NTSB Safety Recommendation P-98-037

NTSB safety recommendation P-98-037.

THE NTSB RECOMMENDS THAT THE RSPA: REVISE 49 CODE OF FEDERAL REGULATIONS PART 195 TO INCLUDE REQUIREMENTS FOR THE CONTENT AND DISTRIBUTION OF LIQUID PIPELINE OPERATORS' PUBLIC EDUCATION PROGRAMS.

Priority: CLASS II

Overall Status: Closed - Acceptable Action

Issued Date: 1998-11-18

Adopted Date: 1998-11-06

Overall Date Closed: 2003-11-21

Synopsis: ON SATURDAY, 8/24/96, ABOUT 3:26 P.M., AN 8-INCH-DIAMETER STEEL LPG (LIQUEFIED PETROLEUM GAS) PIPELINE TRANSPORTING LIQUID BUTANE, OPERATED BY KOCH PIPELINE COMPANY, LP (KOCH), RUPTURED NEAR LIVELY, TEXAS, SENDING A BUTANE VAPOR CLOUD INTO A SURROUNDING RESIDENTIAL AREA. THE BUTANE VAPOR IGNITED AS TWO AREA RESIDENTS IN A PICKUP TRUCK DROVE INTO THE VAPOR CLOUD. THE PEOPLE DIED AT THE ACCIDENT SITE FROM THERMAL INJURIES. ABOUT 25 FAMILIES WERE EVACUATED FROM THE AFFECTED AREA. KOCH ESTIMATED ITS DIRECT PIPELINE LOSSES, INCLUDING THE LOSS OF PRODUCT FROM THE LINE, TO BE ABOUT $217.000. OTHER PROPERTY LOSSES INCLUDED DAMAGE TO THE ROADWAY UNDER WHICH THE RUPTURE OCCURRED & DAMAGE TO A PICKUP TRUCK, A MOBILE HOME, SEVERAL OUTBUILDINGS, & ADJACENT WOODLANDS.

Probable Cause: The failure of Koch to adequately protect its pipeline from corrosion.

Keywords: Training and Education, Public Education (Pipeline)

Ntsbnumber: DCA96FP007

Report Number: PAR-98-02-SUM

Addressee Name: RSPA

Addressee Status: Closed - Acceptable Action

Addressee Date Closed: 2003-11-21

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2001-04-18

Communication Type: Official Correspondence

Communication Contents: The Safety Board understands that RSPA, on February 13, 2001, held a public meeting to cover how the public can gain improved access to information about how pipelines are being operated and how pipeline risks can be controlled. Further, the Board notes that RSPA is actively encouraging the industry to improve public education about pipeline safety, especially through its damage prevention efforts. RSPA is working with the pipeline industry to assess public education efforts beyond those dealing with damage prevention to underground facilities, is evaluating industry approaches to use in educating the public by working with the American Petroleum Institute and other pipeline industry trade associations, and is also considering a survey of pipeline companies to review and evaluate the effectiveness of their public education programs in enhancing pipeline safety in local communities. The Safety Board encourages RSPA to continue its efforts on these issues, and pending notification that these efforts have been completed, Safety Recommendations P-98-37 and -38 remain classified "Open--Acceptable Response."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2003-11-21

Communication Type: Official Correspondence

Communication Contents: The Safety Board is aware that RSPA has been working closely with its stakeholders to satisfy the Board's recommendations. We appreciate receiving a copy of Recommended Practice (RP) 1162 "Public Awareness Programs for Pipeline Operators," developed by the American Petroleum Institute in conjunction with RSPA's Office of Pipeline Safety (OPS). The Board was particularly pleased to note that organizations representing essentially the entire gas and hazardous liquid pipeline industry issued a joint statement on May 28, 2003, noting that they are "committed to adopting a consensus standard establishing a baseline public awareness program for pipeline operators" in 2003. We note further that they urged RSPA and the OPS to incorporate RP 1162 into the pipeline safety regulations, and they also committed to working with RSPA/OPS to reach out to pipeline operators to assist them in aligning their current public information programs with the standard. We also note that the OPS has held pipeline operator workshops to help pipeline operators understand the RP 1162 and is committed to incorporating by reference RP 1162 into the pipeline safety regulations (49 CFR Parts 192 and 195). In view of the extensive initiatives to address the Board's recommendations, Safety Recommendations P-90-21, P-98-37, and -38 are classified "Closed--Acceptable Action." We commend RSPA and its stakeholders on these communications and public education initiatives and for helping localities, States, and industry to improve their public awareness programs.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2003-02-27

