148 FERC ¶ 61,024

UNITED STATES OF AMERICA

FEDERAL ENERGY REGULATORY COMMISSION

18 CFR Part 154

[Docket No. RM14-21-000]

Natural Gas Act Pipeline Maps

(July 17, 2014)

AGENCY: Federal Energy Regulatory Commission.

ACTION: Notice of proposed rulemaking.

SUMMARY: The Federal Energy Regulatory Commission (Commission or FERC) is 

proposing to amend the filing requirements for natural gas pipeline system maps. Under 

current regulations, natural gas pipelines must include a system map as part of their tariff

on file with the Commission, and file an updated map by the following April for any year 

that there is a major change in the pipeline’s system. Additionally, this map must be 

posted on the pipeline’s own website. In order to reduce regulatory burden on these 

pipelines, the Commission proposes to eliminate the requirement to file a map as part of 

the tariff, leaving only the requirement to maintain a map on the pipeline’s own website. 

Furthermore, in order to promote transparency, the Commission proposes to

change the deadline for updating system maps. Currently, if a pipeline experiences a 

major change that renders its existing map obsolete, it must make a tariff filing no later 

than April 30 of the subsequent calendar year. The Commission proposes a quarterly

deadline for updating pipeline maps.
DATES: Comments are due [Insert Date 60 days after publication of this notice in the 

FEDERAL REGISTER].

ADDRESSES: Comments, identified by docket number, may be filed in the following 

ways: 

• Electronic Filing through http://www.ferc.gov. Documents created electronically 

using word processing software should be filed in native applications or print-toPDF format and not in a scanned format.

• Mail/Hand Delivery: Those unable to file electronically may mail or hand-deliver 

comments to: Federal Energy Regulatory Commission, Secretary of the 

Commission, 888 First Street NE, Washington, DC 20426.

Instructions: For detailed instructions on submitting comments and additional 

information on the rulemaking process, see the Comment Procedures Section of this 

document.

FOR FURTHER INFORMATION CONTACT:

Damien Gaul (Technical Issues)

888 First Street NE, Washington, DC 20426

(202) 502-8008

Damien.Gaul@ferc.gov

Vince Mareino (Legal Issues)

888 First Street NE, Washington, DC 20426

(202) 502-6167

Vince.Mareino@ferc.gov

SUPPLEMENTARY INFORMATION:
UNITED STATES OF AMERICA

FEDERAL ENERGY REGULATORY COMMISSION

Natural Gas Act Pipeline Maps Docket No. RM14-21-000

NOTICE OF PROPOSED RULEMAKING

TABLE OF CONTENTS

Paragraph Numbers

I. Background......................................................................................................................2.

II. Discussion........................................................................................................................5.

A. Proposed Changes ................................................................................................5.

B. Scope ....................................................................................................................10.

III. Information Collection Statement ...................................................................................13.

IV. Environmental Analysis ..................................................................................................18.

V. Regulatory Flexibility Act ..............................................................................................19.

VI. Comment Procedures.......................................................................................................21.

VII. Document Availability ....................................................................................................25.
148 FERC ¶ 61,024

UNITED STATES OF AMERICA

FEDERAL ENERGY REGULATORY COMMISSION

Natural Gas Act Pipeline Maps Docket No. RM14-21-000

NOTICE OF PROPOSED RULEMAKING

(July 17, 2014)

1. The Federal Energy Regulatory Commission (Commission or FERC) is proposing 

to revise its regulations regarding the requirement that interstate natural gas pipelines 

subject to our jurisdiction under the Natural Gas Act (NGA)1 file the system maps as part 

of their tariffs. Currently, pursuant to sections 154.103 and 154.106 of our regulations,2

natural gas pipelines must have a system map in their tariffs on file with the Commission 

and, pursuant to section 284.12(a)(1)(v),

3 on the tariff section of their websites. In order 

to reduce regulatory burden on these pipelines, the Commission proposes to eliminate the 

requirement that natural gas pipelines have a system map on file with the Commission

but retain the requirement to post the system map on their websites. Furthermore, in 

order to promote transparency, the Commission is also proposing to change the deadline 

for updating maps. Natural gas pipeline companies would be required to update the map

 1 15 U.S.C. 717.

