[Federal Register Volume 77, Number 62 (Friday, March 30, 2012)]
[Notices]
[Pages 19414-19416]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2012-7729]
-----------------------------------------------------------------------
DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration
[Docket ID PHMSA-2012-0021]
Pipeline Safety: Public Comment on Leak and Valve Studies
Mandated by the Pipeline Safety, Regulatory Certainty, and Job Creation
Act of 2011
AGENCY: Pipeline and Hazardous Materials Safety Administration (PHMSA),
DOT.
ACTION: Notice of Public Comment.
-----------------------------------------------------------------------
SUMMARY: The Department of Transportation (DOT), Pipeline and Hazardous
Materials Safety Administration (PHMSA) is providing an important
opportunity through this notice for all stakeholders to publically
comment on the scope of recently commissioned studies involving leak
detection systems and valves. This action and others described within
this notice will support the comprehensive investigation of topics and
issues Congress has charged to PHMSA.
DATES: PHMSA must have all comments submitted by close of business
April 30, 2012.
ADDRESSES: Comments should reference Docket No. PHMSA-2012-0021 and may
be submitted in the following ways:
E-Gov Web Site: http://www.Regulations.gov. This site
allows the public to enter comments on any Federal Register notice
issued by any agency.
Fax: 1-202-493-2251.
Mail: DOT Docket Management System: U.S. DOT, Docket
Operations, M-30, West Building Ground Floor, Room W12-140, 1200 New
Jersey Avenue SE., Washington, DC 20590-0001.
Hand Delivery: U.S. DOT Docket Management System; West
Building Ground Floor, Room W12-140, 1200 New Jersey Avenue SE.,
Washington, DC 20590-0001 between 9 a.m. and 5 p.m., Monday through
Friday, except Federal holidays.
Instructions: You should identify the Docket No. PHMSA-2012-0021 at
the beginning of your comments. If you submit your comments by mail,
submit two copies. To receive confirmation that PHMSA received your
comments, include a self-addressed stamped postcard. Internet users may
submit comments at http://www.regulations.gov.
Note: Comments are posted without changes or edits to http://
www.regulations.gov, including any personal information provided.
There is a privacy statement published on http://
www.regulations.gov.
Any technically substantive comments received after the comment
closing date will be considered to the extent practicable.
FOR FURTHER INFORMATION CONTACT: Contact Max Kieba at 202-493-0595 or
Email: max.kieba@dot.gov for questions regarding the leak detection
study. Contact Patrick Landon at 202-695-0798 or Email:
patrick.landon@dot.gov for questions regarding the valve study.
Background: The recent passage of the Pipeline Safety, Regulatory
Certainty, and Job Creation Act of 2011 has called for several
commissioned studies and reports to Congress that PHMSA must address
and complete. Further, PHMSA is also evaluating how to address several
concerns raised by recent National Transportation Safety Board
recommendations.
PHMSA has commissioned two studies to gather facts and perform
technical, operational, and economical analyses about the constraints
and implications for expanding the uses of leak detection systems and
automatic and remote controlled valves. PHMSA believes that the scope
of these studies should have a wide stakeholder review and input and
seeks public input through two venues.
First is the public workshop on Improving Pipeline Leak Detection
System Effectiveness and Understanding the Application of Automatic/
Remote Control Valves on March 27-28, 2012. This workshop will examine
how to encourage operators to expand usage of leak detection systems
(LDS) and improve system effectiveness on the Nation's pipeline
infrastructure and how remote control and automatic control valves can
be installed to lessen the volume of natural gas and hazardous liquid
released during catastrophic pipeline events. These public meetings are
designed to provide an open forum for exchanging information on the
challenges associated with LDS and automatic/remote control valves.
Second is the opportunity for all stakeholders to publically
comment on the scope of these two studies. This notice was designed to
do just that. The following sections identify what Congress has
mandated in these studies
[[Page 19415]]
and the scope of work PHMSA has factored into each study.
Leak Detection Study
The Congress included the following language from the Act related
to the leak detection study:
``SEC. 8. LEAK DETECTION.
(a) LEAK DETECTION REPORT.--
(1) IN GENERAL.--Not later than 1 year after the date of
enactment of this Act, the Secretary of Transportation shall submit
to the Committee on Commerce, Science, and Transportation of the
Senate and the Committee on Transportation and Infrastructure and
the Committee on Energy and Commerce of the House of Representatives
a report on leak detection systems utilized by operators of
hazardous liquid pipeline facilities and transportation-related flow
lines.
(2) CONTENTS.--The report shall include--
(A) An analysis of the technical limitations of current leak
detection systems, including the ability of the systems to detect
ruptures and small leaks that are ongoing or intermittent, and what
can be done to foster development of better technologies; and
(B) An analysis of the practicability of establishing
technically, operationally, and economically feasible standards for
the capability of such systems to detect leaks, and the safety
benefits and adverse consequences of requiring operators to use leak
detection systems.''
PHMSA has commissioned a leak detection study containing the
following work scope:
Task 1--Kickoff Meeting
A kickoff meeting will be held via webinar or phone call to review
the scope of the project.
