
PHMSA concurs with the comments and the recommendations of the
GPAC, and has therefore removed the proposed enhanced backfill
requirements from the final rule. PHMSA notes that operators must still
avoid issues with backfill under the more general requirements in
Sec. Sec. 192.319(b) and 192.361(b). The existing Sec. 192.319(b)(1)
already requires that backfill for transmission lines provide adequate
support for the pipeline, while Sec. 192.361 has similar requirements
for service lines. Section 192.319(b)(2) further requires that
operators must backfill transmission lines with materials that prevents
damage.
For clarity, PHMSA has revised Sec. 192.321 to refer to Sec.
192.121 rather than repeat the minimum wall thickness requirement.
(7) Service Lines; General Requirements for Connections to Main Piping
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed to add a new paragraph (b)(3) to Sec.
192.367 that required operators use Category 1 joints for service line
connections to gas mains. Category 1 joints are defined in ASTM F1924-
12, ASTM F1948-12, or ASTM F1973-13 for the applicable material and
must provide a seal plus resistance to a force on the pipe joint equal
to or greater than that which will cause no less than 25 percent
elongation of the pipe or would cause the pipe to fail outside of the
joint area during the tensile strength test prescribed by the
applicable standard. In other words, the fitting must be designed such
that the pipe will fail before the joint does.
(b) Summary of Comments
NAPSR supported PHMSA's proposal.
NORMAC submitted comments arguing that, in the context of Sec.
192.367(b), the word ``connection'' is synonymous with ``joint.''
Therefore, NORMAC suggested that the proposed Sec. 192.367(b)(3) and
the existing Sec. 192.367(b)(1) should be deleted, as these
regulations repeat Sec. Sec. 192.281(e)(3) and 192.283(b), which
specify compression fittings. NORMAC further commented that gaskets are
used beyond just connections to mains. Therefore, the performance
standards for gaskets should be included in the general requirements in
Sec. 192.273 while Sec. 192.367 should only address issues unique to
main connections.
(c) PHMSA Response
PHMSA recognizes that Sec. 192.367(b) and the existing language in
Sec. Sec. 192.81(e)(3) and 192.283(b) may be redundant; however, Sec.
192.367 applies to more than just plastic pipe materials and therefore
has not been removed because referencing these standards in both
sections is prudent. The gasket requirements proposed in Sec. 192.367
are specific to service line connections to mains. PHMSA may consider
standards for gaskets in the future if PHMSA identifies a safety need
for such standards.
PHMSA acknowledges that there may be issues with only mentioning
the three specifications in Sec. 192.367(b) specifically ASTM F1924-
12, ASTM F1948-12, or ASTM F1973-13. There are other fittings standards
also included in this rule and listed in Appendix B that would be
applicable for other material types. For example, ASTM F2145 ``Standard
Specification for Polyamide 11 (PA 11) and Polyamide 12 (PA12)
Mechanical
[[Page 58706]]
Fittings for Use on Outside Diameter Controlled Polyamide 11 and
Polyamide 12 Pipe and Tubing'' is applicable for PA-11 and PA-12
mechanical fittings and also has a definition for Category 1. Rather
than adding more standards into the regulatory language Sec.
192.367(b) and potentially missing others, PHMSA is instead revising
the language in the final rule to say ``. . . must be Category 1 as
defined by a listed specification for the applicable material . . .''
As described above, the mechanical fitting standards all define a
category 1 fitting as one in which the surrounding pipe fails before
the joint during tensile strength testing.
(8) Equipment Maintenance; Plastic Pipe Joining
(a) PHMSA's Proposal
In the NPRM, PHMSA proposed adding a new Sec. 192.756 to establish
minimum maintenance, calibration and testing, and recordkeeping
provisions for plastic pipe joining equipment. Proper calibration and
maintenance of plastic pipe joining equipment is important due to the
difficulty in assessing the quality of field joints.
(b) Summary of Comments
NAPSR and Lael supported the proposed recordkeeping requirements.
Lael suggested strengthening the requirements under this part and
suggested adding a requirement for operators to have written procedures
for equipment calibration and maintenance. Specifically, Lael commented
that daily or periodic adjustment records are also important, and
therefore recommended eliminating the recordkeeping exception for those
records. AGA, APGA, GPA, TPA, Avista Utilities, DTE, and SW Gas
submitted comments that agreed with the importance of proper equipment
maintenance and calibration but critical of prescriptive recordkeeping
requirements. The commenters viewed the proposed Sec. 192.756 as
excessively prescriptive, limiting, and burdensome. The commenters
claim that, as proposed, the NPRM was not sensitive to varying
maintenance and recordkeeping requirements recommended by equipment
manufacturers. The GPAC recommended that PHMSA withdraw the proposed
changes in paragraphs (b) through (d) of Sec. 192.756.
GPA suggested alternative language clarifying that equipment
maintenance and calibration must be appropriate for the equipment being
evaluated
(c) PHMSA's Response
In consideration of the comments and the recommendations of the
GPAC, PHMSA has removed the additional calibration and recordkeeping
requirements in paragraphs (b) through (d). Therefore, the retention of
records of daily equipment calibrations and adjustments suggested by
Lael has not been implemented. Commenters suggested that the proposed
requirements were overly prescriptive and burdensome. PHMSA may revisit
this issue if problems are identified in the future. The final rule
retains the requirement that operators must maintain joining equipment
in accordance with the manufacturer's recommended practices or with
written procedures that have been proven by test and experience to
produce acceptable joints.
H. Repair of Plastic Pipe
(1) PHMSA's Proposal
In the NPRM, PHMSA proposed to amend the plastic pipe repair
criteria in Sec. 192.311 to require operators to replace plastic pipe
or components if they have a scratch or gouge exceeding 10 percent of
the wall thickness. The purpose of the proposed amendment was to add a
clearer standard of what constitutes the type of defect that
necessitates repair. The current Sec. 192.311 merely states that an
operator must repair or remove ``[E]ach imperfection or damage that
would impair the serviceability'' of plastic pipe.
PHMSA further proposed adding a new Sec. 192.720 to prohibit the
use of leak repair clamps as a permanent repair on plastic gas
pipelines. PHMSA and States have observed issues where some operators
have used stainless steel band clamps, intended and designed for
temporary repairs on plastic pipe used in gas distribution, as a
permanent repair solution. While clamps can be an effective temporary
solution in certain situations, such as during an incident to stop the
release of gas, PHMSA believes that these clamps should be used only as
a temporary repair measure until the pipe can be replaced. PHMSA is
also aware of at least one manufacturer that has issued a letter saying
its repair clamps are intended for temporary repairs only and should be
replaced with a more permanent solution.
(2) Summary of Comments
NAPSR supported both the repair standard for plastic pipe and
prohibiting the permanent use of leak repair clamps. Regarding the 10-
percent-gouge-depth repair criteria, PPI ``supports this proposal as a
reasonable and conservative maximum scratch or gouge depth.'' However,
PPI stated that wider tolerances were acceptable since their research
showed that 30 percent gouges were found to not have significant long-
term performance impacts. PPI commented that less-precise methods such
as visual inspections were sufficient for determining gouge depth and
should be allowed.
AGA, APGA, and TPA were critical of the 10-percent-gouge-depth
threshold for requiring repair or replacement. AGA noted that the 10-
percent threshold is an industry rule of thumb that is too stringent
for a regulatory requirement and instead proposed a 20-percent
threshold as a reasonable repair standard.
AGA and NGA had concerns that the proposed Sec. 192.311(a) as
written could prevent the use of electrofusion sleeves for plastic pipe
repair.
The GPAC voted unanimously to recommend approval of these
provisions, conditioned on the removal of the 10-percent threshold for
repair criteria and the clarification that the prohibition on
mechanical leak-repair clamps would not require operators to remove
existing clamps. Members of the GPAC likewise considered the 10-percent
gouge depth criteria to be an industry rule of thumb that was too
stringent for a regulatory requirement. While the GPAC did not
recommend implementing the 10-percent threshold for repair criteria,
members did agree that some sort of repair criteria for plastic pipe
was necessary. The GPAC recommended that PHMSA and the Committee
support research to develop technically acceptable plastic pipe repair
criteria in the near future.
(3) PHMSA's Response
Based on the recommendations of the GPAC, PHMSA has removed the
proposed repair criteria from the final rule and therefore did not
incorporate the alternative 20-percent-gouge-depth repair criteria
proposed by AGA and APGA. PHMSA believes it is appropriate to seek
additional technical data and public comment on any proposed repair
criteria for plastic pipe. PHMSA intends to revisit this issue and will
consider proposing plastic pipe repair criteria in future rulemaking.
PHMSA inspectors have identified the permanent use of leak repair
clamps on plastic pipe as an inadequate and risky practice.
Furthermore, the lack of clear language in the code has led to
enforcement uncertainty. While PHMSA is aware of guidance applicable to
repair clamps, such as ASTM F1025, PHMSA is not aware of technical
standards for permanent repair clamps on plastic pipe. Section 192.311
does not preclude the use of electrofusion repair sleeves, but for the
sake of clarity, PHMSA has revised Sec. 192.720 to specify that a
[[Page 58707]]
``mechanical leak repair clamp'' may not be used as a permanent repair.
PHMSA may revisit this issue if an acceptable standard for permanent
mechanical repair clamps on plastic pipe is developed. In general, if a
repair device such as an electrofusion sleeve can provide a Category 1
joint, it is effectively permanent. Like other provisions of this final
rule, the prohibition of the permanent use of leak repair clamps is not
retroactive.
I. General Provisions
In the NPRM, PHMSA proposed several general revisions to the PSR as
follows:
(1) Incorporation by Reference
(a) PHMSA's Proposal
PHMSA proposed to incorporate by reference several new or revised
standards for plastic pipe and components. Summaries of each of the
standards incorporated by reference in this final rule, and a
discussion of the availability of those standards during the rulemaking
process, are available in Part IV, Standards Incorporated by Reference,
in the preamble to this document. Additionally, the effects of these
standards are discussed under the topic area to which they are
applicable. Section II, Availability of Standards Incorporated by
Reference, of the NPRM preamble provided information on the reasonable
availability of these standards.
(b) Summary of Comments
NAPSR supported PHMSA's proposal to incorporate by reference new
standards and currently referenced consensus standards. Several
commenters suggested incorporating more recent editions of certain
standards that this rule incorporates by reference. Aaron Adamcyzk
provided a list of standards proposed in the NPRM that have since been
updated by the respective standards development organization. Volgstadt
and Associates and Arkema also noted that there were upcoming revisions
to certain standards that could impact the NPRM.
GPA and TPA submitted comments arguing that the standards
incorporated by reference in the NPRM are intended for distribution
systems and that applying them to gas transmission and gathering lines
would be improper. The commenters suggested that PHMSA restrict the
scope of these standards to distribution lines and pursue a separate
rulemaking to incorporate applicable standards for transmission and
gathering lines.
PublicResource.org submitted a comment claiming that PHMSA had
acted improperly at the NPRM stage by not making the standards proposed
for incorporation by reference into the PSR available to the public for
free, on the internet, on an unrestricted and permanent basis, as
required by law.
(c) PHMSA's Response
As for the recommendation that PHMSA incorporate by reference more
recent versions of the consensus standards, PHMSA can only incorporate
by reference versions of standards that have been proposed at the NPRM
stage of the rulemaking process. For this rulemaking, PHMSA contacted
the applicable Standards Development Organizations (SDO), requesting
that each SDO provides access to the standards proposed for
incorporation by reference during the comment period. During this
period, all standards proposed for incorporation by reference were made
available to the public for free.
PHMSA does not propose new editions or versions of standards at the
final rule stage without an opportunity for public comment. However,
PHMSA may consider more recent versions for incorporation by reference
in future rulemaking actions if the newer editions of these standards
are technically acceptable and consistent with applicable law.