Communication Type: Official Correspondence

Communication Contents: The Safety Board appreciates the comprehensive update on the activities related to the development of Recommended Practice (RP) 1162, Public Awareness Programs for Pipeline Operators. We also appreciate the meeting you held for Board staff with the American Petroleum Institute's standards team on the development of this new RP. The Safety Board notes the other ongoing communications and public education initiatives, including the development of an online resource for pipeline materials and information, "Pipeline 101," and a collaborative project with the National Association of State Fire Marshals to prepare first responders to better respond to pipeline emergencies and to enlist their help in damage prevention and education of state and local officials about pipelines. We further note that RSPA has contracted with the National Academy of Sciences-Transportation Research Board to conduct a study of options to prevent encroachment on pipelines. RSPA has also hired five full-time Community Assistance and Technical Services (CATS) inspectors to help states and industry improve their public awareness programs. The Safety Board commends RSPA for its extensive efforts to provide pipeline operators with guidance on how to improve public aware programs. As Safety Recommendations P-90-21, P-98-37, and P-98-38 call for revisions to the pipeline safety regulations, incorporation of RP 1162 into the regulations by reference will satisfy these recommendations. Pending issuance of that final rule, P-90-21, P-98-37, and P-98-38 remain classified "Open--Acceptable Response."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1999-11-30

Communication Type: Official Correspondence

Communication Contents: THE SAFETY BOARD UNDERSTANDS THAT RSPA PLANS TO MAKE THE APPROPRIATE AMENDMENTS TO 49 CFR, AS REQUESTED, FOR ALL THESE RECOMMENDATIONS. PENDING THE PUBLICATION OF THE FINAL RULES, P-98-35 THROUGH -38 HAVE BEEN CLASSIFIED "OPEN--ACCEPTABLE RESPONSE." THE BOARD WOULD APPRECIATE PERIODIC UPDATES ON THE STATUS OF THESE AMENDMENTS.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2003-08-28

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 9/3/2003 9:53:16 AM MC# 2030443 This letter updates the Research and Special Programs Administration's (RSPA) response to the National Transportation Safety Board (NTSB) Safety Recommendations P-90-21, P-98-37 and P-98-38. These three recommendations address the public education programs of pipeline operators and the evaluation of the effectiveness of communications efforts. I request that Safety Recommendations P-90-21, P-98-37, and P-98-38 be reclassified as "CLOSED - Acceptable Action" based on the development of a public awareness program standard for pipeline operators, the deployment of Community Assistance and Technical Services (CATS) inspectors, and other actions taken to promote pipeline information and education.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2002-12-20

