NTSB Safety Recommendation P-97-019

NTSB safety recommendation P-97-019.

THE NTSB RECOMMENDS THAT THE RSPA: DEVELOP MAPPING STANDARDS FOR A COMMON MAPPING SYSTEM, WITH A GOAL TO ACTIVELY PROMOTE ITS WIDESPREAD USE.

Priority: CLASS II

Overall Status: Closed - Acceptable Alternate 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.

Ntsbnumber: 80433

Report Number: SS-97-01

Addressee Name: RSPA

Addressee Status: Closed - Acceptable Alternate Action

Addressee Date Closed: 2002-05-17

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, & OUR 4/30/98, CORRESPONDENCE ARE ENCLOSED.

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 SAFETY 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: 1999-06-29

Communication Type: Official Correspondence

Communication Contents: BECAUSE RSPA HAS ADVISED THE BOARD THAT IT CONCURS WITH THE RECOMMENDATION AND IS WORKING TOWARD IMPLEMENTING IT, P-97-19 HAS BEEN CLASSIFIED "OPEN--ACCEPTABLE RESPONSE," PENDING A FURTHER REPLY FROM RSPA. THE BOARD WOULD APPRECIATE PERIODIC UPDATES ON THE EFFORTS TO IMPLEMENT THE RECOMMENDATION. FURTHER, THE BOARD REMINDS RSPA THAT THE 1998 SAFETY STUDY AND SAFETY RECOMMENDATION ADDRESS MAPPING PROBLEMS FOR LOCAL DISTRIBUTION SERVICES AND THE NEED FOR STANDARDS TO ADDRESS THESE MAPPING PROBLEMS.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2002-05-17

Communication Type: Official Correspondence

Communication Contents: Although in its 1998 correspondence the Safety Board had urged that distribution lines also be addressed as a result of this recommendation, RSPA's progress in (1) establishing national pipeline mapping standards for transmission lines and (2) providing guidance to operators on the need to accurately locate and mark pipeline facilities and to keep up-to-date records and maps as pipeline construction and modifications take place is an acceptable alternate approach to the recommendation. Accordingly, Safety Recommendation P-97-19 is classified "Closed--Acceptable Alternate Action." The Safety Board appreciates the detailed response to these recommendations. The Board commends RSPA for its efforts to improve public safety through these ongoing activities to prevent excavation damage to pipeline facilities.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-09-19

Communication Type: Official Correspondence

Communication Contents: The Safety Board acknowledges the work RSPA is doing to accomplish the intent of this recommendation. However, as we have previously pointed out, there is a need for RSPA to address mapping standards for distribution lines on which excavation damage is the leading cause for accidents. Accordingly, Safety Recommendation P-97-19 is classified "Open--Acceptable Response," pending RSPA’s effort to address mapping standards for local distribution lines.

