80 FR 19114 - Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration
DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration Federal Register Volume 80, Issue 68 (April 9, 2015)
Pipeline and Hazardous Materials Safety Administration
Federal Register Volume 80, Issue 68 (April 9, 2015)
| Page Range | 19114-19116 | |
| FR Document | 2015-08148 |
[Federal Register Volume 80, Number 68 (Thursday, April 9, 2015)] [Notices] [Pages 19114-19116] From the Federal Register Online [www.thefederalregister.org] [FR Doc No: 2015-08148] ----------------------------------------------------------------------- DEPARTMENT OF TRANSPORTATION Pipeline and Hazardous Materials Safety Administration [Docket No. PHMSA-2015-0105] Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration AGENCY: Pipeline and Hazardous Materials Safety Administration (PHMSA); DOT. ACTION: Notice; Issuance of Advisory Bulletin. ----------------------------------------------------------------------- SUMMARY: PHMSA is issuing this updated advisory bulletin to all owners and operators of gas and hazardous liquid pipelines to communicate the potential for damage to pipeline facilities caused by severe flooding. This advisory includes actions that operators should consider taking to ensure the integrity of pipelines in the event of flooding, river scour, and river channel migration. FOR FURTHER INFORMATION CONTACT: Operators of pipelines subject to regulation by PHMSA should contact the appropriate PHMSA Region Office. The PHMSA Region Offices and their contact information are as follows:Central Region: 816-329-3800, Illinois, Indiana, Iowa, Kansas, Michigan, Minnesota, Missouri, Nebraska, North Dakota, South Dakota, and Wisconsin Eastern Region: 609-989-2171, Connecticut, Delaware, District of Columbia, Maine, Maryland, Massachusetts, New Hampshire, New Jersey, New York, Ohio, Pennsylvania, Rhode Island, Vermont, Virginia, and West Virginia Southern Region: 404-832-1147, Alabama, Florida, Georgia, Kentucky, Mississippi, North Carolina, Puerto Rico, South Carolina, and Tennessee Southwest Region: 713-272-2859, Arkansas, Louisiana, New Mexico, Oklahoma, and Texas Western Region: 720-963-3160, Alaska, Arizona, California, Colorado, Hawaii, Idaho, Montana, Nevada, Oregon, Utah, Washington, and Wyoming Intrastate pipeline operators should contact the appropriate state pipeline safety authority. A list of state pipeline safety authorities is provided at: www.napsr.org SUPPLEMENTARY INFORMATION: I. Background Section 192.613(a) of the Pipeline Safety Regulations (49 CFR parts 190-199) states that ``[e]ach operator shall have a procedure for continuing surveillance of its facilities to determine and take appropriate action concerning changes in class location, failures, leakage history, corrosion, substantial changes in cathodic protection requirements, and other unusual operating and maintenance conditions.'' Section 192.613(b) further states that ``[i]f a segment of pipeline is determined to be in unsatisfactory condition but no immediate hazard exists, the operator shall initiate a program to recondition or phase out the segment involved, or, if the segment cannot be reconditioned or phased out, reduce the maximum allowable operating pressure in accordance with Sec. 192.619(a) and (b).'' Likewise, Sec. 195.401(b)(1) of the Pipeline Safety Regulations states that ``[w]henever an operator discovers any condition that could adversely affect the safe operation of its pipeline system, it must correct the condition within a reasonable time. However, if the condition is of such a nature that it presents an immediate hazard to persons or property, the operator may not operate the affected part of the system until it has corrected the unsafe condition.'' Section 195.401(b)(2) further states that ``[w]hen an operator discovers a condition on a pipeline covered under [the integrity management requirements in] Sec. 195.452, the operator must correct the condition as prescribed in Sec. 195.452(h).'' Severe flooding, river scour, and river channel migration are the types of unusual operating conditions that can adversely affect the safe operation of a pipeline and require corrective action under Sec. Sec. 192.613(a) and 195.401(b). In addition, Part 194 requires operators of onshore oil pipelines to ``include procedures and a list of resources for responding, to the maximum extent practicable, to a worst case discharge and to a substantial threat of such a discharge'' under Sec. 194.107(a). Per Sec. 194.115, the operator must ``identify, and ensure, by contract or other approved means, the resources necessary to remove, to the maximum extent practicable, a worst case discharge and to mitigate or prevent a substantial threat of a worst case discharge''. Furthermore, an operator must take additional preventative and mitigative measures beyond those already required in Parts 192, 194, and 195 to prevent a pipeline failure and to mitigate the consequences of a pipeline failure per Sec. Sec. 192.935, 194.107(a) and 195.452(i). An operator must base the additional measures on the threats the operator has identified