81 FR 89183 - Pipeline Safety: Safeguarding and Securing Pipelines From Unauthorized Access

DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration

Federal Register Volume 81, Issue 237 (December 9, 2016)

Page Range		89183-89184
FR Document		2016-29500

PHMSA is issuing this Advisory Bulletin in coordination with the Department of Homeland Security's (DHS), Transportation Security Administration (TSA), to remind all pipeline owners and operators of the importance of safeguarding and securing their pipeline facilities and monitoring their Supervisory Control and Data Acquisition (SCADA) systems for abnormal operations and/or indications of unauthorized access or interference with safe pipeline operations. Additionally, this Advisory Bulletin is to remind the public of the dangers associated with tampering with pipeline system facilities. This Advisory Bulletin follows recent incidents in the United States that highlight threats to oil and gas infrastructure. On October 11, 2016, several unauthorized persons accessed and interfered with pipeline operations in four states, creating the potential for serious infrastructure damage and significant economic and environmental harm, as well as endangering public safety. While the incidents did not result in any damage or injuries, the potential impacts emphasize the need for increased awareness and vigilance.

Federal Register, Volume 81 Issue 237 (Friday, December 9, 2016)

[Federal Register Volume 81, Number 237 (Friday, December 9, 2016)]
[Notices]
[Pages 89183-89184]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-29500]


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DEPARTMENT OF TRANSPORTATION

Pipeline and Hazardous Materials Safety Administration

[Docket No. PHMSA-2016-0137)


Pipeline Safety: Safeguarding and Securing Pipelines From 
Unauthorized Access

AGENCY: Pipeline and Hazardous Materials Safety Administration (PHMSA); 
DOT.

ACTION: Notice; issuance of Advisory Bulletin.

-----------------------------------------------------------------------

SUMMARY: PHMSA is issuing this Advisory Bulletin in coordination with 
the Department of Homeland Security's (DHS), Transportation Security 
Administration (TSA), to remind all pipeline owners and operators of 
the importance of safeguarding and securing their pipeline facilities 
and monitoring their Supervisory Control and Data Acquisition (SCADA) 
systems for abnormal operations and/or indications of unauthorized 
access or interference with safe pipeline operations. Additionally, 
this Advisory Bulletin is to remind the public of the dangers 
associated with tampering with pipeline system facilities.
    This Advisory Bulletin follows recent incidents in the United 
States that highlight threats to oil and gas infrastructure. On October 
11, 2016, several unauthorized persons accessed and interfered with 
pipeline operations in four states, creating the potential for serious 
infrastructure damage and significant economic and environmental harm, 
as well as endangering public safety. While the incidents did not 
result in any damage or injuries, the potential impacts emphasize the 
need for increased awareness and vigilance.

FOR FURTHER INFORMATION CONTACT: Operators of pipelines subject to 
regulation by DOT, PHMSA, should contact Nathan A. Schoenkin by phone 
at 202-366-4774 or by email at [email protected]. Information 
about PHMSA may be found at http://phmsa.dot.gov. Pipeline operators 
with questions on TSA's Pipeline Security Guidelines should contact 
Steven Froehlich by phone at 571-227-1240 or by email at 
[email protected].

SUPPLEMENTARY INFORMATION: 

I. Background

Incident Details

    On Tuesday October 11, 2016, individuals contacted four pipeline 
operators informing them they would shut down the pipelines used to 
transport crude oil from Canada to the United States. The operators 
(Enbridge, Kinder Morgan, Spectra Energy, and TransCanada) took steps 
to prevent damage to the pipelines and contacted local and federal law 
enforcement. The individuals cut the chains and padlocks at valve sites 
near Leonard, Minnesota; Burlington, Washington; Eagle Butte, Montana; 
and Wahalla, North Dakota. The individuals then closed valves on 
Enbridge's Lines 4 and 67, Spectra Energy's Express Pipeline, and 
TransCanada's Keystone Pipeline. The Kinder Morgan Trans Mountain's 
Puget Sound Pipeline was not operating at the time. Several individuals 
were arrested by local law enforcement.
    Had the pipeline operators not shut down their lines in response to 
the threats, a pipeline rupture could have occurred. A pipeline rupture 
due to tampering with valves can have significant consequences such as 
death, injury, and economic and environmental harm.

Pipeline Safety and Security

    PHMSA and TSA have a mutual interest in ensuring coordinated, 
consistent, and effective activities that improve interagency 
cooperation on transportation security and safety matters. PHMSA 
focuses on the safety of the Nation's pipelines and administers the 
pipeline safety regulatory program (49 CFR part 190-199). TSA focuses 
on the security of the Nation's pipelines and has authored Pipeline 
Security Guidelines for operators available online at https://www.tsa.gov/sites/default/files/tsapipelinesecurityguidelines-2011.pdf.

