80 FR 51868 - Ballast Defects and Conditions-Importance of Identification and Repair in Preventing Development of Unsafe Combinations of Track Conditions

DEPARTMENT OF TRANSPORTATION
Federal Railroad Administration

Federal Register Volume 80, Issue 165 (August 26, 2015)

Page Range		51868-51870
FR Document		2015-21044

FRA is issuing this safety advisory to emphasize the importance of timely repairing ballast defects and conditions on main tracks. FRA notes that ballast defects and ballast conditions that are not repaired in a timely manner can lead to future defects. FRA believes it is important for track inspectors to be aware that ballast defects and conditions can cause track components to deteriorate rapidly and compromise the stability of the track structure, and that inspectors are trained to identify and repair ballast defects and conditions. This safety advisory recommends that track owners and railroads: (1) Assess current engineering instructions on ballast safety and update them to provide specific guidance to track inspectors (designated personnel that are qualified to inspect and repair track) on how to identify and initiate remedial action under 49 CFR 213.233(d) for ballast defects and conditions, as well as on the appropriate remedial action to implement, particularly in areas with one or more additional track conditions; (2) train track inspectors on the updated engineering instructions and this safety advisory to ensure they understand how to identify and initiate remedial action for ballast defects and conditions in a timely manner, and understand the importance of such remedial action in preventing the development of unsafe combinations of track conditions; and (3) ensure that supervisors provide adequate oversight of track inspectors to achieve identification and remediation of ballast defects and other track conditions.

Federal Register, Volume 80 Issue 165 (Wednesday, August 26, 2015)

[Federal Register Volume 80, Number 165 (Wednesday, August 26, 2015)]
[Notices]
[Pages 51868-51870]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2015-21044]


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DEPARTMENT OF TRANSPORTATION

Federal Railroad Administration

[Safety Advisory 2015-04]


Ballast Defects and Conditions--Importance of Identification and 
Repair in Preventing Development of Unsafe Combinations of Track 
Conditions

AGENCY: Federal Railroad Administration (FRA) Department of 
Transportation (DOT).

ACTION: Notice of Safety Advisory.

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SUMMARY: FRA is issuing this safety advisory to emphasize the 
importance of timely repairing ballast defects and conditions on main 
tracks. FRA notes that ballast defects and ballast conditions that are 
not repaired in a timely manner can lead to future defects. FRA 
believes it is important for track inspectors to be aware that ballast 
defects and conditions can cause track components to deteriorate 
rapidly and compromise the stability of the track structure, and that 
inspectors are trained to identify and repair ballast defects and 
conditions. This safety advisory recommends that track owners and 
railroads: (1) Assess current engineering instructions on ballast 
safety and update them to provide specific guidance to track inspectors 
(designated personnel that are qualified to inspect and repair track) 
on how to identify and initiate remedial action under 49 CFR 213.233(d) 
for ballast defects and conditions, as well as on the appropriate 
remedial action to implement, particularly in areas with one or more 
additional track conditions; (2) train track inspectors on the updated 
engineering instructions and this safety advisory to ensure they 
understand how to identify and initiate remedial action for ballast 
defects and conditions in a timely manner, and understand the 
importance of such remedial action in preventing the development of 
unsafe combinations of track conditions; and (3) ensure that 
supervisors provide adequate oversight of track inspectors to achieve 
identification and remediation of ballast defects and other track 
conditions.

FOR FURTHER INFORMATION CONTACT: Mr. Kenneth Rusk, Staff Director, 
Track Division, Office of Railroad Safety, FRA, 1200 New Jersey Avenue 
SE., Washington, DC 20590, telephone (202) 493-6236; or Ms. Anna Nassif 
Winkle, Attorney Advisor, Office of Chief Counsel, FRA, 1200 New Jersey 
Avenue SE., Washington, DC 20590, telephone (202) 493-6166.