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 with NTSB Recommendation P-97- 19 and believes that preventing construction-related damage to pipelines and all other underground utilities is of utmost importance. The enclosure details our extensive efforts to address this leading cause of pipeline failures. We believe these efforts exceed the intent of NTSB Safety Recommendation P-97-19. If we can be of further assistance, please contact me or Suzanne Te Beau, Associate Administrator for Policy and Congressional Affairs, at (202) 366-4831. In our letters of October 30, 1998 and June 26, 2001, RSPA requested that NTSB close Safety Recommendation P-97-19 based on the significant progress we had made in establishment of the National Pipeline Mapping System (NPMS) and the associated national pipeline mapping standards. We incorrectly assumed that our work in this area would meet the intent of the recommendation. Recently, NTSB and RSPA staff met to more fully discuss this recommendation, Thanks to information exchanged in that meeting, we now have a better understanding of the intent of this recommendation and believe that RSPA, States and the pipeline industry can increase our efforts to address its intent. We are immediately taking a series of actions designed to improve clarity and accuracy of maps and communications about the location of pipeline facilities within pipeline companies, between pipeline operators and one-call personnel, local planning and zoning officials, and between operators and emergency responders. This will help prevent unintentional damage to pipelines and will improve the efficiency of emergency response. Several significant accidents have stemmed, in part, from unclear or inaccurate facility records and maps. We addressed these deficiencies in enforcement action related to those incidents. Our regulations for both gas and hazardous liquid operators require operators to 1) maintain current records and maps of the location of their facilities for use in operations, maintenance, and emergency response activities (e.g., surveillance, leak surveys, cathodic protection, abnormal operations response, etc.); 2) establish active damage prevention programs, including participation in local one-call notification programs, outreach to local construction and excavation companies, ensuring accurate location and marking of pipeline facilities, and explanation of this system of markings to persons who give notice of their intent to excavate near a pipeline; and, 3) hire and train employees and contractors to safely perform their duties, including both routine and emergency operations. In response to this recommendation RSPA is issuing an Advisory Bulletin to all pipeline operators that will provide clear guidance to operators to: 1) accurately locate and clearly mark key pipeline features and other information needed for effective emergency response on company maps and records; 2) keep these maps and records up-to-date as pipeline construction and modifications take place; 3) urge operators to ensure that their abandoned lines are accurately recorded and mapped to further eliminate confusion with active lines during the location and marking phases of pre-construction activities and in the rush of emergency response. The Advisory Bulletin will also urge support of collaborative efforts to improve all phases of underground facility damage prevention and promising research and development to improve the accuracy of locating technology. We have already instructed our enforcement staff to modify their inspections to put additional emphasis on the mapping and damage prevention requirements referred to above. RSPA has initiated a research effort to promote development of improved and innovative technological approaches to more accurate locating of underground utilities, including pipelines, through our research and development program. We provided NTSB staff a research plan including a focus on pipe locating. The enclosed Broad Area Announcement (BAA) requests proposals for research to improve locating technology. Action Requested: RSPA requests that Safety Recommendations P-97-19 be reclassified as "Closed--Acceptable Action" based on the information provided.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-06-26

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 07/02/2001 9:44:21 AM MC# 2010540 RSPA has completed the national pipeline mapping system standards. A copy is attached for your information. By the end of February 2000, RSPA substantially completed both its internal geographic information system (NPMS) and its inter-net-based mapping application. Please note the following details to update you on our activities in this area.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1998-10-30

