U.S. Department of Transportation Pipeline and Hazardous Materials Safety Administration PHMSA'S PHMSA S Recent & Proposed Rulemakings and Initiatives and Initiatives PENNSYLVANIA PENNSYLVANIA PIPELINE SAFETY SEMINAR Otb 2009 October - 2009 Byron Coy Region Director, Eastern Region Director, Eastern USDOT/PHMSA
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Recent & Proposed Rulemakings and Initiativesand Initiatives · Recent & Proposed Rulemakings and Initiativesand Initiatives ... P-04-02 Amend 192 and 195 to Follow API RP 5LW Marine
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U.S. Department of TransportationPipeline and Hazardous Materials Safety Administration
Special Programs Special Programs Pipeline SafetyFRA
MARAD
p gp gAdministrationAdministration
(RSPA)(RSPA)
Pipeline Safety
STB
FHWA
NHTSA
Hazardous Materials
NHTSA
What Happened?What Happened?Nov 30, 2004, the Norman Y. Mineta, Research and Special Programs Improvement Act established the Pi li d H d M t i l S f t Ad i i t tiPipeline and Hazardous Materials Safety Administrationin the Department of Transportation
"T t t l d th"To protect people and the environment from the risks inherent in the transportation of hazardous materials – by pipeline and other modes of transportation."transportation.
PHMSA' St t i G lPHMSA's Strategic GoalsSafety: To reduce the risk of harm to people due to the transportation of hazardous materials by pipelines and other modes.
Environmental Stewardship: To reduce the risk of harm to the environment due to the transportation of oil and h d t i l b i li d th dhazardous materials by pipeline and other modes.
Reliability: To help maintain and improve the reliability of systems that deliver energy products and other hazardous materials.
Global Connectivity: To harmonize and standardize the requirements for pipeline and hazardous materials transportation internationally, to facilitate efficient and safe transportation through ports of entry and through the supply chainports of entry and through the supply chain.
Preparedness and Response: To reduce the consequences (harm to people, environment, and economy) after a pipeline or hazmat failure has occurred.pipeline or hazmat failure has occurred.
PHMSAPHMSAPHMSAPHMSAChief Counsel
P bli Aff iPublic Affairs
Contracts/Procurement
Office of Pipeline Safety
Office of Pipeline Safety
Now let's just talk about the Office of
Office of Hazardous Human Resources
about the Office of Pipeline Safety
(OPS)
Materials Safety
Training Center
Civil Rights
Training Center
PHMSA RegionsPHMSA RegionsPipeline Offices
Anchorage
Eastern RegionC t l R i
Western RegionHQ
TrentonCentral Region
Kansas City
Lakewood
Southern RegionAtlanta
Washington, D.C.T&Q Oklahoma City
Southern RegionSouthwest Region
HoustonHouston
What Does OPS Do?
Office of Pipeline Safety (OPS)-administers the federal pipeline safety regulatoryprogram to assure the safe transportation ofnatural gas, petroleum, and other hazardousnatural gas, petroleum, and other hazardousmaterials by pipeline.
Office of Pipeline Safety
What Does OPS Regulate?National Transportation Pipeline SystemNational Transportation Pipeline System Government regulated - privately owned & operated Designed/optimized to meet economic and market needs Critical to the Nation’s physical and economic health Critical to the Nation’s security and defense Critical to the Nation’s security and defense Approximately 2.5 million miles of pipelines transport
about 2/3 of U.S. energy consumables Many complex infrastructure interdependencies
What Does OPS Regulate?National Transportation Pipeline System
Pipeline Type Miles % of Total Operators % of Total
Hazardous Liquid 183,414 7 306 12
Gas Transmission 331,572 13 939 38
Gas Distribution 2,015,661 80 1245 50
main 1,200,862, ,
service 814,799
Total 2 530 647 2490Total 2,530,647 2490
How? By developing regulations and other risk management
approaches to assure safety in the design construction
How?
approaches to assure safety in the design, construction, testing, operation, maintenance, and emergency response of pipeline facilities.
By inspecting the national transportation pipeline system and enforcing pipeline safety regulations.
By providing oversight, assistance and grants to States for intrastate pipeline safety programs.