II. Advisory Bulletin (ADB-2016-06)

    To: Owners and Operators of Hazardous Liquid, Carbon Dioxide and 
Gas Pipelines
    Subject: Safeguarding and Securing Pipelines from Unauthorized 
Access
    Advisory: PHMSA is issuing this Advisory Bulletin in coordination 
with TSA to remind all pipeline owners and operators of the importance 
of safeguarding and securing their pipeline facilities and monitoring 
their SCADA systems for abnormal operations and/or indications of 
unauthorized access or interference with safe pipeline operations. 
Additionally, this Advisory Bulletin is to remind the public of the 
dangers associated with tampering with pipeline system facilities.

If You See Something, Say Something^TM

    Tampering with pipeline facilities can have deleterious effects on 
the safety of the Nation's pipeline system. Tampering or acts of 
sabotage can also lead to the loss of life, injury, and significant 
harm to the economy and environment. At 49 CFR 190.291, any person that 
willingly and knowingly injures or destroys, or attempts to injure or 
destroy a pipeline facility is subject to a fine in Title 18 of the 
United States Code and imprisonment for a term not to exceed 20 years 
for each offense. Individuals are reminded that ``If you See Something, 
Say Something''^TM applies to the safety and security of our 
national pipeline infrastructure. Individuals that see something 
suspicious should reach out to their local law enforcement. Informed, 
alert communities play a vital role in keeping our Nation's energy 
infrastructure safe. Emphasizing that ``Homeland Security Starts with 
Hometown Security,'' DHS encourages businesses to ``Connect, Plan for, 
Train, and Report''. Tools and resources to help businesses plan, 
prepare, and protect themselves from suspicious activities or attacks 
are located online at https://www.dhs.gov/hometown-security.

Relationships With Local Law Enforcement

    PHMSA reminds pipeline operators that a strong relationship with 
local law enforcement is extremely beneficial for safe pipeline 
operations. Two-way communications between operators and law 
enforcement can help to stop threats before they occur. Relationships 
should be cultivated well in advance of an incident to facilitate 
mutually dependable communication during an incident.

[[Page 89184]]

Increased Security Patrols

    Pipeline operators should consider increasing the frequency of 
security patrols along their right of ways. Operators may want to 
consider the use of new technologies to aid in pipeline security 
patrols, such as unmanned aerial systems if authorized in the areas of 
operation. Frequent patrols may help inform pipeline companies of 
individuals who regularly congregate near a pipeline, or of potentially 
unsafe conditions at a valve or pump station. Information regarding 
suspicious individuals should be promptly forwarded to federal, state, 
and local law enforcement.

Protection of Facilities

    PHMSA's Office of Pipeline Safety requires pipeline operators to 
provide protection for valves on hazardous liquid pipelines at 49 CFR 
195.420(c). Additionally, at 49 CFR 195.436, hazardous liquid pipeline 
operators are required to provide protection for each pumping station, 
breakout tank area, and other exposed facility from vandalism and 
unauthorized entry. Furthermore, at 49 CFR 192.179(b)(1), natural and 
other gas pipeline operators must ensure that the valve and operating 
device to open or close the valve must be protected from tampering and 
damage. PHMSA recommends that pipeline operators review their valve and 
facility protection measures and consider taking additional steps to 
secure them.
    Operators should evaluate what type of locks and security fences 
are being used at valve stations and if they are capable of preventing 
unauthorized personnel from gaining access to pipeline valve 
facilities. Pipeline operators may choose to make mechanical operation 
of valves more difficult without proper equipment.
    The use of deterrent text and signage at pipeline facilities may be 
beneficial to decrease acts of sabotage against a pipeline facility. 
The text should include the potential consequences if a valve is closed 
improperly and a rupture was to occur. Additionally the deterrent text 
should include reference to the PHMSA regulation found at 49 CFR 
190.291 discussing the criminal penalties for tampering with pipeline 
facilities. Remote facilities should consider equipping the facilities 
with motion sensing cameras and/or motion detectors to alert control 
centers of tampering.

