# Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration

- **operation:** document
- **citation:** PHMSA Guidance, Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration
- **title:** Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration
- **source type:** guidance
- **agency:** Pipeline and Hazardous Materials Safety Administration
- **status:** guidance
- **official:** true
- **published on:** Not available
- **effective on:** Not available
- **summary:** Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration Document 2019-07132.pdf (226.19 KB) PHMSA is issuing this advisory bulletin to all owners and operators of gas and hazardous liquid pipelines to communicate the potential for damage to pipeline facilities caused by severe flooding. This advisory includes actions that operators should consider taki
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- **source url:** https://www.phmsa.dot.gov/regulatory-compliance/phmsa-guidance/pipeline-safety-potential-damage-pipeline-facilities-caused-by-flooding-river-scour-river-channel-migration
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Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration

Document

 2019-07132.pdf (226.19 KB)

        PHMSA is issuing this advisory bulletin to all owners and operators of gas and hazardous liquid pipelines to communicate the potential for damage to pipeline facilities caused by severe flooding. This advisory includes actions that operators should consider taking to ensure the integrity of pipelines in case of flooding.

          Effective Date: Thursday, April 11, 2019

<<<PAGE 1>>>

Federal Register / Vol. 84, No. 70 / Thursday, April 11, 2019 / Notices
14715
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once each calendar day. FRA assigned
the petition Docket Number FRA–2019–
0011.
Specifically, UPRR seeks the ability to
forgo daily inspections on Distributed
Power (DPU) locomotives that are en
route. Daily inspections on DPU
locomotives would still be performed
before departing the originating terminal
and before the locomotive’s next usage
after arrival at the train destination.
UPRR states that many trains operating
along the UPRR network typically arrive
at their destination within 48 to 72
hours; with the longest routes operating
in an 84- to 96-hour time range. Daily
inspections of DPU locomotives
performed en route often take place on
the main line and in close proximity to
other main line live tracks. Train delay
created by conducting these inspections
can at times result in blocked crossings.
These situations can pose an
unnecessary safety risk to both the
general public and crew members as
well.
A copy of the petition, as well as any
written communications concerning the
petition, is available for review online at
www.regulations.gov and in person at
the U.S. Department of Transportation’s
(DOT) Docket Operations Facility, 1200
New Jersey Avenue SE, W12–140,
Washington, DC 20590. The Docket
Operations Facility is open from 9 a.m.
to 5 p.m., Monday through Friday,
except Federal Holidays.
Interested parties are invited to
participate in these proceedings by
submitting written views, data, or
comments. FRA does not anticipate
scheduling a public hearing in
connection with these proceedings since
the facts do not appear to warrant a
hearing. If any interested parties desire
an opportunity for oral comment and a
public hearing, they should notify FRA,
in writing, before the end of the
comment period and specify the basis
for their request.
All communications concerning these
proceedings should identify the
appropriate docket number and may be
submitted by any of the following
methods:
• Website: http://
www.regulations.gov. Follow the online
instructions for submitting comments.
• Fax: 202–493–2251.
• Mail: Docket Operations Facility,
U.S. Department of Transportation, 1200
New Jersey Avenue SE, W12–140,
Washington, DC 20590.
• Hand Delivery: 1200 New Jersey
Avenue SE, Room W12–140,
Washington, DC 20590, between 9 a.m.
and 5 p.m., Monday through Friday,
except Federal Holidays.
Communications received by May 28,
2019 will be considered by FRA before
final action is taken. Comments received
after that date will be considered if
practicable.
Anyone can search the electronic
form of any written communications
and comments received into any of our
dockets by the name of the individual
submitting the comment (or signing the
document, if submitted on behalf of an
association, business, labor union, etc.).
Under 5 U.S.C. 553(c), DOT solicits
comments from the public to better
inform its processes. DOT posts these
comments, without edit, including any
personal information the commenter
provides, to www.regulations.gov, as
