The primary federal regulatory responsibility for pipeline safety rests with the Pipeline and Hazardous Materials Safety Administration (PHMSA) within the Department of Transportation. Still, activities by other federal agencies also contribute to the safety of our Nation’s pipeline system. For example, the Federal Energy Regulatory Commission (FERC) is responsible for pipeline safety in connection with siting new interstate natural gas pipelines.
Pursuant to the first federal pipeline safety law enacted in 1969, pipeline safety regulation within PHMSA began with prescriptive rules based on safety engineering consensus standards. These regulations now have matured to include “risk management” concepts (allowing individual operators to identify and focus on risks unique to their pipelines) and “integrity management” philosophies that focus on life-cycle concepts. The interstate pipeline industry, working cooperatively with PHMSA, is taking affirmative steps in research and in developing consensus standards to make the pipeline infrastructure even safer.
Many of INGAA’s members have developed sophisticated concepts to manage pipeline integrity. The recently developed PHMSA Integrity Management Program embodies these concepts and applies this methodology consistently across the pipeline industry. (A more complete description of the Integrity Management Program, its implementation and the progress to date is included at the end of this section).
Natural gas pipeline professionals work closely with PHMSA in ensuring safety and reliability. The PHMSA regulations incorporate consensus engineering standards and practices and provide multiple layers of protection to the public by addressing the entire life cycle of a pipeline. The regulations address pipe and component manufacturing, shipping of manufactured pipe, construction techniques, operating procedures and operator training, emergency response, and, ultimately, abandonment at the end of the pipeline’s economic life. PHMSA enforces these regulations by utilizing various inspection and enforcement processes.
Pipeline accidents generally are reported to PHMSA when one of three things occurs: (1) a fatality, (2) an injury or (3) $50,000 or more in property damage. Recently, PHMSA has categorized most “reportable incidents” either as “significant incidents” or as “serious incidents” (incidents that involve fatalities and injuries) and placed that data on its web site. There is a downward trend of “serious incidents” on natural gas transmission pipelines from 1989-2005. Most “serious incidents” were caused by third-party excavation incidents rather than pipeline malfunction or pipeline deterioration. (Since 2002, all fatalities that occurred with respect to natural gas transmission incidents have been excavation related and fatalities were either a pipeline employee or excavation contractor).
PHMSA regulations require pipeline operators to conduct continuing public awareness programs to educate a wide variety of stakeholders on pipeline safety issues. Current regulations require pipeline operators to develop and implement public awareness programs consistent with statutory requirements and the guidance provided by the American Petroleum Institute (API) Recommended Practice (RP) 1162, “Public Awareness Programs for Pipeline Operators,” which was developed jointly by the natural gas and oil pipeline industries and others. Under the regulations, operators of gas and hazardous liquid pipeline facilities must carry out continuing programs to educate the public on:
"the use of a “One-Call” notification system prior to excavation and other damage prevention activities; the possible hazards associated with unintended releases from the pipeline facility; the physical indications that such a release may have occurred; what steps should be taken for public safety in the event of a pipeline release; and how to report such an event
Operators must advise affected municipalities, school districts, businesses, and residents of pipeline locations. Operators must review their programs for effectiveness and enhance the programs as necessary.
PHMSA has also joined with the National Association of State Fire Marshals to form a “Partnership in Excellence in Pipeline Safety.” One of the first priorities under the partnership was the development of an education and training program for emergency responders for effective and efficient response to pipeline incidents. Natural gas pipeline companies participated in the development of this program.
The information provided here is an overview of some, but not all, of PHMSA’s activities in pipeline safety. The reader is encouraged to visit the PHMSA web site for a complete description (www.phmsa.dot.gov).