By Research and Development By Research and Development
• Extends existing safety regulations in Part 195 to large-diameter low-stress g y g gpipelines within a defined ‘‘buffer’’ area around a USA
• Requires operators to address the most common threats to the integrity of these pipelines: Corrosion and third-party damage
Notes: Requires operators of these, and all other low-stress pipelines, to comply with annual reporting requirements - furnishing data needed for further rulemaking required by the 2006 PIPES Act.
Maximum Allowable Operating Pressure for Gas Transmission Pipelines (80% MAOP)p ( % )
49 CFR Part 192 80%MAOP
Final Rule:Published October 17, 2008 (effective Dec 22, 2008)
MAOP
Summary: Allows increase in the Maximum Allowable Operating Pressure (MAOP) of some gas transmission pipelines above current existing levels
• Up to 80% of the Specified Minimum Yield Strength (SMYS) in p p g ( )Class 1 locations
• In effect, the rule codifies many of the "conditions" from the 80% SMYS MAOP special permits
Notes: Requires investment in improved pipe technology to include additional design and construction considerations as well as rigorous life-cycle operations and maintenance. Operators must provide 180-day written notice to PHMSA Region about their intent to use alternate MAOP Increasesnotice to PHMSA Region about their intent to use alternate MAOP. Increases energy capacity while maintaining pipeline safety.
Final Rule:Published December 24, 2008 (effective Jan 24, 2009)
PA 11
Summary: Allows certain thermoplastic pipelines made from new Polyamide -11 (PA–11) pipe T b d i d i hi h d i f t f 0 40• To be designed using a higher design factor of 0.40
• To raise the design pressure limit to 200 psig
Notes: Pressure limitations for all other thermoplastic pipes such as PE-p p ppolyethylene, PB-polybutylene, PVC-polyvinyl chloride, etc. to remain unchanged. Allows some steel pipe subject to corrosion to be replaced by PA-11.
Published January 16, 2009 (effective Feb 17, 2009)
(Interim Final Rule published March 28, 2008)
Safety Orders
Summary: established procedures PHMSA now follows to issue
• Safety Orders - new administrative (enforcement) tool that allows PHMSA to direct immediate remedial action without calling the facilityPHMSA to direct immediate remedial action without calling the facility hazardous
• Special Permit - explains procedures operators must follow to apply for a waiver of the federal pipeline safety regulations
Notes: Notified operators about electronic docket information availability; updates addresses, phone numbers, routing symbols; and, clarified the time period for processing requests for written interpretations of the regulations.
Incorporation by Reference Update: API 5L and API 1104
API 1104 &API 5L
49 CFR Parts 192 & 195API 5LFinal Rule:
Published April 14, 2009 (effective April 14, 2009)
(Direct Final Rule)
Summary: Allows the use of more recent editions of• API 5L "Specification for Line Pipe" - i.e. 44th Edition of API 5L, which
(Direct Final Rule)
includes higher toughness standards, dimension tolerances, and more comprehensive inspection methods
• API 1104 "Welding of Pipelines and Related Facilities" – i.e. 20th Edition of API 1104, which contains more conservative acceptance criteriap
Notes: PHMSA did not eliminate the use of the current referenced standards but simply allows the use of the new standards.
P d R l kiP d R l kiProposed RulemakingsProposed Rulemakings
Notices of Proposed Rulemaking (NPRM) Issued:Notices of Proposed Rulemaking (NPRM) Issued:Distribution Integrity Management (DIMP)Control Room Management/Human Factors (CRM)Control Room Management/Human Factors (CRM)Updates to Pipeline & LNG Reporting Requirements("One Rule")P i di U d t f R l t R f t T h i lPeriodic Updates of Regulatory References to Technical Standards& Misc. Edits
NPRM Sh ld B O t SNPRM - Should Be Out Soon:
Low Stress - Phase 2
Enforcement of State Damage Prevention Laws Enforcement of State Damage Prevention Laws
Integrity Management Program for Gas Distribution Pipelines (DIMP)Gas Distribution Pipelines (DIMP)
49 CFR Part 192
C t St t DIMPCurrent Status:NPRM published June 25, 2008 Final rule expected to be published October 2009
DIMP
Summary: Would require operators of gas distribution pipelines to • Develop and implement a written integrity management (IM) program
within 18 months after final rule is published• Install Excess Flow Valves (EFVs) on new or replaced single-family
residence service lines
Notes: Focused on Damage Prevention and Leak Evaluation/Management: Formal Written Program Management Commitment & Support Defined Roles & Responsibilities Use of Industry Standards/Guidelines
49 CFR Parts 192, 193, 195Current Status: CRMNPRM published Sep 12, 2008 Final rule expected to be published November 2009
Summary: Would require operators of hazardous liquid pipelines, gas pipelines, y q p q p p , g p p ,and LNG facilities to amend their existing written O&M procedures, OQ programs, and emergency plans to assure controllers and control room management practices and procedures used maintain pipeline safety and integrity.