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 01/03/2003 9:49:19 AM MC# 2030015 As discussed in our meeting with NTSB staff on October 24, RSPA asked all major trade associations for the natural gas and hazardous liquid pipeline industry to develop a single consensus standard for their public awareness programs that ensure a higher quality in programs. The result was a Joint Task Force led by the American Petroleum Institute (APT) to initiate a revision to its Recommended Practice (RP 1123), Development of Public Awareness Programs. The Interstate Natural Gas Association of America (INGAA), the American Gas Association and the American Public Gas Association joined API in this effort. The OPS and the National Association of Pipeline Safety Representatives are participating as observers. The Task Force conducted several focus-surveys of public and local officials and emergency response personnel to determine their public education and communications needs. They reviewed several studies (including the Wirthlin Study conducted by the INGAA and an analysis of best practices by API) and incorporated lessons learned into the initial drafting of the new RP. The effort is expected to result in a significantly different RP. API has withdrawn the current RP 1123 and is issuing the new RP under another number and name, RP 1162, Public Awareness Programs for Pipeline Operators. The RP guidelines will be applicable to: · Intrastate and interstate hazardous liquid pipelines, · Intrastate and interstate natural gas transmission pipelines, · Natural gas distribution pipelines, and, · Gathering pipeline operators. This new RP 1162 will provide pipeline operators guidelines for their public awareness programs and for program expansion to enhance outreach. The overall goal is to enhance public safety and environmental protection through increased public awareness and knowledge. The document defines program objectives and stakeholder audiences, discusses recommended message content, delivery methods used, program documentation and record keeping, and defines evaluation methods to test program effectiveness. A public review draft is currently available on API's website located at: http://www.api.org/pipelinepublicawareness/. OPS has actively encouraged all stakeholders to review and comment on the recommended practice as it is developed to ensure the success of this effort. These stakeholders include landowners, residents, businesses, schools, local and state emergency planning and response agencies, local officials, governing councils, land developers, excavators, and all pipeline operators. The final document will be published in accordance with the approval process under API's consensus standard-making authority established with the American National Standard Institute (ANSI). The Task Force will produce the ANSI document by Spring 2003. OPS frequently adopts industry-developed standards by reference and will likely adopt all or part of this new RP once it is completed. Such action will be subject to the rulemaking process. On January 29, 2003, RSPA will host a public meeting on pipeline communications where our agenda will focus on the adequacy of the draft RP 1162 as well as recent RSPA initiatives, integrity management communications and pipeline performance metrics. Panelists at the meeting will include representatives from various communities, environmental organizations, first responders, city/county government, state government and pipeline companies. The record of comments at this public meeting will help us evaluate the adequacy of RP 1162 and determine the extent to which it meets our regulatory needs. Other communications and public education initiatives include the development of an online resource for pipeline materials and information referred to as "Pipeline 101" and a collaborative project with the National Association of State Fire Marshals to prepare first responders to better respond to pipeline emergencies and to enlist their help in damage prevention and education of state and local officials about pipelines. RSPA has also contracted with the National Academy of Sciences, Transportation Research Board to conduct a study of options to prevent encroachment on pipelines. RSPA also has hired five full-time Community Assistance and Technical Services (CATS) inspectors to help States and industry improve public awareness programs. These initiatives help us improve the adequacy of public education about pipeline risks. While the creation of a new recommended practice and regulation are important methods of assuring that the public is well informed, RSPA has taken additional alternative measures to ensure that public education is improved. By broadening public information on our web site, preparing fire service representatives to address community needs, and by having OPS representatives address state and local officials needs, RSPA will improve the public education processes.

