[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.
---------------------------------------------------------------------------

    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\
---------------------------------------------------------------------------

    \5\ http://primis.phmsa.dot.gov/dimp/docs/MetaAnalysis_Cross_bore_practices_07102014%20final%20R3.pdf.
---------------------------------------------------------------------------

(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