NTSB Safety Recommendation P-97-015

NTSB safety recommendation P-97-015.

THE NTSB RECOMMENDS THAT THE RSPA: INITIATE AND PERIODICALLY CONDUCT, IN CONJUCTION WITH THE AMERICAN PUBLIC WORKS ASSOCIATION, DETAILED AND COMPREHENSIVE REVIEWS AND EVALUATIONS OF EXISTING STATE EXCAVATION DAMAGE PREVENTION PROGRAMS AND RECOMMEND CHANGES AND IMPROVEMENTS WHERE WARRANTED, SUCH AS FULL PARTICIPATION, ADMINISTRATIVE ENFORCEMENT OF THE PROGRAM, PRE-MARKING REQUIREMENTS, AND TRAINING REQUIREMENTS FOR ALL PERSONNEL INVOLVED IN EXCAVATION ACTIVITY.

Priority: CLASS II

Overall Status: Closed - Acceptable Action

Issued Date: 1998-01-06

Adopted Date: 1997-12-23

Overall Date Closed: 2002-05-17

Synopsis: THE SAFETY BOARD HAS LONG BEEN CONCERNED ABOUT THE NUMBER OF EXCAVATION-CAUSED PIPELINE ACIDENTS. IN RESPONSE TO SIX SERIOUS PIPELINE ACCIDENTS DURING 1993 AND 1994 THAT WERE CAUSED BY EXCAVATION DAMAGE AND TO FOSTER IMPROVEMENTS IN STATE EXCAVATION DAMAGE PREVENTION PROGRAMS, THE SAFETY BOARD AND THE RSPA JOINTLY SPONSORED A WORKSHOP IN SEPTEMBER 1994. THIS WORKSHOP BROUGHT TOGETHER ABOUT 400 REPRESENTATIVES FROM PIPELINE OPERATORS, EXCAVATORS, TRADE ASSOCIATIONS, AND LOCAL, STATE, AND FEDERAL GOVERNMENT AGENCIES TO IDENTIFY AND RECOMMEND WAYS TO IMPROVE PREVENTION PROGRAMS. THE SAFETY BOARD RECENTLY COMPLETED A SAFETY STUDY THAT ANALYZED THE FINDINGS OF THE 1994 WORKSHOP, DISCUSSED INDUSTRY AND GOVERNMENT ACTIONS UNDERTAKEN SINCE THE WORKSHOP, AND FORMALIZED RECOMMENDATIONS AIMED AT FURTHER ADVANCING IMPROVEMENTS IN EXCAVATION DAMAGE PREVENTION PROGRAMS.

Keywords: Excavation, Training and Education

Ntsbnumber: 80433

Report Number: SS-97-01

Addressee Name: RSPA

Addressee Status: Closed - Acceptable Action

Addressee Date Closed: 2002-05-17

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-04-18

Communication Type: Official Correspondence

Communication Contents: THE SAFETY BOARD APPRECIATES THE UPDATE ON ACTIONS TO IMPLEMENT P-97-14 THROUGH -24 AND P-99-1. THE SAFETY BOARD NOTES THAT ON 6/30/99, RSPA CO-SPONSORED A PUBLIC MEETING IN WASHINGTON, DC, TO PRESENT A REPORT ON BEST PRACTICES FOR DAMAGE PREVENTION. THE SAFETY BOARD UNDERSTANDS THAT THE DIG SAFELY CAMPAIGN HAS BEEN OFFICIALLY ENDORSED BY THE DOT, THE AMERICAN PETROLEUM INSTITUTE, ONE CALL SYSTEMS INTERNATIONAL, THE ASSOCIATION OF OIL PIPELINES, AND THE NATIONAL TELECOMMUNICATIONS DAMAGE PREVENTION COUNCIL, AND THAT THE NATIONAL ENERGY BOARD OF CANADA IS CONSIDERING RECOMMENDING TO THE CANADIAN GOVERNMENT THAT THEY ADOPT THE CAMPAIGN. THE SAFETY BOARD IS ENCOURAGED BY RSPA'S EFFORTS, AS OUTLINED ABOVE, AND WE WOULD APPRECIATE FURTHER PERIODIC UPDATES, INCLUDING A DISCUSSION OF ACTIVITIES THAT RELATE SPECIFICALLY TO THE ACTIONS CALLED FOR IN THE BOARD'S RECOMMENDATIONS. AS YOU ARE AWARE, THREE OF THE ABOVE RECOMMENDATIONS (P-97-14, -15 AND -19) APPEAR ON THE SAFETY BOARD'S "MOST WANTED" LIST OF SAFETY RECOMMENDATIONS; THEREFORE, WE WOULD APPRECIATE AN EXPEDITED UPDATE ON ACTIVITIES RELATED TO P-97-15 AND -19 DURING THE PAST YEAR. P-97-15 AND -19 REMAIN CLASSIFIED "OPEN--ACCEPTABLE RESPONSE."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1998-10-21