2 18 CFR 154.103 and 154.106 (2013).

3 18 CFR 284.12(a)(1)(v) (2013).
Docket No. RM14-21-000 - 2 -

on their website within the calendar quarter of any major system change instead of 

annually by April 30.

I. Background

2. The Commission has required natural gas pipelines to include system maps in their 

tariffs since 1948.4

 The Commission made clarifying modifications to the original 

regulation in 1995,

5 and edits to accommodate electronic tariff filing (eTariff) in 2008.6

The current-day map publication regulation, 18 CFR 154.106, states:

a. The map must show the general geographic location of the company’s 

principal pipeline facilities and of the points at which service is rendered 

under the tariff. The boundaries of any rate zones or rate areas must be 

shown and the areas or zones identified. The entire system should be 

displayed on a single map. In addition, a separate map should be provided 

for each zone.

 4 Amendment of Regulations and Approved Forms Under the Natural Gas Act, to 

Prescribe Revised Rules Governing the Form, Composition, Filing, and Posting of Rate 

Schedules and Tariffs for the Transportation or Sale of Natural Gas Subject to the 

Jurisdiction of the Commission, Order No. 144, 13 FR 6371, 6374 (issued Oct. 28, 1948, 

published Oct. 30, 1948, corrected Nov. 12, 1948).

5 Filing and Reporting Requirements for Interstate Natural Gas Company Rate 

Schedules and Tariffs, Order No. 582, 60 FR 52,960, FERC Stats. & Regs. ¶ 31,025 

(1995).

6 Electronic Tariff Filings, Order No. 714, 73 FR 57,515, FERC Stats. & Regs. 

¶ 31,276 (2008) clarified, Order No. 714-A, 147 FERC ¶ 61,115 (2014).
Docket No. RM14-21-000 - 3 -

b. [Reserved]

c. The map must be revised to reflect any major changes. The revised map 

must be filed no later than April 30 of the calendar year after the major 

change.7

3. As with other parts of tariffs, pipeline system maps must be filed with the 

Commission solely in electronic format. Order No. 714 required that all natural gas 

pipeline tariffs and tariff revisions, including those concerning system maps, be filed 

electronically according to a set of standards developed in conjunction with the North 

American Energy Standards Board (NAESB).8

 Moreover, under NAESB Wholesale Gas 

Quadrant Standard 4.3.23, and as incorporated by reference in section 284.12(a)(1)(v) of 

the Commission’s regulations,

9 each pipeline must display its entire tariff (including the 

map) on its website. Pipeline system maps, however, are often created using specialized 

software, and can be densely populated with data. These factors have created constraints 

in the ability of pipelines to file maps as part of their electronically filed tariffs. For 

 7 18 CFR 154.106.

8 Order No. 714, FERC Stats. & Regs. ¶ 31,276 at P 1.

9 18 CFR 284.12(a)(1)(v).
Docket No. RM14-21-000 - 4 -

example, eTariff limits the size of all individual tariff records to 10 megabytes.10 Further, 

system maps may only be filed in one of two electronic formats, RTF or PDF.11 In 

practice, it is technically difficult to create and file a map in RTF. Further, pipelines have 

informed Commission Staff that converting their maps to a small-size PDF often compels 

them to reduce the quality of the maps.

4. As noted, the current regulation requires the filing of an updated map only if there 

is a major change, and thus not all pipelines have major changes requiring such a filing 

every year. Over the past three years, the Commission received an average of 21 filings 

per year that were exclusively pursuant to section 154.106. Additionally, pipelines 

sometimes file system maps intermittently throughout the year as part of more general 

tariff filings.

II. Discussion

A. Proposed Changes

5. The Commission proposes two changes to the gas pipeline map regulations with 

the aim of promoting transparency and reducing regulatory burden. In an effort to reduce 

regulatory burden, the Commission proposes to eliminate the requirement that system 

 10 See Implementation Guide for Electronic Filing of Parts 35, 154, 284, 300, and 

341 Tariff Filings (April 29, 2014) Data Dictionary, Record Binary Data, available at

<http://www.ferc.gov/docs-filing/etariff/implementation-guide.pdf>. 