SUPPLEMENTARY INFORMATION: 
    Background--Ballast may consist of crushed stone, crushed slag, 
screened gravel, and other materials; ballast is an integral part of 
the track structure. Ballast, regardless of the material, must satisfy 
all four of the requirements in FRA's track safety standards in 49 CFR 
part 213. See Sec. Sec.  213.103 and 213.334.\1\
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    \1\ All references to sections or part in this safety advisory 
are to a section or part of Title 49 of the CFR.
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    The sole appearance of fouled ballast (i.e., ballast contaminated 
with broken-down particles, mud, coal dust, or other foreign material) 
may not warrant immediate corrective action if the ballast is properly 
transmitting and distributing the load, restraining the track, 
providing adequate drainage, and maintaining proper geometry. However, 
when ballast cannot adequately drain free-standing water, wheel loads 
are likely to be concentrated, rather than distributed. The 
concentrated wheel loads can cause rapid deterioration of track 
components and track instability, which can increase the risk of 
derailment. In addition, as noted below in the discussion regarding an 
accident that occurred at a fouled ballast location, track instability 
can not only

[[Page 51869]]

result from an individual track defect, but from a combination of track 
conditions. FRA reminds track owners and railroads of their 
responsibility under Sec.  213.7 to ensure all persons they designate 
as qualified to either supervise certain renewals of track or inspect 
track for defects know and understand the requirements of part 213, are 
able to detect deviations, and can prescribe appropriate remedial 
action.
    Ballast defects are often readily apparent through indications of 
poor geometry and structure degradation. FRA believes that a location 
with a combination of a ballast defect with a marginal geometry 
condition \2\ warrants additional monitoring, more restrictive remedial 
action, or both, to correct or safely compensate for the combined 
defect and condition.
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    \2\ A geometry condition means a track surface, gage, or 
alinement irregularity that does not exceed the allowable threshold 
for the designated track class in the track safety standards.
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    Railroad track inspectors should exercise their technical knowledge 
and professional experience to identify and record ballast defect or 
condition locations, and should take into account the severity of any 
geometry conditions along with the following factors to determine 
appropriate remedial action:
     Operating practice: Train speed, loading environment, 
route type and density, proximity to population centers;
     Track structure: rail, crossties, and fastener 
deterioration (mechanical wear from impact force), condition causing 
excessive rail cant (particularly abraded concrete crossties), 
concentrated support under ties, and localized excessive loading of 
ties;
     Roadbed and right-of-way condition: Sufficiently 
maintained to allow free-draining shoulder and crib ballast, 
unrestricted cross and lateral drainage;
     Special trackwork and transition points: \3\ Turnouts, 
bridges, rail crossings, and highway/rail crossings.
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    \3\ Transition points occur at locations where there is an 
abrupt change in the vertical stiffness (support) of the track, such 
as the approach to a bridge. Transition points increase the dynamic 
loading of the track, causing more rapid deterioration of track 
components (e.g., ballast, crossties, rail fasteners, and rail).
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    Ballast defects are not associated with a track classification 
under Sec. Sec.  213.9 and 213.307 requirements. Normally, ballast 
degradation is a gradual process. However, environmental conditions can 
accelerate the degradation rate and pose a safety threat to train 
operations. The safe passage of trains is reliant on the track 
inspector to recognize and assess the safety risk through training and 
experience.
    Ballast conditions that produce a derailment risk must be corrected 
by repair or by applying appropriate restrictions upon discovery. The 
railroad's designated track inspector is responsible for conducting a 
proper inspection and applying appropriate remedial action.
    Highlighted Accident--On July 18, 2013, at approximately 8:29 p.m., 
northbound CSX Transportation Train Q70419 derailed at Milepost 9.99 
while traversing the No. 2 Main Track on the Metro-North Commuter 
Railroad Company's Hudson Line. FRA and the National Transportation 
