Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration, 2943-2945 [2016-00765]

Agencies

• Pipeline and Hazardous Materials Safety Administration
• DEPARTMENT OF TRANSPORTATION

[Federal Register Volume 81, Number 11 (Tuesday, January 19, 2016)]
[Notices]
[Pages 2943-2945]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-00765]


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DEPARTMENT OF TRANSPORTATION

Pipeline and Hazardous Materials Safety Administration

[Docket No. PHMSA-2015-0283]


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.

[[Page 2944]]


ACTION: Notice; Issuance of Advisory Bulletin.

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SUMMARY: PHMSA is issuing this advisory bulletin to remind all owners 
and operators of gas and hazardous liquid pipelines of the potential 
for damage to pipeline facilities caused by severe flooding and 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.
    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

[[Page 2945]]

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-2016-01)

    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.

    Issued in Washington, DC on January 12, 2016, under authority 
delegated in 49 CFR 1.97.
Alan K. Mayberry,
Deputy Associate Administrator for Policy and Programs.
[FR Doc. 2016-00765 Filed 1-15-16; 8:45 am]
 BILLING CODE 4910-60-P