for each pipeline segment. If an operator determines outside force damage (e.g., earth movement, floods) is a threat to the pipeline, the operator must take steps to minimize the probability of damage and the consequences of a release. PHMSA has released five Advisory Bulletins on this subject, with the earliest issued July 29, 1993, (ADB-93-03), and the most recent on July 27, 2011, (ADB-11-04; 76 FR 44985). Each of these bulletins followed an event that involved severe flooding that affected pipelines in the areas of rising waters. Four of the more notable events are briefly described below: On August 13, 2011, Enterprise Products Operating, LLC discovered a release of 28,350 gallons (675 barrels) of natural gasoline in the Missouri River in Iowa. The rupture, according to the metallurgical report, was the result of fatigue crack growth driven by vibrations in the pipe from vortex shedding. On July 1, 2011, ExxonMobil Pipeline Company experienced a pipeline failure near Laurel, Montana, resulting in the release of 63,000 gallons (1,500 barrels) of crude oil into the Yellowstone River. According to the results of PHMSA's accident investigation, the rupture was caused by channel migration and river bottom scour, leaving a large span of the pipeline exposed to prolonged current forces and debris washing downstream in the river. Those external forces damaged the exposed pipeline. On July 15, 2011, NuStar Pipeline Operating Partnership, L.P. reported a 4,200 gallon (100 barrels) anhydrous ammonia spill in the Missouri River in Nebraska requiring extensive environmental response and causing supply disruption. The 6-inch-diameter pipeline was exposed by scouring during extreme flooding. [[Page 19115]] On January 17, 2015, a breach in the Bridger Pipeline Company's Poplar system resulted in another spill into the Yellowstone River near the town of Glendive, Montana, releasing an estimated 28,434 gallons (677 barrels) of crude oil into the river and impacting local water supplies. Preliminary information indicates over 100 feet of pipeline was exposed on the river bottom, and a release point was near a girth weld. As shown in these events, river bottom scour and channel migration may occur due to seasonal flooding, increased stream velocities, and man-made and natural river bank restrictions. River scour and channel migration may damage a pipeline as a result of additional stresses imposed on the pipe by undermining underlying support soils, exposing the pipeline to lateral water forces and impact from waterborne debris. Lateral water forces may cause excessive bending loads that lead to pipeline failures, and possible impact forces from debris in the river or harmonic vibrations from water rapidly passing over pipelines can also increase the potential for pipeline failures. Additionally, the safety of valves, regulators, relief sets, pressure sensors, and other facilities normally above ground or above water can be jeopardized when covered by water. Not only can these facilities become inoperable when submerged, but they are also at a greater risk of damage by outside forces, floating debris, river currents, and craft operating on the water. Boaters involved in rescue operations, emergency support functions, sightseeing, and other activities are generally not aware of the seriousness of an incident that could result from their craft damaging a pipeline facility that is unseen beneath the surface of the water. Depending on the size of the craft and the pipeline facility struck, significant pipeline damage may result. Although accidents at river crossings account for less than one percent of the total number of pipeline accidents, the consequences of a release in water can be much more severe because of the threats to drinking water supplies and the environment. Unlike hazardous liquid releases on land where it can be easier to respond to and contain spills, swift-moving river currents will carry hazardous liquids further downstream, potentially impacting much larger geographical areas and more communities. Product releases in rivers can create difficult, costly, and lengthy spill response and remediation scenarios and activities for operators, communities, and local, state, and Federal responders. II. Advisory Bulletin (ADB-2015-01) To: Owners and Operators of Gas and Hazardous Liquid Pipeline Systems. Subject: Potential for Damage to Pipeline Facilities Caused by Severe Flooding. Advisory: Severe flooding can adversely affect the safe operation of a pipeline. Operators need to direct their resources in a manner that will enable them to determine and mitigate the potential effects of flooding on their pipeline systems in accordance with applicable regulations. Operators are urged to take the following actions to prevent and mitigate damage to pipeline facilities and ensure public and environmental safety in areas affected by flooding: 1. Utilize experts in river flow, such as hydrologists or fluvial geomorphologists, to evaluate a river's potential for scour or channel migration at each pipeline river crossing. 