described in the system of records
notice (DOT/ALL–14 FDMS), which can
be reviewed at https://www.transpo
rtation.gov/privacy. See also https://
www.regulations.gov/privacyNotice for
the privacy notice of regulations.gov.
Issued in Washington, DC.
John Karl Alexy,
Deputy Associate Administrator Office of
Railroad Safety.
[FR Doc. 2019–07137 Filed 4–10–19; 8:45 am]
BILLING CODE 4910–06–P
DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials
Safety Administration
[Docket No. PHMSA–2019–0047]
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.
ACTION: Notice; issuance of advisory
bulletin.
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:
• Eastern Region: 609–771–7800
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
• Central Region: 816–329–3800
Illinois, Indiana, Iowa, Kansas,
Michigan, Minnesota, Missouri,
Nebraska, North Dakota, South
Dakota, and Wisconsin
• 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 available at
www.napsr.org.
SUPPLEMENTARY INFORMATION:
I. Background
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 the Federal pipeline safety
regulations.
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 § 192.619(a) and (b).’’
Likewise, § 195.401(b)(1) 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
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14716 Federal Register / Vol. 84, No. 70 / Thursday, April 11, 2019 / Notices
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] § 195.452,
the operator must correct the condition
as prescribed in § 195.452(h).’’
Operators should be aware that severe
flooding, river scour, and river channel
migration may create unusual operating
conditions that can adversely affect the
safe operation of a pipeline, and may
require corrective action under
§§ 192.613(a) and (b) and 195.401(b).
In addition, § 194.107(a) requires
operators of onshore oil pipelines to
create response plans that ‘‘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.’’ Section 194.115 further
states that ‘‘[e]ach operator shall
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, §§ 192.935, 194.107, and
195.452(i) require an operator to take
additional preventative and mitigative
measures to prevent a pipeline failure
and to mitigate the consequences of a
pipeline failure. 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 under these regulations.
In December of 2017, the American
Petroleum Institute (API) issued the
second edition of Recommended
Practice (RP) 1133, ‘‘Managing
Hydrotechnical Hazards for Pipelines
Located Onshore or Within Coastal
Areas.’’ This RP applies to new and
existing hydrocarbon pipelines that
transport gas and hazardous liquids. It
is intended to apply to onshore
waterways and coastal zones that may
be susceptible to hydro technical
hazards. The RP provides guidelines
and recommendations for identifying,
assessing and managing risks to pipeline
integrity associated with these hazards
through the life-cycle of a pipeline.
PHMSA has released several advisory
bulletins on this subject, with the
earliest issued July 29, 1993, (ADB–93–
03), and the most recent on January 19,
2016, (ADB–16–01; 81 FR 2944). These
advisory bulletins are consistent with
API RP 1133. Each of these advisory
bulletins followed an event that
involved severe flooding that affected
pipelines in the areas of rising or fast
moving waters. As shown in these
events, river bottom scour, channel
migration, and some cases soil
subsidence, 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. Soil subsidence,
particularly in variable, steep, and
rugged terrain, can pose a threat to the
integrity of a pipeline if those threats are
not mitigated. 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
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–2019–01)
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 should 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
suggested 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. Ensure that pipeline controllers are
aware of which pipeline sections are
experiencing flooding or high flow
conditions, and are familiar with the
contingency plans to safely and quickly
shut down and isolate the affected
sections.
5. 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.
6. Extend regulator vents and relief
stacks above the level of anticipated
flooding as appropriate.
7. 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.
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8. Coordinate with other pipeline
operators in flood areas and establish
emergency response centers to act as a
liaison for pipeline problems and
solutions.
9. Deploy personnel so that they will
be in position to shut down, isolate,
contain, or perform any other
emergency action on an affected