Notes: R lt f PHMSA t d f t ll d t ll fNotes: Results from PHMSA study of controllers and controller performance issues known as the Controller Certification Project (CCERT), an NTSB study, safety-related condition reports, operator visits, inspections, and inquiries.
Focused on the following Identified Enhancement Areas:Focused on the following Identified Enhancement Areas: Controller Qualifications Fatigue Awareness & Mitigation Shift Changes SCADA Displays
Role & Responsibilities Alarm Management Operating Experience & Training Change Management SCADA Displays Change Management
Update to Pipeline and LNG Reporting Requirements
49 CFR Parts 191, 192, 193 & 195
Current Status: "One Rule"Current Status:NPRM published July 2, 2009 (comments until Aug 31, 2009)
Summary:
One Rule
• Changes the definition of "incident" and establishes a "volumetric basis" for reporting unintentional gas loss
• Requires operators to use electronic reporting whenever possibleR i t f LNG f iliti t b it i id t d l t• Requires operators of LNG facilities to submit incident and annual reports
• Creates National Registry of Pipeline and LNG Operators• New standardized forms for Safety Related Condition Reports and Offshore
Pipeline Condition Reportsp p• Merges natural gas transmission IM semi-annual reports with annual reports• Modifies hazardous liquid operators telephonic reporting criteria requirements• Requires hazardous liquid operators to submit data by State on annual reports
Summary: PHMSA's policy is to adopt voluntary consensus standards when they are applicable to pipeline design construction maintenance inspection and
Current Status:NPRM published July 22, 2009 (comments until Sep 21, 2009)
they are applicable to pipeline design, construction, maintenance, inspection and repair. PHMSA retains ultimate responsibility for pipeline safety therefore:• Some standards incorporated in whole• Some standards incorporated in partp p• Some standards not incorporated
Notes: New standards incorporated include:
API RP 5L1 R d d P ti f R il d T t ti f Li Pi• API RP 5L1, Recommended Practice for Railroad Transportation of Line Pipe
• API RP 5LW, Recommended Practice for Transportation of Line Pipe on Barges
• API 620, Design and Construction of Large, Welded, Low-Pressure Storage T k (P t 193 l ) i diti i t d i t P t 193 th hTanks (Part 193 only) – prior editions incorporated into Part 193 through NFPA 59A
Hazardous Liquid L St Li (Ph 2)Low-Stress Lines (Phase2)
Current Status:
49 CFR Part 195 Low Stress Phase 2
Current Status:Voluntary request for information published in Federal Register July 31, 2008
NPRM expected to be published by Spring 2009 ????
Summary: Would extend the regulation to those low stress pipelines not addressed in Phase 1, i.e., those less than 8 5/8 inches in diameter.
Enforcement of State Damage Prevention LawsDamage Prevention Laws
49 CFR Parts 192 & 195E tiC rrent Stat s Excavation
EnforcementCurrent Status:Advanced NPRM expected to be published Summer 2009
Summary: Would allow PHMSA to conduct an enforcement proceeding for a violation of the pipeline safety regulations within the boundaries of a State that has inadequate regulations to protect safety consistent with the federal pipeline safety statutesfederal pipeline safety statutes.
Notes: Complies with PIPE’s Act 60114(f). PHMSA is required to develop rules, which must also include procedures for determining inadequaterules, which must also include procedures for determining inadequate State enforcement of penalties.
OPS Initiatives
- 34 -
OPS InitiativesOPS Initiatives
Performance Evaluation Group (PEG)p ( )
Inspection Integration (II)
Pipelines and Informed Planning Alliance (PIPA)Pipelines and Informed Planning Alliance (PIPA)
Damage Prevention Assistance Program (DPAP)
- 34 -
Performance Evaluation Group (PEG)Performance Evaluation Group (PEG) -equivalent to a private sector Business Intelligence Competency Center (BICC)
OPS Initiatives
Developing a Risk Management Model that would produce a b bilit f i li t t h id t/i id tprobability of a pipeline system to have an accident/incident
and to provide direction for pipeline safety inspections
Monitoring PHMSA's Performance
Using tools such as statistical benchmarking, risk surveys, best practices, etc. 0 150
0.200
0.250
0.300
Ons
hore
Pip
elin
e in
an H
CA FY2005 FY2006 FY2007 FY2008
practices, etc.