2. Evaluate each pipeline crossing a river to determine the pipeline's installation method and determine if that method (and the pipeline's current condition) is sufficient to withstand the risks posed by anticipated flood conditions, river scour, or river channel migration. In areas prone to these conditions and risks, consider installing pipelines using horizontal directional drilling to help place pipelines below elevations of maximum scour and outside the limits of lateral channel migration. 3. Determine the maximum flow or flooding conditions at rivers where pipeline integrity is at risk in the event of flooding (e.g., where scour can occur) and have contingency plans to shut down and isolate those pipelines when those conditions occur. 4. Evaluate the accessibility of pipeline facilities and components that may be in jeopardy, such as valve settings, which are needed to isolate water crossings or other sections of pipelines. 5. Extend regulator vents and relief stacks above the level of anticipated flooding as appropriate. 6. Coordinate with emergency and spill responders on pipeline locations, crossing conditions, and the commodities transported. Provide maps and other relevant information to such responders so they can develop appropriate response strategies. 7. Coordinate with other pipeline operators in flood areas and establish emergency response centers to act as a liaison for pipeline problems and solutions. 8. Deploy personnel so that they will be in position to shut down, isolate, contain, or perform any other emergency action on an affected pipeline. 9. Determine if facilities that are normally above ground (e.g., valves, regulators, relief sets, etc.) have become submerged and are in danger of being struck by vessels or debris and, if possible, mark such facilities with U.S. Coast Guard approval and an appropriate buoy. 10. Perform frequent patrols, including appropriate overflights, to evaluate right-of-way conditions at water crossings during flooding and after waters subside. Report any flooding, either localized or systemic, to integrity staff to determine if pipeline crossings may have been damaged or would be in imminent jeopardy from future flooding. 11. Have open communications with local and state officials to address their concerns regarding observed pipeline exposures, localized flooding, ice dams, debris dams, and extensive bank erosion that may affect the integrity of pipeline crossings. 12. Following floods, and when safe river access is first available, determine if flooding has exposed or undermined pipelines because of new river channel profiles. This is best done by a depth of cover survey. 13. Where appropriate, surveys of underwater pipe should include the use of visual inspection by divers or instrumented detection. Pipelines in recently flooded lands adjacent to rivers should also be evaluated to determine the remaining depth of cover. You should share information gathered by these surveys with affected landowners. Agricultural agencies may help to inform farmers of potential hazards from reduced cover over pipelines. 14. Ensure that line markers are still in place or are replaced in a timely manner. Notify contractors, highway departments, and others involved in post-flood restoration activities of the presence of pipelines and the risks posed by reduced cover. If a pipeline has suffered damage or is shut-in as a precautionary measure due to flooding, the operator should advise the appropriate PHMSA regional office or state pipeline safety authority before returning the line to service, increasing its operating pressure, or otherwise changing its operating status. Furthermore, reporting a Safety-Related Condition as prescribed in Sec. Sec. 191.23 and 195.55 may also be required. Authority: 49 U.S.C. Chapter 601 and 49 CFR 1.97 [[Page 19116]] Issued in Washington, DC, on April 6, 2015. Timothy P. Butters, Acting Administrator. [FR Doc. 2015-08148 Filed 4-8-15; 8:45 am] BILLING CODE 4910-60-P
![19114 Federal Register / Vol. 80, No. 68 / Thursday, April 9, 2015 / Notices
workshop will be webcast. Attendees, Mississippi, North Carolina, Puerto maximum extent practicable, to a worst
both in person and by webcast, are Rico, South Carolina, and Tennessee case discharge and to a substantial
strongly encouraged to register to help • Southwest Region: 713–272–2859, threat of such a discharge’’ under
ensure accommodations are adequate. Arkansas, Louisiana, New Mexico, § 194.107(a). Per § 194.115, the operator
Presentations will be available online Oklahoma, and Texas must ‘‘identify, and ensure, by contract
at the meeting page and also be posted • Western Region: 720–963–3160, or other approved means, the resources
in the E-Gov Web site: http:// Alaska, Arizona, California, Colorado, necessary to remove, to the maximum
www.regulations.gov, at docket number Hawaii, Idaho, Montana, Nevada, extent practicable, a worst case
PHMSA–2014–0014 within 30 days Oregon, Utah, Washington, and discharge and to mitigate or prevent a
following the meeting. Wyoming substantial threat of a worst case
Authority: 49 U.S.C. Chapter 601 and 49 Intrastate pipeline operators should discharge’’.