PHMSA does not agree with the comments that suggested limiting the
applicability of certain materials standards to distribution
facilities. While the scope of some of the plastic pipe standards
incorporated by reference in this final rule may have been developed
primarily for gas mains and service lines, there is nothing that
precludes their use in gathering and transmission systems, as long as
all appropriate testing and other considerations are met (e.g.,
chemical compatibility testing.) In fact, PHMSA is aware of many
gathering and transmission systems that are already using ASTM D2513
pipe. To avoid confusion, several SDOs are in the process of expanding
the scope of these standards. PHMSA is also aware of other standards,
either recently published or still under development, specific to
transmission or gathering systems; however, for the time being,
pipeline facilities must be constructed in accordance with standards
incorporated by reference. PHMSA may, if appropriate, update standards
with those clarifications or incorporate by reference transmission and
gathering-specific standards in future rulemakings.
PHMSA also disagrees with the comment that incorporating only parts
of consensus standards by reference is inconsistent with the intent of
the National Technology Transfer and Advancement Act of 1995 (NTTAA),
Public Law 104-113. Section 12(d) of NTTAA directs Federal agencies to
use standards developed by voluntary consensus standards bodies in lieu
of government standards whenever it is practical and consistent with
law. The Office of Management and Budget (OMB) issued OMB Circular A-
119 to serve as guidance to Federal agencies on the use of such
standards. Specifically, OMB Circular A-119 explains the term ``use''
to mean ``incorporation of a standard in whole, in part, or by
reference in regulation(s).'' OMB Circular A-119, at p. 20. OMB
Circular A-119 also provides a list of factors that an agency should
consider when evaluating whether to use a standard, which includes the
level of protection a standard provides, the costs and benefits of
implementing a standard, and the ability of the agency to use and
enforce compliance with a standard in the regulatory process. Id., at
p. 17-18.
Neither NTAA nor OMB Circular A-119 establishes a requirement for
Federal agencies to incorporate such standards in whole or to adopt the
most recent edition of standards. Further, pursuant to 49 U.S.C.
60102(b)(1), standards adopted by PHMSA must be practicable and
designed to meet the need for gas pipeline safety and protecting the
environment. Accordingly, PHMSA may not adopt standards and portions of
standards that fail either to serve its safety-program needs or it
deems to be impracticable.
PHMSA also disagrees with comments from Public Resource.Org
suggesting that PHMSA has failed to make standards incorporated by
reference ``reasonably available'' and that it acted illegally and
arbitrarily by proposing the incorporation of standards that were not
neither reprinted verbatim in the Federal Register nor made available
to the public for free, on the internet, on a permanent and
unrestricted basis.
PHMSA supports the broad dissemination and public availability of
consensus standards that have been incorporated by reference into
federal regulations and that govern pipeline safety in this country.
First, it complies with the procedures set by the Office of the Federal
Register to ensure the reasonable availability of standards proposed
for incorporation by reference in the rulemaking process. As Public
Resource.Org noted in its comment, PHMSA worked with SDOs to provide
free, read-only access to all standards proposed for incorporation by
reference
[[Page 58708]]
during the comment period. Providing free, read-only access to
standards proposed for incorporation by reference during the comment
period is listed under section 5(f) of OMB Circular A-119 (revised,
2016) as a measure that Federal agencies can take to ensure that such
standards are made ``reasonably available.'' Additionally, PHMSA has
worked to make these materials reasonably available to interested
parties. Section IV, ``Standards Incorporation by Reference'', of this
final rule provides information on how interested parties can view the
standards to be incorporated by reference online or via hardcopy at
U.S. DOT headquarters and the Office of the Federal Register. This free
online availability, which PHMSA also provided during the comment
period, meets PHMSA's statutory requirements at 49 U.S.C. 60102(p),
requiring that such standards incorporated by reference be made
available to the public, free of charge.
Public Resource.Org has not provided sufficient evidence to support
its interpretation that ``reasonably available'' requires Federal
agencies, such as PHMSA, to provide internet access to copyrighted
standards on a permanent and unrestricted basis free of charge. PHMSA
therefore defers to the interpretation set forth in OMB Circular A-119.
Broader questions raised by Public Resource.Org regarding the
applicability of copyright law to standards, what constitutes fair use
of standards incorporated by reference, and the economics of copyright
protection are all beyond the scope of this rulemaking.
(2) Plastic Pipe Material
(a) PHMSA's Proposal
The NPRM proposed several revisions regarding material requirements
for plastic pipe. PHMSA proposed to revise Sec. 192.59 to require that
new plastic pipe be free from visible defects and permit the
installation of plastic pipe that had been previously used in ``gas''
service, as defined in Sec. 192.3, rather than the current language,
which is restricted to ``natural gas.'' PHMSA also proposed to prohibit
the installation of PVC pipe and components for new installations after
the effective date of the rule and proposed to incorporate ASTM F2817-
10, ``Standard Specification for Poly (Vinyl Chloride) (PVC) Gas
Pressure Pipe and Fittings for Maintenance or Repair,'' issued on
February 1, 2010 (ASTM F2817-10), ``Standard Specification for Poly
(Vinyl Chloride) (PVC) Gas Pressure Pipe and Fittings for Maintenance
or Repair'' (PVC components only) 02/01/2010 (ASTM F2817-10), to
reestablish standards for PVC components that are still permitted on
existing PVC pipe segments.
(b) Summary of Comments
APGA and NAPSR supported PHMSA's proposal to prohibit the
installation of new PVC gas piping. NAPSR stated that it ``feels the
exclusion of PVC pipe for new installations will increase safety.''
The PVC Pipe Association, a trade group representing PVC pipe
manufacturers, submitted comments opposed to PHMSA's proposal to
prohibit new installation of PVC pipe in gas service. The PVC Pipe
Association argued that prohibiting PVC pipe would restrict competition
in the plastic piping sector with negative impacts on price and
innovation. The PVC Pipe Association proposed permitting PVC pipe in
low-diameter, SDR-11 applications. NiSource noted that PVC pipe could
be effectively used as regulator and vent piping, arguing that
prohibiting new PVC gas piping in these applications would increase
pipeline risk by leading to increased use of metal pipe, which carries
a corrosion risk. NiSource proposed adopting ANSI/UL 651, ``Standard
for Schedule 40, 80, Type EB and A Rigid PVC Conduit and Fittings, for
rigid PVC conduits and fittings as permitted in NFPA 54, ``National
Fuel Gas Code.'' The GPAC recommended removing the PVC restrictions.
(c) PHMSA's Response
PHMSA has removed the restrictions on PVC pipe after considering
the public comments and the recommendations of the GPAC. PHMSA notes
that the use of PVC pipe has decreased since the mid-1980s without
regulatory intervention due, in large part, to operator preferences.
Gas distribution annual reports also show operators are phasing-out
this material in the absence of a regulatory restriction.
(3) Plastic Pipe Storage and Handling
(a) PHMSA's Proposal
The NPRM proposed adding a new Sec. 192.67 that would require
operators to have written procedures for the storage and handling of
plastic pipe that met applicable listed specifications.
(b) Summary of Comments
NAPSR and APGA supported the proposed amendments. APGA agreed
``that proper storage and handling of plastic pipe and components is
important to ensure that these pipe and components are not damaged
during storage and handling.'' However, APGA sought clarification as to
whether a simple, generic storage and handling procedure provided by
the pipe and component manufacturer, trade association or another
central source would satisfy the requirement.
AGA requested background information on PHMSA's addition of Sec.
192.67, which AGA stated may be due to the adoption of ASTM D2513-09a.
(c) PHMSA's Response
Most commenters supported the addition of this section. In the
final rule, PHMSA is issuing these provisions as proposed. In response
to AGA's comment, PHMSA developed this requirement due to unsafe
handling practices observed by PHMSA inspectors in the field. For
example, PHMSA has observed operators dragging plastic pipe with
backhoes and other heavy machinery, carrying pipe suspended from
chains, and carrying large-diameter pipes with thin straps. In response
to APGA's comment, PHMSA notes that operators may use procedures
provided by a trade association, the pipe manufacturer, or another
central source, provided that those procedures meet the minimum
requirements specified in the code and applicable listed specifications
and are included in the operator's operations and maintenance manual.
(4) Gathering Lines
(a) PHMSA's Proposal
The NPRM proposed adding language in paragraph Sec. 192.9(d) to
specify that Type B regulated onshore gas gathering pipelines made of
plastic must comply with all the requirements of part 192 applicable to
plastic pipe.
(b) Summary of Comments
NAPSR and DTE submitted comments supporting PHMSA's proposal.
However, DTE commented that PHMSA may have inadvertently omitted the
leakage survey requirements for Type B gathering lines already in Sec.
192.9(d)(7). DTE suggested placing the new requirements for plastic
pipe and components in a more logical order in Sec. 192.9(d).
(c) PHMSA's Response
As commenters noted, PHMSA's intent was not to repeal the recently
promulgated leakage survey requirements in what was previously Sec.
192.9(d)(7). In this final rule, PHMSA has therefore reorganized this
section as recommended by the commenters and re-designated the leakage
survey requirement as Sec. 192.9(d)(8).
[[Page 58709]]
(5) Merger of Sections 192.121 and 192.123
(a) PHMSA's Proposal
The NPRM proposed merging the design limitations for plastic pipe
in Sec. 192.123 with the calculations for design pressure at Sec.
192.121 so the design pressure and limitations were in one section and
more clearly broken out by material type. PHMSA also proposed to revise
the PSR to raise the maximum permitted design factor for PE pipe,
increase the design pressure limitations of PA-11 pipe, and add design
factor and pressure limitations for the use of PA-12 plastic pipe.
These requirements would apply to materials produced after the
effective date of the rule.
(b) Summary of Comments
Arkema and Palermo recommended that PHMSA allow the installation of
plastic pipe designed with a hydrostatic design basis (HDB) at 180
[deg]F, in addition to 73 [deg]F, 100 [deg]F, 120 [deg]F and 140 [deg]F
currently in the regulations. The commenters noted that PA-11 and other
materials (including PA-12) have an HDB with a rating of 180 [deg]F, so
it should be listed along with the other standard temperatures. As
described in the sections for PE, PA-11, and PA-12 provision, a number
of commenters suggested expansions and revisions to the minimum wall
thickness tables in Sec. 192.121 for each material to include entries
for pipe with nominal pipe sizes of one-inch CTS and below one-inch
IPS.
(c) PHMSA's Response
The comments filed under this subsection primarily concern
revisions to the PE, PA-11, and PA-12 tables and HDB temperature
ratings for PA-11 and PA-12. As described in the discussions of those
topics, PHMSA is revising the minimum wall thickness tables for clarity
and to include additional sizes but is not permitting the installation
or operation of pipe at temperatures higher than 140 [deg]F. As noted
in the discussions for PE, PA-11, and PA-12, not all compounds are
rated at that temperature, and inclusion could wrongly imply that
operators are permitted to operate any plastic pipe at that
temperature. This doesn't preclude an operator from using a pipe with
an HDB rating at 180 [deg]F, however, that rating would need to be
interpolated back to one of the temperatures listed in Sec. 192.121.
See the discussions of the PE, PA-11, and PA-12 provisions in sections
III.B, III.C, and III.D of the preamble of this final rule for more
detailed information on these subjects. PHMSA also notes this
particular consideration for pipe rated at higher temperatures is
already in Sec. 192.121, which allows an operator to use an HDB of a
higher temperature when using arithmetic interpolation using procedures
called out in Part D.2 of PPI TR-3, (incorporated by reference, see
Sec. 192.7).
(6) General Design Requirements for Components
(a) PHMSA's Proposal
The NPRM proposed adding a new paragraph (c) to Sec. 192.143 to
specify that components used for plastic pipe must be able to withstand
the operating pressures and anticipated loads in accordance with a
listed specification. This revision makes Sec. 192.191 redundant as
the requirements for fittings to meet listed specifications are
detailed in other parts of the code; therefore, PHMSA proposed to
eliminate Sec. 192.191.