Communication Type: Official Correspondence

Communication Contents: THE BOARD WOULD APPRECIATE BEING ADVISED OF ANY ACTIONS THAT RSPA HAS TAKEN OR PLANS TO TAKE ON EACH OF THESE RECOMMENDATIONS. COPIES OF OUR 1/6/98, AND OUR 4/30/98, CORRESPONDENCE ARE ENCLOSED.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1999-06-29

Communication Type: Official Correspondence

Communication Contents: AT THE NOVEMBER 14 MEETING SAFETY BOARD STAFF MET WITH RSPA AND DISCUSSED THE RECOMMENDATION. THE DISCUSSION CENTERED ON THE INTENT OF THE RECOMMENDATION, WHICH WAS, THAT RSPA CONDUCT A REVIEW AND EVALUATION OF THE EXISTING SYSTEMS, SOMETHING THAT CAN BE DONE BY RSPA WORKING WITH THE STATES AND INDUSTRY. AGAIN THE BOARD RECOGNIZES THE "BEST PRACTICES WORK" AND BELIEVES THAT INFORMATION COULD BE USED TO HELP IN EVALUATING STATE PROGRAMS. PENDING A FURTHER REPLY FROM RSPA ON IMPLEMENTING THIS RECOMMENDATION, P-97-15 HAS BEEN CLASSIFIED "OPEN--ACCEPTABLE RESPONSE."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-11-26

Communication Type: Official Correspondence

Communication Contents: The Safety Board understands that RSPA continues to work to enhance damage prevention efforts on several fronts, including working with the APWA to improve damage prevention programs, supporting the operations of the Common Ground Alliance (CGA), expanding RSPA evaluations of the state pipeline safety programs, encouraging states to participate in the damage prevention grant program, and implementing a new damage prevention technical assistance program. The Safety Board further understands that, in recent years, RSPA and APWA have worked together to strengthen damage prevention laws, promote and develop educational initiatives, and improve pipeline safety data collection. Both organizations have testified at state legislative hearings to effect improvements in state damage prevention laws. Specifically, APWA worked with RSPA on RSPA's 1999 report, Common Ground: Study of One-Call Systems and Damage Prevention Best Practices, and in the development of the Dig Safely Campaign. These activities will be continued by the CGA, which includes representatives of gas and hazardous liquid pipelines, electric utilities, telecommunications systems, railroads, local public works departments, equipment manufacturers, excavators, locators, insurance, one-call, and state regulators. The Safety Board additionally notes that the CGA established permanent committees on (1) best practices; (2) educational programs, research, and development; (3) data gathering; and (4) membership. The CGA best practices committee has made commitments to produce an annual update on best practices, to assess how they are being implemented, and to determine their effectiveness. RSPA indicated that the first meeting of the CGA's data committee was held in February 2001, and that the CGA is planning and designing a nationwide system to collect, analyze, and disseminate information on damage to underground utilities. RSPA has assured the Board that any plan that is developed will be designed in conjunction with APWA and the one-call industry, both of whom are represented on the CGA. RSPA will also encourage the CGA and its members to focus on the Safety Board's concerns as outlined in this safety recommendation. Per RSPA's request and pending further information from RSPA on these initiatives, Safety Recommendation P-97-15 is classified "Open--Acceptable Response."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2002-05-17

Communication Type: Official Correspondence

Communication Contents: RSPA has satisfied the intent of the recommendation by conducting a review and evaluation of the existing systems and by requesting and receiving funding to hire six full-time Community Assistance and Technical Services (CATS) inspectors. These new employees will establish a protocol to evaluate state excavation damage prevention programs, conduct periodic assessments, and provide monthly reports on their progress. Further, the CATS inspectors will be guided by each state's evaluation of the relative importance of each of the damage prevention best practices, and RSPA will provide the states with recommendations and technical assistance to improve their excavation damage prevention programs. Finally, RSPA reports it is finalizing a cooperative agreement with the Common Ground Alliance (CGA) to assist with public education at the national, state, and local levels and to provide state and local officials with information and tools to help their residents live safely with pipelines. RSPA indicates that it will be coordinating the direction of its assessments of state programs with the CGA board. Because RSPA has taken action as requested, Safety Recommendation P-97-15 is classified "Closed--Acceptable Action." The Safety Board would welcome periodic reports on the assessments.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2002-05-01

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 05/02/2002 10:22:38 AM MC# 2020444 RSPA agrees that periodic, detailed reviews should be conducted to evaluate existing State excavation damage prevention programs as recommended in NTSB's Safety Recommendation P-97-15. RSPA requested and received funding to hire six full-time Community Assistance and Technical Services (CATS) inspectors. These new employees will establish a protocol to evaluate state excavation damage prevention programs, conduct periodic assessments, and provide me with monthly reports on their progress. In doing so, our employees will be guided by each state's evaluation of the relative importance of each of the damage prevention best practices. RSPA will provide the states with recommendations and technical assistance to improve their excavation damage prevention programs. RSPA is finalizing a Cooperative Agreement with the Common Ground Alliance (CGA) to assist with public education at the national, state, and local levels and to provide state and local officials with information and tools to help their residents live safely with pipelines. We will be coordinating the direction of our assessments with the CGA board. 1 would be happy to provide periodic reports on the assessments. The Research and Special Programs Administration (RSPA) agrees that periodic, detailed reviews should be conducted to evaluate State excavation damage prevention programs. In fact, RSPA reviews state damage prevention programs as part of the evaluation and award process under the One-Call Damage Prevention Grant Program. The states are evaluated against the one-call system requirements in 49 CFR Part 198, including: mandatory coverage of areas having pipeline facilities; qualification for operation of a one-call system; mandatory excavator notification of a one-call center; state determination whether calls to the center are toll-free; mandatory intrastate pipeline operator participation; mandatory operator response to notification; mandatory notification of excavators and public; and civil penalties and injunctive relief substantially the same as DOT. RSPA requested and received funding to hire six full-time Community Assistance and Technical Services (CATS) inspectors. These new employees will establish a protocol to evaluate state excavation damage prevention programs and will conduct periodic reviews. Classification of these positions by our human resource's department is ongoing and recruitment will occur in May 2002. RSPA's fiscal year 2002 budget request specified that, among other duties, these inspectors would: ·Work with state pipeline and other agencies and communities to promote damage prevention best practices providing communities with information needed to encourage plat designation of existing underground facility easements, to gather information prior to construction to avoid impact to underground facilities, to promote communication among construction phases, to encourage marking and mapping of facilities, to follow applicable codes, statutes, and facility operating standards for facilities that encroach on pipelines, and to identify qualified excavation contractors; and, ·Gather information on current land use practices and zoning ordinances to determine how best to prevent hazards on pipeline right-of-ways, and to promote smart growth adjacent to pipeline right-of-ways. RSPA will encourage full participation in one-call programs, review administrative enforcement procedures of existing programs, evaluate excavation pre-marking requirements, and review training for excavators. RSPA will provide the states with recommendations and technical assistance to improve their excavation damage prevention programs by considering adoption of additional CGA best practices. Additionally, RSPA has begun negotiating a Cooperative Agreement with the Common Ground Alliance (CGA) to assist with public education at the national, state, and local levels and to provide state and local officials with information and tools to help their residents live safely with pipelines. Under the agreement, CGA would collect and analyze data needed to assess the effectiveness of underground facility damage prevention programs. CGA would also develop and document new best practices for damage prevention issues, including emergency contact numbers (i.e., "911 'I), directional drilling, marking, and security. Our new CATS inspectors will promote these best practices as they perform their assessments of state damage prevention programs. Action Requested: RSPA requests that Safety Recommendation P-97- 15 be reclassified as "Closed - Acceptable Action" based on the information provided.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-07-13

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 07/20/2001 4:24:14 PM MC# 2010585 RSPA continues to work to enhance damage prevention efforts on several fronts including: ·working with American Public Works Association (APWA) to improve damage prevention programs, ·supporting the operations of the Common Ground Alliance (CGA), ·expanding RSPA evaluations of the state pipeline safety programs, ·encouraging states to participate in the damage prevention grant program, and ·implementing a new damage prevention technical assistance program. In recent years, RSPA and APWA have worked together to strengthen damage prevention laws, promote and develop educational initiatives, and improve pipeline safety data collection. Both organizations testified at state legislative hearings to effect improvements in state damage prevention laws. APWA worked with RSPA on RSPA's 1999 report, Common Ground: Study of One-Call Systems and Damage Prevention Best Practices, and in the development of the Dig Safely Campaign. These activities will continue in the CGA which includes representatives of gas and hazardous liquid pipelines, electric utilities, telecommunications systems, railroads, local public works departments, equipment manufacturers, excavators, locators, insurance, one-call, and state regulators. The CGA has established the following permanent committees: best practices, educational programs, research and development, data gathering, and membership. The CGA best practices committee has made the following commitments to: produce an annual update on best practices, assess how best practices are being implemented, and determine the effectiveness of these best practices. The first meeting of the CGA's data committee was in February 2001. It is planning and designing a nationwide system to collect, analyze, and disseminate information on damage to underground utilities. Any plan that is developed will be designed in conjunction with the APWA and the one-call industry, both of whom have representatives on CGA. RSPA will encourage the CGA and its members to focus on NTSB's concerns as outlined in this safety recommendation.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1998-10-30

Communication Type: Official Correspondence

Communication Contents: THE DAMQAT CURRENTLY INCLUDES A REPRESENTATIVE OF ONE-CALL SYSTEMS INTERNATIONAL (OCSI), A GROUP WHICH IS SPONSORED BY THE AMERICAN PUBLIC WORKS ASSOCIATION (APWA). THE ONE-CALL BEST PRACTICES TEAM INCLUDES REPRESENTATIVES OF THE INTERESTS CITED IN TEA-2 1, INCLUDING MANY MEMBERS WITH OCSI AND APWA AFFILIATIONS. WITH THE GUIDANCE OF RSPA, MANY STATES HAVE IMPROVED THEIR ONE-CALL NOTIFICATION SYSTEMS AND DAMAGE PREVENTION ACTIVITIES BY STRENGTHENING STATE ONE-CALL LEGISLATION, INCREASING ENFORCEMENT EFFORTS, AND CONTINUING PUBLIC EDUCATION. RSPA ALSO SUPPORTS INCENTIVES FOR STATES TO IMPROVE ONE-CALL PROGRAMS BY PRESCRIBING WIDELY ACCEPTED AND FLEXIBLE ELEMENTS FOR STATE ONE-CALL PROGRAMS, SUPPORTING SPECIAL ONE-CALL GRANTS TO FUND IMPROVEMENTS AND DEFINING A FEDERAL MODEL PROGRAM TO ASSIST STATES IN DEVELOPING EFFECTIVE ONE-CALL SYSTEMS. RSPA BELIEVES THIS EFFORT FULLY ADDRESSES THIS RECOMMENDATION. THUS, WE ASK THAT YOU CLASSIFY P-97-15 AS "CLOSED--ACCEPTABLE ACTION."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2000-04-24

Communication Type: Official Correspondence

Communication Contents: On June 30, 1999, RSPA co-sponsored a public meeting in Washington, DC, to prevent a report on damage prevention best practices. The report was developed by over 160 volunteers representing a broad spectrum of damage prevention stakeholders who worked for almost a year to produce a report on best practices in damage prevention, known as the Common Ground Study. This report covered virtually every aspect of damage prevention from design and planning, through locating and safe excavation practices. It has become the manual of choice for those involved in damage prevention. We are gratified that you were able to join us to present this report to Transportation Secretary Rodney Slater. RSPA is now facilitating the establishment of a non-profit organization to advance underground damage prevention, consistent with the cooperative spirit of the Common Ground team. RSPA held a public meeting on October 28, 1999, in Baltimore, Maryland, to elaborate the elements of an effective non-profit organization, including possible mission statements, goals, functions, guiding principles, and organizational structure. NTSB's Jack Fox participated in this event. On February 17, 2000, a broad-based coalition of industry leaders in the pipeline and underground damage prevention communities met to launch the teams that will develop and staff the new organization. RSPA believes that with the support of Congress and the U.S. Dept. of Transportation (DOT), we can provide the necessary resources to initiate the creation of a self-sustaining private sector non-profit organization and ensure the participation of all affected stakeholders. We believe this organization will provide an effective forum for information sharing among all stakeholders in damage prevention. This will include regular interaction with the affected industries in the damage prevention community. We believe the organization can conribute to creative solutions to underground damage prevention issues and to our attempts to respond fully to a number of "Open" NTSB Safety Recommendations, including P-97-14 through 24, and P-99-1. In addition, RSPA has been deploying a national damage prevention public education campaign, known as the Dig Safely campaign. This effort dates back to October 1996, when we formed the Damage Prevention Quality Action Team (DAMQAT). This team included a broad spectrum of representatives: professional excavators, one-call centers, insurance, telecommunications, operators of hazardous liquid, natural gas transmission and distribution lines as well as sate pipeline safety agencies, and RSPA's OPS. The DAMQAT conducted an extensive examination of the problem, including a nationwide survey of 1500 respondents from the excavator, facility operator, and public works communities, as well as the general public. DAMQAT used the results of the national survey to develop a "tag line," a message, and a design for education campaign materials. These materials included a safety video, print ads for trade publications, a radio public service announcement, brochures, and bill inserts. These were field tested for six months in three states, Virginia, Georgia, and Alabama. Pre-pilot and post-pilot surveys enabled the team to judge the effectiveness of the materials. Data collected from the three states indicate a sharp increase in recognition of the four basic messages of the campaign: call before you dig, wait the required time, observe the marks, and dig with care. All three states reported a decline in excavation-related damage to underground facilities. In addition, DAMQAT commissioned a training manual for those who want to use the campaign materials. It contains general information on how to conduct a damage prevention campaign, as well as the safety video, and two CD ROMS which contain all the campaign artwork. DAMQAT team members have conducted over thirty Dig Safely training sessions nationwide. Another six are scheduled and more are being planned. The DAMQAT was recently renamed the Dig Safely Team, is expanding its membership and hopes to include other interested parties such as locators, cable TV, electricity, water and sewer. Some of the materials will be translated into Spanish for distribution in areas with a significant Spanish speaking population. The Dig Safely Campaign has been officially endorsed by DOT, the American Petroleum Institute, One Call Systems International, the Association of Oil Pipelines, and the National Telecommunications Damage Prevention Council. The National Energy Board of Canada is considering recommending to the Canadian Government that they adopt the campaign.