0.000
0.050
0.100
0.150
Num
ber
of A
ccid
ents
per
1,00
0 Mile
s O
I ti I t ti (II)Inspection Integration (II) – Data-Driven Inspections
Inspection flexibility in determining the scope, depth, and p y g p , p ,appropriate intervals between inspections
Analyze and review the operator’s entire safety program –operator profile to be developed by PEGp p p y
Design an Integrated Inspection based on specified findings – operator screening
Inspect the parts of an operator’s program Inspect the parts of an operator s program and pipeline system that need to be inspected, i.e. focused Inspections
Inspect for specific threats or concerns Inspect for specific threats or concerns, such as third party damage, corrosion, operator error or other focused concerns
Pipelines and Informed Planning Alliance (PIPA) Development in proximity to pipelines increases the likelihood of pipeline
damage and serious incidentsdamage and serious incidents.
Through PIPA, stakeholders are engaging to develop best practices for “risk-informed” property development and land uses along transmission pipeline Right-of-Wayspipeline Right-of-Ways.
Damage Prevention Assistance Program (DPAP) –Strengthening State Damage Prevention Programs
Pipeline Inspection, Protection, Enforcement and Safety (PIPES) Act of 2006 (nine elements)(PIPES) Act of 2006 (nine elements)
1. Effective communication between operators and excavators from excavation notification to completion of excavation
f2. Fostering support and partnership of all stakeholders 3. Operators’ use of performance measures for locators4. Partnership in employee training5. Partnership in public education6. A dispute resolution process that defines the enforcement
agency as a partner and facilitator7 F i d i t t f t f th l7. Fair and consistent enforcement of the law8. Use of technology to improve the locating process 9. Data analysis to continually improve program effectiveness
Recent Advisory Bulletins
Notice to Operators of Gas Transmission Pi li th R l t St t f ADBPipelines on the Regulatory Status of Direct Sales Pipelines
ADB08-01
ADB 08 01 (M 13 2008)PIPES 2006 eliminated the exception of direct sales natural gas
pipelines from the definition of an interstate gas pipeline facility
ADB -08-01 (May 13, 2008)
pipelines from the definition of an interstate gas pipeline facility.
As a result,
Direct sales gas transmission pipelines subject to the jurisdiction of FERC formerly considered to be intrastate pipelines for purposes of the pipeline safety laws are now defined as interstate pipelines.
As interstate pipelines, direct sales pipelines are subject to the applicable Federal pipeline safety regulations and PHMSA is responsible for regulatory oversight and enforcement.
Issues Related to Mechanical Couplings Used in Natural Gas Distribution Systems ADBy
ADB -08-02 (March 4, 2008)SUMMARY R t t i f il f h i l li
ADB08-02
SUMMARY: Recent events concerning failures of mechanical couplings and related appurtenances have raised concerns about safety in natural gas distribution systems.
U d t i f ti id d i Ad i B ll ti ADB 86 02 Updates information provided in Advisory Bulletin ADB–86–02
Advises owners and operators of gas pipelines to consider the potential failure modes for mechanical couplings used for joining and pressure sealing two pipes togetherpressure sealing two pipes together.
Urges operators to review their procedures for using mechanical couplings and ensure coupling design, installation procedures, leak survey procedures and personnel qualifications meet Federalsurvey procedures, and personnel qualifications meet Federal requirements.
Operators should work with Federal and State pipeline safety representatives manufacturers and industry partners to determinerepresentatives, manufacturers, and industry partners to determine how best to resolve potential issues in their respective state or region.
Dangers of Abnormal Snow and Ice B ild U G Di t ib ti S t ADBBuild-Up on Gas Distribution Systems
ADB -08-03 (March 10 2008)
ADB08-03
ADB -08-03 (March 10, 2008)SUMMARY: Recent events on natural gas distribution system
facilities appear to be related to either pp
the stress of snow and ice, or
malfunction of pressure control equipment due to ice blockage of pressure control equipment vents by iceof pressure control equipment vents by ice.