Safety Board (NTSB) investigated the accident.
    The accident was caused by the rail canting outward under increased 
dynamic wheel-rail loads due to the combination of gage and profile 
deviations and center-bound concrete crossties resulting in damage 
sufficient to reduce their ability to hold gage. These conditions 
developed from the ballast failing to properly support the track 
structure, which itself was the result of inadequate drainage. A track 
inspector performing proficient track inspections should have 
recognized the degrading ballast and geometry conditions, and the 
likelihood for center-bound crossties, and taken responsible corrective 
action. To prevent the development of such unsafe combinations of track 
conditions, FRA believes it is important that track owners and 
railroads assess current internal engineering instructions and update 
them to provide specific guidance to track inspectors on how to 
identify ballast defects and other track conditions. It is also 
important that track owners and railroads provide clear guidance on how 
to determine and apply appropriate remedial action, particularly in 
locations where the combination of track geometry and structure 
conditions produces an increased risk of derailment.
    FRA further believes that alerting track owners or railroads to the 
issue of unsafe combinations of track conditions and highlighting a 
derailment resulting from a combination of marginaltrack conditions at 
a fouled ballast location provides a sufficient basis for these 
entities to review engineering standards and to consider requiring 
additional attention and action in areas with multiple track 
conditions. This is particularly true when geometry and structural 
deviations are produced by poorly-performing ballast.
    The NTSB's safety recommendations resulting from its investigation 
of the derailment discussed above are on its Web site at www.ntsb.gov. 
The NTSB recommended that FRA define specific allowable limits for 
combinations of track conditions, none of which individually amount to 
a deviation from FRA regulations that require remedial action.
    Recommended Action--In light of the above discussion, and in 
addition to complying with the requirements of part 213, including 
Sec. Sec.  213.7 and 213.103, FRA recommends that track owners and 
railroads take the following actions:
    1. Assess current internal engineering instructions in view of the 
concerns raised in this Safety Advisory 2015-04, and update them to 
ensure that the instructions provide specific guidance to track 
inspectors on how to identify and initiate remedial action under Sec.  
213.233(d) for ballast defects and other ballast conditions, and on the 
appropriate remedial action to implement, particularly in areas with 
one or more additional track conditions.
    2. Train track inspectors on the updated engineering instructions 
and this safety advisory. Such training should ensure that each track 
inspector understands the following:
    a. Identification of Ballast Defects and Conditions. Know the 
requirements and purpose of track subgrade and ballast and understand 
the circumstances that can lead to ballast failure and other ballast 
defects and conditions, such as inadequate drainage, saturated 
subgrade, and transition points (e.g., highway-rail grade crossings and 
approaches to bridges).
    b. Remedial Action for Ballast Defects and Conditions. Understand 
the importance of maintaining ballast and initiating remedial action 
for any ballast defects or conditions in preventing the development of 
one or more additional track conditions (e.g., gage widening, alinement 
and track surface deviations) or track structure conditions (e.g., 
center-bound crossties, loose or missing fasteners, rail cant, etc.), 
especially around transition points or other areas susceptible to 
ballast degradation.
    3. Ensure that supervisors provide oversight of track inspectors to 
achieve proper identification and remediation of ballast defects and 
other track conditions.
    FRA encourages the railroad industry to take appropriate action 
consistent with the preceding recommendations and any other actions to 
ensure the safety of the Nation's railroad employees, passengers, and 
the general public. FRA may modify this Safety Advisory 2015-04, issue 
additional safety advisories, or take other appropriate actions it 
deems necessary to ensure the highest level of safety,

[[Page 51870]]

including pursuing other corrective measures under its rail safety 
authority.

    Issued in Washington, DC, on August 20, 2015.
Robert C. Lauby,
Associate Administrator for Railroad Safety Chief Safety Officer.
[FR Doc. 2015-21044 Filed 8-25-15; 8:45 am]
 BILLING CODE 4910-06-P