(b) Summary of Comments
NAPSR supported the proposal but suggested revising Sec. 192.143
to include the language, ``in accordance with the listed specification
for the plastic component being installed.'' NAPSR commented that this
wording would provide additional clarification.
NiSource and R.W. Lyall expressed concern that, as written, the
proposal would require excess flow valves (EFVs) to meet a listed
specification. However an EFV specification has not yet been
incorporated. The commenters suggested that PHMSA either exempt EFVs
from the specification requirement or incorporate by reference an EFV
specification such as ASTM F2138, ``Standard Specification for Excess
Flow Valves for Natural Gas Service'' (ASTM F2138).
(c) PHMSA's Response
PHMSA appreciates NAPSR's desire to clarify the applicability of
certain standards, but, after careful consideration, PHMSA believes the
existing language and the referenced standards are sufficiently clear
for operators to know to use the standard for the appropriate component
type and material. Therefore, PHMSA is not making further changes to
this requirement in this final rule.
Regarding EFVs, PHMSA did not intend to create conflict with EFV
requirements. PHMSA has therefore revised the final rule to exempt EFVs
from the requirement to meet a listed specification since there is not
one specifically listed in Appendix B to part 192. PHMSA will consider
incorporating appropriate standards, such as ASTM F2138, in the future.
(7) General Design Requirements for Valves
(a) PHMSA's Proposal
PHMSA proposed adding a new Sec. 192.145(f) to specify that valves
on plastic pipe must meet a ``listed specification'' as defined in
Sec. 192.3. In other words, valves must be manufactured in accordance
with the appropriate consensus standard incorporated by reference into
Sec. 192.7. PHMSA also proposed that plastic valves must not be used
under operating conditions that exceed the applicable temperature or
temperature ratings detailed in the listed specification and consistent
with Sec. 192.145(a).
(b) Summary of Comments
AGA and TPA requested that the language in Sec. 192.145(f) be
revised to clarify that the requirements for new valves do not apply
retroactively.
NAPSR suggested revising the specification requirement to require
that valves meet the listed specification for the particular valve
being installed.
(c) PHMSA's Response
PHMSA notes that the requirements in Sec. 192.145 do not apply
retroactively. PHMSA appreciates NAPSR's desire to clarify the
applicability of certain standards; however, the agency believes the
existing language and the referenced standards are sufficiently clear
for operators to know to use the appropriate standard for the valve
type and material being installed. Therefore, PHMSA is not making
further changes to this requirement in this final rule.
(8) General Design Requirements for Standard Fittings
(a) PHMSA's Proposal
PHMSA proposed adding Sec. 192.149(c) to clarify that a plastic
pipe fitting may only be used if it meets a listed specification. This
ensures that standard fittings meet minimum technical standards
detailed in industry consensus standards.
(b) Summary of Comments
NAPSR supported the proposal but suggested revising the language to
require components to meet the listed specification for the specific
part being installed.
Volgstadt and Associates suggested incorporating ASTM D3261 for PE
butt-fusion fittings and ASTM D2683 for PE socket-fusion fittings.
(c) PHMSA's Response
In this final rule, PHMSA is issuing this section as originally
proposed. As with the previous section, PHMSA has
[[Page 58710]]
determined that the language of this requirement is sufficiently clear
with the existing wording. Regarding the additional standards proposed,
PHMSA cannot incorporate additional standards in the final rule stage
that were not proposed and commented on in the NPRM stage. However,
PHMSA will consider incorporating applicable standards in future
rulemakings.
(9) Test Requirements for Plastic Pipelines
(a) PHMSA's Proposal
The NPRM proposed revising Sec. 192.513(c) to reduce the maximum
test-pressure limit for plastic pipe to from 3.0 to 2.5 times the
pressure determined under Sec. 192.121. Given the other design
limitations in the current Sec. [thinsp]192.123 for PE and PA-11, and
the revisions being proposed in this rule for PE, PA-11, and PA-12,
PHMSA believes that plastic pipe will potentially be overstressed if
tested to 3 times the pressure determined under Sec. [thinsp]192.121.
(b) Summary of Comments
NAPSR and Arkema submitted comments supporting the proposed
changes.
(c) PHMSA's Response
PHMSA did not receive comments critical of this proposal.
Therefore, the final rule incorporates this requirement as originally
proposed.
IV. Standards Incorporated by Reference
A. Summary of New and Revised Standards
Consistent with the amendments in this document, PHMSA is
incorporating by reference several standards as described in more
detail below. Some of these standards are simply updates to existing
standards that are already incorporated by reference, while others
provide a technical basis for corresponding regulatory changes in the
Final Rule, notably the provisions related to PA-11 and PA-12 piping
systems.
ASTM D2513-12ael ``Standard Specification for Polyethylene
(PE) Gas Pressure Pipe, Tubing, and Fittings,'' 4/12/2012. This
specification covers requirements and test methods for material
dimensions and tolerances; hydrostatic burst strength; chemical
resistance; and rapid crack resistance of polyethylene pipe, tubing,
and fittings for use in fuel gas mains and services for direct burial
and reliner applications. The pipe and fittings covered by this
specification are for use in the distribution of natural gas.
Requirements for the qualifying of polyethylene systems for use with
liquefied petroleum gas are also covered.
This standard is an update to standard ASTM D2513-09a (12/1/2009),
which is currently incorporated by reference in the CFR. The updated
version of this standard adds ASTM F2897 ``Specification for Tracking
and Traceability Encoding System of Natural Gas Distribution Components
(Pipe, Tubing, Fittings, Valves, and Appurtenances)'' to its referenced
document list in Section 2. There is also a new Section 7.6 to address
additional marking requirements for incorporating the 16-character code
onto PE Pipe and Fittings. The standard also now limits pipe material
designation codes to PE 2708 and PE4710 to be consistent with PHMSA DOT
Part 192.
ASTM F2785-12 ``Standard Specification for Polyamide 12
Gas Pressure Pipe, Tubing, and Fittings,'' 8/1/2012. This specification
covers requirements and test methods for the characterization of PA-12
pipe, tubing, and fittings for use in fuel gas mains and services for
direct burial and reliner applications. The pipe and fittings covered
by this specification are for use in the distribution of natural gas.
No version of this specification is currently in the CFR.
The final rule will permit the use of PA-12 plastic pipe, which is
not permitted under existing regulations. In order to facilitate this
change, PA-12 pipe and fittings will need to follow a listed
specification, and reference to commonly used industry standards (ASTM
F2785) is a preferred approach. Adding dedicated and material specific
standards for both PA-11 and PA-12 will also allow PHMSA to remove two
much older versions of ASTM D2513 (ASTM D2513-87 and ASTM D2513-99)
that are currently referenced for thermoplastic materials other than
PE. Overall, this change gives operators additional flexibility in
choice of material.
ASTM F2945-12a ``Standard Specification for Polyamide 11
Gas Pressure Pipe, Tubing, and Fittings,'' 11/27/2012. This
specification covers requirements and test methods for the
characterization of PA-11 pipe, tubing, and fittings for use in fuel
gas piping. No version of this specification is currently in the CFR.
The final rule will expand operators' ability to use PA-11 plastic
pipe. PA-11 is currently allowed but with certain limitations on
pressure and dimensions. The rule will also update regulations to align
with more current industry standards for PA-11 (i.e. the ASTM F2945
standard). Adding dedicated and newer material specific standards for
both PA-11 and PA-12 will also allow PHMSA to remove two much older
versions of ASTM D2513 (ASTM D2513-87 and ASTM D2513-99) that are
currently referenced for thermoplastic materials other than PE.
Overall, these changes give operators additional flexibility in choice
of material.
ASTM F2620-12 ``Standard Practice for Heat Fusion Joining
of Polyethylene Pipe and Fittings,'' 8/01/2013. This practice describes
procedures for making joints with PE pipe and fittings by means of
heat-fusion joining in, but not limited to, a field environment. The
parameters and procedures are applicable only to joining PE pipe and
fittings of related polymer chemistry. No version of this standard is
currently in the CFR.
The final rule includes a new provision related to heat fusion
joints for PE pipe, stating that these must comply with the relevant
standard (ASTM F2620-12). Although some comments were received
objecting to this change, these were either based on a misunderstanding
of the proposal or of the standard itself, as discussed in the comment
summary above. PHMSA believes that this will help address gaps and
inconsistencies in joining procedures.
ASTM D2564-12 ``Standard Specification for Solvent Cements
for Poly (Vinyl Chloride) (PVC) Plastic Piping Systems'' 08/01/2012.
This specification covers requirements for solvent cements used in
joining PVC piping systems.
The final rule includes a minor correction updating and providing a
more direct reference to the technical standard for solvent cements and
noting that the requirements in this standard apply only to PVC pipe.
ASTM D2564 had been a referenced document in the previous versions of
ASTM D2513 that applied to all thermoplastics, which in turn was
incorporated by reference into PHMSA regulation. With the removal of
ASTM D2513-99 and ASTM D2513-99 that is currently referenced for all
thermoplastics other than PE, standards need to be included to apply to
PVC piping systems that are still in use today (although typically for
maintenance or repair only). In addition to referencing ASTM F2817-10
for Maintenance and Repair of PVC, PHMSA believes it is important to
reference this standard for the specific solvent to be used. Even with
it being included as a referenced document within the standard
previously, PHMSA and States have
[[Page 58711]]
found cases occasionally where non-listed solvents were used
contributing to improper joints.
ASTM F1924-12, ``Standard Specification for Plastic
Mechanical Fittings for Use on Outside Diameter Controlled Polyethylene
Gas Distribution Pipe and Tubing,'' 4/01/2012. This specification
describes test methods and material requirements for plastic mechanical
fittings for use with outside diameter-controlled PE gas distribution
pipe smaller than 2-inch IPS. No version of this specification is
currently in the CFR.
The final rule revises the regulations for mechanical joints and
fittings by adding requirements for seal plus pullout resistance and
citing the relevant industry standard(s). The allowable fittings are
already widely in use and have little to no cost difference from other
fittings for either labor or materials. This item would be added as a
Listed Specification in Appendix B to Part 192-Qualification of Pipe
and Components.
ASTM F2817-10 ``Standard Specification for Poly (Vinyl
Chloride) (PVC) Gas Pressure Pipe and Fittings for Maintenance or
Repair,'' (PVC components only) 02/01/2010. This specification covers
requirements for PVC pipe and tubing for use only to maintain or repair
existing PVC gas piping. No version of this specification is currently
in the CFR.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. With the removal of ASTM
D2513-99 and ASTM D2513-99 that is currently referenced for all
thermoplastics other than PE, standards need to be included to apply to
PVC piping systems that are still in use today (although typically for
maintenance or repair only).
ASTM F 2600-09 ``Standard Specification for Electrofusion
Type Polyamide-11 Fittings for Outside Diameter Controlled Polyamide-11
Pipe and Tubing,'' 4/1/2009. This specification covers PA-11
electrofusion fittings for use with outside-diameter controlled PA-11
pipe covered by Specification D2513. Requirements for materials,
workmanship, and testing performance are included. No version of this
specification is currently in the CFR.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. With new material
specific standards being added for PA-11 and other standards being
added for components in this rule, there is a need to add F2600 for
Electrofusion PA-11 fittings, similar to how ASTM F1055 is currently
referenced for PE Electrofusion Fittings.
ASTM F2767-12 ``Specification for Electrofusion Type
Polyamide-12 Fittings for Outside Diameter Controlled Polyamide-12 Pipe
and Tubing for Gas Distribution'' 10/15/2012.--This specification
applies to PA-12 electrofusion fittings for use with outside diameter-
controlled PA-12 pipes addressed by Specification F2785. No version of
this specification is currently in the CFR.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. With new material,
specific standards being added for PA-12 and other standards being
added for components in this rule, there is a need to add F2767 for
Electrofusion PA-12 fittings, similar to how ASTM F1055 is currently
referenced for PE Electrofusion Fittings.