Task 2--Attendance at Public Workshop
The contractor will attend PHMSA's Improving Pipeline Leak
Detection System Effectiveness Public Workshop on March 27, 2012. Any
public input from that workshop will be considered for any potential
modifications of the scope of work and when developing the final
report.
Task 3--Review and Assess Previous Pipeline Incidents
PHMSA will provide access to its pipeline incident data. The
contractor will examine past pipeline incidents and consider any non-
PHMSA datasets that may provide useful insight and analysis to meet
project objectives. This evaluation will help determine whether
implementation of further leak detection capabilities would have
mitigated effects to the public and surrounding environment. The
contractor will use standard fire science practices to perform the risk
analysis to property, public, and the environment. This evaluation will
also help determine the level of protection needed for adequate
mitigation.
Task 4--Technological Feasibility
The contractor will compare all methods to determine whether
current systems (or multiple systems) are able to adequately protect
the public and the environment from pipeline leaks or incidents. The
contractor is to look at legacy equipment currently utilized by
operators, their ability to retrofit, and all benefits and drawbacks of
all methods. The contractor is to consider the method/systems ability
to detect small/intermittent leaks and identify and explain any
technology gaps.
Task 5--Operational Feasibility
The contractor will analyze leak detection methods and systems that
are currently being used throughout the industry. This task includes
defining and categorizing leak detection methods and systems that range
from visual inspection techniques, instrumented monitoring of internal
pipeline conditions, and external instrumentation for detecting leaked
hydrocarbons. This task includes a view of how many operators are
adequately protecting their infrastructure with leak detection systems,
and an analysis of operational aspects (i.e. procedures, protocols,
best practices, workforce, etc.). The contractor will consider
reliability, availability and maintainability of system aspects and
analyze how further leak detection methods/system deployment would
affect pipeline operations.
Task 6--Economical Feasibility
The contractor will perform a cost benefit analysis for deploying
leak detection systems on new and existing pipeline systems. The cost
benefit will determine the lifetime operational cost of the system and
take into account the benefit that may be seen by the public and
surrounding environment over the anticipated life cycle of the
individual leak detection systems. The analysis will focus on the
entire pipeline infrastructure with a separate analysis to include
pipelines in high consequence areas (HCAs) only. Damage to surrounding
environment/public must utilize standard fire science practices.
Task 7--Analyze Leak Detection Standards
The contractor is to analyze the practicability of establishing
technically, operationally, and economically feasible leak detection
standards to provide adequate protection to the Nation against pipeline
leaks, if such standards don't already exist. The analysis should be
specific to the type of pipeline (gas distribution, gas transmission,
hazardous liquid pipeline facilities, transportation-related flow
lines, etc.) and consider pipeline locations (i.e., Class Locations,
HCAs, non-HCAs, etc.).
The deliverable from this study will embody the supporting
information reported to Congress starting in December 2012, and will be
publically available from PHMSA's Web site at http://www.phmsa.dot.gov/pipeline/library.
Automatic and Remote-Controlled Shut-Off Valves
Congress included the following language from the Act related to
the valve study:
``SEC. 4. AUTOMATIC AND REMOTE-CONTROLLED SHUT-OFF VALVES.
Section 60102 is amended--
(1) By striking subsection (j)(3); and
(2) By adding at the end the following:
(n) Automatic and Remote-Controlled Shut-OFF Valves for New
Transmission Pipelines.--
(1) IN GENERAL.--Not later than 2 years after the date of
enactment of this subsection, and after considering the factors
specified in subsection (b)(2), the Secretary, if appropriate, shall
require by regulation the use of automatic or remote-controlled
shut-off valves, or equivalent technology, where economically,
technically, and operationally feasible on transmission pipeline
facilities constructed or entirely replaced after the date on which
the Secretary issues the final rule containing such requirement.
(2) HIGH-CONSEQUENCE AREA STUDY.--
(A) STUDY.--The Comptroller General of the United States shall
conduct a study on the ability of transmission pipeline facility
operators to respond to a hazardous liquid or gas release from a
pipeline segment located in a high-consequence area.
(B) CONSIDERATIONS.--In conducting the study, the Comptroller
General shall consider the swiftness of leak detection and pipeline
shutdown capabilities, the location of the nearest response
personnel, and the costs, risks, and benefits of installing
automatic and remote-controlled shut-off valves.
(C) REPORT.--Not later than 1 year after the date of enactment
of this subsection, the Comptroller General shall submit to the
Committee on Transportation and Infrastructure and the Committee on
Energy and Commerce of the House of Representatives and the
Committee on Commerce, Science, and Transportation of the Senate a
report on the results of the study.''
PHMSA has commissioned a study on the requirements of automatic and
remote-controlled shut-off valves that cover natural gas and hazardous
liquid lines containing the following work scope:
[[Page 19416]]
Task 1: Kickoff Meeting
A kickoff meeting will be held via webinar or phone call to review
the scope of the project.