CFR 1.97. contact the appropriate state pipeline Furthermore, an operator must take
safety authority. A list of state pipeline additional preventative and mitigative
Issued in Washington, DC, on April 3,
2015.
safety authorities is provided at: measures beyond those already required
www.napsr.org in Parts 192, 194, and 195 to prevent a
Jeffrey D. Wiese,
SUPPLEMENTARY INFORMATION: pipeline failure and to mitigate the
Associate Administrator for Pipeline Safety.
consequences of a pipeline failure per
[FR Doc. 2015–08115 Filed 4–8–15; 8:45 am] I. Background §§ 192.935, 194.107(a) and 195.452(i).
BILLING CODE 4910–60–P An operator must base the additional
Section 192.613(a) of the Pipeline
Safety Regulations (49 CFR parts 190– measures on the threats the operator has
199) states that ‘‘[e]ach operator shall identified for each pipeline segment. If
DEPARTMENT OF TRANSPORTATION an operator determines outside force
have a procedure for continuing
Pipeline and Hazardous Materials surveillance of its facilities to determine damage (e.g., earth movement, floods) is
Safety Administration and take appropriate action concerning a threat to the pipeline, the operator
changes in class location, failures, must take steps to minimize the
[Docket No. PHMSA–2015–0105] leakage history, corrosion, substantial probability of damage and the
changes in cathodic protection consequences of a release.
Pipeline Safety: Potential for Damage PHMSA has released five Advisory
to Pipeline Facilities Caused by requirements, and other unusual
operating and maintenance conditions.’’ Bulletins on this subject, with the
Flooding, River Scour, and River earliest issued July 29, 1993, (ADB–93–
Channel Migration Section 192.613(b) further states that
‘‘[i]f a segment of pipeline is determined 03), and the most recent on July 27,
AGENCY: Pipeline and Hazardous to be in unsatisfactory condition but no 2011, (ADB–11–04; 76 FR 44985). Each
Materials Safety Administration immediate hazard exists, the operator of these bulletins followed an event that
(PHMSA); DOT. shall initiate a program to recondition or involved severe flooding that affected
ACTION: Notice; Issuance of Advisory phase out the segment involved, or, if pipelines in the areas of rising waters.
Bulletin. the segment cannot be reconditioned or Four of the more notable events are
phased out, reduce the maximum briefly described below:
SUMMARY: PHMSA is issuing this allowable operating pressure in On August 13, 2011, Enterprise
updated advisory bulletin to all owners accordance with § 192.619(a) and (b).’’ Products Operating, LLC discovered a
and operators of gas and hazardous Likewise, § 195.401(b)(1) of the release of 28,350 gallons (675 barrels) of
liquid pipelines to communicate the Pipeline Safety Regulations states that natural gasoline in the Missouri River in
potential for damage to pipeline ‘‘[w]henever an operator discovers any Iowa. The rupture, according to the
facilities caused by severe flooding. This condition that could adversely affect the metallurgical report, was the result of
advisory includes actions that operators safe operation of its pipeline system, it fatigue crack growth driven by
should consider taking to ensure the must correct the condition within a vibrations in the pipe from vortex
integrity of pipelines in the event of reasonable time. However, if the shedding.
flooding, river scour, and river channel condition is of such a nature that it On July 1, 2011, ExxonMobil Pipeline
migration. presents an immediate hazard to Company experienced a pipeline failure
FOR FURTHER INFORMATION CONTACT: persons or property, the operator may near Laurel, Montana, resulting in the
Operators of pipelines subject to not operate the affected part of the release of 63,000 gallons (1,500 barrels)
regulation by PHMSA should contact system until it has corrected the unsafe of crude oil into the Yellowstone River.
the appropriate PHMSA Region Office. condition.’’ Section 195.401(b)(2) According to the results of PHMSA’s
The PHMSA Region Offices and their further states that ‘‘[w]hen an operator accident investigation, the rupture was
contact information are as follows: discovers a condition on a pipeline caused by channel migration and river
• Central Region: 816–329–3800, covered under [the integrity bottom scour, leaving a large span of the
Illinois, Indiana, Iowa, Kansas, management requirements in] § 195.452, pipeline exposed to prolonged current
Michigan, Minnesota, Missouri, the operator must correct the condition forces and debris washing downstream
Nebraska, North Dakota, South Dakota, as prescribed in § 195.452(h).’’ Severe in the river. Those external forces
and Wisconsin flooding, river scour, and river channel damaged the exposed pipeline.