11 Id. at Data Dictionary, Record Content Type Code. RTF refers to Rich Text 

Format which is a standardized textual formal that can be produced by a number of word 

processors. PDF refers to Portable Document Format, which is a format used for 

representing documents that closely resembles the original formatting of the document.
Docket No. RM14-21-000 - 5 -

maps be filed in as part of natural gas pipeline tariffs. In the place of system maps, the 

Commission proposes to require that pipelines provide a tariff record that contains a 

website address, or uniform resource locator (URL) reference, to the pipeline’s publicly

available website where maps may be accessed. The Commission proposes that natural 

gas pipelines post their system maps on the Informational Postings portion of their 

respective websites in accordance with applicable NAESB standards. Upon the adoption 

of this rule, NAESB should also consider whether additional standards are needed to 

assure accessibility and uniformity in the presentation of the maps.

6. The proposal to eliminate the map filing requirement effectively renders the 

April 30 regulatory deadline obsolete. Thus, in order to ensure a higher level of 

transparency, the Commission proposes to require pipelines to update system maps more 

promptly, so that customers and potential customers can obtain a realistic picture of the 

pipeline’s configuration, its zone boundaries, and the areas to which its rates apply. 

While zone boundaries do not often change, the markets pipelines serve do change more 

frequently as pipelines add laterals, extend mainlines, abandon plant or change 

operations. Requiring pipelines to update their maps in the calendar quarter that they 

implement a major system change will enhance transparency by ensuring that shippers 

have an accurate depiction of the pipeline in a timelier manner.
Docket No. RM14-21-000 - 6 -

7. Pursuant to the Commission’s current regulatory structure, pipelines must already

provide new tariff language or maps in advance.12 While we continue to encourage such 

promptness, for the purposes of section 154.106, the Commission proposes to reduce the 

current lag period to a calendar quarter.

13 Because it is relatively rare for pipelines to 

engage in major changes that require new maps more than once a year, this change 

should only slightly increase the number of website map updates but it will increase the 

public’s confidence that a pipeline’s map is up-to-date and relevant. Furthermore, 

connecting map update deadlines to the calendar quarter will assist those pipelines that 

prefer specified calendar dates for their compliance obligations. Accordingly, the 

Commission proposes to define the new deadline as follows (new language in bold): 

“The map must be revised to reflect any major change no later than the end of the 

calendar quarter of the major change.”

8. Furthermore, just as all tariff records, including tariff maps, must have an effective 

date under the current regulations, the Commission will also require website maps to

 12 Currently, section 4 of the Natural Gas Act obligates pipelines to announce the 

proposed tariff changes to terms, conditions, and rates at least 30 days before the change 

goes into effect. Pipelines often include maps with these filings in order to meet the 

burden of demonstrating justness and reasonableness. Most filings under section 7 of 

the Natural Gas Act expressly require a map, as per Commission regulations. E.g., 

18 CFR 157.208, 157.211, 157.213, 157.214, 157.215, 157.216 (2013).

13 “Calendar quarter” has its standard meaning, as used, e.g., in 18 CFR 141.400 

and 284.126 (2013): January 1 through March 31, April 1 through June 30, July 1 

through September 30, and October 1 through December 31.
Docket No. RM14-21-000 - 7 -

display an effective date. Pipelines are also permitted to display maps showing past, 

future, or hypothetical operations, so long as these maps are clearly labeled as such. 

9. The Commission is taking this action as part of our commitment to continually 

review our regulations and eliminate those requirements that impose an unnecessary 

burden on regulated entities. We find that our proposal to have pipelines incorporate the 

system map by reference to a location on their websites will retain all of the transparency 

and consumer safeguards embodied in the Commission’s existing regulations. However, 

it will eliminate approximately 21 filings each year, and the concomitant technical

burdens of conforming maps to the eTariff requirements, thereby reducing the regulatory 

burden on the pipelines and the Commission.

B. Scope

10. The Commission emphasizes that the only change contemplated by this Proposed 

Rule is to the filing requirements for system maps in the eTariff system, sections 154.103 

and 154.106 of the Commission’s regulations. Other filing requirements, including the 

system flow diagrams and maps in Form 567,

14 Exhibits F and G,15 and Exhibits V 

and Z,

16 are unchanged and are not the subject of this proceeding. 

 14 18 CFR 260.8 (2013)

15 18 CFR 157.14(a)(6) through (9) (2013).

16 18 CFR 157.18(c) and (g) (2013).
Docket No. RM14-21-000 - 8 -

11. Additionally, this Proposed Rule does not affect the substantive content of the 

map, as defined in the existing regulation (e.g., “general geographic location” and “the 

boundaries of any rate zones or rate areas must be shown”). Nor does it affect the 

triggering event for filing a new map (i.e., “major change”). By freeing pipelines of the 

need to convert their maps into small-sized RTF or PDF files, the Commission predicts 

that the overall quality of pipeline maps will improve without the need for prescriptive 

regulation.

12. The Commission proposes that, on the first day of the calendar quarter that starts 

90 days after the Final Rule is published in the Federal Register, all pipelines would file 

a compliance tariff filing. This compliance filing would revise their respective tariffs to 

remove their system maps and provide the website address or URL reference. Assuming 

that pipelines do not change their URL reference, all future map updates should be able to 

be made without need for making any filing with the Commission.

III. Information Collection Statement

13. The following collections of information contained in this proposed rule are 

being submitted to the Office of Management and Budget (OMB) for review under 

section 3507(d) of the Paperwork Reduction Act of 1995, 44 U.S.C. 3507(d). 

14. The Commission solicits comments on the Commission’s need for this 

information, whether the information will have practical utility, the accuracy of the 

provided burden estimates, ways to enhance the quality, utility, and clarity of the 

information to be collected, and any suggested methods for minimizing respondents’

burden, including the use of automated information techniques. 
Docket No. RM14-21-000 - 9 -

15. The following burden estimates reflect the time necessary for respondents to 

update their tariffs according to this proposed rule, as well as the burden reduction as 

respondents will no longer have to file system map adjustments. Also, there is a small 

burden increase to account for the proposed requirement that pipelines update their 

system maps on a more frequent basis than annually. The Commission bases the 

estimated number of respondents on the number of Natural Gas Act jurisdictional 

companies with tariffs on file, accounting for companies that have waivers. The 

Commission assumes that in the first year the only difference in burden for respondents is 

to make the one time tariff changes estimated at eight hours per respondent. In each year, 

starting in the second, the Commission estimates that approximately 21 respondents per 

year will experience a four hour reduction in burden from no longer filing system map 

adjustments with the Commission. Also starting in the second year, the Commission 

estimates that approximately four respondents will see an increase of four hours per year 

in order to update their maps more frequently. The following table shows the proposed 

rule burden hour impact. 
Docket No. RM14-21-000 - 10 -

 17 The estimates for Total Annual Cost are derived using the following formula: 

Total Annual Burden Hours * $ per Hour = Total Annual Cost. For the one-time tariff 

filing the hourly loaded (wage plus benefits) wage is $128 and is based on the loaded 

wage of an attorney. For the burden reduction and additional updates the hourly loaded 

wage is $61 and is based on the loaded wage of a civil engineer and a computer/math 

specialist. The hourly wage figures come from the Bureau of Labor Statistics (BLS) at 

http://www.bls.gov/oes/current/naics2_22.htm> and the benefits are calculated using 

BLS information at http://www.bls.gov/news.release/ecec.nr0.htm>. Each response to 

the proposed regulation in Column A is expected to correspond to a unique respondent. 

As a result, total number of responses equals the expected total number of respondents.

Total 

Number of 

Responses

(A)

Burden 

Hours per 

Response

(B)

Total Annual 

Burden Hours

(C)= (A)*(B)

Total Annual 

Cost17

=(C)*($/hour)

One-time tariff 

filing (year 1)

165 8 1,320

$168,960 

($128/hr)

Burden Reduction 

(year 2 and beyond)

21 4 -84

-$5,124

($61/hr)

Additional burden 

for more frequent 

map updates (year 2 

and beyond)

4 4 16

$976 

($61/hr)

Total – Year 1

165 8 1,320 $168,960

Total – Year 2 and 

beyond -17 4 -68 -$4,148
Docket No. RM14-21-000 - 11 -

Title: FERC-545, Gas Pipeline Rates: Non Formal

Action: One-time filing and reduced future filings

OMB Control Number: 1902-0154

Respondents: Natural Gas Pipelines

Frequency of Responses: One-time implementation and future reduction in number of 

responses. Responses are mandatory.

Necessity of Information: The proposals in this Proposed Rule would, if implemented, 

reduce the burden of interstate natural gas pipelines resulting from compliance with the 

Commission’s regulations.

Internal Review: The Commission has reviewed the requirements pertaining to proposed

modification of the Commission’s regulations and made a preliminary determination that 

the proposed revisions are necessary to reduce the burden imposed by the Commission on 

the natural gas industry. The Commission has assured itself, by means of its internal 

review, that there is specific, objective support for the burden estimates associated with 

the information requirements.

16. Interested persons may obtain information on the reporting requirements by 

contacting the following: Federal Energy Regulatory Commission, 888 First Street NE, 

Washington, DC 20426 [Attention: Ellen Brown, Office of the Executive Director, 

e-mail: DataClearance@ferc.gov, phone: (202) 502-8663, fax: (202) 273-0873].

17. Comments concerning the collection of information and the associated burden 

estimate, should be sent to the Commission in this docket and to the Office of 

Management and Budget, Office of Information and Regulatory Affairs, 
Docket No. RM14-21-000 - 12 -

Washington, DC 20503 [Attention: Desk Officer for the Federal Energy Regulatory 

Commission, telephone: (202) 395-4638, fax: (202) 395-4718].

IV. Environmental Analysis

18. The Commission is required to prepare an Environmental Assessment or an 

Environmental Impact Statement for any action that may have a significant adverse effect

on the human environment.18 The Commission has categorically excluded certain actions 

from these requirements as not having a significant effect on the human environment.19 

The actions proposed here fall within categorical exclusions in the Commission’s 

regulations for rules that are clarifying, corrective, or procedural, for information 

gathering, analysis, and dissemination, and for sales, exchange, and transportation of 

natural gas that requires no construction of facilities.20 Therefore, an environmental 

assessment is unnecessary and has not been prepared as part of this NOPR.

V. Regulatory Flexibility Act 

19. The Regulatory Flexibility Act of 1980 (RFA)21 generally requires a description 

and analysis of final rules that will have significant economic impact on a substantial 

number of small entities. The RFA mandates consideration of regulatory alternatives that 

 18 Regulations Implementing the National Environmental Policy Act of 1969, 

Order No. 486, FERC Stats. & Regs. ¶ 30,783 (1987).

19 18 CFR 380.4 (2013).

20 See 18 CFR 380.4(a)(2)(ii), 380.4(a)(5), 380.4(a)(27) (2013).

21 5 U.S.C. 601-612.
Docket No. RM14-21-000 - 13 -

accomplish the stated objectives of a proposed rule and that minimize any significant 

economic impact on a substantial number of small entities. The Small Business 

Administration’s (SBA) Office of Size Standards develops the numerical definition of a 

small business.22 The SBA has established a size standard for pipelines transporting 

natural gas, stating that a firm is small if its annual receipts are less than $25.5 million.23

20. The changes proposed here only impact interstate pipelines. Approximately 

165 entities would be potential respondents subject to data collection FERC-545 

reporting requirements. More than half of these entities are large entities. Using 

2013 revenue data from the Form 2 and 2A, the Commission estimates that 19 percent or 

26 total pipelines not affiliated with larger companies had annual revenues of less than 

$25.5 million. Moreover, these changes are designed to benefit all customers, including 

small businesses. The Commission estimates that the one-time cost per small entity is 

$1,024.24 In the future, small entities should see a cost savings related to avoiding filing 

requirements related to system maps. The Commission does not consider the estimated 

$1,024 impact per entity to be significant. Accordingly, pursuant to §605(b) of the RFA, 

the Commission certifies that this proposed rule should not have a significant economic 

impact on a substantial number of small entities.

 22 13 CFR 121.101 (2013).

23 13 CFR 121.201, subsection 486.

24 See the Information Collection section for further explanation.
Docket No. RM14-21-000 - 14 -

VI. Comment Procedures

21. The Commission invites interested persons to submit written comments on the 

proposed regulation modifications promulgated in this NOPR, as well as any related 

matters or alternative proposals that commenters may wish to discuss. Comments are due 

[Insert Date 60 days after publication in the Federal Register]. Comments must refer to 

Docket No. RM14-21-000, and must include the commenter’s name, the organization 

they represent, if applicable, and their address. Comments may be filed either in 

electronic or paper format.

22. The Commission encourages comments to be filed electronically via the eFiling 

link on the Commission’s website at <http://www.ferc.gov>. The Commission accepts 

most standard word processing formats. Documents created electronically using word 

processing software should be filed in native applications or print-to-PDF format and not 

in a scanned format. Commenters filing electronically do not need to make a paper 

filing.

23. Commenters that are not able to file comments electronically must send an 

original of their comments to: Federal Energy Regulatory Commission, Secretary of the 

Commission, 888 First Street NE, Washington, DC 20426.

24. All comments will be placed in the Commission's public files and may be viewed, 

printed, or downloaded remotely as described in the Document Availability Section 

below. Commenters on this proposal are not required to serve copies of their comments 

on other commenters.
Docket No. RM14-21-000 - 15 -

VII. Document Availability

25. In addition to publishing the full text of this document in the Federal Register, the 

Commission provides all interested persons an opportunity to view and/or print the 

contents of this document via the Internet through the Commission’s Home Page 

<http://www.ferc.gov> and in the Commission’s Public Reference Room during normal 

business hours (8:30 a.m. to 5:00 p.m. Eastern time) at 888 First Street NE, Room 2A, 

Washington DC 20426.

26. From the Commission’s Home Page on the Internet, this information is available 

on eLibrary. The full text of this document is available on eLibrary in PDF and 

Microsoft Word format for viewing, printing, and/or downloading. To access this 

document in eLibrary, type the docket number excluding the last three digits of this 

document in the docket number field.

27. User assistance is available for eLibrary and the Commission’s website during 

normal business hours from the Commission’s Online Support at (202) 502-6652 (toll 

free at 1-866-208-3676) or email at ferconlinesupport@ferc.gov, or the Public Reference 

Room at (202) 502-8371, TTY (202) 502-8659. E-mail the Public Reference Room 

at public.referenceroom@ferc.gov.
Docket No. RM14-21-000 - 16 -

List of subjects in 18 CFR Part 154

Natural Gas, Pipelines, Reporting and recordkeeping requirements.

By direction of the Commission.

( S E A L )

Nathaniel J. Davis, Sr.,

Deputy Secretary.
Docket No. RM14-21-000 - 17 -

In consideration of the foregoing, the Commission proposes to amend Part 

154.106, Chapter I, Title 18, Code of Federal Regulations, as follows:

PART 154—RATE SCHEDULES AND TARIFFS

1. The authority citation for part 154 continues to read as follows:

Authority: 15 U.S.C. 717 -717w; 31 U.S.C. 9701; 42 U.S.C. 7102 -7352.

2. Revise § 154.103(a) to read as follows:

§154.103 Composition of tariff.

(a) The tariff must contain sections, in the following order: A table of contents, a 

preliminary statement, a uniform resource locator for the Internet address of a map of the 

system, currently effective rates, composition of rate schedules, general terms and 

conditions, form of service agreement, and an index of customers.

*****

3. Revise § 154.106 to read as follows:

§154.106 Map.

(a) The tariff must state a uniform resource locator on the pipeline’s Internet website, at 

which the general public may display and download system map(s).

(b) The map must show the general geographic location of the company’s principal 

pipeline facilities and of the points at which service is rendered under the tariff. The 

boundaries of any rate zones or rate areas must be shown and the areas or zones 

identified. The entire system should be displayed on a single map. In addition, a 

separate map should be provided for each zone.
Docket No. RM14-21-000 - 18 -

(c) The map must be revised to reflect any major change no later than the end of the 

calendar quarter of the major change.