Document ID: PHMSA-2019-0047-0001
Agency: phmsa
Document Type: Notice
Title: Pipeline Safety: Potential for Damage to Pipeline Facilities Caused by Flooding, River Scour, and River Channel Migration
Posted Date: 2019-04-11T04:00Z

[Federal Register Volume 84, Number 70 (Thursday, April 11, 2019)]
[Notices]
[Pages 14715-14717]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-07132]

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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.

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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 Sec.  192.619(a) and (b).''
    Likewise, Sec.  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

[[Page 14716]]

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] Sec.  195.452, the operator must 
correct the condition as prescribed in Sec.  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 Sec. Sec.  192.613(a) and (b) and 195.401(b).
    In addition, Sec.  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, Sec. Sec.  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.

[[Page 14717]]

    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 Sec. Sec.  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