51868 Federal Register / Vol. 80, No. 165 / Wednesday, August 26, 2015 / Notices

Project are evaluated and described in 9. Federal Endangered Species Act of railroads: (1) Assess current engineering
the Final Environmental Impact Report 1973 (16 U.S.C. 1531–1543). instructions on ballast safety and update
(EIR)/Environmental Impact Statement 10. Fish and Wildlife Coordination Act them to provide specific guidance to
(EIS), a joint document pursuant to the of 1934, as amended. track inspectors (designated personnel
California Environmental Quality Act 11. Noise Control Act of 1972. that are qualified to inspect and repair
and the National Environmental Policy 12. Safe Drinking Water Act of 1944, as track) on how to identify and initiate
Act. Key issues identified in the Final amended. remedial action under 49 CFR
EIR/EIS include impacts to community 13. Executive Order 11990—Protection 213.233(d) for ballast defects and
character and cohesion, growth-related of Wetlands conditions, as well as on the appropriate
effects, biological resources, aquatic 14. Executive Order 11988—Floodplain remedial action to implement,
resources, cultural resources, aesthetics, Management particularly in areas with one or more
residential relocations, business 15. Executive Order 13112, Invasive additional track conditions; (2) train
relocations, traffic noise, and temporary Species. track inspectors on the updated
construction effects. Measures to avoid, 16. Executive Order 12898, Federal engineering instructions and this safety
minimize, and mitigate adverse Actions to Address Environmental advisory to ensure they understand how
environmental effects are included in Justice and Low-Income to identify and initiate remedial action
the Environmental Commitments Populations for ballast defects and conditions in a
Record in the Final EIR/EIS. The Final 17. Title VI of the Civil Rights Act of timely manner, and understand the
EIR/EIS identified Alternative 9 1964, as amended. importance of such remedial action in
Modified with the San Jacinto River 18. Department of Transportation Act of preventing the development of unsafe
Bridge Design Variation and the Base 1966, Section 4(f) (49 U.S.C. 303) combinations of track conditions; and
Case Alignment through the City of San (Catalog of Federal Domestic Assistance (3) ensure that supervisors provide
Jacinto, and, as further refined, to avoid Program Number 20.205, Highway adequate oversight of track inspectors to
the permanent incorporation of land Planning and Construction. The achieve identification and remediation
from the San Jacinto Wildlife Area, as regulations implementing E. O. 12372 of ballast defects and other track
the preferred alternative. regarding intergovernmental conditions.
The actions by the Federal agencies, consultation on Federal programs and FOR FURTHER INFORMATION CONTACT: Mr.
and the laws under which such actions activities apply to this program.) Kenneth Rusk, Staff Director, Track
were taken, are described in the Final Authority: 23 U.S.C. 139 (l)(1). Division, Office of Railroad Safety, FRA,
EIR/EIS for the project, approved on 1200 New Jersey Avenue SE.,
April 15, 2015, in the FHWA Record of Shawn Oliver, Washington, DC 20590, telephone (202)
Decision (ROD) issued on August 17, Acting Director, Program Development, 493–6236; or Ms. Anna Nassif Winkle,
2015, and in other documents in the Federal Highway Administration, Attorney Advisor, Office of Chief
FHWA project records. The Final EIR/ Sacramento, California. Counsel, FRA, 1200 New Jersey Avenue
EIS, ROD, and other project records are [FR Doc. 2015–20697 Filed 8–25–15; 8:45 am] SE., Washington, DC 20590, telephone
available by contacting FHWA at the BILLING CODE 4910–RY–P (202) 493–6166.
address provided above. The Final EIR/ SUPPLEMENTARY INFORMATION:
EIS and ROD can be viewed and Background—Ballast may consist of
downloaded from the project Web site at DEPARTMENT OF TRANSPORTATION crushed stone, crushed slag, screened
http://midcountyparkway.org/ or gravel, and other materials; ballast is an
Federal Railroad Administration
viewed at public libraries in the project integral part of the track structure.
area. [Safety Advisory 2015–04] Ballast, regardless of the material, must
This notice applies to all Federal satisfy all four of the requirements in
agency decisions as of the issuance date Ballast Defects and Conditions— FRA’s track safety standards in 49 CFR
of this notice and all laws under which Importance of Identification and Repair part 213. See §§ 213.103 and 213.334.1
such actions were taken, including but in Preventing Development of Unsafe The sole appearance of fouled ballast
not limited to: Combinations of Track Conditions (i.e., ballast contaminated with broken-
1. General: National Environmental down particles, mud, coal dust, or other
AGENCY: Federal Railroad
Policy Act (NEPA) (42 U.S.C. 4321– foreign material) may not warrant
Administration (FRA) Department of
4351 et seq.). immediate corrective action if the
Transportation (DOT).
2. Council on Environmental Quality ballast is properly transmitting and
ACTION: Notice of Safety Advisory. distributing the load, restraining the
Regulations.
3. Federal-Aid Highway Act of 1970, 23 SUMMARY: FRA is issuing this safety track, providing adequate drainage, and
U.S.C. 109. advisory to emphasize the importance of maintaining proper geometry. However,
4. MAP–21, the Moving Ahead for timely repairing ballast defects and when ballast cannot adequately drain
Progress in the 21st Century Act. conditions on main tracks. FRA notes free-standing water, wheel loads are
5. Clean Air Act (42 U.S.C. 7401– that ballast defects and ballast likely to be concentrated, rather than
7671(q)). conditions that are not repaired in a distributed. The concentrated wheel
loads can cause rapid deterioration of
6. Migratory Bird Treaty Act (16 U.S.C. timely manner can lead to future
track components and track instability,
703–712). defects. FRA believes it is important for
which can increase the risk of
7. Historic and Cultural Resources: track inspectors to be aware that ballast
rmajette on DSK7SPTVN1PROD with NOTICES