SCADA System Monitoring

    Due to the criticality of SCADA systems in the safe operations of a 
pipeline, operators should have strong protocols in place to ensure the 
systems will not be tampered with. SCADA systems can be tampered with 
or disabled by a physical or cyber vector. PHMSA is aware of prior 
intrusion attempts on pipeline infrastructure. An operator should 
harden physical and software borders around SCADA systems to limit the 
risk to the safe operation of pipelines. The following methods can be 
used to harden the software and physical borders around the SCADA 
system: (1) Segregating the control system network from the corporate 
network; (2) Limiting remote connection ports to the control system, 
and if necessary requiring token-based authentication to gain access; 
(3) Adding physical protection around remote sites with SCADA network 
access; (4) Enhancing user access control on SCADA system networks and 
devices and limiting access to critical system to individuals with a 
safety/business need; and [5] Employing application whitelisting and 
strict policies on peripheral devices (to include removable media, 
printers, scanners, etc.) connected to the SCADA network.
    Furthermore, DHS's Industrial Control System Cyber Emergency 
Response Team (ICS-CERT) developed a guidance document titled: 
``Recommended Practice: Improving Industrial Control System 
Cybersecurity with Defense-in-Depth Strategies.'' The document provides 
guidance for developing mitigation strategies for specific cyber 
threats and direction on how to create a Defense-in-Depth security 
program for control system environments, and is available online at 
https://ics-cert.us-cert.gov/sites/default/files/recommended_practices/NCCIC_ICS-CERT_Defense_in_Depth_2016_S508C.pdf.

Incident and Accident Reporting

    Operators are reminded that incidents and accidents must be 
promptly reported to the appropriate federal, state, and local agency. 
Requirements for immediate notification of certain incident and 
accident reporting requirements are found at 49 CFR 191.5 and 195.52. 
Furthermore, since tampering with a pipeline can lead to a release, 
PHMSA recommends that operators should contact the National Response 
Center by telephone to 800-424-8802 (in Washington, DC, 202-267-2675) 
following any physical security event that may interfere with the safe 
operation of a pipeline. Please note only ``unclassified'' incident 
details should be reported by phone to the National Response Center.
    TSA recommends in its Pipeline Security Guidelines that pipeline 
operators notify the Transportation Security Operations Center via 
phone at 866-615-5150 or email at [email protected] as soon as possible 
to report security concerns or suspicious activity. Furthermore it is 
recommended that pipeline operators notify DHS's ICS-CERT if the 
operator has an Industrial Control System concern with a cyber security 
nexus. Operators can report to ICS-CERT by emailing [email protected] 
or by calling 877-776-7585.
    PHMSA has coordinated with several components within DHS and the 
Department of Energy on this Advisory Bulletin.

    Issued in Washington, DC, on December 5, 2016, under authority 
delegated in 49 CFR 1.97.
Alan K. Mayberry,
Acting Associate Administrator for Pipeline Safety.
[FR Doc. 2016-29500 Filed 12-8-16; 8:45 am]
 BILLING CODE 4910-60-P