Task 2: Attend Public Workshop
The contractor will attend PHMSA's Understanding the Application of
Automatic Control and Remote Control Valves public workshop on March
28, 2012. The contractor will review and provide feedback on any result
from the workshop. The feedback should be incorporated into the tasked
studies. This can potentially lead to a modification of scope and costs
if warranted
Task 3: Required Study on Automatic and Remote-Controlled Shut-off
Valves on HCAs and Class 3 and Class 4 Areas on Natural Gas Pipelines
The contractor will conduct a study on the ability of transmission
pipeline facility operators to respond to a hazardous liquid or gas
release from a pipeline segment located in a HCA. This study will
evaluate Class 3 and Class 4 areas of natural gas transmission
pipelines.
The contractor must analyze the technical and operational ability
of the swiftness of the existing leak detection system and the
operator's capability to shut down the affected pipeline, and consider
upstream and downstream controls, automation, supervisory control and
data acquisition systems, and valve spacing. Also to be discussed are
human factors of response, specifically, what is the minimum response
time and the nearest required human to initiate isolation of the
pipeline?
The contractor must perform a cost benefit analysis for installing
automatic and remote controlled shut-off valves in HCAs and for gas
transmission Class 3 and Class 4 areas. The cost benefit must determine
the lifetime operational cost of the system and take into account the
benefit that may be seen by the public and surrounding environment.
Analysis should include the economic impact of damage to surrounding
environment/public and utilize standard fire science practices to
derive the result.
The contractor will perform a risk analysis of installing automatic
and remote controlled shut-off valves as compared to local manual
operation of isolation valves on transmission pipelines. The contractor
will use standard fire science practices to perform the risk analysis
that will analyze the risk to property, the public, and the
environment.
The contractor is to analyze and discuss the benefits to the public
and the environment of a requirement to install automatic and remote
controlled shut-off valves within HCAs and Class 3 and Class 4 areas.
Task 4: Required Study on Automatic and Remote Controlled Shut-Off
Valves on Newly Constructed or Entirely Replaced Facilities
The contractor is to study the use of automatic or remote
controlled shut-off valves in newly- constructed and entirely replaced
facilities constructed after January 2012. This study should address
the economical, technical and operational feasibility of this
requirement. The following points should be incorporated into the
study.
Economic Feasibility
The contractor will perform a cost benefit analysis for installing
automatic and remote controlled shut-off valves on new and entirely
replaced pipeline systems. This cost benefit will determine the
lifetime operational cost of the system and take into account the
benefit that may be seen by the public and surrounding environment over
the anticipated life cycle of automatic and remote controlled shut-off
valves installed. Analysis should include the economic impact of damage
to the surrounding environment/public and utilize standard fire science
practices to derive the result.
Technical Feasibility
The contractor is to compare all types of automatic and remote
controlled shut-off valves and determine whether available technologies
can adequately protect the public and environment from pipeline leaks
and incidents through rapid closure, and discuss benefits and drawbacks
of all methods. Giving special consideration to the method/systems
ability to detect and react to small/intermittent leaks, the contractor
is to identify and explain any technology gaps and analyze any
technological shortfalls specific to automatic shut-off valves'
reliability. Modeling of rapid closure of valves will utilize standard
fire science practices to establish benchmarks for technical
feasibility. The contractor is also to determine if there are
alternative technologies to automatic and remote controlled shut-off
valves and investigate and explain these technologies.
Operational Feasibility
The contractor will review and summarize DOT's current regulations
addressing the installation of automatic and remote controlled shut-off
valves. This review will be for hazardous liquid and natural gas
pipelines and determine how operators are currently complying with
them. The contractor will analyze operational aspects (i.e. procedures,
protocols, best practices, workforce, etc.) and discuss reliability,
availability and maintainability of these systems. The contractor will
analyze how automatic and remote controlled shut-off valve installation
would affect pipeline operations. Also, the contractor will consider
how emergency first responders should be addressed in the operational
feasibility study.
Task 5--Review and Assess Previous Pipeline Incidents
PHMSA will provide access to pipeline incident data. The contractor
will examine past pipeline incidents to determine whether installation
of either automatic or remote controlled shut-off valves would have
mitigated effects to the public and surrounding environment. The
contractor will use standard fire science practices to perform the risk
analysis to property, the public, and the environment.
The deliverable from this study will embody the supporting
information reported to Congress starting in December 2012, and will be
publically available on PHMSA's Web site at http://www.phmsa.dot.gov/pipeline/library.
Any individual or organization can submit comments on any of these
commissioned studies. However, there are time constraints to reporting
to Congress. In order to meet the time constraints, PHMSA must have all
comments submitted by close of business April 30, 2012.
Some key questions for your consideration are:
Is PHMSA's commissioned work scope adequate for supporting a
comprehensive report to Congress?
If not, what additional or revised work scope actions should PHMSA
consider?
Is there a related technical report publically available that these
studies should review?
Dated: Issued in Washington, DC, on March 26, 2012.
Linda Daugherty,
Deputy Associate Administrator for Policy and Programs.
[FR Doc. 2012-7729 Filed 3-29-12; 8:45 am]
BILLING CODE 4910-60-P