pipeline.
10. 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.
11. 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.
12. 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.
13. Following flooding, 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.
14. 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.
15. 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 §§ 191.23 and
195.55 may also be required.
Issued in Washington, DC, on April 5,
2019, under authority delegated in 49 CFR
1.97.
Alan K. Mayberry,
Associate Administrator for Pipeline Safety.
[FR Doc. 2019–07132 Filed 4–10–19; 8:45 am]
BILLING CODE 4910–60–P
DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials
Safety Administration
[Docket No. PHMSA–2014–0092]
Pipeline Safety: Request for Revision
of a Previously Approved Information
Collection: National Pipeline Mapping
System Program
AGENCY: Pipeline and Hazardous
Materials Safety Administration
(PHMSA), DOT.
ACTION: Notice and request for
comments.
amozie on DSK9F9SC42PROD with NOTICES
Federal Register / Vol. 84, No. 70 / Thursday, April 11, 2019 / Notices
14717
SUMMARY: In compliance with the
Paperwork Reduction Act of 1995 (44
U.S.C. 3501 et seq.), PHMSA announces
that the information collection request
detailed below will be forwarded to the
Office of Management and Budget
(OMB) for review. On June 22, 2016,
PHMSA published a notice and
requested comments on proposed
revisions to the National Pipeline
Mapping System (NPMS) Program.’’
During the comment period, PHMSA
received several comments on ways to
improve this data collection and to
consider a phased timeline to collect
data. PHMSA is publishing this notice
to address the comments received, to
notify the public of proposed revisions
to this information collection, and to
announce that PHMSA is requesting a 3-
year approval of this information
collection from OMB.
DATES: Written comments on this
information collection should be
submitted by May 13, 2019.
ADDRESSES: Comments may be
submitted in the following ways:
E-Gov website: http://
www.regulations.gov. This site allows
the public to enter comments on any
Federal Register notice issued by any
agency.
Fax: 1–202–493–2251.
Mail: Docket Management Facility;
U.S. Department of Transportation
(DOT), 1200 New Jersey Avenue SE,
West Building, Room W12–140,
Washington, DC 20590–0001.
Hand Delivery: Room W12–140 on the
ground level of DOT, West Building,
1200 New Jersey Avenue SE,
Washington, DC, between 9:00 a.m. and
5:00 p.m., Monday through Friday,
except Federal holidays.
Instructions: Identify the docket
number PHMSA–2014–0092 at the
beginning of your comments. Note that
all comments received will be posted
without change to www.regulations.gov,
including any personal information
provided. You should know that anyone
is able to search the electronic form of
all comments received into any of
PHMSA’s dockets by the name of the
individual submitting the comment (or
signing the comment, if submitted on
behalf of an association, business, labor
union, etc.). Therefore, you may want to
review DOT’s complete Privacy Act
Statement in the Federal Register
published on April 11, 2000 (65 FR
19476) or visit http://
www.regulations.gov before submitting
any such comments.
Docket: For access to the docket or to
read background documents or
comments, go to www.regulations.gov at
any time or to Room W12–140 on the
ground level of DOT, West Building,
1200 New Jersey Avenue SE,
Washington, DC, between 9:00 a.m. and
5:00 p.m., Monday through Friday,
except Federal holidays. If you wish to
receive confirmation of receipt of your
written comments, please include a self-
addressed, stamped postcard with the
following statement: ‘‘Comments on
PHMSA–2014–0092.’’ The Docket Clerk
will date stamp the postcard prior to
returning it to you via the U.S. mail.
Please note that due to possible delays
in the delivery of U.S. mail to federal
offices in Washington, DC, we
recommend that persons consider an
alternative method (internet, fax, or
professional delivery service) of
submitting comments to the docket and
ensuring their timely receipt at DOT.
FOR FURTHER INFORMATION CONTACT:
Amy Nelson, Geospatial Information
Systems Manager, Outreach and
Engagement Division, U.S. Department
of Transportation, 1200 New Jersey
Avenue SE, Washington, DC 20590, or
by phone at 202–493–0591.
SUPPLEMENTARY INFORMATION:
I. Background
II. Attribute Changes
III. Retained Attributes
A. Pipe Diameter
B. Wall Thickness
C. Commodity Detail
D. Pipe Material
E. Pipe Grade
F. Pipe Join Method
G. Seam Type
H. Decade of Installation
I. Coated (yes/no)
J. Onshore/Offshore
K. In-line Inspection (yes/no)
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