derailment. In addition, as noted below
Section 106 of the National Historic defects and conditions can cause track
in the discussion regarding an accident
Preservation Act of 1966, as components to deteriorate rapidly and
that occurred at a fouled ballast
amended (16 U.S.C. 470(f) et seq.). compromise the stability of the track
location, track instability can not only
8. Clean Water Act (Section 401) (33 structure, and that inspectors are trained
U.S.C. 1251–1377) of 1977 and 1987 to identify and repair ballast defects and 1 All references to sections or part in this safety
(Federal Water Pollution Control conditions. This safety advisory advisory are to a section or part of Title 49 of the
Act of 1972). recommends that track owners and CFR.

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51870 Federal Register / Vol. 80, No. 165 / Wednesday, August 26, 2015 / Notices

including pursuing other corrective DEPARTMENT OF TRANSPORTATION B), notice is hereby given of the actions
measures under its rail safety authority. on special permits applications in (July
Pipeline and Hazardous Materials to July 2015). The mode of
Issued in Washington, DC, on August 20,
Safety Administration transportation involved are identified by
2015.
a number in the ‘‘Nature of
Robert C. Lauby, Office of Hazardous Materials Safety; Application’’ portion of the table below
Associate Administrator for Railroad Safety Notice of Actions on Special Permit as follows: 1—Motor vehicle, 2—Rail
Chief Safety Officer. Applications freight, 3—Cargo vessel, 4—Cargo
[FR Doc. 2015–21044 Filed 8–25–15; 8:45 am] aircraft only, 5—Passenger-carrying
AGENCY: Pipeline And Hazardous
BILLING CODE 4910–06–P
Materials Safety Administration aircraft. Application numbers prefixed
(PHMSA), DOT. by the letters EE represent applications
for Emergency Special Permits. It
ACTION: Notice of actions on Special
should be noted that some of the
Permit Applications. sections cited were those in effect at the
SUMMARY: In accordance with the time certain special permits were
procedures governing the application issued.
for, and the processing of, special Issued in Washington, DC, on August 5,
permits from the Department of 2015.
Transportation’s Hazardous Material Donald Burger,
Regulations (49 CFR part 107, subpart Chief, General Approvals and Permits.