ASTM F2145-13 ``Standard Specification for Polyamide 11
(PA 11) and Polyamide 12 (PA12) Mechanical Fittings for Use on Outside
Diameter Controlled Polyamide 11 and Polyamide 12 Pipe and Tubing,''
05/01/2013. This specification describes requirements and test methods
for the qualification of PA-11 and PA-12 bodied mechanical fittings for
use with outside diameter-controlled PA-11 and PA-12, with 2-inch-and-
smaller IPS complying with Specification D2513 and F2785. In addition,
it specifies general requirements of the material from which these
fittings are made. No version of this specification is currently in the
CFR.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. With new material
specific standards being added for PA-11 and PA-12 and other standards
being added for components in this rule, there is a need to add F2145
for PA-11 and PA-12 mechanical fittings.
ASTM F1948-12 ``Standard Specification for Metallic
Mechanical Fittings for Use on Outside Diameter Controlled
Thermoplastic Gas Distribution Pipe and Tubing,'' 04/01/2012. This
specification covers requirements and test methods for the
qualification of metallic mechanical fittings for use with outside
diameter-controlled thermoplastic gas distribution pipe and tubing as
specified in Specification D2513. No version of this specification is
currently in the CFR.
The final rule revises the regulations for mechanical joints and
fittings by adding requirements for seal plus pullout resistance and
citing the relevant industry standard(s). The allowable fittings are
already widely in use.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. With new material
specific standards being added and other standards being added for
components in this rule, there is a need to add F1948 for metallic
mechanical fittings on thermoplastic pipe. This standard would apply to
metallic fittings used on multiple types of thermoplastic pipe (i.e.
PE, PA-11 and PA-12).
ASTM F1973-13 ``Standard Specification for Factory
Assembled Anodeless Risers and Transition Fittings in Polyethylene (PE)
and Polyamide 11 (PA11) and Polyamide 12 (PA12) Fuel Gas Distribution
Systems,'' 05/01/2013. This specification covers requirements and test
methods for the qualification of factory assembled anodeless risers and
transition fittings for use in PE pipe sizes through Nominal Pipe Size
(NPS) 8, and for PA-11 and PA-12 sizes through NPS 6. No version of
this standard is currently in the CFR.
The final rule uses this standard to establish the procedures for
designing and testing factory assembled anodeless risers. The standard
also provides a definition for Category 1 fittings on plastic pipe.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components.
ASME B16.40-08 ``Manually Operated Thermoplastic Gas
Shutoffs and Valves in Gas Distribution Systems,'' 03/18/2008. This
standard defines design qualification requirements for manually
operated thermoplastic valves in nominal valve sized from \1/2\-
through 12 inches that are intended for use below ground in
thermoplastic fuel gas distribution mains and service lines. No version
of this standard is currently in the CFR.
This item would be added as a Listed Specification in Appendix B to
Part 192-Qualification of Pipe and Components. This standard is
included based on a petition to include thermoplastic valves.
PPI TR-4, HDB/HDS/SDB/MRS, Listed Materials, ``PPI Listing
of Hydrostatic Design Basis (HDB), Hydrostatic Design Stress (HDS),
Strength Design Basis (SDB), Pressure Design Basis (PDB) and Minimum
Required Strength (MRS) Rating For Thermoplastic Piping Materials or
Pipe,'' updated March, 2011. This report lists thermoplastic piping
materials with a PPI recommended HDB, Strength Design Basis (SDB),
Pressure Design Basis (PDB), or Minimum Required Strength (MRS) rating
for thermoplastic piping materials or pipe. These listings
[[Page 58712]]
have been established in accordance with PPI TR-3. No version of this
listing is currently in the CFR directly, although PPI TR-4 has been
incorporated indirectly through PPI TR-3 and other requirements for
determining design pressure for pipe.
The final rule requires that all plastic pipe, when designed, must
have a listed Hydrostatic Design Basis (HDB) rating in accordance with
this standard.
PHMSA also updated the following standards, which are summarized
below:
ASTM F1055-98 (reapproved 2006) ``Standard Specification
for Electrofusion Type Polyethylene Fittings for Outside Diameter
Controlled Polyethylene Pipe and Tubing,'' 3/1/2006. This specification
covers electrofusion polyethylene fittings for use with outside
diameter-controlled polyethylene pipe covered by Specifications D2447,
D 2513, D2737, D3035, and F714. This specification is a 2006 reaffirmed
version of the 1998 version, meaning the technical content of the
standard hasn't changed, but the ASTM technical committee procedurally
reviewed it to keep it active.
With the changes being made to the regulations and other component
specifications for other materials such as PA-11 and PA-12 being added,
the language in 192.283(a) that previously only mentioned F1055 for PE
is being revised. Along with the applicable component specifications
for other material types, this item would be added as a Listed
Specification in Appendix B to Part 192-Qualification of Pipe and
Components.
PPI TR-3/2012, HDB/HDS/PDB/SDB/MRS/CRS, Policies,
``Policies and Procedures for Developing Hydrostatic Design Basis
(HDB), Hydrostatic Design Stresses (HDS), Pressure Design Basis (PDB),
Strength Design Basis (SDB), Minimum Required Strength (MRS) Ratings,
and Categorized Required Strength (CRS) for Thermoplastic Piping
Materials or Pipe,'' updated November 2012. This report presents the
policies and procedures used by the HSB (Hydrostatic Stress Board) of
PPI to develop recommendations of long-term strength ratings for
commercial thermoplastic piping materials or pipe. This version is an
update to the 2008 version currently incorporated by reference. A more
detailed summary of updates to the 2010 version (successor to the 2008
version) is available in the 2012 document itself. Recommendations are
published in PPI TR-4. Both documents are freely available on the
internet as of the date of publication of this final rule.
The final rule describes the standard as a procedure that can be
used to determine a design pressure rating. This is an updated version
of the standard currently referenced in the regulations.
B. Availability of Standards Incorporated by Reference
PHMSA currently incorporates by reference into 49 CFR parts 192,
193, and 195 all or parts of more than 60 standards and specifications
developed and published by SDOs. In general, SDOs update and revise
their published standards every two to five years to reflect modern
technology and best technical practices. ASTM often updates some of its
more widely used standards every year. Sometimes multiple editions are
published in a given year.
In accordance with the NTTAA, PHMSA has the responsibility for
determining, via petitions or otherwise, which currently referenced
standards should be updated, revised, or removed, and which standards
should be added to 49 CFR parts 192, 193, and 195. Revisions to
incorporated by reference materials in parts 192, 193, and 195 are
handled via the rulemaking process, which allows for the public and
regulated entities to provide input. During the rulemaking process,
PHMSA must also obtain approval from the Office of the Federal Register
to incorporate by reference any new materials.
On January 3, 2012, President Obama signed the Pipeline Safety,
Regulatory Certainty, and Job Creation Act of 2011, Public Law 112-90.
Section 24 of that law states: ``Beginning 1 year after the date of
enactment of this subsection, the Secretary may not issue guidance or a
regulation pursuant to this chapter that incorporates by reference any
documents or portions thereof unless the documents or portions thereof
are made available to the public, free of charge, on an internet
website.'' 49 U.S.C. 60102(p).
On August 9, 2013, Public Law 113-30 revised 49 U.S.C. 60102(p) to
replace ``1 year'' with ``3 years'' and remove the phrases ``guidance
or'' and, ``on an internet website.'' This resulted in the current
language in 49 U.S.C. 60102(p), which now reads as follows:
Beginning 3 years after the date of enactment of this
subsection, the Secretary may not issue a regulation pursuant to
this chapter that incorporates by reference any documents or
portions thereof unless the documents or portions thereof are made
available to the public, free of charge.
On November 7, 2014, the Office of the Federal Register issued a
final rule that revised 1 CFR 51.5 to require that Federal agencies
include a discussion in the preamble of the final rule ``the ways the
materials it incorporates by reference are reasonably available to
interested parties and how interested parties can obtain the
materials.'' 79 FR 66278. To meet its statutory obligation for this
final rule, PHMSA negotiated an agreement with ASTM to provide viewable
copies of standards incorporated by reference in the PSR available to
the public at no cost. The Plastics Pipe Institute provides free
electronic copies of their standards on their website (http://plasticpipe.org/publications/technical-reports.html). Each
organization's mailing address and the website are listed in Sec.
192.7.
In addition, PHMSA will provide individual members of the public
temporary access to any standard that is incorporated by reference that
is not otherwise available for free. This includes the one ASME
standard described in the previous paragraph. Requests for access can
be sent to the following email address: [email protected]
V. Regulatory Analysis and Notices
Summary/Legal Authority for This Rulemaking
This final rule is published under the authority of the Federal
pipeline safety statutes. 49 U.S.C. 60101 et seq. Section 60102
authorizes the Secretary of Transportation to issue regulations
governing the design, installation, inspection, emergency plans and
procedures, testing, construction, extension, operation, replacement,
and maintenance of pipeline facilities. Further, section 60102(l) of
the Federal pipeline safety statutes states that the Secretary shall,
to the extent appropriate and practicable, update incorporated industry
standards that have been adopted as a part of the PSR. This final rule
will modify the PSR applicable to plastic pipe used in the
transportation of gas.
Executive Order 12866, Executive Order 13563, Executive Order 13771,
and DOT Regulatory Policies and Procedures
This final rule is a significant regulatory action under Executive
Order 12866, 58 FR 51735, and the Regulatory Policies and Procedures of
the Department of Transportation. The rule was therefore reviewed by
the Office of Management and Budget. A Regulatory Impact Analysis with
estimates of the costs and benefits of the final rule is available in
the docket. Executive Order 12866, as supplemented by Executive Order
13563, 76 FR 3821, requires agencies to regulate in the ``most cost-
effective manner,'' to make a ``reasoned
[[Page 58713]]
determination that the benefits of the intended regulation justify its
costs,'' and to develop regulations that ``impose the least burden on
society.'' PHMSA is amending the PSR with regard to plastic pipe to
improve compliance with these regulations by updating and adding
references to technical standards and providing clarification. PHMSA
anticipates that the amendments contained in this final rule will have
net economic benefits to the public. The final rule enhances safety,
reduces costs for the regulated community, improves regulatory clarity,
increases ease of compliance, and provides additional flexibility in
gas pipeline material choices. A copy of the regulatory evaluation is
available for review in the docket.
This final rule is considered an E.O. 13771 deregulatory action.
Details on the estimated cost savings of this rule can be found in the
rule's economic analysis.
Regulatory Flexibility Act
The Regulatory Flexibility Act requires an agency to review
regulations to assess their impact on small entities unless the agency
determines that a rule is not expected to have a significant impact on
a substantial number of small entities. 5 U.S.C. 601 et seq. This final
rule has been developed in accordance with Executive Order 13272,
``Proper Consideration of Small Entities in Agency Rulemaking,'' 67 FR
53461, and DOT's procedures and policies to promote compliance with the
Regulatory Flexibility Act to ensure that potential impacts of rules on
small entities are properly considered.
While PHMSA does not collect information on the number of employees
or revenues of pipeline operators, it does continuously seek
information on the number of small pipeline operators to more fully
determine any impacts PHMSA's proposed regulations may have on small
entities. This final rule proposes to require small and large operators
to comply with these requirements. Based on the results of PHMSA's
Final Regulatory Flexibility Analysis, PHMSA has determined that the
final rule will not have a significant economic impact on a substantial
number of small entities. The final Regulatory Flexibility Act Analysis
is included in the Regulatory Impact Analysis, available via
regulations.gov.