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 1999-04-12

Communication Type: Official Correspondence

Communication Contents: Letter Mail Controlled 7/28/99 1:05:21 PM MC# 990814 SECTION 195.440 OF THE PIPELINE SAFETY REGULATIONS REQUIRES OPERATORS OF HAZARDOUS LIQUID PIPELINES TO ESTABLISH A CONTINUING EDUCATIONAL PROGRAM TO ENABLE THE PUBLIC, GOVERNMENT AGENCIES, AND PERSONS ENGAGED IN EXCAVATION ACTIVITIES TO RECOGNIZE AN EMERGENCY SITUATION, TAKE APPROPRIATE SAFETY ACTIONS, AND REPORT THE EMERGENCY TO THE APPROPRIATE AUTHORITIES. IN ADDITION, RSPA HAS BEEN WORKING TO DEVELOP DAMAGE CONVENTION AND PUBLIC AWARENESS PROGRAM THAT COULD BE ADOPTED NATIONWIDE BY PIPELINE FACILITY OPERATORS, ONE-CALL CENTERS, EXAVATORS, AND OTHERS. OUR DAMAGE PREVENTION QUALITY ACTION TEAM (DAMQAT), CO-CHAIRED BY GOVERNMENT AND PIPELINE INDUSTRY REPRESENTATIVES, HAS COMPLETED A NATIONAL SURVEY ON EXCAVATION DAMAGE AWARENESS AND, A PILOT ADVERTISING CAMPAIGN TO PROMOTE USE OF ONE-CALL SYSTEMS IN THREE STATES. THE RESULTS ARE ENCOURAGING. THE PILOT STATES HAVE REPORTED SIGNIFICANT INCREASES IN CALLS TO ONE-CALL CENTERS AND INCREASES IN UNDERGROUND UTILITY LOCATE REQUESTS. AS PUT OF OUR ONGOING ONE CALL SYSTEMS STUDY, WE HAVE FORMED THE PUBLIC EDUCATION AND AWARENESS TASK TEAM TO STUDY THE BEST WAYS TO EDUCATE THE PUBLIC ON THE PREVENTION OF DAMAGE TO ALL UNDERGROUND AND SUBMERGED FACILITIES, THE ACTIONS TO BE TAKEN IN THE EVENT OF A LEAK, AND THE PROCEDURES FOR NOTIFYING THE APPROPRIATE AUTHORITIES. THIS TEAM IS ALSO EVALUATING BEST PRACTICES IN THE UTILIZATION OF AVAILABLE RESOURCES FOR PUBLIC EDUCATION. THE TEAM HAS REACHED GENERAL AGREEMENT ON NINE "BEST" PRACTICES TO IMPROVE PUBLIC AWARENESS OF UNDERGROUND DAMAGE PREVENTION, INCLUDING MARKETING APPROACHES, IDENTIFYING TARGET AUDIENCES, USING THE MEDIA, ESTABLISHING STRATEGIC RELATIONSHIPS, AND MEASURING PERFORMANCE. WE AGREE THAT 49 CFR 195.440 MAY NEED TO BE REVISED TO SPECIFICALLY ADDRESS THE USE OF ONE-CALL SYSTEMS AND TO PROVIDE MORE SPECIFIC PERFORMANCE REQUIREMENTS FOR THE CONTENT AND DISTRIBUTION OF HAZARDOUS LIQUID PIPELINE PUBLIC EDUCATION PROGRAMS. WE EXPECT TO MAKE A DECISION ON POSSIBLE REVISIONS BY THE SUMMER 1999. PENDING THE RESULTS OF THIS STUDY, WE REQUEST THAT P-98-37 BE CLASSIFIED AS "OPEN--ACCEPTABLE RESPONSE."

Addressee Acronym: RSPA

Addressee Organization Type: G-Federal Government

Communication Date: 2000-04-24

Communication Type: Official Correspondence

Communication Contents: NTSB Safety Recommendations P-90-21, P-98-37, and P-98-38 address the possible need to change the public education requirement in the pipeline safety regulations. RSPA is actively encouraging the improvement in public education about pipeline safety, especially through our damage prevention efforts. In addition, we are now working with the pipeline industry to assess public education efforts beyond those dealing with damage prevention to underground facilities. RSPA is evaluating industry approaches to educating the public by working with the American Petroleum Institute and other pipeline industry trade associations. RSPA is also considering a survey of pipeline companies to review and evaluate the effectiveness of their public education programs in enhancing pipeline safety in local communities. RSPA may require a communications plan as part of an integrity management program. Industry and public interest group representatives, such as the National League of Cities, the Environmental Defense Fund, and the national organization of Local Emergency Planning Committees, are working to develop some models on communications and public education that can be pilot tested to determine what kind of information is most beneficial to local officials in preventing and responding to pipeline spills. RSPA is also considering proposing requirements for how operators communicate with local officials about results of risk assessment processes and measures to prevent and mitigate damage to pipelines in case of a failure. RSPA is seeking information on how local officials could use and benefit from risk assessment information, how the consequences of potential pipeline failures should be characterized, how risk control actions should be described and what performance indicators would be meaningful.