S.P. No. Applicant Regulation(s) Nature of special permit thereof

MODIFICATION SPECIAL PERMIT GRANTED

11666–M .............................. SGL Carbon, LLC (SGL), 49 CFR 173.240(6) ........... To modify the special permit to authorize green graph-
Charlotte, NC. ite products being shipped on open flat-bed trailers
to be secured with plastic bandings.
10232–M .............................. ITW Sexton, Decatur, AL .. 49 CFR 173.304(d) and To modify the special permit to authorize an additional
173.306(a)(3). hazardous material and limited quanity authorized.
14848–M .............................. Corning Incorporated, Cor- 49 CFR 172.202, 172.301, To modify the special permit by incorporating the pro-
ning, NY. 172.400, 172.504 and visions of systems authorized under DOT–SP 14274
177.834(h). and DOT–SP 13107 so that it is a stand alone spe-
cial permit.
15583–M .............................. Northern Air Cargo Inc., 49 CFR 172.101 Column To modify the special permit by adding the following
Anchorage, AK. (9B). paragraph in 7.(g)(3) ‘‘or alternatively—FAA-as-
signed Principal Operations or Maintenance Pro-
gram’’.
15747–M .............................. United Parcel Service, Inc., 49 CFR 177.817(a), To modify the special permit to authorize marking on
Atlanta, GA. 177.817.(e), 172.606(b), two sides of certain trailers.
and 172.203(a).
14349–M .............................. Matheson Tri-Gas, Basking 49 CFR 173.3(d)(2)(ii) ....... To modify the special permit to authorize additional
Ridge, NJ. hazardous materials to be transported in a salvage
cylinder.
16333–M .............................. Liberty Industrial Gases & 49 CFR 171.2(e) and To modify the special permit originally issued on an
Welding Supply Inc., 177.801. emergency basis to authorize an additional two
Brooklyn, NY. years.
16340–M .............................. Praxair Distribution Mid-At- 49 CFR 171.2 and 177.801 To reissue the special the permit that was originally
lantic, LLC, Newark, NJ. issued on an emergency basis with a 2 year re-
newal.

EMERGENCY SPECIAL PERMIT GRANTED

15515–M .............................. National Aeronautics and 49 CFR 173.302a, To authorize an active PRD and add operational con-
Space Administration 173.301(f)(1), trols to authorized an alternative to the requirement
(NASA), Houston, TX. 173.301(h)(3), for a rigid outer packaging. (modes 1, 2, 3, 4).
173.302(f)(2), and
173.302(f)(4).
15999–M .............................. National Aeronautics and 49 CFR part 172 and 173 To modify the special permit by adding a Class 8 ma-
Space Administration terial (modes 1, 3).
(NASA), Washington,
DC.
16513–N .............................. U.S. Department of Jus- 49 CFR 173.56(b), and An emergency special permit to authorize the one-way
tice, Bureau of Alcohol, 172.320. transportation in commerce of unapproved fireworks
rmajette on DSK7SPTVN1PROD with NOTICES

Tobacco, Firearms and for use in a research testing project. (mode 1).
Explosives (ATF), Wash-
ington, DC.
16528–N .............................. Worthington Cylinder Cor- 49 CFR 173.301(a)(9) ....... To authorize the transportation in commerce of certain
poration, Columbus, OH. DOT Specification 39 cylinders in strong outer pack-
agings without marking each package with an indi-
cation that the inner packagings conform to the pre-
scribed specifications. (mode 1).

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Document Created: 2015-12-15 10:59:03
Document Modified: 2015-12-15 10:59:03

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 of Safety Advisory.
Contact		Mr. Kenneth Rusk, Staff Director, Track Division, Office of Railroad Safety, FRA, 1200 New Jersey Avenue SE., Washington, DC 20590, telephone (202) 493-6236; or Ms. Anna Nassif Winkle, Attorney Advisor, Office of Chief Counsel, FRA, 1200 New Jersey Avenue SE., Washington, DC 20590, telephone (202) 493-6166.
FR Citation		80 FR 51868

80 FR 51868 - Ballast Defects and Conditions-Importance of Identification and Repair in Preventing Development of Unsafe Combinations of Track Conditions

DEPARTMENT OF TRANSPORTATIONFederal Railroad Administration

Federal Register Volume 80, Issue 165 (August 26, 2015)

DEPARTMENT OF TRANSPORTATION
Federal Railroad Administration