Executive Order 13175
PHMSA has analyzed this final rule according to the principles and
criteria in Executive Order 13175, ``Consultation and Coordination with
Indian Tribal Governments,'' 65 FR 67249. Because this final rule does
not significantly or uniquely affect the communities of the Indian
tribal governments or impose substantial direct compliance costs, the
funding and consultation requirements of Executive Order 13175 do not
apply.
Paperwork Reduction Act
PHMSA has analyzed this final rule in accordance with the Paperwork
Reduction Act of 1995 (PRA). Public Law 96-511. The PRA requires
federal agencies to minimize paperwork burden imposed on the American
public by ensuring maximum utility and quality of Federal information,
ensuring the use of information technology to improve Government
performance and improving the Federal government's accountability for
managing information collection activities. This final rule does not
impose any new information collection requirements.
Unfunded Mandates Reform Act of 1995
This final rule does not impose unfunded mandates under the
Unfunded Mandates Reform Act of 1995. Public Law 104-4. It would not
result in costs of $100 million, adjusted for inflation, or more in any
one year to either State, local, or tribal governments, in the
aggregate, or to the private sector, and is the least burdensome
alternative that achieves the objective of the final rule.
National Environmental Policy Act
PHMSA analyzed this final rule 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 U.S.
DOT Order 5610.1C, and has determined that this action will not
significantly affect the quality of the human environment. An
environmental assessment of this rulemaking is available in the docket.
Privacy Act Statement
Anyone can search the electronic form of written communications and
comments received into our dockets by the name of the individual
submitting the document (or signing the document, if submitted on
behalf of an association, business, labor union, etc.). You may review
DOT's complete Privacy Act Statement, published on April 11, 2000 (65
FR 19476), in the Federal Register at: https://www.gpo.gov/fdsys/pkg/FR-2000-04-11/pdf/00-8505.pdf.
Executive Order 13132
PHMSA has analyzed this final rule according to Executive Order
13132, ``Federalism,'' 64 FR 43255. The final rule does not have a
substantial direct effect 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. This final
rule does not impose substantial direct compliance costs on State and
local governments. This final rule does not preempt State law for
intrastate pipelines. Therefore, the consultation and funding
requirements of Executive Order 13132 do not apply Executive Order
13211.
This final rule is not a ``significant energy action'' under
Executive Order 13211, ``Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use,'' 66 FR
28355. It is not likely to have a significant adverse effect on energy
supply, distribution, or use. Further, the Office of Information and
Regulatory Affairs has not designated this final rule as a significant
energy action.
Regulation Identifier Number
A regulation identifier number (RIN) is assigned to each regulatory
action listed in the Unified Agenda of Federal Regulations. The
Regulatory Information Service Center publishes the Unified Agenda in
the spring and fall of each year. The RIN contained in the heading of
this document can be used to cross-reference this action with the
Unified Agenda.
VI. Section-by-Section Analysis
Section 192.3 Definitions
Section 192.3 provides definitions for various terms used
throughout part 192. In support of other provisions in this final rule,
PHMSA has added a definition for ``weak link'' that outlines methods
used to avoid overstressing plastic pipe during trenchless excavation.
Section 192.7 What documents are incorporated by reference partly or
wholly in this part?
Section 192.7 contains a list of all standards incorporated by
reference in part 192. This final rule adds or updates a number of
standards related to plastic pipe, fittings, and other components made
of PE, PA-11, and PA-12. PHMSA is also adding a standard for
maintenance or repair of PVC segments.
Section 192.9 What requirements apply to gathering lines?
Section 192.9 identifies those portions of part 192 that apply to
regulated gas gathering lines. PHMSA amended this section by adding a
new paragraph (d)(3) to specify that newly constructed
[[Page 58714]]
Type B regulated gas gathering pipelines made of plastic must comply
with all requirements of part 192 applicable to plastic pipe. The
previously existing language in paragraphs (d)(3)-(d)(7) have remained
the same, but have been reordered to paragraphs (d)(4)-(d)(8) in this
final rule.
Section 192.59 Plastic Pipe
Section 192.59 specifies requirements for plastic pipe materials.
This final rule amends this section by requiring operators to verify
that all pipe is free of visible defects prior to installation and
permit the use of pipe that had been previously used in gas service
other than natural gas.
Section 192.63 Marking of Materials
Section 192.63 currently specifies requirements for the type and
content of markings of pipe segments, valves, and fittings. In this
final rule, PHMSA revises paragraph (a) to delete paragraphs (a)(1) and
(a)(2). The revised paragraph (a) requires that materials be marked in
accordance with the appropriate listed specification.
Section 192.67 Storage and Handling of Plastic Pipelines
The newly added Sec. 192.67 establishes storage and handling
standards for plastic pipeline components.
Section 192.121 Design of Plastic Pipe
Section 192.121 has been amended to specify the design requirements
for newly installed plastic tubing made of PE, PA-11, and PA-12. In
response to petitions, PHMSA has revised the maximum specifications for
PE pipe and permitted the use of PA-12 in gas service. New and replaced
PE pipe may now operate with a design factor of 0.40 (previously 0.32),
though it is limited to a minimum wall thickness of 0.090 inches. New
and replaced PA-11 pipe may now be operated with a design factor of
0.40, a maximum pressure up to 250 psig (previously 200) and a maximum
diameter of 6 inches (previously 4). Operators are now permitted to
install PA-12 with a design factor of 0.40, a maximum pressure up to
250 psig, and a maximum diameter of 6 inches. Finally, the design
limitations which were previously located in Sec. 192.123 have been
merged into this section.
Section 192.123 [Removed and Reserved]
Section 192.123 previously contained design limitations for plastic
pipe; however, this content has been merged into Sec. 192.121.
Section 192.143 General Requirements
Section 192.143 contains general design provisions for pipeline
components. For clarity, PHMSA added a new paragraph (c) to specify
that components used for plastic pipe must be able to withstand
operating pressures and anticipated loads in accordance with a listed
specification, as defined in Sec. 192.3.
Section 192.145 Valves
Section 192.143 contains general design provisions for pipeline
valves. For clarity, PHMSA has added a new paragraph (f) to specify
that plastic valves must be designed to meet a ``listed specification''
as defined in Sec. 192.3 and not operated in conditions that exceed
the applicable pressure or temperature ratings detailed in the
applicable listed specification.
Section 192.149 Standard Fittings
Section 192.149 contains general design provisions for pipeline
fittings. For clarity, PHMSA added a new paragraph (c) to specify that
a plastic fitting may only be installed if it meets a listed
specification, as defined in Sec. 192.3.
Section 192.191 Design Pressure of Plastic Fittings [Removed and
Reserved]
Section 192.191 is now redundant with the addition of Sec.
192.143(c) and has been removed and reserved.
Section 192.204 Risers
Section 192.204 is new and establishes requirements for the design
and construction of risers. PHMSA now requires all riser designs to be
tested to ensure safe performance under anticipated external and
internal loads. This section also requires factory assembled anodeless
risers to be designed and tested in accordance with ASTM F1973 and
allows the use of plastic risers from plastic mains to regulator
stations with certain expectations and limitations.
Section 192.281 Plastic Pipe
Section 192.281 details the requirements for joining plastic pipe.
To reduce confusion and promote safety, PHMSA is making several
revisions to Sec. 192.281. Paragraphs (b)(2) and (3) are revised to
clarify that solvent cements may only be used to join PVC components
and may not be heated or cooled to accelerate setting. Paragraph (c) is
revised to specify that the joining requirements apply to both the pipe
and components that are joined to the pipe, and for PE joints except
for electrofusion must comply with ASTM F2620-12. Paragraphs (e)(3) and
(4) are added to require that newly installed mechanical fittings must
meet a listed specification and provide Category 1 seal and resistance.
Section 192.283 Plastic Pipe: Qualifying Joining Procedures
Section 192.283 details the requirements for qualifying plastic
pipe joining procedures. PHMSA is incorporating requirements for
mechanical joints or fittings to be Category 1. Since PHMSA is also
incorporating new standards applicable to PE, PA-11 and PA-12 materials
as part of this rule, this section is revised to remove references to
two versions of ASTM D2513 (depending on whether it's PE or plastic
materials other than PE) and instead require operators test procedures
in accordance with the appropriate listed specification. PHMSA is also
repealing the obsolete Sec. 192.283(d), which allowed operators to
install used pipe or fittings manufactured before July 1, 1980, if they
are joined in accordance with procedures that the manufacturer
certifies will produce a joint strong as the pipe.
Section 192.285 Plastic Pipe: Qualifying Persons To Make Joints
Section 192.285 details the requirements for qualifying persons to
make joints. This final rule amends Sec. 192.285 to incorporate
several revisions. Section 192.285(a)(2) previously specified that a
person must make a specimen joint that is subjected to the testing
detailed in Sec. 192.285(b). PHMSA referenced ASTM F2620-12 (Standard
Practice for Heat Fusion Joining of Polyethylene Pipe and Fittings)
applicable to PE pipe and fittings (except for electrofusion).
Section 192.313 Bends and Elbows
Section 192.313 details standards for bends and elbows in pipe,
however, it did not previously address plastic pipe. This final rule
adds a new paragraph (d) requiring that operators may only make bends
in plastic pipe with a bend radius greater than the minimum bend radius
specified by the manufacturer.
Section 192.321 Installation of Plastic Pipelines
Section 192.321 details requirements for the installation of
plastic pipe transmission lines and mains. This final rule makes
several amendments to this section. Paragraph (d) is revised to require
newly installed plastic pipe have a wall thickness consistent with
Sec. 192.121. PHMSA has also revised paragraph (f) to specify that the
plastic
[[Page 58715]]
pipe must be protected from damage at both the entrance and exit of the
casing during the installation process. Due to the merger of Sec. Sec.
192.121 and 192.123, PHMSA has corrected Sec. 192.321(h)(3) to refer
to Sec. 192.121. Finally, a new paragraph (i) has been added to allow
for the aboveground termination of plastic mains under certain
conditions.
Section 192.329 Installation of Plastic Pipelines by Trenchless
Excavation
The newly added Sec. 192.329 establishes requirements for the
installation of plastic pipe by trenchless excavation. During
trenchless installation of plastic pipe, operators must now use a weak
link as defined in Sec. 192.3 and take practicable steps to avoid
striking other underground structures.
Section 192.367 Service Lines: General Requirements for Connections to
Main Piping
Section 192.367 specifies requirements for service line connections
to mains. Paragraph (b) specifies requirements for compression-type
fittings for service-line main connections. Similar to the new
requirements for other fittings, paragraph (b) is amended to require
that operators must use Category 1 compression-type fittings.
Section 192.375 Service Lines: Plastic
Section 192.375 requires that plastic service lines be installed
underground with limited exceptions. The final rule amends this section
to apply the riser standards in Sec. 192.204 to aboveground service
lines.
Section 192.376 Installation of Plastic Service Lines by Trenchless
Excavation
Section 192.376 is a new section that establishes new requirements
for trenchless excavation installation of plastic service lines.
Similar to Sec. 192.329, during trenchless installation of service
lines, operators must now take steps to avoid other underground
structures and use a weak link device during the pull through process
to avoid overstressing the pipeline.
Section 192.455 External Corrosion Control: Buried or Submerged
Pipelines Installed After July 31, 1971
Section 192.455 details the external corrosion control requirements
for all buried or submerged pipe. PHMSA has added a new paragraph (g)
to require cathodic protection on electrically isolated metal fittings
on plastic pipelines not meeting the exceptions in paragraph (f)
installed after the effective date of the rule. Such fittings must also
be maintained in accordance with the operator's integrity management
plans.
Section 192.513 Test Requirements for Plastic Pipelines
Section 192.513 details the minimum initial testing requirements
for plastic pipelines. The final rule amends paragraph (c) to reduce
the maximum limit for testing pressure from 3 times the pressure
determined under Sec. 192.121 to 2.5 times the maximum pressure to
avoid overstressing the line during testing.