• Eastern Region: 609–989–2171, migration are the types of unusual On July 15, 2011, NuStar Pipeline
Connecticut, Delaware, District of operating conditions that can adversely Operating Partnership, L.P. reported a
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Columbia, Maine, Maryland, affect the safe operation of a pipeline 4,200 gallon (100 barrels) anhydrous
Massachusetts, New Hampshire, New and require corrective action under ammonia spill in the Missouri River in
Jersey, New York, Ohio, Pennsylvania, §§ 192.613(a) and 195.401(b). Nebraska requiring extensive
Rhode Island, Vermont, Virginia, and In addition, Part 194 requires environmental response and causing
West Virginia operators of onshore oil pipelines to supply disruption. The 6-inch-diameter
• Southern Region: 404–832–1147, ‘‘include procedures and a list of pipeline was exposed by scouring
Alabama, Florida, Georgia, Kentucky, resources for responding, to the during extreme flooding.
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![19116 Federal Register / Vol. 80, No. 68 / Thursday, April 9, 2015 / Notices
Issued in Washington, DC, on April 6, Docket Number: DOT–OST–2015– points; (iv) other charters pursuant to
2015. 0064. the prior approval requirements; and (v)
Timothy P. Butters, Date Filed: March 25, 2015. transportation authorized by any
Acting Administrator.
Due Date for Answers, Conforming additional route rights made available to
Applications, or Motion to Modify European Union carriers under the U.S.-
[FR Doc. 2015–08148 Filed 4–8–15; 8:45 am]
Scope: April 15, 2015. EU Air Transport Agreement in the
BILLING CODE 4910–60–P Description: Application of Altius future. AirBaltic also requests an
Aviation, LLC requesting authority to exemption to the extent necessary to
operate scheduled passenger service as allow it to provide the services
DEPARTMENT OF TRANSPORTATION a commuter air carrier. described above for a two-year period or
Office of the Secretary Docket Number: DOT–OST–2015– until the requested permit authority
0065. becomes effective, whichever occurs
Notice of Applications for Certificates Date Filed: March 26, 2015. first.
of Public Convenience and Necessity Due Date for Answers, Conforming
Docket Number: DOT–OST–1999–
and Foreign Air Carrier Permits Filed Applications, or Motion to Modify
6663 and DOT–OST–2011–0076.
Scope: April 16, 2015.
Under Subpart B (formerly Subpart Q) Date Filed: March 24, 2015.
Description: Application of Air Baltic
During the Week Ending March 28, Corporation A/S (‘‘AirBaltic’’) Due Date for Answers, Conforming
2015. requesting a foreign air carrier permit to Applications, or Motion to Modify
authorize foreign air transportation to Scope: April 14, 2015.
The following Applications for engage in: (i) Foreign scheduled and
Certificates of Public Convenience and Description: Application of United
charter air transportation of persons, Parcel Service Co. requesting an
Necessity and Foreign Air Carrier. property and mail from any point or
Permits were filed under Subpart B amendment of its U.S.-Mexico
points behind any Member State of the certificate of public convenience and
(formerly Subpart Q) of the Department European Union, via any point or points necessity and a related exemption, as
of Transportation’s Procedural in any Member State and via well as a designation under the U.S.-
Regulations (See 14 CFR 302. 201 et. intermediate points, to any point or Mexico Air Transport Agreement
seq.). The due date for Answers, points in the United States and beyond; authorizing it to provide scheduled
Conforming Applications, or Motions to (ii) foreign scheduled and charter air foreign air transportation of property
Modify Scope are set forth below for transportation of persons, property and and mail between Dallas, Texas (DFW)
each application. Following the Answer mail between any point or points in the and Mexico City, Mexico (MEX).
period DOT may process the application United States and any point or points in
by expedited procedures. Such any member of the European Common Barbara J. Hairston,
procedures may consist of the adoption Aviation Area; (iii) foreign scheduled Supervisory Dockets Officer, Docket
of a show-cause order, a tentative order, and charter air transportation of cargo Operations, Federal Register Liaison.
or in appropriate cases a final order between any point or points in the [FR Doc. 2015–08147 Filed 4–8–15; 8:45 am]
without further proceedings. United States and any other point or BILLING CODE 4910–9X–P
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Document Created: 2015-12-18 11:23:24
Document Modified: 2015-12-18 11:23:24
| Category | Regulatory Information | |
| Collection | Federal Register | |
| sudoc Class | AE 2.7: GS 4.107: AE 2.106: | |
| Publisher | Office of the Federal Register, National Archives and Records Administration | |
| Section | Notices | |
| Action | Notice; Issuance of Advisory Bulletin. | |
| Contact | Operators of pipelines subject to regulation by PHMSA should contact the appropriate PHMSA Region Office. The PHMSA Region Offices and their contact information are as follows: | |
| FR Citation | 80 FR 19114 |
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