This advisory bulletin advises owners and operators of gas pipelines of the need to take steps to prevent damage to pipeline facilities.
Installation of Excess Flow Valves i t G S i Li ADBinto Gas Service Lines
ADB -08-04 (June 5 2008)
ADB08-04
ADB -08-04 (June 5, 2008)Summary: PIPES Act of 2006 mandates that PHMSA require operators of natural gas distribution systems to install excess flow valves (EFV) on certain gas service lines. The statute directs the installation of EFVs on single family residence service lines that: Are installed or entirely replaced after June 1, 2008;
O Operate continuously throughout the year at a pressure not less than 10 psi gauge;
Are not connected to a gas stream with respect to which the operator has had prior experience with contaminants the presenceoperator has had prior experience with contaminants the presence of which could interfere with the operation of an EFV, and
For which an excess flow valve meeting the performance standards of 49 CFR 192.381 is commercially available.y
Notice to Hazardous Liquid Pipeline Operators f R t f V l t Ad N tifi ti ADBof Request for Voluntary Advance Notification
of Intent To Transport BiofuelsADB08-05
ADB -08-05 (June 25, 2008)
SUMMARY: PHMSA is requesting that any hazardous liquid pipeline q g y q p poperator intending to transport
ethanol, ethanol gasoline blends, or other biofuels by pipeline
voluntarily provide us with advance notice of their intent to voluntarily provide us with advance notice of their intent to transport these fuels to facilitate cooperation in achieving safety.
We request that any operator intending to field test transportation of biofuels by pipeline notify PHMSA of such testing in advanceof biofuels by pipeline notify PHMSA of such testing in advance so that PHMSA can work with the operator to address any safety concerns that arise.
Dynamic Riser Inspection, Maintenance, and Monitoring Records on Offshore ADBgFloating Facilities
ADB -08-06 (July 2, 2008)
ADB08-06
ADB 08 06 (July 2, 2008)SUMMARY: PHMSA hazardous liquid and natural gas pipelines with
dynamic risers, such as steel catenary risers on offshore floating production facilities, to
1. perform regular inspection and maintenance of these risers, 2. monitor nearby environmental conditions, and 3. maintain records of these activities.
Failure of a dynamic riser could significantly impact safety, the environment, and delivery of an important source of natural gas , y p gand petroleum products used in the United States.
PHMSA strongly urges operators to perform the above-listed actions and any other actions needed to ensure the safe and reliable operation of these systems.
National Pipeline Mapping System (NPMS) ADBNational Pipeline Mapping System (NPMS)
ADB -08-07 (July 31 2008)
ADB08-07
ADB -08-07 (July 31, 2008)
SUMMARY: PHMSA Beginning on January 1, 2009, PHMSA is req esting that operators s bmit their NPMS data conc rrentl ithrequesting that operators submit their NPMS data concurrently with hazardous liquid and gas transmission annual report submissions.
Annual reports are due on
•March 15 each year for gas transmission & LNG
•June 15 each year for hazardous liquid operators
Proper Identification of I t l C i Ri k ADBInternal Corrosion Risk
ADB -08-08 (Nov 24 2008)
ADB08-08
ADB -08-08 (Nov 24, 2008)
SUMMARY: PHMSA reminds operators of their responsibilities p punder 49 CFR 195.579(a) and 49 CFR 195.589(c) with respect to the identification of circumstances under which the potential for internal corrosion must be investigated.
Potential Low and Variable Yield and Tensile Strength and Chemical Composition ADBStrength and Chemical Composition Properties in High Strength Line Pipe
ADB 09 01 (May 21 2009)
ADB09-01
ADB -09-01 (May 21, 2009)
SUMMARY: PHMSA advises pipeline system owners and operators of fthe potential for high grade line pipe installed on projects to exhibit
inconsistent chemical and mechanical properties. Yield strength and tensile strength properties that do not meet the line pipe specification minimums have been reported.
This advisory bulletin pertains to micro-alloyed high strength line pipe grades, generally Grade X–70 and above. PHMSA recently reviewed metallurgical testing results from several recent projects
minimums have been reported.
reviewed metallurgical testing results from several recent projects indicating pipe joints produced from plate or coil from the same heat may exhibit variable chemical and mechanical properties by as much as 15% lower than the strength values specified by the pipe manufacturer.