Section 192.720 Distribution Systems: Leak Repair
The final rule adds a new Sec. 192.720 prohibiting the use of
temporary mechanical leak repair clamps as a permanent repair of
plastic pipe used in distribution service.
Section 192.756 Joining Plastic Pipe by Heat Fusion; Equipment
Maintenance
The final rule adds a new Sec. 192.756 that establishes minimum
requirements for equipment maintenance for equipment used in the heat
fusion of plastic pipe.
List of Subjects in 49 CFR Part 192
Incorporation by reference, Pipeline safety, Plastic pipe, Security
measures.
In consideration of the foregoing, PHMSA is amending 49 CFR part
192 as follows:
PART 192--TRANSPORTATION OF NATURAL AND OTHER GAS BY PIPELINE:
MINIMUM FEDERAL SAFETY STANDARDS
0
1. The authority citation for part 192 is revised to read as follows:
Authority: 49 U.S.C. 5103, 60102, 60104, 60108, 60109, 60110,
60113, 60116, 60118, 60137, and 60141; and 49 CFR 1.97.
0
2. In Sec. 192.3, add a definition of ``weak link'' in alphabetical
order to read as follows:
Sec. 192.3 Definitions.
* * * * *
Weak link means a device or method used when pulling polyethylene
pipe, typically through methods such as horizontal directional
drilling, to ensure that damage will not occur to the pipeline by
exceeding the maximum tensile stresses allowed.
* * * * *
0
3. Amend Sec. 192.7 as follows:
0
a. Redesignate paragraphs (c)(3) through (c)(9) as paragraphs (c)(4)
through (c)(10);
0
b. Add new paragraph (c)(3);
0
c. Revise paragraphs (d)(11) through (d)(15);
0
d. Add paragraphs (d)(16) through (d)(24); and
0
e. Revise paragraph (j)(1) and add paragraph (j)(2).
The additions and revisions read as follows:
Sec. 192.7 What documents are incorporated by reference partly or
wholly in this part?
* * * * *
(c) * * *
(3) ASME B16.40-2008, ``Manually Operated Thermoplastic Gas
Shutoffs and Valves in Gas Distribution Systems,'' March 18, 2008,
approved by ANSI, (ASME B16.40-2008), IBR approved for Item I, Appendix
B to Part 192.
* * * * *
(d) * * *
(11) ASTM D2513-12ae1, ``Standard Specification for Polyethylene
(PE) Gas Pressure Pipe, Tubing, and Fittings,'' April 1, 2012, (ASTM
D2513-12ae1), IBR approved for Item I, Appendix B to Part 192.
(12) ASTM D2517-00, ``Standard Specification for Reinforced Epoxy
Resin Gas Pressure Pipe and Fittings,'' (ASTM D 2517), IBR approved for
Sec. Sec. 192.191(a); 192.281(d); 192.283(a); and Item I, Appendix B
to Part 192.
(13) ASTM D2564-12, ``Standard Specification for Solvent Cements
for Poly (Vinyl Chloride) (PVC) Plastic Piping Systems,'' Aug. 1, 2012,
(ASTM D2564-12), IBR approved for Sec. 192.281(b)(2).
(14) ASTM F1055-98 (Reapproved 2006), ``Standard Specification for
Electrofusion Type Polyethylene Fittings for Outside Diameter
Controlled Polyethylene Pipe and Tubing,'' March 1, 2006, (ASTM F1055-
98 (2006)), IBR approved for Sec. 192.283(a), Item I, Appendix B to
Part 192.
(15) ASTM F1924-12, ``Standard Specification for Plastic Mechanical
Fittings for Use on Outside Diameter Controlled Polyethylene Gas
Distribution Pipe and Tubing,'' April 1, 2012, (ASTM F1924-12), IBR
approved for Item I, Appendix B to Part 192.
(16) ASTM F1948-12, ``Standard Specification for Metallic
Mechanical Fittings for Use on Outside Diameter Controlled
Thermoplastic Gas Distribution Pipe and Tubing,'' April 1, 2012, (ASTM
F1948-12), IBR approved for Item I, Appendix B to Part 192.
(17) ASTM F1973-13, ``Standard Specification for Factory Assembled
Anodeless Risers and Transition Fittings in Polyethylene (PE) and
Polyamide 11 (PA11) and Polyamide 12 (PA12) Fuel Gas Distribution
Systems,'' May 1, 2013, (ASTM F1973-13), IBR approved for Sec.
192.204(b); and Item I, Appendix B to Part 192.
[[Page 58716]]
(18) ASTM F2145-13, ``Standard Specification for Polyamide 11 (PA
11) and Polyamide 12 (PA12) Mechanical Fittings for Use on Outside
Diameter Controlled Polyamide 11 and Polyamide 12 Pipe and Tubing,''
May 1, 2013, (ASTM F2145-13), IBR approved for Item I, Appendix B to
Part 192.
(19) ASTM F 2600-09, ``Standard Specification for Electrofusion
Type Polyamide-11 Fittings for Outside Diameter Controlled Polyamide-11
Pipe and Tubing,'' April 1, 2009, (ASTM F 2600-09), IBR approved for
Item I, Appendix B to Part 192.
(20) ASTM F2620-12, ``Standard Practice for Heat Fusion Joining of
Polyethylene Pipe and Fittings,'' Aug. 1, 2012, (ASTM F2620-12), IBR
approved for Sec. Sec. 192.281(c) and 192.285(b)(2)(i).
(21) ASTM F2767-12, ``Specification for Electrofusion Type
Polyamide-12 Fittings for Outside Diameter Controlled Polyamide-12 Pipe
and Tubing for Gas Distribution,'' Oct. 15, 2012, (ASTM F2767-12), IBR
approved for Item I, Appendix B to Part 192.
(22) ASTM F2785-12, ``Standard Specification for Polyamide 12 Gas
Pressure Pipe, Tubing, and Fittings,'' Aug. 1, 2012, (ASTM F2785-12),
IBR approved for Item I, Appendix B to Part 192.
(23) ASTM F2817-10, ``Standard Specification for Poly (Vinyl
Chloride) (PVC) Gas Pressure Pipe and Fittings for Maintenance or
Repair,'' Feb. 1, 2010, (ASTM F2817-10), IBR approved for Item I,
Appendix B to Part 192.
(24) ASTM F2945-12a ``Standard Specification for Polyamide 11 Gas
Pressure Pipe, Tubing, and Fittings,'' Nov. 27, 2012, (ASTM F2945-12a),
IBR approved for Item I, Appendix B to Part 192.
* * * * *
(j) * * *
(1) PPI TR-3/2012, HDB/HDS/PDB/SDB/MRS/CRS, Policies, ``Policies
and Procedures for Developing Hydrostatic Design Basis (HDB),
Hydrostatic Design Stresses (HDS), Pressure Design Basis (PDB),
Strength Design Basis (SDB), Minimum Required Strength (MRS) Ratings,
and Categorized Required Strength (CRS) for Thermoplastic Piping
Materials or Pipe,'' updated November 2012, (PPI TR-3/2012), IBR
approved for Sec. 192.121.
(2) PPI TR-4, HDB/HDS/SDB/MRS, Listed Materials, ``PPI Listing of
Hydrostatic Design Basis (HDB), Hydrostatic Design Stress (HDS),
Strength Design Basis (SDB), Pressure Design Basis (PDB) and Minimum
Required Strength (MRS) Rating For Thermoplastic Piping Materials or
Pipe,'' updated March, 2011, (PPI TR-4/2012), IBR approved for Sec.
192.121.
0
4. In Sec. 192.9 revise paragraph (d) to read as follows:
Sec. 192.9 What requirements apply to gathering lines?
* * * * *
(d) Type B lines. An operator of a Type B regulated onshore
gathering line must comply with the following requirements:
(1) If a line is new, replaced, relocated, or otherwise changed,
the design, installation, construction, initial inspection, and initial
testing must be in accordance with requirements of this part applicable
to transmission lines;
(2) If the pipeline is metallic, control corrosion according to
requirements of subpart I of this part applicable to transmission
lines;
(3) If the pipeline contains plastic pipe or components, the
operator must comply with all applicable requirements of this part for
plastic pipe components;
(4) Carry out a damage prevention program under Sec. 192.614;
(5) Establish a public education program under Sec. 192.616;
(6) Establish the MAOP of the line under Sec. 192.619;
(7) Install and maintain line markers according to the requirements
for transmission lines in Sec. 192.707; and
(8) Conduct leakage surveys in accordance with the requirements for
transmission lines in Sec. 192.706, using leak-detection equipment,
and promptly repair hazardous leaks in accordance with Sec.
192.703(c).
* * * * *
0
5. Amend Sec. 192.59 as follows:
0
a. Revise paragraphs (a)(1) and (a)(2);
0
b. Add paragraph (a)(3): and
0
c. Revise paragraph (b)(3).
The revisions and addition read as follows:
Sec. 192.59 Plastic pipe.
(a) * * *
(1) It is manufactured in accordance with a listed specification;
(2) It is resistant to chemicals with which contact may be
anticipated; and
(3) It is free of visible defects.
(b) * * *
(3) It has been used only in gas service;
* * * * *
0
6. Amend Sec. 192.63 by revising paragraph (a) and adding paragraph
(e) to read as follows:
Sec. 192.63 Marking of materials.
(a) Except as provided in paragraph (d) and (e) of this section,
each valve, fitting, length of pipe, and other component must be marked
as prescribed in the specification or standard to which it was
manufactured.
* * * * *
(e) All plastic pipe and components must also meet the following
requirements:
(1) All markings on plastic pipe prescribed in the listed
specification and the requirements of paragraph (e)(2) of this section
must be repeated at intervals not exceeding two feet.
(2) Plastic pipe and components manufactured after December 31,
2019 must be marked in accordance with the listed specification.
(3) All physical markings on plastic pipelines prescribed in the
listed specification and paragraph (e)(2) of this section must be
legible until the time of installation.
0
7. Add Sec. 192.67 to subpart B to read as follows:
Sec. 192.67 Storage and handling of plastic pipe and associated
components.
Each operator must have and follow written procedures for the
storage and handling of plastic pipe and associated components that
meet the applicable listed specifications.
0
8. Revise Sec. 192.121 to read as follows:
Sec. 192.121 Design of plastic pipe.
(a) Design formula. Design formulas for plastic pipe are determined
in accordance with either of the following formulas:
[GRAPHIC] [TIFF OMITTED] TR20NO18.000
P = Design pressure, gage, psi (kPa).
S = For thermoplastic pipe, the hydrostatic design basis (HDB) is
determined in accordance with the listed specification at a
temperature equal to 73 [deg]F (23 [deg]C), 100 [deg]F (38 [deg]C),
120 [deg]F (49 [deg]C), or 140 [deg]F (60 [deg]C). In the absence of
an HDB established at the specified temperature, the HDB of a higher
temperature may be used in determining a design pressure rating at
the specified temperature by arithmetic interpolation using the
procedure in Part D.2 of PPI TR-3/2012, (incorporated by reference,
see Sec. 192.7). For reinforced thermosetting plastic pipe, 11,000
psig (75,842 kPa).
t = Specified wall thickness, inches (mm).
D = Specified outside diameter, inches (mm).
SDR = Standard dimension ratio, the ratio of the average specified
outside diameter to the minimum specified wall thickness,
corresponding to a value from a common numbering system that was
derived from the American National Standards Institute (ANSI)
preferred number series 10.
DF = Design Factor, a maximum of 0.32 unless otherwise specified for
a particular material in this section
[[Page 58717]]
(b) General requirements for plastic pipe and components. (1)
Except as provided in paragraphs (c) through (f) of this section, the
design pressure for plastic pipe may not exceed a gauge pressure of 100
psig (689 kPa) for pipe used in:
(i) Distribution systems; or
(ii) Transmission lines in Class 3 and 4 locations.
(2) Plastic pipe may not be used where operating temperatures of
the pipe will be:
(i) Below -20 [deg]F (-29 [deg]C), or below -40 [deg]F (-40 [deg]C)
if all pipe and pipeline components whose operating temperature will be
below -20 [deg]F (-29 [deg]C) have a temperature rating by the
manufacturer consistent with that operating temperature; or
(ii) Above the temperature at which the HDB used in the design
formula under this section is determined.
(3) Unless specified for a particular material in this section, the
wall thickness of plastic pipe may not be less than 0.062 inches (1.57
millimeters).
(4) All plastic pipe must have a listed HDB in accordance with PPI
TR-4/2012 (incorporated by reference, see Sec. 192.7).
(c) Polyethylene (PE) pipe requirements. (1) For PE pipe produced
after July 14, 2004, but before January 22, 2019, a design pressure of
up to 125 psig may be used, provided:
(i) The material designation code is PE2406 or PE3408.
(ii) The pipe has a nominal size (Iron Pipe Size (IPS) or Copper
Tubing Size (CTS)) of 12 inches or less (above nominal pipe size of 12
inches, the design pressure is limited to 100 psig); and
(iii) The wall thickness is not less than 0.062 inches (1.57
millimeters).
(2) For PE pipe produced after January 22, 2019, a DF of 0.40 may
be used in the design formula, provided:
(i) The design pressure does not exceed 125 psig;
(ii) The material designation code is PE2708 or PE4710;
(iii) The pipe has a nominal size (IPS or CTS) of 12 inches or
less; and
(iv) The wall thickness for a given outside diameter is not less
than that listed in the following table:
PE Pipe--Minimum Wall Thickness and SDR Values
------------------------------------------------------------------------
Minimum
wall Corresponding
Pipe size (inches) thickness SDR (values)
(inches)
------------------------------------------------------------------------
\1/2\'' CTS................................ 0.090 7
\3/4\'' CTS................................ 0.090 9.7
\1/2\'' IPS................................ 0.090 9.3
\3/4\'' IPS................................ 0.095 11
1'' CTS.................................... 0.119 11
1'' IPS.................................... 0.119 11
1\1/4\'' IPS............................... 0.151 11
1\1/2\'' IPS............................... 0.173 11
2''........................................ 0.216 11
3''........................................ 0.259 13.5
4''........................................ 0.265 17
6''........................................ 0.315 21
8''........................................ 0.411 21
10''....................................... 0.512 21
12''....................................... 0.607 21
------------------------------------------------------------------------
(d) Polyamide (PA-11) pipe requirements. (1) For PA-11 pipe
produced after January 23, 2009, but before January 22, 2019, a DF of
0.40 may be used in the design formula, provided:
(i) The design pressure does not exceed 200 psig;
(ii) The material designation code is PA32312 or PA32316;
(iii) The pipe has a nominal size (IPS or CTS) of 4 inches or less;
and
(iv) The pipe has a standard dimension ratio of SDR-11 or less
(i.e., thicker wall pipe).
(2) For PA-11 pipe produced on or after January 22, 2019, a DF of
0.40 may be used in the design formula, provided:
(i) The design pressure does not exceed 250 psig;
(ii) The material designation code is PA32316;
(iii) The pipe has a nominal size (IPS or CTS) of 6 inches or less;
and
(iv) The minimum wall thickness for a given outside diameter is not
less than that listed in the following table:
PA-11 Pipe--Minimum Wall Thickness and SDR Values
------------------------------------------------------------------------
Minimum
wall Corresponding
Pipe size (inches) thickness SDR (values)
(inches)
------------------------------------------------------------------------
\1/2\'' CTS................................ 0.090 7.0
\3/4\'' CTS................................ 0.090 9.7
\1/2\'' IPS................................ 0.090 9.3
\3/4\'' IPS................................ 0.095 11
1'' CTS.................................... 0.119 11
1'' IPS.................................... 0.119 11
1\1/4\ IPS................................. 0.151 11
1\1/2\'' IPS............................... 0.173 11
2'' IPS.................................... 0.216 11
3'' IPS.................................... 0.259 13.5
4'' IPS.................................... 0.333 13.5
6'' IPS.................................... 0.491 13.5
------------------------------------------------------------------------
(e) Polyamide (PA-12) pipe requirements. For PA-12 pipe produced
after January 22, 2019, a DF of 0.40 may be used in the design formula,
provided:
(1) The design pressure does not exceed 250 psig;
(2) The material designation code is PA42316;
(3) The pipe has a nominal size (IPS or CTS) of 6 inches or less;
and
(4) The minimum wall thickness for a given outside diameter is not
less than that listed in the following table.
PA-12 Pipe--Minimum Wall Thickness and SDR Values
------------------------------------------------------------------------
Minimum
wall Corresponding
Pipe size (inches) thickness SDR (values)
(inches)
------------------------------------------------------------------------
\1/2\'' CTS................................ 0.090 7
\3/4\'' CTS................................ 0.090 9.7
\1/2\'' IPS................................ 0.090 9.3
\3/4\'' IPS................................ 0.095 11
1'' CTS.................................... 0.119 11
1'' IPS.................................... 0.119 11
1\1/4\'' IPS............................... 0.151 11
1\1/2\'' IPS............................... 0.173 11
2'' IPS.................................... 0.216 11
3'' IPS.................................... 0.259 13.5
4'' IPS.................................... 0.333 13.5
6'' IPS.................................... 0.491 13.5
------------------------------------------------------------------------
(f) Reinforced thermosetting plastic pipe requirements. (1)
Reinforced thermosetting plastic pipe may not be used at operating
temperatures above 150 [deg]F (66 [deg]C).
(2) The wall thickness for reinforced thermosetting plastic pipe
may not be less than that listed in the following table:
------------------------------------------------------------------------
Minimum wall
thickness in
Nominal size in inches (millimeters) inches
(millimeters)
------------------------------------------------------------------------
2 (51)................................................. 0.060 (1.52)
3 (76)................................................. 0.060 (1.52)
4 (102)................................................ 0.070 (1.78)
6 (152)................................................ 0.100 (2.54)
------------------------------------------------------------------------
Sec. 192.123 [Removed and Reserved]
0
9. Remove and reserve Sec. 192.123
0
10. In Sec. 192.143, add paragraph (c) to read as follows:
Sec. 192.143 General requirements.
* * * * *
(c) Except for excess flow valves, each plastic pipeline component
installed after January 22, 2019 must be able to withstand operating
pressures and other anticipated loads in accordance with a listed
specification.
0
11. In Sec. 192.145, add paragraph (f) to read as follows:
Sec. 192.145 Valves.
* * * * *
(f) Except for excess flow valves, plastic valves installed after
January 22,
[[Page 58718]]
2019, must meet the minimum requirements of a listed specification. A
valve may not be used under operating conditions that exceed the
applicable pressure and temperature ratings contained in the listed
specification.
0
12. In Sec. 192.149, add paragraph (c) to read as follows:
Sec. 192.149 Standard fittings.
* * * * *
(c) Plastic fittings installed after January 22, 2019, must meet a
listed specification.
Sec. 192.191 [Removed and Reserved]
0
13. Remove and reserve Sec. 192.191.
0
14. Add Sec. 192.204 to subpart D to read as follows:
Sec. 192.204 Risers installed after January 22, 2019.
(a) Riser designs must be tested to ensure safe performance under
anticipated external and internal loads acting on the assembly.
(b) Factory assembled anodeless risers must be designed and tested
in accordance with ASTM F1973-13 (incorporated by reference, see Sec.
192.7).
(c) All risers used to connect regulator stations to plastic mains
must be rigid and designed to provide adequate support and resist
lateral movement. Anodeless risers used in accordance with this
paragraph must have a rigid riser casing.
0
15. Amend Sec. 192.281 by revising paragraphs (b)(2), (b)(3), and (c)
and adding paragraphs (e)(3) and (e)(4) to read as follows:
Sec. 192.281 Plastic pipe.
* * * * *
(b) * * *
(2) The solvent cement must conform to ASTM D2564-12 for PVC
(incorporated by reference, see Sec. 192.7).
(3) The joint may not be heated or cooled to accelerate the setting
of the cement.
(c) Heat-fusion joints. Each heat fusion joint on a PE pipe or
component, except for electrofusion joints, must comply with ASTM
F2620-12 (incorporated by reference in Sec. 192.7) and the following:
(1) A butt heat-fusion joint must be joined by a device that holds
the heater element square to the ends of the pipe or component,
compresses the heated ends together, and holds the pipe in proper
alignment in accordance with the appropriate procedure qualified under
Sec. 192.283.
(2) A socket heat-fusion joint must be joined by a device that
heats the mating surfaces of the pipe or component, uniformly and
simultaneously, to establish the same temperature. The device used must
be the same device specified in the operator's joining procedure for
socket fusion.
(3) An electrofusion joint must be made using the equipment and
techniques prescribed by the fitting manufacturer, or using equipment
and techniques shown, by testing joints to the requirements of Sec.
192.283(a)(1)(iii), to be equivalent to or better than the requirements
of the fitting manufacturer.
(4) Heat may not be applied with a torch or other open flame.
* * * * *
(e) * * *
(3) All mechanical fittings must meet a listed specification based
upon the applicable material.
(4) All mechanical joints or fittings installed after January 22,
2019, must be Category 1 as defined by a listed specification for the
applicable material, providing a seal plus resistance to a force on the
pipe joint equal to or greater than that which will cause no less than
25% elongation of pipe, or the pipe fails outside the joint area if
tested in accordance with the applicable standard.
0
16. Revise Sec. 192.283 to read as follows:
Sec. 192.283 Plastic pipe: Qualifying joining procedures.
(a) Heat fusion, solvent cement, and adhesive joints. Before any
written procedure established under Sec. 192.273(b) is used for making
plastic pipe joints by a heat fusion, solvent cement, or adhesive
method, the procedure must be qualified by subjecting specimen joints
that are made according to the procedure to the following tests, as
applicable:
(1) The test requirements of--
(i) In the case of thermoplastic pipe, based on the pipe material,
the Sustained Pressure Test or the Minimum Hydrostatic Burst Test per
the listed specification requirements. Additionally, for electrofusion
joints, based on the pipe material, the Tensile Strength Test or the
Joint Integrity Test per the listed specification.
(ii) In the case of thermosetting plastic pipe, paragraph 8.5
(Minimum Hydrostatic Burst Pressure) or paragraph 8.9 (Sustained Static
Pressure Test) of ASTM D2517- 00 (incorporated by reference, see Sec.
192.7).
(iii) In the case of electrofusion fittings for polyethylene (PE)
pipe and tubing, paragraph 9.1 (Minimum Hydraulic Burst Pressure Test),
paragraph 9.2 (Sustained Pressure Test), paragraph 9.3 (Tensile
Strength Test), or paragraph 9.4 (Joint Integrity Tests) of ASTM F1055-
98(2006) (incorporated by reference, see Sec. 192.7).
(2) For procedures intended for lateral pipe connections, subject a
specimen joint made from pipe sections joined at right angles according
to the procedure to a force on the lateral pipe until failure occurs in
the specimen. If failure initiates outside the joint area, the
procedure qualifies for use.
(3) For procedures intended for non-lateral pipe connections,
perform testing in accordance with a listed specification. If the test
specimen elongates no more than 25% or failure initiates outside the
joint area, the procedure qualifies for use.
(b) Mechanical joints. Before any written procedure established
under Sec. 192.273(b) is used for making mechanical plastic pipe
joints, the procedure must be qualified in accordance with a listed
specification based upon the pipe material.
(c) A copy of each written procedure being used for joining plastic
pipe must be available to the persons making and inspecting joints.