Federal Register / Vol. 81, No. 237 / Friday, December 9, 2016 / Notices 89183

until the period of availability expires, harm, as well as endangering public default/files/
the funds are fully expended, the funds safety. While the incidents did not tsapipelinesecurityguidelines-2011.pdf.
are rescinded by Congress, or the funds result in any damage or injuries, the
II. Advisory Bulletin (ADB–2016–06)
are otherwise reallocated. To meet potential impacts emphasize the need
program oversight responsibilities, FTA for increased awareness and vigilance. To: Owners and Operators of
must continue to collect information Hazardous Liquid, Carbon Dioxide and
FOR FURTHER INFORMATION CONTACT:
until the period of availability expires, Gas Pipelines
Operators of pipelines subject to Subject: Safeguarding and Securing
the funds are fully expended, the funds regulation by DOT, PHMSA, should
are rescinded by Congress, or the funds Pipelines from Unauthorized Access
contact Nathan A. Schoenkin by phone Advisory: PHMSA is issuing this
are otherwise reallocated. at 202–366–4774 or by email at
Respondents: States, Metropolitan Advisory Bulletin in coordination with
Nathan.Schoenkin@dot.gov. TSA to remind all pipeline owners and
Planning Organizations, and Local Information about PHMSA may be
Governmental Authorities. operators of the importance of
found at http://phmsa.dot.gov. Pipeline safeguarding and securing their pipeline
Estimated Annual Burden on operators with questions on TSA’s
Respondents: 15 hours for each of the facilities and monitoring their SCADA
Pipeline Security Guidelines should systems for abnormal operations and/or
respondents. contact Steven Froehlich by phone at
Estimated Total Annual Burden: 303 indications of unauthorized access or
571–227–1240 or by email at interference with safe pipeline
hours. Steven.Froehlich@tsa.dhs.gov.
Frequency: Annual. operations. Additionally, this Advisory
SUPPLEMENTARY INFORMATION: Bulletin is to remind the public of the
William Hyre, dangers associated with tampering with
I. Background
Deputy Associate Administrator for pipeline system facilities.
Administration. Incident Details
If You See Something, Say SomethingTM
[FR Doc. 2016–29505 Filed 12–8–16; 8:45 am]
On Tuesday October 11, 2016, Tampering with pipeline facilities can
BILLING CODE P
individuals contacted four pipeline have deleterious effects on the safety of
operators informing them they would the Nation’s pipeline system. Tampering
DEPARTMENT OF TRANSPORTATION shut down the pipelines used to or acts of sabotage can also lead to the
transport crude oil from Canada to the loss of life, injury, and significant harm
Pipeline and Hazardous Materials United States. The operators (Enbridge, to the economy and environment. At 49
Safety Administration Kinder Morgan, Spectra Energy, and CFR 190.291, any person that willingly
TransCanada) took steps to prevent and knowingly injures or destroys, or
[Docket No. PHMSA–2016–0137) damage to the pipelines and contacted attempts to injure or destroy a pipeline
local and federal law enforcement. The facility is subject to a fine in Title 18 of
Pipeline Safety: Safeguarding and individuals cut the chains and padlocks
Securing Pipelines From Unauthorized the United States Code and
at valve sites near Leonard, Minnesota; imprisonment for a term not to exceed
Access Burlington, Washington; Eagle Butte, 20 years for each offense. Individuals
AGENCY: Pipeline and Hazardous Montana; and Wahalla, North Dakota. are reminded that ‘‘If you See
Materials Safety Administration The individuals then closed valves on Something, Say Something’’TM applies
(PHMSA); DOT. Enbridge’s Lines 4 and 67, Spectra to the safety and security of our national
ACTION: Notice; issuance of Advisory Energy’s Express Pipeline, and pipeline infrastructure. Individuals that
Bulletin. TransCanada’s Keystone Pipeline. The see something suspicious should reach
Kinder Morgan Trans Mountain’s Puget out to their local law enforcement.
SUMMARY: PHMSA is issuing this Sound Pipeline was not operating at the Informed, alert communities play a vital
Advisory Bulletin in coordination with time. Several individuals were arrested role in keeping our Nation’s energy
the Department of Homeland Security’s by local law enforcement. infrastructure safe. Emphasizing that
(DHS), Transportation Security Had the pipeline operators not shut ‘‘Homeland Security Starts with
Administration (TSA), to remind all down their lines in response to the Hometown Security,’’ DHS encourages
pipeline owners and operators of the threats, a pipeline rupture could have businesses to ‘‘Connect, Plan for, Train,
importance of safeguarding and securing occurred. A pipeline rupture due to and Report’’. Tools and resources to
their pipeline facilities and monitoring tampering with valves can have help businesses plan, prepare, and
their Supervisory Control and Data significant consequences such as death, protect themselves from suspicious
Acquisition (SCADA) systems for injury, and economic and activities or attacks are located online at
abnormal operations and/or indications environmental harm. https://www.dhs.gov/hometown-
of unauthorized access or interference security.
Pipeline Safety and Security
with safe pipeline operations.
Additionally, this Advisory Bulletin is PHMSA and TSA have a mutual Relationships With Local Law
to remind the public of the dangers interest in ensuring coordinated, Enforcement
associated with tampering with pipeline consistent, and effective activities that PHMSA reminds pipeline operators
system facilities. improve interagency cooperation on that a strong relationship with local law
This Advisory Bulletin follows recent transportation security and safety enforcement is extremely beneficial for
incidents in the United States that matters. PHMSA focuses on the safety of safe pipeline operations. Two-way
mstockstill on DSK3G9T082PROD with NOTICES

highlight threats to oil and gas the Nation’s pipelines and administers communications between operators and
infrastructure. On October 11, 2016, the pipeline safety regulatory program law enforcement can help to stop threats
several unauthorized persons accessed (49 CFR part 190–199). TSA focuses on before they occur. Relationships should
and interfered with pipeline operations the security of the Nation’s pipelines be cultivated well in advance of an
in four states, creating the potential for and has authored Pipeline Security incident to facilitate mutually
serious infrastructure damage and Guidelines for operators available dependable communication during an
significant economic and environmental online at https://www.tsa.gov/sites/ incident.

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Document Created: 2018-02-14 09:03:35
Document Modified: 2018-02-14 09:03:35

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 DOT, PHMSA, should contact Nathan A. Schoenkin by phone at 202-366-4774 or by email at [email protected] Information about PHMSA may be found at http://phmsa.dot.gov. Pipeline operators with questions on TSA's Pipeline Security Guidelines should contact Steven Froehlich by phone at 571-227-1240 or by email at [email protected]
FR Citation		81 FR 89183

81 FR 89183 - Pipeline Safety: Safeguarding and Securing Pipelines From Unauthorized Access

DEPARTMENT OF TRANSPORTATIONPipeline and Hazardous Materials Safety Administration

Federal Register Volume 81, Issue 237 (December 9, 2016)

DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration