NTSB Safety Recommendation P-97-016

NTSB safety recommendation P-97-016.

THE NTSB RECOMMENDS THAT THE RSPA: SPONSOR INDEPENDENT TESTING OF LOCATOR EQUIPMENT PERFORMANCE UNDER A VARIETY OF FIELD CONDITIONS.

Priority: CLASS II

Overall Status: Closed - Acceptable Alternate Action

Issued Date: 1998-01-06

Adopted Date: 1997-12-23

Overall Date Closed: 2003-03-17

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.

Ntsbnumber: 80433

Report Number: SS-97-01

Addressee Name: RSPA

Addressee Status: Closed - Acceptable Alternate Action

Addressee Date Closed: 2003-03-17

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. WITH RESPECT TO THE THREE RECOMMENDATIONS ABOVE THAT ADDRESS LOCATOR EQUIPMENT (P-97-16 THROUGH -18), THE SAFETY BOARD IS UNAWARE FROM EITHER WRITTEN CORRESPONDENCE OR MEETINGS WITH RSPA, OF ANY ACTIVITY THAT HAS BEEN UNDERTAKEN AS CALLED FOR IN THESE RECOMMENDATIONS. CONSEQUENTLY, WE ARE RECLASSIFYING THESE RECOMMENDATIONS "OPEN--UNACCEPTABLE RESPONSE," PENDING FURTHER INFORMATION FROM RSPA ON THE ACTION TAKEN TO IMPLEMENT THESE RECOMMENDATIONS.

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: THE BOARD UNDERSTANDS THAT RSPA IS CONSIDERING RESEARCH TO ADVANCE UNDERGROUND FACILITY LOCATING TECHNOLOGY SO THAT BURIED LINES, PARTICULARLY PLASTIC PIPELINES IN GAS DISTRIBUTION SYSTEMS, CAN BE ACCURATELY LOCATED TO MINIMIZE THIRD-PARTY DAMAGE. ADDTIONALLY, THE BOARD UNDERSTANDS THAT RSPA'S BEST PRACTICES STUDY TEAM WILL INCLUDE A SPECIFIC "TASK TEAM" TO DETERMINE THE BEST PRACTICES IN LOCATING AND MARKING ACTIVITIES AND THAT RSPA HAS REQUESTED ADDITIONAL FUNDING TO SUPPORT THESE EFFORTS. FURTHER, RSPA HAS ADVISED THE BOARD THAT IT CONDUCTS COLLABORATIVE RESEARCH AND TESTS WITH INDUSTRY, INDEPENDENT LABORATORIES, AND PIPELINE OPERATORS TO DEVELOP EFFECTIVE UNDERGROUND LOCATION TECHNOLOGIES, BELIEVING THAT WORKING COOPERATIVELY WITH THESE PARTIES IS MORE EFFECTIVE THAN DEVELOPING FEDERAL UNIFORM CERTIFICATION CRITERIA FOR LOCATOR EQUIPMENT. BECAUSE RSPA'S RESPONSE APPEARS TO OUTLINE AN ACCEPTABLE PLAN, P-97-16 AND -17 HAVE BEEN CLASSIFIED "OPEN--ACCEPTABLE ALTERNATE RESPONSE." THE BOARD WOULD APPRECIATE RECEIVING A COPY OF THE RESULTS OF THE TESTS DONE IN IMPLEMENTING P-97-16, THE DATE WHEN THE RECOMMENDATION WILL BE FULLY IMPLEMENTED, AND AN EXPLANATION OF HOW UNDER P-97-17, RSPA WILL BE WORKING WITH THE INDUSTRY ORGANIZATIONS ON RESEARCH AND TECHNOLOGY AS THE CERTIFICATION CRITERIA IS DEVELOPED BY THE PRIVATE SECTOR.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-11-26

Communication Type: Official Correspondence

Communication Contents: The Safety Board is pleased to learn that RSPA has initiated the following activities related to the locator equipment recommendations: (1) published the Common Ground report, which enumerated best practices and provided information on new technologies for locating and marking pipelines and other utilities; (2) referred the three recommendations to the CGA for further action; and (3) proposed funding of a research and development initiative to advance the technologies for detecting and monitoring buried plastic pipe. The Safety Board notes that Appendix A of the Common Ground report addresses emerging technologies for damage prevention. RSPA reports that this information should stimulate the development of advanced software, technologies, equipment, and practices that will advance damage prevention, as Appendix A discusses how current or emerging technologies could be used to improve excavation and damage prevention best practices, and Section A.6.4 addresses current locating and marking technologies, including their advantages and disadvantages, and suggests improvements. Further, the Board notes RSPA's belief that the CGA is the appropriate organization to review these recommendations and to suggest solutions, and that CGA President Jim Barron has agreed to (1) place the locator recommendations on the agenda and (2) refer the recommendations to the appropriate CGA committee. The Board also notes that the CGA data committee has plans to collect data on damage to underground facilities that may be useful in advancing locator technology and procedures, and RSPA will work with the CGA to ensure that its suggestions are disseminated and implemented. RSPA reports that in its most recent budget requests, it proposed funding for research into methods to locate buried plastic pipe, and that the FY 2002 budget request includes research funding that will enable RSPA to partner with the Gas Technology Institute, pipeline industry organizations, and independent research groups to advance the technologies available for detecting and monitoring buried pipe, particularly plastic pipe. RSPA reports that the goal of this research effort would be to identify and evaluate location equipment for buried plastic gas mains and services; to develop performance criteria for new, improved generations of equipment with the desired locating capabilities; and to investigate ways to design plastic pipe for ease of location. Finally, RSPA states that it will continue to work with industry organizations, particularly with the CGA, and to partner with research organizations to meet the objectives of Safety Recommendations P-97-16, -17, and -18. Accordingly, because RSPA has provided a comprehensive update on its actions to implement these recommendations, Safety Recommendations P-97-16, -17 and -18 are classified "Open--Acceptable Response," pending completion of these initiatives.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2003-03-17

Communication Type: Official Correspondence

Communication Contents: The Safety Board notes that RSPA has initiated cooperative research on location technologies and hired inspectors to focus on damage prevention issues with local communities. RSPA has executed an agreement with the Common Ground Alliance (CGA) to address locator equipment performance and the ability of these technologies to locate pipe within the hand-dig tolerance zones of the various state damage prevention laws. The agency is also working with the CGA to coordinate the direction of these assessments. As a result of a cooperative agreement between RSPA and the CGA, the CGA is developing and documenting new best practices for damage prevention, including a research effort to promote development of improved and innovative technological approaches to more accurately locate underground pipeline safety facilities. In addition, RSPA has received research funding to enable the agency to partner with industry organizations and independent research groups to advance the technologies available for detecting and monitoring buried pipe, particularly plastic pipe. RSPA has also issued two broad agency announcements requesting proposals for research to improve locating technology. The Safety Board views RSPA's support of the CGA as an acceptable alternative to independent testing of locator equipment performance. While this non-profit organization cannot develop equipment criteria, the Board recognizes its work in evaluating equipment performance within the accuracy requirements identified by the states. Because RSPA and the CGA are working towards the ultimate intent of the Board's recommendations to improve locator equipment performance, Safety Recommendations P-97-16, -17 and -18 are classified "Closed--Acceptable Alternate Action." The Board recognizes the independent role of the CGA and encourages the organization to publicize equipment performance results. Thank you for your attention to these important safety initiatives.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2003-01-07

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 1/10/2003 3:03:30 PM MC# 2030036 RSPA has initiated cooperative research on location technologies and hired inspectors to focus on damage prevention issues with local communities. RSPA has executed an agreement with the Common Ground Alliance (CGA) to address locator equipment performance and the ability of these technologies to locate pipe within the hand-dig tolerance zones of the various State damage prevention laws. We are working with the CGA to coordinate the direction of these assessments. Specifically: In mid-2002, RSPA finalized a Cooperative Agreement with the CGA. CGA is now developing and documenting new best practices for damage prevention issues, including a research effort to promote development of improved and innovative technological approaches to more accurately locate underground pipeline facilities. On October 2, 2002, Bob Kipp, Executive Director CGA, briefed NTSB staff on progress made by the CGA's Research and Development (R&D) Committee in addressing the locator equipment issues in NTSB Safety Recommendations P-97-16, P-97-17, and P-97-18. On December 18, 2002, he provided RSPA with a detailed report on progress. The CGA R&D Committee has addressed locator equipment types and performance; criteria for selection and use of locator equipment for a particular location/job; index of manufacturers' directions and specifications; and, descriptions of the accuracy of various locator technologies to accurately locate pipe within the hand-dig tolerance zones of the various State damage prevention laws. This includes a review of State requirements for location accuracy and hand-dig tolerance zones to determine that they can be accomplished with commercially available technology. Although CGA will not sponsor independent testing of locator equipment or run a certification system, it developed selection criteria for such equipment. In addition, RSPA's fiscal year 2002 budget included research funding that is enabling RSPA to partner with pipeline industry organizations and independent research groups to advance the technologies available for detecting and monitoring buried pipe, particularly plastic pipe. The goal of this research effort is to identify and evaluate location equipment for buried plastic gas mains and services; to develop performance criteria for new, improved generations of equipment with the desired locating capabilities; and to investigate ways to design plastic pipe for ease of location. We provided NTSB staff a research plan, developed from a November 2001 workshop on research and development priorities, which included a research focus on pipe locating and leak detection. In accordance with the research plan, RSPA has issued two Broad Agency Announcements (BAA) requesting proposals for research to improve locating technology. In March 2002, RSPA issued the first BAA to invite cooperative research proposals on ways to improve pipeline damage prevention and leak detection. A second BAA in June 2002 invited research proposals on enhanced pipeline operations, controls, and monitoring technologies. A third BAA to be issued next month will focus on improved materials performance and leak detection. In November 2002, RSPA awarded $1.6 million in an initial series of contracts for pipeline safety research, including one to the Gas Research Institute to develop locatable magnetic signature plastic gas pipe materials. In 2002, RSPA received funding to hire five full-time Community Assistance and Technical Services inspectors and they were hired this month. Among other damage prevention and communications duties, these inspectors will work with local communities and the CGA to establish and improve excavation damage prevention programs, including improvements in locating technology, certification criteria, and review of State requirements for location accuracy and hand-dig tolerance zones. Their tasks include providing an annual assessment of each State's progress with adoption of these damage prevention programs. Action Requested: RSPA requests that Safety Recommendations P-97-16, P-97-17, and P-97-18 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 has initiated a number of activities related to the locator equipment recommendations: ·published the Common Ground report, which enumerated best practices and provided information on new technologies for locating and marking pipelines and other utilities, ·referred the three recommendations to the CGA for further action, and ·proposed funding of a research and development initiative to advance the technologies for detecting and monitoring buried plastic pipe. Appendix A of the Common Ground report addresses emerging technologies for damage prevention. This information should stimulate the development of advanced software, technologies, equipment, and practices that will advance damage prevention. Appendix A discusses how current or emerging technologies could be used to improve excavation and damage prevention best practices. Section A.6.4 addresses current locating and marking technologies, including their advantages and disadvantages, and suggests improvements. RSPA believes that the CGA is the appropriate organization to review these recommendations and to suggest solutions. At our request, CGA President Jim Barron has agreed to place the locator recommendations on the agenda and to refer the recommendations to the appropriate CGA committee. Even now, the CGA data committee plans to collect data on damage to underground facilities that may be useful in advancing locator technology and procedures. RSPA will work with the CGA to ensure that its suggestions are disseminated and implemented. In RSPA's most recent budget requests, it has proposed funding for research into methods to locate buried plastic pipe. The FY 2002 budget request includes research funding that will enable RSPA to partner with the Gas Technology Institute (GTI), pipeline industry organizations, and independent research groups to advance the technologies available for detecting and monitoring buried pipe, particularly plastic pipe. The goal of this research effort would be to: 1) identify and evaluate location equipment for buried plastic gas mains and services; 2) develop performance criteria for new, improved generations of equipment with the desired locating capabilities; and 3) investigate ways to design plastic pipe for ease of location. We will continue to work with industry organizations, particularly with the CGA, and to partner with research organizations, to meet the objectives of Safety Recommendations P-97-16, -17, and -18.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1998-10-30

Communication Type: Official Correspondence

Communication Contents: RSPA IS CONSIDERING RESEARCH TO ADVANCE UNDERGROUND FACILITY LOCATING TECHNOLOGY SO THAT BURIED LINES, PARTICULARLY PLASTIC PIPELINES IN GAS DISTRIBUTION SYSTEMS, CAN BE ACCURATELY LOCATED TO MINIMIZE THIRD PARTY DAMAGE. THE RESEARCH TO IMPROVE LOCATING EQUIPMENT WOULD HAVE THE FOLLOWING GOALS: 1) IDENTIFY AND EVALUATE LOCATION EQUIPMENT FOR BURIED PLASTIC GAS MAINS AND SERVICES; 2) IDENTIFY AND EVALUATE BOTH EXISTING EQUIPMENT AND EQUIPMENT UNDER DEVELOPMENT; 3) DEVELOP PERFORMANCE CRITERIA FOR NEW GENERATIONS OF EQUIPMENT CAPABLE OF LOCATING BURIED PLASTIC PIPELINES; AND 4) INVESTIGATE ALTERNATIVE WAYS TO DESIGN PLASTIC PIPE SO THAT IT CAN BE MORE EASILY LOCATED BY PIPELINE OPERATORS USING PIPE LOCATION EQUIPMENT. ADDITIONALLY, RSPA'S BEST PRACTICES STUDY TEAM WILL INCLUDE A SPECIFIC "TASK TEAM" TO DETERMINE THE BEST PRACTICES IN LOCATING AND MARKING ACTIVITIES. RSPA CONDUCTS COLLABORATIVE RESEARCH AND TESTS WITH INDUSTRY, INDEPENDENT LABORATORIES, AND PIPELINE OPERATORS TO DEVELOP EFFECTIVE UNDERGROUND LOCATION TECHNOLOGIES. WE BELIEVE WORKING COOPERATIVELY WITH THESE PARTIES IS MORE EFFECTIVE THAN DEVELOPING FEDERAL UNIFORM CERTIFICATION CRITERIA FOR LOCATOR EQUIPMENT. DEVELOPMENT OF CERTIFICATION CRITERIA IS AN ACTIVITY CONDUCTED IN THE PRIVATE SECTOR BY VARIOUS EQUIPMENT MANUFACTURERS. RSPA DEVELOPMENT OF UNIFORM CRITERIA MAY NOT TAKE INTO ACCOUNT NEW TECHNOLOGICAL APPROACHES TO LOCATING UNDERGROUND FACILITIES AND MAY TEND TO PROVIDE OFFICIAL VALIDATION TO CURRENT TECHNOLOGIES, EQUIPMENT, AND PROCEDURES. RSPA BELIEVES THAT CONTINUING TO WORK WITH INDUSTRY ORGANIZATIONS ON RESEARCH AND TECHNOLOGY ISSUES, RATHER THAN SETTING STRICT UNIFORM CERTIFICATION REQUIREMENTS, WILL MOST EFFECTIVELY MEET THE GOAL OF RECOMMENDATION P-97-17. RSPA REQUESTED ADDITIONAL FUNDING FOR THE YEAR 2000 BUDGET TO SUPPORT THESE EFFORTS. RSPA REQUESTS THAT P-97-16 AND -17 BE CLASSIFIED 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 present 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. Department 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 contribute 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 state 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.