0
17. In Sec. 192.285, revise paragraph (b)(2)(i) to read as follows:
Sec. 192.285 Plastic pipe: Qualifying persons to make joints.
* * * * *
(b) * * *
(2) * * *
(i) Tested under any one of the test methods listed under Sec.
192.283(a), or for PE heat fusion joints (except for electrofusion
joints) visually inspected and tested in accordance with ASTM F2620-12
(incorporated by reference, see Sec. 192.7) applicable to the type of
joint and material being tested;
* * * * *
0
18. In Sec. 192.313, add paragraph (d) to read as follows:
Sec. 192.313 Bends and elbows.
* * * * *
(d) An operator may not install plastic pipe with a bend radius
that is less than the minimum bend radius specified by the manufacturer
for the diameter of the pipe being installed.
0
19. Amend Sec. 192.321 by revising paragraphs (a), (d), (f), and
(h)(3) and adding paragraph (i) to read as follows:
Sec. 192.321 Installation of plastic pipelines.
(a) Plastic pipe must be installed below ground level except as
provided in paragraphs (g), (h), and (i) of this section.
* * * * *
(d) Plastic pipe must have a minimum wall thickness in accordance
with Sec. 192.121.
* * * * *
[[Page 58719]]
(f) Plastic pipe that is being encased must be inserted into the
casing pipe in a manner that will protect the plastic. Plastic pipe
that is being encased must be protected from damage at all entrance and
all exit points of the casing. The leading end of the plastic must be
closed before insertion.
* * * * *
(h) * * *
(3) Not allowed to exceed the pipe temperature limits specified in
Sec. 192.121.
(i) Plastic mains may terminate above ground level provided they
comply with the following:
(1) The above-ground level part of the plastic main is protected
against deterioration and external damage.
(2) The plastic main is not used to support external loads.
(3) Installations of risers at regulator stations must meet the
design requirements of Sec. 192.204.
0
20. Add Sec. 192.329 to subpart G to read as follows:
Sec. 192.329 Installation of plastic pipelines by trenchless
excavation.
Plastic pipelines installed by trenchless excavation must comply
with the following:
(a) Each operator must take practicable steps to provide sufficient
clearance for installation and maintenance activities from other
underground utilities and/or structures at the time of installation.
(b) For each pipeline section, plastic pipe and components that are
pulled through the ground must use a weak link, as defined by Sec.
192.3, to ensure the pipeline will not be damaged by any excessive
forces during the pulling process.
0
21. Amend Sec. 192.367 by revising paragraphs (b)(1) and (b)(2) and
adding paragraph (b)(3) to read as follows:
Sec. 192.367 Service lines: General requirements for connections to
main piping.
* * * * *
(b) * * *
(1) Be designed and installed to effectively sustain the
longitudinal pull-out or thrust forces caused by contraction or
expansion of the piping, or by anticipated external or internal
loading;
(2) If gaskets are used in connecting the service line to the main
connection fitting, have gaskets that are compatible with the kind of
gas in the system; and
(3) If used on pipelines comprised of plastic, be a Category 1
connection as defined by a listed specification for the applicable
material, providing a seal plus resistance to a force on the pipe joint
equal to or greater than that which will cause no less than 25%
elongation of pipe, or the pipe fails outside the joint area if tested
in accordance with the applicable standard.
0
22. In Sec. 192.375, revise paragraph (a)(2) to read as follows:
Sec. 192.375 Service lines: Plastic.
(a) * * *
(2) It may terminate above ground level and outside the building,
if--
(i) The above ground level part of the plastic service line is
protected against deterioration and external damage;
(ii) The plastic service line is not used to support external
loads; and
(iii) The riser portion of the service line meets the design
requirements of Sec. 192.204.
* * * * *
0
23. Add Sec. 192.376 to read as follows:
Sec. 192.376 Installation of plastic service lines by trenchless
excavation.
Plastic service lines installed by trenchless excavation must
comply with the following:
(a) Each operator shall take practicable steps to provide
sufficient clearance for installation and maintenance activities from
other underground utilities and structures at the time of installation.
(b) For each pipeline section, plastic pipe and components that are
pulled through the ground must use a weak link, as defined by Sec.
192.3, to ensure the pipeline will not be damaged by any excessive
forces during the pulling process.
0
24. Amend Sec. 192.455 by revising paragraph (a) introductory text and
adding paragraph (g) to read as follows:
Sec. 192.455 External corrosion control: Buried or submerged
pipelines installed after July 31, 1971.
(a) Except as provided in paragraphs (b), (c), (f), and (g) of this
section, each buried or submerged pipeline installed after July 31,
1971, must be protected against external corrosion, including the
following:
* * * * *
(g) Electrically isolated metal alloy fittings installed after
January 22, 2019, that do not meet the requirements of paragraph (f)
must be cathodically protected, and must be maintained in accordance
with the operator's integrity management plan.
0
25. In Sec. 192.513, revise paragraph (c) to read as follows:
Sec. 192.513 Test requirements for plastic pipelines.
* * * * *
(c) The test pressure must be at least 150% of the maximum
operating pressure or 50 psi (345 kPa) gauge, whichever is greater.
However, the maximum test pressure may not be more than 2.5 times the
pressure determined under Sec. 192.121 at a temperature not less than
the pipe temperature during the test.
* * * * *
0
26. Add Sec. 192.720 to read as follows:
Sec. 192.720 Distribution systems: Leak repair.
Mechanical leak repair clamps installed after January 22, 2019 may
not be used as a permanent repair method for plastic pipe.
0
27. Add Sec. 192.756 to subpart M to read as follows:
Sec. 192.756 Joining plastic pipe by heat fusion; equipment
maintenance and calibration.
Each operator must maintain equipment used in joining plastic pipe
in accordance with the manufacturer's recommended practices or with
written procedures that have been proven by test and experience to
produce acceptable joints.
0
28. In Appendix B to Part 192, revise the appendix heading and the list
under ``I.'' to read as follows:
Appendix B to Part 192--Qualification of Pipe and Components
I. List of Specifications
A. Listed Pipe Specifications
API Spec 5L--Steel pipe, ``API Specification for Line Pipe''
(incorporated by reference, see Sec. 192.7).
ASTM A53/A53M--Steel pipe, ``Standard Specification for Pipe, Steel
Black and Hot-Dipped, Zinc-Coated, Welded and Seamless''
(incorporated by reference, see Sec. 192.7).
ASTM A106/A-106M--Steel pipe, ``Standard Specification for Seamless
Carbon Steel Pipe for High Temperature Service'' (incorporated by
reference, see Sec. 192.7).
ASTM A333/A333M--Steel pipe, ``Standard Specification for Seamless
and Welded Steel Pipe for Low Temperature Service'' (incorporated by
reference, see Sec. 192.7).
ASTM A381--Steel pipe, ``Standard Specification for Metal-Arc-Welded
Steel Pipe for Use with High-Pressure Transmission Systems''
(incorporated by reference, see Sec. 192.7).
ASTM A671/A671M--Steel pipe, ``Standard Specification for Electric-
Fusion-Welded Pipe for Atmospheric and Lower Temperatures''
(incorporated by reference, see Sec. 192.7).
ASTM A672/A672M-09--Steel pipe, ``Standard Specification for
Electric-Fusion-Welded Steel Pipe for High-Pressure Service at
Moderate Temperatures'' (incorporated by reference, see Sec.
192.7).
[[Page 58720]]
ASTM A691/A691M-09--Steel pipe, ``Standard Specification for Carbon
and Alloy Steel Pipe, Electric-Fusion-Welded for High Pressure
Service at High Temperatures'' (incorporated by reference, see Sec.
192.7).
ASTM D2513-12ae1``Standard Specification for Polyethylene (PE) Gas
Pressure Pipe, Tubing, and Fittings'' (incorporated by reference,
see Sec. 192.7).
ASTM D 2517-00--Thermosetting plastic pipe and tubing, ``Standard
Specification for Reinforced Epoxy Resin Gas Pressure Pipe and
Fittings'' (incorporated by reference, see Sec. 192.7).
ASTM F2785-12 ``Standard Specification for Polyamide 12 Gas Pressure
Pipe, Tubing, and Fittings'' (PA-12) (incorporated by reference, see
Sec. 192.7).
ASTM F2817-10 ``Standard Specification for Poly (Vinyl Chloride)
(PVC) Gas Pressure Pipe and Fittings for Maintenance or Repair''
(incorporated by reference, see Sec. 192.7).
ASTM F2945-12a ``Standard Specification for Polyamide 11 Gas
Pressure Pipe, Tubing, and Fittings'' (PA-11) (incorporated by
reference, see Sec. 192.7).
B. Other Listed Specifications for Components
ASME B16.40-2008 ``Manually Operated Thermoplastic Gas Shutoffs and
Valves in Gas Distribution Systems'' (incorporated by reference, see
Sec. 192.7).
ASTM D2513-12ae1``Standard Specification for Polyethylene (PE) Gas
Pressure Pipe, Tubing, and Fittings'' (incorporated by reference,
see Sec. 192.7).
ASTM D 2517-00--Thermosetting plastic pipe and tubing, ``Standard
Specification for Reinforced Epoxy Resin Gas Pressure Pipe and
Fittings'' (incorporated by reference, see Sec. 192.7).
ASTM F2785-12 ``Standard Specification for Polyamide 12 Gas Pressure
Pipe, Tubing, and Fittings'' (PA-12) (incorporated by reference, see
Sec. 192.7).
ASTM F2945-12a ``Standard Specification for Polyamide 11 Gas
Pressure Pipe, Tubing, and Fittings'' (PA-11) (incorporated by
reference, see Sec. 192.7).
ASTM F1055-98 (2006) ``Standard Specification for Electrofusion Type
Polyethylene Fittings for Outside Diameter Controlled Polyethylene
Pipe and Tubing'' (incorporated by reference, see Sec. 192.7).
ASTM F1924-12 ``Standard Specification for Plastic Mechanical
Fittings for Use on Outside Diameter Controlled Polyethylene Gas
Distribution Pipe and Tubing'' (incorporated by reference, see Sec.
192.7).
ASTM F1948-12 ``Standard Specification for Metallic Mechanical
Fittings for Use on Outside Diameter Controlled Thermoplastic Gas
Distribution Pipe and Tubing'' (incorporated by reference, see Sec.
192.7).
ASTM F1973-13 ``Standard Specification for Factory Assembled
Anodeless Risers and Transition Fittings in Polyethylene (PE) and
Polyamide 11 (PA 11) and Polyamide 12 (PA 12) Fuel Gas Distribution
Systems'' (incorporated by reference, see Sec. 192.7).
ASTM F 2600-09 ``Standard Specification for Electrofusion Type
Polyamide-11 Fittings for Outside Diameter Controlled Polyamide-11
Pipe and Tubing'' (incorporated by reference, see Sec. 192.7).
ASTM F2145-13 ``Standard Specification for Polyamide 11 (PA 11) and
Polyamide 12 (PA12) Mechanical Fittings for Use on Outside Diameter
Controlled Polyamide 11 and Polyamide 12 Pipe and Tubing''
(incorporated by reference, see Sec. 192.7).
ASTM F2767-12 ``Specification for Electrofusion Type Polyamide-12
Fittings for Outside Diameter Controlled Polyamide-12 Pipe and
Tubing for Gas Distribution'' (incorporated by reference, see Sec.
192.7).
ASTM F2817-10 ``Standard Specification for Poly (Vinyl Chloride)
(PVC) Gas Pressure Pipe and Fittings for Maintenance or Repair''
(incorporated by reference, see Sec. 192.7).
* * * * *
Issued in Washington, DC, on November 9, 2018, under authority
delegated in 49 CFR 1.97.
Howard R. Elliott,
Administrator.
[FR Doc. 2018-24925 Filed 11-19-18; 8:45 am]
BILLING CODE 4910-60-P