Communication Type: Official Correspondence

Communication Contents: RSPA BEGAN DEVELOPING A PIPELINE MAPPING SYSTEM IN 1994. RSPA IS CREATING A NATIONAL PIPELINE MAPPING SYSTEM (NPMS) THAT DEPICTS THE LOCATION OF, AND INFORMATION ON, THE MAJOR PIPELINES AND LIQUEFIED NATURAL GAS (LNG) FACILITIES OPERATING IN THE U.S., AND THE RELATIONSHIP OF THESE PIPELINES AND FACILITIES TO PEOPLE, ENVIRONMENTAL RESOURCES, TRANSPORTATION NETWORKS, AND OTHER NATIONAL RESOURCES. TWO JOINT GOVERNMENT/INDUSTRY PIPELINE MAPPING QUALITY ACTION TEAMS (MQAT I AND MQAT II) WERE FORMED TO WORK WITH RSPA ON CREATING THE DIGITAL PIPELINE AND LNG LOCATION AND ATTRIBUTE DATA OF THE NPMS. BOTH TEAMS HAVE BEEN SPONSORED BY RSPA, THE AMERICAN PETROLEUM INSTITUTE (API), AND THE INTERSTATE NATURAL GAS ASSCIATION OF AMERICAN (INGAA). EACH TEAM HAS INCLUDED REPRESENTATIVES FROM MULTIPLE FEDERAL AND STATE GOVERNMENT AGENCIES AND THE NATURAL GAS AND HAZARDOUS LIQUID PIPELINE INDUSTRY. MQAT II HAS DRAFTED NATIONAL PIPELINE MAPPING DATA STANDARDS THAT WILL BE USED TO CREATE THE DIGITAL PIPELINE AND LNG LAYER IN THE MAPPING SYSTEM. THESE INCLUDE STANDARDS FOR ELECTRONIC DATA SUBMISSIONS, PAPER MAP SUBMISSIONS, AND METADATA (DATA ON THE DATA). THE TEAM HAS ALSO DRAFTED STANDARDS THAT WILL BE USED BY THE PIPELINE MAPPING REPOSITORY RECEIVING THE PIPELINE DATA. IN MAY 1997, MQAT II HELD A PUBLIC MEETING TO PRESENT THE INITIAL DRAFT STANDARDS TO INTERESTED STAKEHOLDERS. FEEDBACK FROM THE PUBLIC MEETING AND AN INITIAL PILOT TEST WAS USED TO REFINE THE MAPPING STANDARDS AND THE FUNCTIONS OF THE PIPELINE MAPPING REPOSITORIES. RSPA, API AND INGAA SENT THE REVISED STANDARDS TO THE PIPELINE INDUSTRY, STATES, AND MAPPING VENDORS FOR REVIEW AND COMMENT. THE INITIAL PILOT WAS CONDUCTED TO TEST THE COLLECTION AND TRANSFER OF INDUSTRY DATA TO PILOT REPOSITORIES, AND THE PROCESSING OF THE DATA BY THE PILOT REPOSITORIES. IN MARCH 1998, MQAT II FINISHED A SECOND PILOT TEST ON THE REVISED STANDARDS. TWENTY-TWO PIPELINE OPERATORS, TEN STATES, AND SIX PIPELINE MAPPING VENDORS PARTICIPATED IN THIS TEST. THE PIPELINE OPERATORS SELECTED SEGMENTS OF THEIR PIPELINE SYSTEMS AND SUBMITTED, TO THE PILOT REPOSITORIES, LOCATION AND ATTRIBUTE DATA ON THESE SEGMENTS IN A FORMAT THAT MET THE REVISED STANDARDS. THE PILOT REPOSITORIES ALSO FOLLOWED THE REVISED STANDARDS TO DIGITIZE, CONVERT, AND PROCESS THE SUBMITTED DATA TO CREATE A SEAMLESS PIPELINE DATA LAYER. THIS SECOND PILOT HELPED TO RESOLVE SOME OF THE REMAINING PROBLEMS WITH THE MAPPING DATA STANDARDS. RSPA AND THE MQAT II ARE USING THE RESULTS OF THIS SECOND PILOT TEST TO FURTHER REFINE THE MAPPING DATA STANDARDS AND TO MINIMIZE THE COST OF CREATING THE NATIONAL PIPELINE MAPPING SYSTEM. MQAT II PUBLISHED NEW REVISED MAPPING DATA STANDARDS IN JUNE 1998. THE NEW STANDARDS WERE SENT TO PIPELINE AND LNG OPERATORS, STATE AGENCIES, AND MAPPING VENDORS FOR REVIEW AND COMMENT. THE TEAM CONSIDERED PUBLIC COMMENTS BEFORE PUBLICIZING THE FINAL PIPELINE MAPPING DATA STANDARDS. IN JULY 1998 RSPA PUBLISHED TWO REQUESTS FOR BIDS IN THE COMMERCE BUSINESS DAILY TO DETERMINE WHICH STATE AGENCIES AND PIPELINE MAPPING CONTRACTORS ARE INTERESTED IN, AND QUALIFIED TO BECOME, THE STATE REPOSITORIES AND THE NATIONAL REPOSITORY. RSPA IS NOW SELECTING A CONTRACTOR TO OPERATE THE NATIONAL MAPPING DATA REPOSITORY, AND EXPECTS TO SELECT STATE REPOSITORIES BY OCTOBER 1998. THIS MONTH (OCTOBER 1998), RSPA AND OTHER MEMBER OF MQAT II HELD THREE PUBLIC WORKSHOPS ON THE NPMS TO EDUCATE OPERATORS AND POTENTIAL STATE DATA REOSITORIES ON THE MAPPING DATA STANDARDS, HOW PIPELINE AND LNG OPERATORS CAN MEET THE STANDARDS, WAYS OPERATORS CAN MIGRATE FROM PAPER TO DIGITAL IN A COST-EFFECTIVE MANNER, HOW THE NPMS WILL OPERATE, AND OTHER RELATED ISSUES. THE WORKSHOPS WERE HELD IN HOUSTON, TX; CHICAGO,IL; AND SAN FRANCISCO, CA. A FOURTH WORKSHOP WILL BE HELD OCTOBER 28-29 IN WASHINGTON, DC. THE WORKSHOPS WILL BE COMPLETED BEFORE RSPA REQUESTS MAPPING DATA FROM PIPELINE AND LNG OPERATORS IN EARLY 1999. WE BELIEVE RSPA'S EFFORTS TO ESTABLISH THE NATIONAL PIPELINE MAPPING SYSTEM FULLY ADDRESS THIS RECOMMENDATION. RSPA REQUESTS THAT P-97-19 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. 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 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.